Book Review: Stewart and Lynch, Environmental Health and Housing: Issues for Public Health

Jill Stewart and Zena Lynch, Environmental Health and Housing: Issues for Public Health (Second edition), Routledge, 2018

Environmental health policy is far from my area of expertise but I know a lot more now and this wide-ranging and comprehensive book has convinced me of the vital role it plays – or can play when fully resourced and effectively implemented – in securing decent housing for all. In fact, environmental health practitioners might just be the unsung heroes of the housing sector.

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As Jill Stewart and Zena Lynch argue:

Housing is a key social and economic determinant of health, perhaps the most important for the multiple roles it can play both in security and as part of anti-poverty strategies.

That might seem obvious if a little bureaucratic. For me, a strength of their approach is its emphasis on housing as home:

somewhere to feel safe, secure, do mundane day-to-day things; have access to school, health and healthcare services; as well as social services; somewhere to develop socially, change, and have a level of wellbeing and quality of life across the life course.

It reminds me of the words of the late Doreen Massey, the geographer and social scientist, at a housing conference some years ago: her upbringing on the Wythenshawe Estate in Manchester didn’t create dependency, she argued, it provided security – the foundation we all need to live healthy and fulfilled lives.

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Illustration from William Henry Tucker’s Inspector of Nuisance notebook, Cardiff, dated 1899 onward. Permission to copy given by Dr Hugh Thomas, Senior Lecturer in Public Health

I know Jill Stewart as a passionate and knowledgeable advocate of decent housing for all – the same, I’m sure, is true of Zena Lynch too who I don’t know personally – and I’m pleased to say she has been a contributor to this blog.  Her first post charted the rise of the environmental health profession from the humble Inspector of Nuisances to the latter-day Sanitary Inspectors before the First World War.

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Addison Close, Northwood, LB Hillingdon © Jill Stewart

A second, fittingly in this centenary year, focused on interwar sanitary reform in the wake of Christopher Addison’s 1919 Housing Act.  That breadth of background is found throughout this book but is highlighted in interesting and well-illustrated sections providing a brief history of housing (with a strong focus on social housing) and guidance on how to assess the age of dwellings.  Jill’s photographs provide an excellent context to each and the book as a whole is unusually well-illustrated for an academic work.

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Roupell Street, Lambeth, dating from the 1830s © Jill Stewart

All this provides background to the far more extended and increasingly pressurised role of environmental health professionals today outlined so clearly and fully in the book.

An opening chapter ‘Why environmental health?’ covering the range of environmental health interventions is followed by one more specifically for practitioners in the field on ‘Gathering Evidence’. Chapter 4, ‘Legislation for Healthier and Safer Housing’ is an important guide to current law. This, despite (or perhaps because of) contemporary housing problems, has been usefully strengthened in recent years.  (A quick shout-out here to Karen Buck MP whose Homes (Fitness for Human Habitation) Act, extending that basic requirement to all private landlords, was passed in December 2018.)  Chapter 5 ‘Working More Effectively Together’ focuses on implementation and strategy.

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A bed in a shed © Russell Moffatt

One powerful feature of the book is its range of case studies – drawn from both academic sources and practitioners in the field, sometimes a combination of the two – charting not only the variety of problems dealt with but positive strategies to tackle them.  These range from hoarding to public funerals, from ‘beds in sheds’ to the particular issues affecting gypsies and travellers and those living on houseboats.

It’s no surprise, overall, that the issue of homelessness features strongly. Statutory homelessness – requiring councils to provide accommodation – applies only to those in ‘priority need’.  Stewart and Lynch report a Shelter estimate that 150 families are made homeless in Britain each day. Elsewhere Shelter estimate that homelessness (understood as affecting all those in, at best, temporary and insecure accommodation in addition to perhaps 4000 rough sleepers) affects some 277,000 nightly. (1)

This is not a polemical or campaigning work but the authors don’t shy from the obvious conclusion:

The main problem is, of course, lack of affordable housing. Home ownership has fallen and private renting has risen, and the ending of a private rented tenancy is now the biggest cause of homelessness.

