Cities demand better EU provisions for state aid
legislation and adaptation of fiscal rules. Investment gap for
affordable housing in Europe equals Euro 57 billion annually.
City of Vienna as a role model on an international scale.
What can be done to mitigate the current housing crisis in
Europe’s growing cities? How can investment in affordable
housing be made to increase once more? Ways out of this tight
situation are highlighted by the international conference
“Housing for All – Affordable Housing in Growing Cities in
Europe” held on 4 and 5 December in Vienna. The premises of
Wiener Wohnen are set to host roughly 300 participants from 36
countries. “Cities are the engine that drives Europe’s
development; two thirds of the EU population live in cities. For
this reason, cities assume a decisive role for the project of
European integration. In particular, they are called upon to act
in order to cope with global challenges, social inclusion and
economic development. Therefore cities need adequate frame
conditions – above all to boost investment in affordable housing”,
as Michael Ludwig, Mayor of the City of Vienna, affirms. “After
all, the free market will never supply broad strata of the
population with affordable housing. Specific policies are
therefore needed to attain this goal. The ‘Partnership on
Housing’ within the scope of the EU Urban Agenda has developed
concrete legislative proposals for the EU Commission, which will
be presented today here in Vienna and which should be
implemented without delay. Now it is the turn of the EU
legislators – and of the European Commission, all EU Member
States and the European Parliament. Europe must act now and take
measures to combat undesirable developments in Europe’s housing
markets”, Ludwig continues.
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There are over 220 million households in the EU – and as many as
82 million Europeans today have problems finding access to
affordable housing, as housing prices and rents in EU cities
have for years been rising quickly and massively. Since the
financial and economic crisis of 2008/2009, investment in
affordable and social housing has decreased, today amounting to
only half the volume of the pre-crisis period. The EU
“High-Level Task Force for Investing in Social Infrastructure in
Europe” has identified a reduction by 20 percent and estimates
the investment gap regarding affordable housing at around Euro
57 billion annually. Since OECD figures show that a large part
(53 percent) of public investment occurs at the sub-national
level, it is evident that cities are affected to a particularly
high degree.
Housing as a human right ”Housing is a human right – not a
commodity”, Leilani Farha, since 2014 the UN Special Rapporteur
on adequate housing, emphasises. At the conference, the Canadian
lawyer and activist presented her initiative “Make the Shift”,
which is to support municipalities and city administrations in
responding rapidly to this negative development. “The speed and
extent to which financial enterprises and funds take over
housing space and real estate, causing a lack of affordability
as well as crowding-out effects and homelessness in the cities,
are staggering. Housing is a key issue of the 21st century”,
Farha comments. “Cities are drivers of national economies. It is
hence in the interests of all levels of government to co-operate
in order to safeguard adequate and affordable housing, thereby
protecting what makes cities great: diversity and inclusion.”
Leilani Farha calls upon municipal administrations to support
and sign the declaration “Cities for Adequate Housing”.
The EU Partnership on Housing demands sustainably effective
measures In 2016, the “Urban Agenda for the EU” was launched in
Amsterdam by the EU Council with the objective of strengthening
cities in the EU governance process. The conference “Housing for
All” provides the conclusion to the EU Urban Agenda – Housing
Partnership. By forming partnerships regarding concrete focal
issues (which include housing, air quality, poverty in urban
areas, and the integration of migrants and refugees), cities are
to be involved more closely in EU policy development. For this
purpose, a novel format of co-operation at the European level
will be drawn upon, thereby enabling cities, Member States, EU
institutions as well as relevant stakeholder organisations to
work together on an equal footing. After a three-year working
period, each partnership is to present a catalogue of measures
that contributes to better regulation, better financing and
better knowledge management. By choosing a policy area in which
the EU has no formal competence, i.e. housing, the Council
acknowledges the importance of affordable housing for the EU and
its citizens as well as the fact that EU rules and regulations
can exert great influence on local and national housing systems.
