Professional Documents
Culture Documents
Routledge Informa Ltd Registered in England and Wales Registered Number: 1072954 Registered office: Mortimer House, 37-41 Mortimer Street, London W1T 3JH, UK
Sustainable development policy perceptions and practice in the UK social housing sector
Kate Carter & Chris Fortune
a a a
School of the Built Environment, HeriotWatt University, Edwin Chadwick Building, Edinburgh EH14 4AS, UK Available online: 02 May 2007
To cite this article: Kate Carter & Chris Fortune (2007): Sustainable development policy perceptions and practice in the UK social housing sector, Construction Management and Economics, 25:4, 399-408 To link to this article: http://dx.doi.org/10.1080/01446190600922578
PLEASE SCROLL DOWN FOR ARTICLE Full terms and conditions of use: http://www.tandfonline.com/page/terms-and-conditions This article may be used for research, teaching, and private study purposes. Any substantial or systematic reproduction, redistribution, reselling, loan, sub-licensing, systematic supply, or distribution in any form to anyone is expressly forbidden. The publisher does not give any warranty express or implied or make any representation that the contents will be complete or accurate or up to date. The accuracy of any instructions, formulae, and drug doses should be independently verified with primary sources. The publisher shall not be liable for any loss, actions, claims, proceedings, demand, or costs or damages whatsoever or howsoever caused arising directly or indirectly in connection with or arising out of the use of this material.
Sustainable development policy perceptions and practice in the UK social housing sector
KATE CARTER* and CHRIS FORTUNE
School of the Built Environment, Heriot-Watt University, Edwin Chadwick Building, Edinburgh EH14 4AS, UK Received 1 June 2006; accepted 20 July 2006
Massive investment has been allocated by the UK government to improve the quality of its programme of rented social housing over the next five years. Central to the achievement of this aim will be the incorporation of sustainability features within the building projects associated with this development programme. A sustainable development policy that addresses environment, economy and society in equal measure is a new funding requirement for social housing projects. There is a gap between policy and practice in two areas: (i) the possession or otherwise of a sustainable development (SD) policy; and (ii) the relative importance given to differing features of sustainability. The perceptions and practice of built environment professionals involved in the procurement of sustainable housing schemes has been gauged regarding SD policy. Quantitative data were collected from a randomized sample of 338 developing registered social landlords (RSLs). The results show that only a minority of respondent organizations have developed a sustainable development policy and that environmental, economical and societal aspects of sustainability are not given equal weighting. This does not reflect governmental policy and suggests that sustainability is not being fully addressed in the procurement of social housing projects. Further work is needed to evaluate the links between sustainability and procurement approaches, and to model the benefits of delivering sustainable housing projects for RSLs in the UK. Keywords: Sustainability, housing development, policy, housing associations
Introduction
The UK government is committed to addressing the concept of sustainability in all publicly funded procurement and it is developing strategies and policies to shape action on sustainable development (SD). Owing to the deep connections between sustainability and housing (Ekins, 2000), the social housing sector has been central to the development of sustainable development policy. The range of principles, toolkits, definitions and agendas relating to sustainability is considerable. Most of them give equal weighting to economic, social and environmental aspects. However, many of the toolkits so far developed are either too broadaimed at policy level thinking; or overly complexdetailing vast lists of actions appropriate to improving sustainability. As a result there is a lack of a common structure or framework to assist project teams
involved in the procurement of sustainable social housing projects. Massive investment has been allocated by the UK government to improve the quality of its rented social housing over the next five years. In England 38 billion is to be invested through the sustainable communities plan by 2010, which includes constructing 84,000 new homes by 2008 (Housing Corporation, 2006). In Scotland 1.2 billion is being invested to build 21,500 new and improved homes over the next two years (Communities Scotland, 2006). The funding is to be delivered through the governments housing agencies to the many registered social landlords (RSLs) involved in development projects. RSL organizations are involved in the commission, development, management and maintenance of socially owned rented properties in the UK. Government funding for such projects requires RSL organizations to ensure that sustainability issues are addressed through the development and implementation of organizational sustainable development (SD) policies.