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External disrepair © Jill Stewart

Government figures suggest that almost one in three cases of statutory homelessness result from the termination of a private tenancy, a symptom of the tenure’s insecurity since the 1988 Housing Act introduced assured shorthold tenancies (usually of a six to twelve months’ fixed term) and ‘no fault’ evictions. The 2002 Homelessness Act ‘requires local authorities to have a strategy to reduce homelessness and put better services in place for homeless people’. With little social housing stock available (some 1.15 million households are on waiting lists) and stretched resources, this, with the best will in the world, has become increasingly difficult for councils.

Stewart and Lynch report a 60 percent increase in homeless families being placed in temporary accommodation between 2011 and 2017.  And only this month, the Guardian reported that London councils – where pressure on housing is highest – had paid private landlords £14m in sweeteners simply to persuade them to accept homeless families. (2)

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Basement flat, Margate © Jill Stewart

This brings us to the Private Rental Sector (PRS) which naturally occupies a large part of the work of environmental health professionals and this book.  The authors provide the context for this: there are 945,000 more households with children living in the PRS now than in 2005. Private tenants pay an average 35 percent of their income on rents, compared to 18 percent for mortgagors and 29 percent for social renters.   What they get for this (apart from insecurity of tenure) is in many cases some of the oldest housing stock in the country – 34 percent of the PRS dates from before the First World War.  It’s estimated therefore that 28 percent of privately rented homes fail to meet Decent Homes Standards (compared to 13 percent in the social rented sector and 18 percent of privately-owned homes.)  The welter of statistics confirms that far too often the PRS does not provide secure, decent and affordable accommodation.

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Housing in Multiple Occupation © Jill Stewart

In the new paperback edition, the book is reasonably priced but it will remain primarily a book for the specialist – an essential book for environmental health students and professionals (a virtual one-stop shop for so much of the broad field they must understand and practise) and a useful one for many others in the housing sector including local councillors.  I recommend it to anyone interested in housing law and policy and the many social issues raised by our highly dysfunctional housing market. And, if you don’t buy your own copy, I hope you’ll find it on the shelves of your local library.

For further publication and purchase details, please visit the Routledge website

Sources

(1) Shelter Commission on the Future of Social Housing, A Vision for the Future (2019)

(2) Robert Booth, ‘London councils pay landlords £14m in “incentives” to house homeless people’, The Guardian, 25 March 2019

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Book Review: ‘The Town of Tomorrow: 50 Years of Thamesmead’

The Town of Tomorrow: 50 Years of Thamesmead (Here Press, 2019)

At times, Thamesmead must have seemed less like the ‘Town of Tomorrow’ than the ‘Land that Time Forgot’.  It’s been a chequered story to say the least and it’s one that’s lent itself easily to the usual tropes of planner overreach and misplaced architectural ambition. But Thamesmead, in its latest iteration since 2014 under the stewardship of Peabody, lives on. Perhaps, with Crossrail looming and a DLR connection mooted, some of those earlier promises will be more fully fulfilled though typically, as is now the way, in less visionary form.

HP19-01So it’s time to celebrate Thamesmead and we’re fortunate to have a newly published book which does that in a positive though clear-eyed way. The Town of Tomorrow: 50 Years of Thamesmead is, above all, a superb pictorial record of its past and present – of the ideals and plans which formed it, the buildings and landscapes which shaped it, and the people who have lived it.

John Grindrod’s introduction lays out the broad outline of its history with typical panache.  The eyes of the London County Council first looked eastwards towards the Erith Marshes in the early 1960s after their ambitious plans for a New Town at Hook in rural Hampshire were thwarted. Ted Hollamby’s vision of a series of ‘platform villages’ was abandoned as too costly and impracticable but the new Greater London Council (GLC) formed in 1965, seeking to fulfil its strategic housing mandate and aided by Government plans to redevelop abandoned Ministry of Defence land such as the Woolwich Arsenal site, returned to the concept.

