Analysis of public housing standards in Victoria : 1939-1995

The "housing standard" is a government policy document which defines minimum dwelling standards. This thesis outlines the development of public housing standards in Victoria between 1939 and 1995. The Hotham Housing Estate, North Melbourne, was the case study from which a proposed framework for critical analysis of minimum housing standards was derived.

'Build it, fill it and bill it' : how work in the public housing sector has changed (and stayed the same)

This paper is an ethnographic account of how 'wicked' (i.e. entrenched and enduring) problems with the 'building, filling and billing' of public housing have shaped and influenced the work of public housing workers in Victoria, Australia. With a few exceptions, the front line work of housing staff is represented in the literature as smaller, constituent parts of some larger policy process, organisational event or procedural reform. In order to understand how housing work has been constructed over time, this paper attempts to consolidate these fragmented narratives (contained in old documents, training manuals, news articles and reports) into an historical account of 'what it was like' to work in the public/social housing sector. In this paper, I will construct this 'historical account' with the stories I gathered over twelve months of field work in three different public housing offices. In their stories, public housing workers tell me how subtle and incremental has been the change to their work, how increasingly complex are the needs of tenants and how dfficult their work has become. Their stories illustrate the complexity of undersdanding and addressing these 'wicked' housing problems when tenants change, staff change and
the public housing sector has a history of frequent 'restructuring'. This contextualisation of 'old and new stories' will allow the reader to understand how the organisational reality of present day housing work has been socially constructed ('sedimented') by generation, of workers, managers and tenants.

An ethnography of housing : public housing work in Victoria

This thesis examines the everyday practices of housing officers working in the Victorian Office of Housing, a large public sector statutory authority providing rental housing to low–income households. Housing officer work has changed substantially associated with the shift from the provision of ‘public housing’ in the post–WWII period to the provision of ‘welfare housing’ from the early 1980s. These changes are evident in both the formal organisation of work and day–to–day practices. The principal research question addressed is ‘How has the work of staff in the Victorian Office of Housing changed as a consequence of the shift from the provision of ‘public housing’ in the post–WWII period to the provision of ‘welfare housing’ from the early 1980s?’

This question is addressed by presenting an historically informed ethnography of the Office of Housing. Research was undertaken over a twelve–month period through interviews, participant observation and the collection of documents. The data collected through the use of these methods provided the basis for the presentation of ‘thick descriptions’ of the work of staff employed to provide rental housing to low–income households.

The research into this large hierarchical formal organisation was undertaken in three offices: a local suburban office, a regional office and head office. This enabled connections and tensions in direct service delivery work and policy work to be identified and analysed. It revealed that the experience of the shift from the provision of public housing to the provision of welfare housing has not been uniform and underscores the importance of understanding organisations as socially constructed.

Staff work was analysed by distinguishing four overarching problems consistently referred to by staff and highlighted in formal reviews. First, ‘problems with tenants’ refers to the changing profile of tenants and staff responses and interactions. Second, the ‘problem with rent’ centres on setting and collecting rents from very low–income tenants. Third, the ‘problem with housing standards and assets’ focuses on housing quality, maintaining properties and the tenant use of properties. Fourth, the ‘problems with the organisation’ are found in the constant searching for the best ways of defining roles, leading and communicating within a large and geographically distributed organisation. These are the features of work which present dilemmas for those who seek to produce better services for households who live in public housing.

Communication as coping; how staff working in public housing use narrative to understand their complex and sometimes challenging work.

This paper describes how ethnographic research was used to explore the communication practices of staff working organisation charged with the provision of low cost housing to some of the very poorest and most marginalised members of society in Victoria, Australia. This paper is concerned with how the narratives of the participants (that is, their ‘stories’) provides a very useful and potent insight into the daily life of staff working with people experiencing ‘multiple and complex needs’. The paper uses vignettes and case studies to illuminate the daily work of staff, sharing with the reader the things they see and hear and describing the complexity of the ‘wicked’ problems they face. More importantly, the research uncovered a number of narrative structures staff employ to understand and respond to these problems.

Self-reported health beliefs of government housing tenants

Our aim was to provide a description of the self-reported health beliefs of a sample of Victorian public housing tenants, and to identify how gender, age and geographic location relate to these beliefs. Telephone interviews were conducted with a stratified random sample of 360 tenants, asking questions such as what they believe are the major health problems for men and women, what they do to keep healthy, and what makes it difficult to keep healthy. There were many differences in the beliefs held by older participants compared with those of younger participants. By asking about health in general, rather than specific aspects of health, this research identified the views about health which are most salient to participants, rather than those prompted by a survey on a particular disease or health behaviour. The health promotion implications of these findings are discussed.