Construction Management and Economics ISSN 0144-6193 print/ISSN 1466-433X online # 2007 Taylor & Francis http://www.tandf.co.uk/journals DOI: 10.1080/01446190600922578
400
The requirement to deliver sustainable social housing building projects presents challenges to the built environment professionals involved. Translating policy into practice requires a common understanding of the individual features of SD policies and how these are addressed at the building project level. In addition there is a need to appraise which of the individual features of sustainability are likely to be more important to the client organizations involved. The resolution of such challenges will contribute to the pre-contract evaluation of sustainable projects and facilitate its subsequent incorporation into the procurement processes devised to deliver sustainability. The existence and characteristics of SD policies held by RSLs establishes the framework that these organizations apply to the delivery of sustainability in social housing projects. Quantitative data from a large representative sample of developing RSLs were collected to analyse the balance of SD policies with respect to economic, social and environmental factors and to further explore the specific issues that are considered most important to the delivery of sustainability. This platform of current perceptions and practice in the UK social housing sector facilitates further research related to issues such as sustainable project procurement and pre-contract benefit evaluation.
Literature review
The 1998 CIB World Building Congress focused on the issue of procurement and the role it plays in the delivery of sustainability. Pollington (1999) called for environmental standards and ethical issues to be fully integrated into the procurement system. Later work by Sterner (2002) showed that as yet only 21% of clients stipulated environmental requirements within their procurement strategies. However, in the UK it is the government and its funding agencies that are championing change by adopting sustainable development (SD) policies themselves and looking to their project supply chain organizations to adopt more sustainable construction practices and processes in the delivery of their projects. This issue was addressed by the UK government in Building a Better Quality of Life (DETR, 2000). This report was a milestone in the development of a more socially and environmentally responsible, better-regarded construction industry. This publication encouraged organizations to introduce their own SD policies. RSLs who receive funding for social housing developments through the governments funding agencies were at the forefront of this change. Housing is considered to be central to the successful delivery of sustainability. It affects quality of life and
401
sustainable. Lombardi and Brandon (2002) asserted that the available toolkits do not address the specific needs of an individual project. They maintained that a suitable framework which enabled decision makers to understand the implications of sustainability was still needed. The gap between the UK government policies, strategies, initiatives, toolkits, frameworks and the approach adopted by the social housing sector was explored by Carter and Fortune (2006). Qualitative data were gathered from a small number (eight) of built environment professionals involved in the development of sustainable housing projects for RSLs. A grounded theory approach was taken to the identification of real issues that project stakeholders considered in the development of sustainable housing projects. Fourteen features of sustainability emerged: energy efficiency; building standards; quality of specification; maintenance; insulation; funding; feedback; involvement of tenants; fuel poverty; rent levels; mixed tenure; mixed development; community facilities; and recycling. To establish their applicability to the UK social housing sector further empirical work was undertaken. Empirical research involves the observation of real world experiences, evidence and information (Punch, 1998). A survey questionnaire was used to examine the emphasis these features of sustainability are given in SD policy. Analysis provided perception of how SD policy reflects the triple bottom line. This gave a valuable insight into the profile of SD policy in the social housing sector.
Survey design
Oppenheim (1992) sets out best practice in the design of surveys in the following terms: establishing the aim of the survey; designing and piloting the measuring instrument; administering the survey; analysing and disseminating the results. The aims of the survey were established as (i) to collect data from the real world that could be used to assess the significance of individual features of sustainability; and (ii) to ascertain the emphasis, in terms of environmental, social and economic aspects of SD policies developed and used by RSL organizations involved in developing sustainable rented housing projects in the UK. The design of the questionnaire allowed data to be collected around these key themes. The questionnaire was concerned with the collection of perception and meaning in the subjective area of sustainability and its understanding and application. The scale of the survey and the underlying aim of ranking sustainability features called for the use of
402
attitudinal measuring Likert scales. Such scales provide a number of options for the respondent to select. The main variable in the survey was identified as being the respondents size of organization. The survey was piloted among a group of 15 RSLs. The respondents were asked to complete the questionnaire and make comments on the content, layout and rationale of the questions. Each respondent completed a feedback sheet and the responses and comments were used to develop the final questionnaire. The finalized questionnaire was dispatched with a covering letter that was addressed to the development manager of each organization included in the sample frame that explained the purpose of the research. The UK social housing sector consists of over 1,800 RSLs. The number of developing organizations amounts to more than half of this total. Therefore a database of the 998 developing RSLs in the UK was established from published sources and it was used to select a randomized sample of 332 developing RSLs each with a stock of more than 20 dwellings for the survey. The first administration of the survey generated a 25% response rate to the survey which was considered to be inadequate. A second administration was undertaken and this increased the final response rate to 36%. This level of response, although not high, is typical of survey response rates reported for similar construction management research. As a result it was deemed acceptable in terms of providing a reasonable representation of the survey population.