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Images from ‘Woolwich-Erith: A Riverside Project’, (GLC, 1966) © London Metropolitan Archives

‘Woolwich-Erith: a Riverside Project’ was born in 1966 – a plan, in conjunction with the Boroughs of Greenwich and Bexley, to create a new town of some 60,000 people on 1300 acres of largely unused land lying on the southern back of the Thames.  Water was one of its defining features – Robert Rigg, the GLC planner, had been influenced by Scandinavian schemes built around the presence of water and how, in Grindrod’s words, that ‘helped create an atmosphere of calm and wellbeing’.

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Construction of towers on Southmere Lake, 1970 © London Metropolitan Archives

More practically, the risk of flooding demanded unusual means to keep people safe and dry – towers raised on stilts, deck-access homes and high-level walkways dotted around the artificial lakes which would ensure proper drainage. But the conceptual genius of the scheme was to make virtue of necessity. If separation of cars and people was a contemporary planning mantra, there was in Thamesmead, as Grindrod describes:

a more Venetian approach, with bridges and paths floating above what might at any moment become canals and overspill from the river.

The architects’ impressions featured in the book capture a ‘Cool Britannia’ in its first, sixties’, iteration and with a heavily Continental slant:

It was pure south of France, white concrete buildings shining in the warm blue waters, reflected alongside yachts, bikinis and polo necks.  The ambition for Thamesmead would bring the lifestyle of the European jetset – the kind of world portrayed in art house movies and racy novels – and combine it with the more functional aims of creating much needed council housing.

The prosaic minutes of the GLC’s Thamesmead Committee in 1967 record the latter – the ‘central objective of the development [was] to provide housing, and in so doing, create a reservoir of housing for decanting population from the hard-pressed inner area’ in an era when slum clearance was in full spate.

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Detail of model showing Coralline Walk (front) and Yarnton Way (left), 1967 © London Metropolitan Archives

The long spinal terraced ziggurats of Coralline Walk and Binsey Walk and adjacent thirteen-storey tower blocks were the first fruits of this approach; system-built and ‘as modular and groovy as any Habitat stackable moulded plastic furniture of the day’.

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The southern end of Coralline Walk, viewed from Lensbury Way, 1969 © London Metropolitan Archives

The first residents, Joan and Terence Gooch and their two children, moved into 64 Coralline Walk in July 1968 – the sole residents for six months at a time when the new ‘stark white modernist homes were marooned in a wasteland of mud, puddles, concrete and construction equipment’.

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Children’s playground and the Lakeside Health Centre, Tavy Bridge, 1973  © Bexley Local Studies & Archive Centre

The first school opened in 1968. The health centre – a wonderful modernist building built at Tavy Bridge over one of the artificial lakes and sadly demolished in 2008 – opened in 1970; the first shops amazingly not till 1971.  By 1974, the population stood at around 12,000.

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Crossing Eastern Way (A2016), via the ‘A’ Bridge, built 1973, c1979. Photography © George Plemper

Philip Samuel – one of a number of residents who tell of their own experience in the book – moved to Thamesmead in 1975 with his family at the age of eight:

We lived on Maran Way. I could ride my bike for miles without ever touching the ground. I felt like I was in a Judge Dredd futuristic paradise. It was a good place to be a kid. There was so much nature and wide-open space. In the spring, there would be grass fights, in the summer there’d be water fights, autumn would be mud bombs and winter would be snow balls.

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Thamesmead: A Place in London’s Future. Fold-out leaflet, published by the GLC, 1982. © London Metropolitan Archives

Salianne Heaton, who arrived the following year, has similar memories:

Thamesmead was like a giant playground. You never had to cross any roads, everywhere had flyovers. We used to play knock and run in the squares in the middle of the housing estate.

