by Aidan Kearney, Senior Training Officer

Tenant participation can mean many things, and the term is sometimes used broadly—as if all forms of involvement are created equally. The reality, of course, is far more nuanced. A rich spectrum of tenant involvement exists, ranging from basic information sharing to full co-production of services and policies.

As we prepare for the All-Ireland Tenant Engagement Conference (October 6-7, 2025), I think it’s worth exploring this spectrum to better understand what meaningful participation looks like and when different approaches are most appropriate.

The Participation Ladder: Understanding the Levels

The concept of a "ladder of participation" was first introduced by Sherry Arnstein in 1969, but it remains remarkably relevant to social housing today. It’s where we got our oft-used hashtag, #NextLevelTP.

Let's take a look at each rung on this ladder:

Level 1: Information

What it looks like: Housing providers share information with tenants through newsletters, websites, or letters.

When it's appropriate: For straightforward updates that don't require feedback, such as planned maintenance schedules or staff changes.

Limitations: This is a one-way process. While necessary, information sharing alone doesn't constitute meaningful engagement.

Level 2: Consultation

What it looks like: Housing providers ask for tenant opinions on predetermined options or proposals.

When it's appropriate: When feedback is genuinely needed but there are legitimate constraints on what can be changed, such as statutory requirements or budget limitations.

Limitations: If tenant input doesn't visibly influence the outcome, consultation can feel tokenistic and damage trust.

Level 3: Involvement

What it looks like: Tenants work with housing providers to shape options before making decisions.

When it's appropriate: For significant service changes, policy updates, or community improvement projects where tenant experience provides valuable insight.

Limitations: Housing providers still retain control over the final decision-making process.

Level 4: Collaboration

What it looks like: Tenants and housing providers work as partners throughout the process, from identifying issues to implementing solutions.

When it's appropriate: For complex challenges where diverse perspectives are needed, such as addressing anti-social behaviour or redesigning communal spaces.

Limitations: Requires significant time investment and clear governance structures to be effective.

Level 5: Co-production

What it looks like: Tenants and housing providers share power and responsibility for services, with residents involved in delivery as well as design.

When it's appropriate: For community-led initiatives, tenant management organisations, or service areas where residents have particular expertise or capacity.

Limitations: Requires substantial commitment from both parties and may not be suitable for all aspects of housing management.

Moving Beyond the Tick-Box Exercise

I don’t think any single level of participation is inherently "better" than another. What matters is using the right approach for the right situation—and being transparent about which level of involvement is being offered and why.

Problems arise when housing providers claim to be operating at a higher level of participation than they actually are. Describing a basic survey as "collaboration" or holding a focus group with no intention of implementing suggestions creates cynicism and undermines trust.

“Tenant Participation isn’t just about having a voice, it’s about making that voice count in shaping the places we call home.”

Finding the Right Fit: Examples in Practice

So what does this look like in practice? Here are some examples of how they might apply to a real-world scenario—upgrading outdoor spaces on an estate:

Information: "We'll be installing new benches in the communal garden next month."
Consultation: "We have funding for new seating in the communal garden. Would you prefer bench-style seating or individual chairs?"
Involvement: "We have funding to improve the communal garden. Before we draw up plans, we'd like to understand how residents currently use the space and what improvements would make the biggest difference."
Collaboration: "We have funding for the communal garden. Let's form a working group of staff and residents to survey the community, develop options, and implement the chosen solution together."
Co-production: "The resident committee will take the lead on redesigning the communal garden, with technical and financial support from housing staff. Once completed, residents will help maintain the space through a community gardening program."

The Benefits of Moving Up the Ladder

While not every decision requires co-production, there are compelling reasons for housing providers to aim for higher levels of participation when appropriate. It benefits everyone:

Better outcomes: Solutions developed with tenant input tend to be more practical and effective
Resource efficiency: Getting it right the first time avoids costly revisions
Community ownership: Higher levels of participation foster community pride and responsibility
Skills development: Tenants gain valuable skills and confidence through meaningful involvement
Improved relationships: Working together builds trust between housing providers and residents

“When tenants are engaged, housing providers make better decisions because they reflect real needs, not assumptions.”

Join the Conversation

At the All-Ireland Tenant Engagement Conference this October, we'll be diving deeper into this spectrum of participation. Sessions will explore practical ways to implement different levels of engagement effectively, with case studies from housing providers who have successfully moved up the ladder.

After all, understanding the different levels of participation is just the beginning. The real challenge - and opportunity - lies in implementing the right approach at the right time to create genuine partnerships between housing providers and the people who call their properties home.

Whether you're a housing professional looking to enhance your tenant participation approach or a resident seeking more meaningful involvement, this conference will provide valuable insights and practical tools. I hope to see you there!

Join us at the All-Ireland Tenant Engagement Conference on October 6-7, 2025, at the Crowne Plaza Hotel in Belfast. Early bird registration opens in April!