Over the past three years, the Partnership on Housing has
engaged very intensively with the challenges of affordable
housing. The catalogue of measures that is now presented
comprises a number of already implemented outcomes – e.g.
studies on the housing situation in old and new EU Member States,
a database on effective housing projects, an extensive analysis
of state aid provisions and a brochure on urban solutions for
housing policies. Moreover, the catalogue includes
recommendations addressed to the EU legislator, in particular
with regard to the desideratum of greater scope for investment
to be granted to cities.
Greater investment scope for cities: reform EU state aid
provisions, adapt the European Semester But why do many of
Europe’s cities find it so difficult to raise investments in
affordable housing? The major share of funding for social,
public and affordable housing stems from grants at the national
and local levels – and from users. But European legislation
exerts a massive impact – specifically, via EU state aid
provisions and the European fiscal rules.
At the Vienna conference, the long-standing demands of many
countries, cities, limited-profit housing developers and tenants’
associations for changes to be introduced in EU state aid law
are voiced once more: the definition of the target groups for
subsidised housing should no longer be exclusively restricted to
“disadvantaged citizens or socially less advantaged groups”. In
the future, cities and countries should be enabled, based on the
principle of subsidiarity, to decide on their own how to
organise affordable housing for their citizens. The current
provision has for years fostered enormous legal uncertainty and
time and again entailed actions and complaints brought before
courts of law. In its ultimate consequence, it has caused entire
housing subsidy systems to come under attack, as has happened in
the Netherlands, Sweden or France. Moreover, this provision
prevents investments in urgently needed rehabilitation measures,
e.g. in the new Member States.
The existing rules of the European Semester, too, could
significantly facilitate long-term public investments in
affordable housing construction. The Partnership on Housing has
shown that the investment clause which could make this
development possible is, due to the complexity of the procedures
involved, definitely not used to its full extent above all by
cities; this state of affairs calls for simplifications. In the
long term, it is the goal of cities to ensure that the fiscal
and deficit rules of the EU will no longer consider future
investments in necessary urban infrastructure as debts, but
rather as investments of intrinsic value. An increase in public
housing investments can inter alia counteract the wholesale
purchase of entire neighbourhoods or speculative ventures of
globally active institutional real-estate investors.
Furthermore, Europe’s cities demand greater awareness at the EU
level for the housing crisis besetting them. The current
developments entail dramatic social and economic effects that so
far are not given sufficient attention in EU policy design.
Above all low-income groups – but also middle-class citizens –
are driven away from urban areas. Many of them live in dwellings
that are too small or in need of rehabilitation; the number of
evictions is rising. Many people are forced to travel hours to
and from work because they cannot find affordable dwellings
closer to their workplace. The Partnership on Housing demands
that the indicator of the portion of a household’s income which
is spent on housing should be drastically reduced. At present,
the share of housing costs is estimated to equal 40% of a
household’s disposable income, while the goal should be 25%, as
the cost of living in general has increased, without incomes
growing to a comparable extent.
Decreasing housing costs Laia Ortiz, Deputy Mayor of Barcelona,
a founding member of EUROCITIES, the network of major European
cities that for years has been campaigning for better frame
conditions, draws attention to the exclusion of many persons
from the housing market, “The EU must give priority to the right
to housing and ensure that cities are prepared for coping with
the housing crisis. The cities cannot do all of this on their
own. We need the EU to provide all resources and mechanisms for
cities in order to attain this goal. Otherwise, homelessness and
marginalisation will further increase in Europe’s cities.” A
comprehensive support and rehabilitation programme for socially
disadvantaged neighbourhoods is underway in Lisbon. Rui Neves
Bochmann Franco, Deputy City Councillor for Housing of the
Portuguese capital and a member of the Partnership on Housing,
comments, “Lisbon is faced with big challenges caused by tourism
platforms and global real-estate investors. At the same time, we
are trying to create new perspectives by e.g. promoting
neighbourhood developments.” He, too, believes that action at
the EU level is required and identifies a great demand for
exchange tools and platforms for cities. “We also call for a new
definition of what constitutes housing cost overburden”, Rui
Neves Bochmann Franco adds.
A trend reversal makes sense – socially and economically Better
financing conditions, more efficient regulations, an ongoing
exchange of knowledge and a package of solutions for good
practices in housing policy – according to the Partnership on
Housing, these are key prerequisites for a trend reversal.