Generally, looking back as adults, people remember a close-knit community – as Robert Dyer recalls ‘everybody knew everybody back then so, if you did anything bad, someone would tell your mum’.

Of course, nostalgia and selection plays its own part in these perhaps unusually affectionate remembrances but it’s vitally important to allow people to tell their own stories which, all too often are at odds with dominant media narratives.

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Aerial photograph of Area 1 looking north with Southmere Lake (top), 1971
© Bexley Local Studies & Archive Centre

One unwitting element in the latter was Stanley Kubrick’s filming of Clockwork Orange in Thamesmead in 1971. Grindrod points out that Kubrick had intended its ‘formal beauty, lakes and crisp white architecture’ to serve as counterpoint to the film’s scenes of sudden violence, making them ‘even more shocking and incongruous’.  In practice, it was the myth of Thamesmead as some kind of futuristic dystopia which became dominant. (1)

Still, there’s no doubt there were real hardships and difficulties for these early pioneers. The great failing, apart from that slow development of infrastructure which is all too common in major schemes, was the failure to provide the new township with the quick and efficient transport links its population required.

And then it was failed by a changed politics and faltering ambition. Thamesmead’s projected population was downgraded from 60,000 to 45,000; by the end of the 1970s no more than 400 new homes were being completed annually and by 1982, the population stood at 20,000, around half the initially projected figure.

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Manordene Road, off Crossway, Area 5, looking north-east along the waterway that runs from Moat Gardens to Tump 39 and the Thamesmead Ecology Study Area, 1982
© London Metropolitan Archives

System-building and modernist design were abandoned and conventional brick build – admittedly the new vernacular was often more to popular taste – became pre-eminent. This also, no doubt, sat more comfortably with a desire to promote ‘mixed communities’ and owner occupation – a 40 percent target was set for the latter in 1978 and 96 tenants had bought their formerly council-rented homes by 1979, well before Margaret Thatcher’s implantation of Right to Buy.  (At present, around 40 percent of homes are social rented.)

The aesthetic shift was facilitated by the raising of the Thames riverbank in 1974 which alleviated flood risks and enabled ground floor construction but it spoke more broadly to a loss of the more audacious hopes which had initially inspired the project.

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Hill View Drive, Area 7, viewed from Gallions Hill, 2018.
Photography © Tara Darby

Thatcher’s politically-motivated abolition of the GLC in 1986 seemed merely confirmation of the retreat of social democracy. Thamesmead Town Ltd, a not-for-profit private company, took over the project from the GLC until it split in the later 1990s into three components – the Gallions Housing Association managing housing stock, Trust Thamesmead supporting community development, and Tilfen Land, a commercial property developer.

The demolition of some of the original town’s signature landmarks (including the health centre) and the unimaginative replacements and newbuild which followed resulted, according to a typically caustic Owen Hatherley, in a ‘straggling half-demolished mess of crap spec housing, wasteland and forlorn Brutalist fragments’. (2)

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Vision for Silvermere Lake, Thamesmead Waterfront, 2018
© LDS Architects

Now, since all three of those bodies were absorbed by Peabody in January 2014, a new and more exciting vision is being proclaimed once more: ‘20,000 new homes, thousands of new jobs, plus new leisure, cultural and commercial facilities’ alongside ‘immediate improvements needed in areas such as pedestrian routes, play facilities, lighting and local amenities’. Ultimately, Peabody say, ‘our plan for Thamesmead is simple – to create an amazing place that people love to work in, to visit, and of course, call home.’ (3)

Well, you can’t argue with that, can you?  It will, however, be important to see how the promised mix of ‘affordable’ (80 percent market rate) and genuinely affordable social rented homes works out and here we may be less optimistic.

