When land is not enough: Drawing in private investment to increase social rental housing in Spain

Abstract

Since the 1990s, many governments have reduced direct funding for social housing. In Northwestern Europe, indirect subsidies and guarantees have allowed private providers to maintain and expand the social rental stock. In contrast, Spain's social rental sector has remained underdeveloped. Amid the current affordability crisis, attention to social housing is growing, emphasized by a new law prohibiting the sale of public land zoned for this purpose. Given public expenditure constraints, Public-Private Partnerships (PPPs) have emerged as an alternative to finance new construction. These partnerships involve leasing public land at reduced costs to private entities for social housing development. Despite land availability, financial challenges persist and tenders often fail to attract private sector interest. This paper examines constraints affecting social housing development by exploring a PPP by the Catalan Land Institute. The central research question is: How do institutional dynamics and financial constraints impact the provision of social rental housing in Spain? To answer this question, a mixed-methods approach integrates interviews with a sensitivity analysis of key parameters in a Discounted-Cash-Flow (DCF) model. The findings underscore high financing costs, weak renter protections, and misaligned fiscal policies as significant obstacles. The paper recommends further investigating public-backed guarantors, housing allowances, and fiscal incentives to address these challenges.