Further demands and recommendations are for instruments that
facilitate the exchange of municipal experience in the field of
housing policies. The Partnership on Housing calls for better
data stocks on housing and the housing sector in the cities,
since national comparisons are not sufficiently meaningful or
even distort the real-life situation. Particular desiderata
concern the creation of a systematic monitoring system of the
European Commission in order to be able to better observe and
counteract developments as well as greater structural attention
to be paid at the level of the EU Member States by reviving the
Housing Focal Points and the regular meetings of the EU
ministers in charge of housing. In the opinion of the cities,
the biggest challenges lie in the creation of new as well as in
the refurbishment of existing housing, in the provision of
inexpensive building land, in the improvement of neighbourhoods
together with residents and in the creation of housing systems
wherever these do not yet exist. For this purpose, the
Partnership on Housing has already formulated a number of
recommendations concerning best practices of housing policy that
range from measures to combat speculation or interesting models
of building land reservation and the prevention of energy
poverty to the protection of tenants and concepts of
codetermination. Last but not least, the Partnership on Housing
calls attention to ERHIN, the exemplary “European Responsible
Housing Initiative”, which embeds the principles of corporate
social responsibility in the housing sector. In October 2018,
Wiener Wohnen was the first Austrian housing enterprise to
accede to this initiative.
The Vienna Model as a best practice for Europe With its housing
system, the Austrian capital plays a pioneering role on an
international scale: 62 percent of Vienna’s inhabitants live in
subsidised dwellings, i.e. in 220,000 municipal flats or over
200,000 subsidised flats located all over Vienna. Contrary to
most other European metropolises, Vienna has not privatised its
stock of municipally-owned dwellings. Today, the value of this
strategy is becoming increasingly evident. In fact, this
approach is decisive if high and affordable quality of housing
and living for broad strata of the population, a good social
mix, peace, safety and security are the goals. ”Many concerns
that we advocate at the European level in a leading position
have already been successfully implemented by Vienna. We in
Vienna view housing as a fundamental right and regard it as a
public task to create a sufficient volume of affordable housing.
The great number of subsidised dwellings as well as the
comprehensive investments undertaken in the field of housing
rehabilitation have a price-damping effect on the housing market
as a whole”, Vienna’s City Councillor Housing Kathrin Gaál
comments. ”In the areas of subsidised housing construction and
municipal flats, there are no real-estate agent’s commissions,
no location premiums and no re-rental effects causing rents to
skyrocket. There are only unlimited tenancy contracts and capped
rants – this is a situation that exists nowhere else to this
extent. Since income thresholds for these flats were
deliberately set relatively high, broad middle-class strata, too,
have access to these flats, with net rents of 4 to 5 Euros per
square metre. This is the biggest subsidy extended to the middle
classes”, Gaál explains. Vienna will remain true to this path.
Thus the housing construction campaign will be continued. By
2020, another 14,000 subsidised dwellings will have been created.
Every year, approx. 7,000 subsidised flats are constructed in
Vienna on an average; in the medium term, this volume is to be
stepped up to 9,000 subsidised dwellings, which reflects the
current population growth of the city.
However, due to the continued real-estate investment boom,
Vienna, too, is faced with major challenges linked to massive
price hikes in the private housing market and rising land prices.
For this reason, Vienna’s city government recently set a legal
two-thirds quota by introducing a new land zoning category in
the latest amendment to the Vienna Building Code. In the future,
large-scale real-estate projects will have to comprise more
subsidised dwellings than privately financed flats. ”In this
way, we prevent land speculation and reassure the citizens of
Vienna that housing in their city will remain affordable”, Gaál
adds. ”Together with our partner cities, Vienna advocates the
fundamental right to housing as well as better frame conditions
for investments in affordable housing. The ‘Partnership on
Housing’ has done a great job and set a milestone for the
benefit of affordable housing in Europe’s cities. I am confident
that the outcome of this cooperation will be acknowledged – and
that the governments of the Member States, first and foremost
the Austrian federal government, will campaign for the
implementation of the recommendations”, Mayor Ludwig concludes.