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Sheniz Bayraktar (née Mehmet) with her brothers at a celebration of The Queen’s Silver Jubilee in South Thamesmead, 1977
Photography © George Plemper

The book, edited by Peter Chadwick and Ben Weaver with contemporary photography and interviews by Tara Darby, is a great introduction to Thamesmead, and John Grindrod provides a sensitive and eloquent account of its planning and architectural evolution. It’s good to see residents’ memories and experiences also featured strongly. For many people, the 193 colour and black and white illustrations (I’ve included a small representative selection of these in this post), which tell so much of its story so powerfully, will suffice to capture both the bold vision of its inception and more troubled maturity.

Further information on the book and purchase details are available here on the Here Press website

Notes

(1) The article by Inez de Coo for Failed Architecture, ‘Ultraviolence in Representation: The Enduring Myth of the Thamesmead Estate’, offers an excellent account of how Kubrick’s film and later depictions have adversely shaped attitudes towards Thamesmead.

(2) Owen Hatherley, ‘Don’t repeat the mistakes of the past at Thamesmead’, Architects’ Journal, 8 April 2015 (subscription required)

(3) Quoted from the Thamesmead Now website, Thamesmead: the Plan.

 

‘Health is greater than history’: an introduction to Edinburgh’s social housing, 1890-1945

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I’m delighted to include this expert and informative post by Steven Robb. Steven is Deputy Head of Casework for Historic Environment Scotland.  With qualifications in building surveying and urban conservation, he has a particular interest in early and interwar social housing in Edinburgh, and how new housing was incorporated within the historic city.

Throughout the latter nineteenth century Edinburgh’s population expanded greatly.  Although some new working-class housing was provided within the inner suburbs (1), many of the poorest still occupied badly converted tenements in the overcrowded medieval Old Town and Southside.

Although historically uncommon in England, most working-class urban Scots (and many of the middle classes) lived in tenements.   Unlike the numerous small rooms of the terraced house, tenements often had large rooms, but for the poor there were fewer of them, including many one-room houses or ‘single-ends’.

1890 Act housing

In the early 1890s council housing for the poor was promoted by a Liberal City Councillor, John MacPherson, a churchgoer and temperance hotel owner.  At a time when a hundred families in the city actually lived underground (in vaults), MacPherson railed against the ‘thirty or forty thousand people’ living in one-room houses.

In 1893 the city instituted a major Sanitary Improvement (or slum clearance) scheme under the provisions of the 1890 Housing Act.  It involved both sensitive ‘conservative surgery’ of historic buildings in the Old Town by proto-town planner Sir Patrick Geddes (2) and small reconstruction and new-build schemes by the Burgh Engineer, John Cooper.

Cooper’s new housing was often a sanitised version of the traditional tenement, utilising deck-access balconies for light and ventilation.  He designed a new street layout in Stockbridge and several projects around the Old Town, one of the earliest being High School Yards (1896-7).  Here, two sandstone (3) tenements containing thirty-two small flats, costing £200 each were built, unusually with shops underneath.

The Council’s housing developments were, at least partly, responsible for significant improvements in health.   In the High School Yards area alone, infant mortality figures fell from a horrific 247 to 39 per 1000 in only a decade and, between 1892 and 1910, death rates fell from 53.7 to 12.4 per 1000.

High School Yards 1

High School Yards 2

One of the first developments was High School Yards in the overcrowded Old Town.  Two linked Scots Baronial five-storey sandstone tenements with rear deck access balconies.

1919 Act housing

Despite compensation payments costing almost as much as the new housing itself, the Council provided around 750 houses before the War.

Output increased significantly following the 1919 Housing Act with its generous State subsidies.  In the following decades there would be reconstruction and infill schemes in the historic city, and new housing on peripheral greenfield sites or underused suburban land. (4)  Initially, housing was either ‘general needs’, or improvement (slum clearance) housing at lower rents.