Respondent characteristics
The number of properties owned by each respondents organization ranged between 26 and over 10,000 units (Figure 1). The majority of respondents owned between 2,500 and 10,000 units. The other respondent groups were generally almost equal in size (between 12.5% and 15%). A comparison of the survey results with the profile of developing RSLs held on the national database confirmed that the sample of respondents was representative of that population. Of this sample 92% confirmed that they were intending to develop new housing projects and this confirmed the validity of the sample.
criteria from the housing agencies. This result might reflect the need for regulatory input in order to effect change or it may indicate that RSLs without a SD policy were not intending to remain a developing RSL into the future. The extent to which SD policies reflect environmental, economical and societal aspects of sustainable development is a measure of how these factors are prioritized for typical new housing schemes. Respondents were asked to indicate the balance of their policy by marking the proportion of segments on the questionnaire form that was relevant to each aspect of sustainability within their policy documents (Figure 2). This was designed to evaluate the emphasis that their organization put on each of the triple bottom line aspects of sustainability. The results indicate that there was a predominance of SD policies with significance being given to one or more of the economic, social and environmental aspects of sustainability. Only 37% of respondents allocated three segments to each category giving equal emphasis for their sustainable development policy. The histogram for environment is skewed to the right and represents a tendency for respondents to score environment more highly in their SD policies. The
403
Figure 4
SD balance: social
(5) to unimportant (1). The neutral category (3) was important. The majority of respondents considered all of the features to be important, very important or essential. Ten of the 14 features had at least 91% of respondents in agreement on their importance. This result confirmed the importance of the features of sustainability to the social housing sector. A very small percentage of respondents believed some of the features to be either secondary or unimportant. These features were (i) building standards (2%); (ii) funding (9%); (iii) feedback (1%); and (iv) involvement of tenants (4%). This
Figure 5
SD balance: economic
404
further validates the relevance of the features and confirms their overall importance to sustainability in the procurement process. To determine the relative importance of each of the features a simple weighting was attached to each category in the Likert scale that allocated a score from one to five. A cumulative score for each feature was calculated to derive a score to prioritize the features. Each response rate was multiplied by the weighting score to establish a score for each category (Table 1). All the category scores were added together to provide a total score for each feature. The three most important features of sustainability emerged as energy efficiency; building standards; and quality of specification. The lowest scoring feature was recycling. The respondents were offered the opportunity to add any features of sustainability to the list provided in the questionnaire. Only six respondents provided additional features and they included issues such as transport, water efficiency, energy efficiency, community centre/facilities, social activities and awareness raising. The only new feature that emerged was transport, which was considered very important by only one respondent. The remaining features that emerged from the questionnaire could be integrated within the already identified features. This gives more weight to the set of features established from the grounded theory work. Primary hypotheses
The basic hypotheses of the survey were as follows: (1) SD policies were more likely to be found in large RSL organizations. (2) SD policies were based on the triple bottom lineproviding SD policies with equal emphasis on environmental, economic and social aspects. Null hypotheses were established for each of the hypotheses indicated above. Statistical Package for the Social Sciences (SPSS) was used to determine whether the probabilities of the results (P-value of 0.05 or less) could be considered significant. The data collected were ordinal in nature. A KolmogorovSmirnov test revealed that the survey data were non-normal in their distribution. As a result it was decided to apply nonparametric tests. Chi-square, Cramers V and Kendalls tau tests were used on the data. The chi-square test measured if there was a significant association between two variables but not the strength of any association. The strength of association between two variables was tested with the Cramers V test. The third statistical test used on the data was the Kendalls tau test to determine the strength and direction of any covariance.