Housing service officers : agents of the state or customer service officers?

Staff employed in the Victorian Office of Housing are invariably required to exercise discretion in their day-to-day work managing housing assets and providing services to public housing tenants. Policies specify processes but they never cover all situations and do not provide guidance on competing objectives. For example, preparing a property for reletting is a process with protocols and budget constraints. However, staff can make procedural variations that compy with policy. These variations, generally learnt from peers on the job, often result in budget over runs, but do result in improved properties for new tenants. Discretion is being exercised in balancing housing asset, budget control and tenant service objectives. A housing officer sums up the enduring tension in balancing objectives in the question and statement:’ Am I an agent of the state or a customer service officer? Because I can’t be both’. Organisationally these tensions are spoken about as ‘management issues’, ‘policy reengineering’ and ‘unrealistic understandings’. Using data from an ethnographic study in the Victorian Office of Housing, the paper addresses the question: ‘What do we know about the way in which front line housing officers manage competing objectives in their daily work and how might this knowledge be usefully used in the development of operational policy?’ The paper will explore the way in which complex administrative rules are used as a device to align staff to the Office of Housing objectives and limit the exercise of discretion by frontline staff. Against the background of this analysis the paper will consider the limitations of rule making and the extent to which other organisational strategies might be important for improvements in service provision in a context of constrained resources and limited resources.

Ethnography of housing : a conclusion

This paper is the final report of a research project spanning three years, exploring three field locations and capturing the stories of forty (plus) housing workers. Using an ethnographic research approach, this paper provides an account of how housing workers use language and stories to understand and make sense of their challenging and changing work. First hand accounts ('stories') about every day housing work frame the data in this paper, explaining how housing workers in Victoria have experienced and made sense of the shift from public housing as 'affordable housing for the working poor' to 'housing of last resort for the most vulnerable and needy members of the community'. Using a number of composite stories, this paper provides the reader with a glimpse into the work of public housing staff, transporting the leader from the relatively static world of policy and procedure to the more colorful world of tenants with 'high and complex' needs, 'wicked' problems, weary staff and the daily reality of organisational change.

A unique feature of this research is the comparison of how different workers use stories to build a range of 'socially constructed realities' around the housing work and its wicked problems. This paper compares and contrasts the socially constructed realities of frontline staff with the corresponding social realities of the managers at head office (and vice versa). This 'same problem, different perspective' approach allows the reader to better understand how the same problem is understood and approached in different ways, depending on the individual's organisational role, responsibly and authority. Using stories about 'working with problem tenants', 'collecting rental arrears from the poor and marginalised', 'maintaining old, neglected properties' and 'coping with organisational change', this paper illustrates how the shifting (and sometimes contradictory) construction of housing problems has meant that the organisation has long struggled to devise and implement sustainable remedies to these problems.

The following pages describe how the problems identified in the Housing Office Review (and experienced in the daily work of the 'modern day' housing worker) are simply a contemporary manifestation of 'age old public housing issues'. This paper describes and explains how housing staff have long used narrative to make sense of their often difficult work and ultimately, how they understand and experience a major process of operational policy change associated with the shift from 'public' housing to 'welfare' housing.

Ethnography of housing

This paper is the final report of a research project spanning three years, exploring three field locations and capturing the stories of forty (plus) housing workers. Using an ethnographic research approach, this paper provides an account of how housing workers use language and stories to make sense of their challenging and changing work. First hand accounts ('stories') about everyday housing work frame the data in this paper, explaining how housing workers in Victoria have experienced and made sense of the shift from public housing as 'affordable housing for the working poor' to 'housing of last resort for the most vulnerable and needy members of the community'. Using a number of composite stories, this paper provides the reader with a glimpse into the work of public housing staff, transporting the reader from the relativley static world of policy and procedure to the more colourful world of tenants with ' high and complex' needs, 'wicked' problems, weary staff and the daily reality of organisational change.