The Council were quick of the mark, with City Architect James A Williamson’s Chesser scheme prepared before the Act had passed.  He primarily used the flatted block, a peculiarly Scottish hybrid between cottage and tenement consisting of four flats under a hipped roof.  Two ground floor flats were entered from front gardens with upper flats accessed from the sides or central close.   Their relative scale allowed them to address the lower density layouts advocated by the garden city movement.

The mini-tenement 1

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The mini-tenement.  A flatted block, designed by Campbell in the early 1920s. This form, used throughout Scotland, were also known as ‘cottage flats’ or commonly as a ‘four in a block’.  The central door is an open close to the upper flats. Images courtesy of Edinburgh City Archives.

Besides Chesser, in April 1919, the Council had held a competition for private architects for four housing sites, two of which progressed in 1920.

The Wardie scheme, planned by architects AK Robertson & TA Swan, was carried out according to garden city principles.  It largely contained cottages and flatted blocks within geometric tree-lined streets with grass verges and cul-de-sacs.  Rendered concrete blocks were used instead of bricks to save costs.

The second development was Willowbrae /Abercorn, by Fairlie, Reid & Forbes. It successfully mixed tenements, flatted blocks and cottages together in a meandering characterful plan using brick, roughcast and solid stone walling.

The housing was high-quality and well-designed but had been both expensive to build and to rent.  It also didn’t cater for the poorest in society, this not being an intention of the Act.

Post-1919 Act Housing

Edinburgh built around thirteen hundred 1919 Act houses, but high costs resulted in the State withdrawing its provisions and building ceased until after the 1923 and 1924 Acts.

However, the new Acts encouraged standardisation and prefabrication to lower costs, with design or material extravagances met by Councils not the State.   In Edinburgh, this immediately resulted in cottages being phased out, less bedrooms and plainer, cheaper finishes.

In June 1919 the Burgh Engineer, Adam Horsburgh Campbell (1862-1947), was hurriedly appointed Director of Housing to take forward the city’s programme. This prompted criticism from Scotland’s premier architect Sir R. Rowand Anderson who considered the role should have gone to an architect.(5)   However, his concerns were misplaced as Campbell was a skilled designer with previous experience building social housing in London.(6)

Rather than wait for new housing to be built, Campbell immediately began to subdivide vacant townhouses in the New Town and recondition Old Town tenements, at half the price of new-build.   Sadly, later subsidies prioritised demolition and new-build, rather than reconstruction. (7)

Campbell quickly realised Edinburgh’s housing problems would only be served by higher densities and returned to tenements, officially discouraged but not forbidden.  In October 1923, he designed a new three-storey example for Leith, followed by a cheaper standard tenement which could (almost) be built to garden city layouts or linked into terraces.  He also designed two standard patterns of ‘four in a block’ housing for peripheral estates.

Campbell focussed on cost-cutting and delivery by whatever means, including, in 1925, the experimental use of Dutch Korrelbeton (no-fine-aggregate) concrete which was cheaper than brick and required only semi-skilled labour.   He also sanctioned outsourcing, approving 1000 Duo-Slab concrete and brick houses from the private contractor, WM Airey of Leeds.  With his engineering eye, he also trialled flat-roofs, timber and steel construction and reintroduced deck-access balconies to some tenements.

Standard tenement 1

Standard tenement 2

Standard tenement and a first floor plan.  Living rooms were 13ft6” by 14ft3½”.  Finished floor to ceiling heights were 8ft 6”.  Figs in circles are square footage. Images courtesy of Edinburgh City Archives.

Ebenezer MacRae

Campbell provided around 4500 houses (built or planned) but worked himself ill with his two jobs, and 16 hour days.  On medical advice he refused a two-year extension as Housing Director alone and retired early in June 1926.   Anderson finally got his way when Edinburgh’s recently-appointed City Architect, Ebenezer James MacRae (1881-1951), absorbed the additional housing role.