Respondent organizational characteristics The responses to the survey presented data on the size of the RSL organization. It was decided to group the categories used in the original data collection into three organizational size bandssmall (23 respondents), medium (36 respondents) and large (55 respondents). This recoding was used as a major variable in the subsequent analysis and it allowed relationships to be
Responses and weighted scoring on importance of the features of SD policy Unimportant (1) Secondary (2) 1 Important (3) 10 13 15 22 23 22 24 27 31 35 24 31 39 51 3 V. Important (4) 43 40 43 47 47 35 41 32 46 36 34 33 29 24 1 Essential (5) 45 44 41 30 29 32 30 36 20 24 16 13 13 9 2 Total score 397 383 377 338 333 317 316 316 286 271 255 231 211 167
Energy efficiency Building standards Quality of specification Maintenance Insulation Funding Feedback Involving tenants Fuel poverty Rent levels Mixed tenure Mixed development Community facilities Recycling Other
1 7 6 2
8 1 4 1 3 16 14 14 13
405
SD policies are based on the triple bottom lineproviding equal emphasis on environmental, economic and social aspects of sustainability The balance of SD policy was of interest because the literature reviewed revealed that government housing agency policies were strongly in support of equal merit being given to social, economic and environmental aspects of sustainability. The analysis of the data was carried out to establish if there was a correlation between the size of organization and the balance of the policy. Owing to the large number of permutations, it was decided to reorganize the data to define the policy balance in one of three categoriesbalanced, small emphasis and strong emphasis (Figure 6). Balanced indicated a policy with equal scoring for each aspect of sustainability, i.e. a 333 segment return (Figure 2). Small emphasis represented a policy that scored either plus one or minus one in any aspect away from a balanced policy position, i.e. 432 or 324. Strong emphasis represents a policy that scored two or more in either direction away from a balanced policy position, i.e. 531 or 711. The total score always added to nine. Although balanced policies made up over a third of all responses (35%), a large proportion of policies had either a small (31%) or strong emphasis (27%) on one or more of the aspects of sustainability. Table 3 shows that the null hypothesis stated that the RSLs would have policies that were not equally balanced. This null hypothesis could not be rejected and it is clear that the
Table 2
Size of RSL sustainable development policy: cross-tabulation Sust. development policy Yes No 16 12.5 69.6% 21 19.6 58.3% 25 29.9 45.5% 62 62.0 54.4% 54.4% Approx. sig. 0.064 0.064 0.064 No response 1 0.2 4.3% 0 0.3 0.0% 0 0.5 0.0% 1 1.0 0.9% 0.9% 23 23.0 100.0% 36 36.0 100.0% 55 55.0 100.0% 114 114.0 100.0% 100.0% Total
Small RSLs
Medium RSLs
Large RSLs
Total
Count Expected count % within recode Count Expected count % within recode Count Expected count % within recode Count Expected count % within recode % of total
to SML
to SML
to SML
to SML
N of valid cases
6 10.3 26.1% 15 16.1 41.7% 30 24.6 54.5% 51 51.0 44.7% 44.7% Value 0.279 0.197 .269
406
Conclusions
Figure 6 Balance of SD policy by size of RSL
balanced approach promoted by the housing agencies was not being implemented as standard by the surveys respondents. A correlation was conducted to determine
Table 3 Correlation of policy emphasis and size of RSL
The RSL sector has a well-developed SD policy framework supported by a broad range of guidance. Despite this there is still a gap between policy and practice. The SD policies emerging from individual RSLs are emphasizing environmental aspects of
Policy emphasis Strong emphasis Recode to SML Small RSLs Medium RSLs Large RSLs 2 10 15 27 Value 0.019 Small emphasis 7 11 13 31 Approx. T(b) 0.212 Balance 5 9 21 35 Approx. sig. 0.832
Total
14 30 49 93
Table 4