A unique feature of this research is the comparison of how different workers use their stories to build a range of 'socially constructed realities' around the housing work and its wicked problems. With a few exceptions (Saugeres, 1999, Howe, 1998, Clapham et al., 2000, Darcy, 1999) the voices of frontline staff are largley absent from contemporary housing literature. In this paper, I use the stories of frontline staff to build a comparative case study of the socially constructed realities for frontline staff and the corresponding realities of the managers at head office (and vice versa). This 'same problem, different perspective' approach allows the reader to better understand how the same problem is understood and approached in different ways, depending on the individual's organisational role, responsibility and authority. Using stories about 'working with problem tenants', 'collecting rental arrears from the poor and marginalised', maintaining old, neglected properties' and 'coping with organisational change', this paper illustrates how the shifting (and sometimes contradictory) construction of housing problems has meant that the organisation has long struggled to devise and implement sustainable remedies to these problems.

The following pages describe how the problem identified in the Housing Office Review (and experienced in the daily work of the 'modern day' housing worker) are simply a contemporary manifestation of  'age old public housing issues'. This paper describes and explains how housing staff have long used narrative to make sense of their often difficult work and ultimately, how they understand and experience a major process of operational policy change associated with the shift from 'public' housing to 'welfare' housing.

Multi-owner low-cost housing management in Malaysia : effects of owner-occupant characteristics and occupancy rates

Purpose – Homeownership is considered both economically and socially beneficial for homeowners. However, in the collective living arrangement, reaching a consensus with regard to the residential environment is difficult. The purpose of this paper is to identify factors that can reduce the conflict among the stakeholders in multi-owner low-cost housing in Malaysia.
Design/methodology/approach – This study tested three hypotheses examining whether the demographic and socio-economic characteristics of owner-occupants and occupancy rates affect owner-occupants' satisfaction with stakeholders' relationships. Data were collected through questionnaires from owner-occupants of multi-owner low-cost settlements in Selangor state. Data on housing characteristics were collected from chairpersons of the respective owners' organisations. The data were treated as parametric, and analysis of variance was conducted.
Findings – Four factors – number of children in the family, duration of residency, participation in social activities and participation in meetings – were found to affect owners-occupants' satisfaction with the stakeholders' relationships. The significant effect of occupancy rates was also indicated.
Practical implications – The Management Corporations (MCs) should encourage social relationships among residents. To avoid conflict, the costs and benefits of participation must be balanced. Policy makers should take two key aspects seriously: owner-managed strategy practices by the MCs and high rates of tenant-residents. A mechanism should be identified for assisting the MCs in housing management and for protecting the benefits of homeownership for owner-occupants.
Originality/value – Past studies on low-income household settlements examined public housing or low-income homeowners of single detached dwellings. This study adds to the existing body of knowledge by examining low-income homeowners in multi-owner low-cost settlements.

Embracing off-site innovation in construction in China to enhance a sustainable built environment in urban housing

With the rapid rate of urbanization and pressing need for higher levels of sustainable development within the built environment in China, the housing construction industry presently is facing urgency of shaping a sustainable construction process. This paper examines several sustainability challenges from the large-scale urban housing construction, and explores the connection between off-site innovation and sustainability within a context of China's housing construction industry. The study also identifies four pillars of strategy agendas that could enhance an enabling innovation environment for the ultimate goal of sustainability: (1) institutional environment, (2) public housing market, (3) organisational actions and (4) technological capacity. The knowledge and research findings presented in this paper would provide a ground framework that helps evaluate and assess the significances of off-site innovation to assist with a sustainable built environment.

People, places and policies – trying to account for health inequalities in impoverished neighbourhoods

Objective : We consider associations between individual, household and area-level characteristics and self-reported health.
Method : Data is taken from baseline surveys undertaken in 13 socio-economically disadvantaged neighbourhoods in Victoria (n=3,944). The neighbourhoods are sites undergoing Neighbourhood Renewal (NR), a State government initiative redressing place-based disadvantage.
Analysis :This focused on the relationship between area and compositional factors and self-reported health. Area was coded into three categories; LGA, NR residents living in public housing (NRPU) and NR residents who lived in private housing (NRPR). Compositional factors included age, gender, marital status, identifying as a person with a disability, level of education, unemployment and receipt of pensions/benefits.
Results : There was a gradient in socio-economic disadvantage on all measures. People living in NR public housing were more disadvantaged than people living in NR private housing who, in turn, were more disadvantaged than people in the same LGA. NR public housing residents reported the worst health status and LGA residents reported the best.
Conclusions : Associations between compositional characteristics of disability, educational achievement and unemployment income and poorer self-reported health were shown. They suggested that area characteristics, with housing policies, may be contributing to differences in self-reported health at the neighbourhood level.
Implications : The clustering of socio-economic disadvantage and health outcomes requires the integration of health and social support interventions that address the circumstances of people and places.