Correlation of social, economic and environmental aspects of SD policies Social Correlation coefficient Sig. (2-tailed) N Correlation coefficient Sig. (2-tailed) N Correlation coefficient Sig. (2-tailed) N 1.000 95 20.167 0.062 95 20.407(**) 0.000 95 Economic 20.167 0.062 95 1.000 95 20.547(**) 0.000 95 Environment 20.407(**) 0.000 95 20.547(**) 0.000 95 1.000 95
Economic
Environment
407
Beyond Green (2004) Six Steps to Sustainable Development for Housing Associations, Housing Corporation, Leeds. Bourdeau, L. (1999) Sustainable development and the future of construction: a comparison of visions from various countries. Building Research and Information, 27(6), 35567. Bruntland, G. (ed.) (1987) Our Common Future: The World Commission on Environment and Development, Oxford University Press, Oxford. Carter, K. and Fortune, C. (2006) Sustainability: explorations in research approaches. RICS Research Papers Series, 20(20) (forthcoming). Communities Scotland (2006) Strategic Housing Investment Framework, Communities Scotland, Edinburgh. DETR (2000) Building a Better Quality of Life: A Strategy for More Sustainable Construction, The Stationery Office, London. Du Plessis, C. (1999) Sustainable development demands dialogue between developed and developing worlds. Building Research and Information, 27(6), 31990. Ekins, P. (2000) The Big Picture: Social Housing and Sustainability, Housing Corporation, Leeds. Field, A. (2000) Discovering Statistics using SPSS for Windows: Advanced Techniques for the Beginner, Vol. 2, Sage, London. Goodchild, B. and Chamberlain, O. (1999) Building procurement in social housing in Britain: a review of the main issues. Housing Studies, 14(6), 86180. Harris, P.T. and Holt, G.D. (1999) The management of sustainable social housing refurbishment strategies in the West Midlands region of the UK, in Hughes, W. (ed.) 15th Annual ARCOM Conference, Liverpool John Moores University, Association of Researchers in Construction Management, 1517 September, Vol. 1, Arcom, Liverpool, pp. 20310. Hill, R.C. and Bowen, P.A. (1997) Sustainable construction: principles and a framework for attainment. Construction Management and Economics, 15, 22339. Housing Corporation (2004) Sustainable Development Report 2004, Housing Corporation, Leeds. Housing Corporation (2006) Future Investment Approaches, Housing Corporation, Leeds. Howard, N. (2000) Sustainable Construction: The Data, Centre for Sustainable Construction, BRE, Watford. Kibert, C.J., Sendzimir, J. and Guy, B. (2000) Construction ecology and metabolism: natural system analogues for a sustainable built environment. Construction Management and Economics, 18(8), 90316. Lombardi, P.L. and Brandon, P.S. (2002) Sustainability in the built environment: a new holistic taxonomy of aspects for decision making. International Journal of Environmental Technology and Management, 2(1/2/3), 22 37. Long, D. (2001) A Toolkit of Sustainability Indicators, 2nd edn, European Institute for Urban Affairs, Liverpool. Oppenheim, A.N. (1992) Questionnaire Design, Interviewing and Attitude Measurement, Continuum, New York. Pollington, C. (1999) Legal and procurement practices for sustainable development. Building Research and Information, 27(6), 41011.
References
Addis, B. and Talbot, R. (2001) Sustainable Construction Procurement, CIRIA, London.
408
Punch, K. (1998) Introduction to Social Research, Sage Publications Ltd, London. Rao, S., Yates, A., Brownhill, D. and Howard, N. (2000) ECOHOMES: The Environmental Rating for Homes, Building Research Establishment, Watford. Sjostrom, C. and Bakens, W. (1999) CIB Agenda 21 for sustainable construction: why, how and what? Building Research and Information, 27(6), 34854. Sterner, E. (2002) Green procurement of buildings: a study of Swedish clients considerations. Construction Management and Economics, 20(1), 2130. Stevenson, F. and Williams, N. (2000) Sustainable Housing Design Guide for Scotland, Stationery Office, London.