Politically, the same year MacRae took charge, Labour first emerged as a force in the city, and to counter this, Edinburgh developed a loose anti-socialist coalition of Tories and Liberals termed the ‘Moderates’ then ‘Progressives’.  Although proficient at slum clearance housing, they would be lukewarm in supporting general-needs housing, considering this was the role of the private sector.  Despite railing against public spending they were content to directly loan or subsidise private builders who constructed over 11,000 houses for rent or owner-occupation between the wars, continuing support even after beneficial subsidies were removed.(8) This position was vindicated by central Government who withdrew general needs subsidies between 1933 and 1935, the focus moving solely to slum clearance and overcrowding, addressing the very poorest in society.

In post, MacRae immediately cancelled Campbell’s experimentation, returning to traditional masonry construction with pitched slate roofs.  His direct control of housing was music to the ears of Edinburgh’s trade unions who had opposed Campbell’s involvement of the private sector, semi-skilled labour and moves away from separate-trades tendering.

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Whitson Crescent (1932)   MacRae’s first feature crescent, showing brick before and after roughcast.  Note the horizontal stone banding at first floor level. Image courtesy of Edinburgh City Archives.

Like Councillor MacPherson, MacRae was a religious man, the son and grandson of Free Church of Scotland ministers.  He had a charitable view of humanity and a strong desire to provide the best housing possible to help tenants better themselves.  His horror of overcrowding gave him a healthy zeal for daylighting.

Although subsidies favoured brick, covered in roughcast for Scotland’s climate,(9) in the historic city MacRae made a special effort to build ‘in keeping with surrounding buildings’ and, where possible, built solid stone walls for frontages and visible gables.

The Pleasance

The Pleasance (1934-8)  Solid stone tenements and shops.  Differences in building planes, storey heights and tall chimney stacks add interest to the composition.

Where Campbell and MacRae may have differed on their rehousing methods; Campbell favouring quick fixes against MacRae’s concentration on quality, both shared a desire to see tenants housed near their workplaces.  MacRae also saw tenements as the answer but his use of denser developments, even on peripheral sites, sometimes failed.  At Niddrie Mains, a slum clearance estate on the very edge of Edinburgh, 2000 houses were built, entirely with three-storey tenements together with (literally) a handful of shops and other amenities.(10) It never really prospered, but Prestonfield, built at the same time, did, perhaps because it had a careful mix of tenements and flatted blocks, and was nearer workplaces and established communities?

Niddrie Mains

The rear of a Niddrie Mains (Craigmillar) tenement prior to demolition.  Traditionally built, they would have been simple to refurbish, but the area’s bad reputation led to around 2000 houses being demolished without public consultation.

The Department of Health were still wary of subsidising tenements, especially those over three storeys, and several schemes were delayed or had to be redesigned.  However, MacRae persevered, and in the year ending 1936 had delivered over 1100 houses, 88 percent of which were within tenements.

MacRae’s team first used Campbell’s standard pattern housing for peripheral work, including his flatted blocks, which MacRae saw as a compromised ‘English’ solution.

However, in the early 1930s he expanded his repertoire, introducing new designs and layouts with some influence from Europe, the fruits of his numerous continental trips.  These culminated in his influential role in the Highton delegation, which led to the Report on Working Class Housing on the Continent in 1935.

However much MacRae may have admired the planning and ambition of contemporary European housing, he disliked the austerity of international modernism and found fault with their flat roofs and cantilevered balconies.  He considered four-storeys high enough and found the ‘Germanic’ communalisation of services and amenities unsuitable for Edinburgh.

The Report on Continental Housing, together with the 1935 Scottish Architectural Advisory Committee Report, did, however, lead to change.  MacRae shared the Report’s desire for less-drab layouts and better architecture, together with enhanced community facilities.

He designed several higher-density perimeter blocks set around communal courts at the Pleasance (1934) and Craigmillar (1936).  Where space didn’t permit such layouts he planned linear street-facing blocks.  Architecturally, they were enhanced by changing storey heights, building planes, and canted corners, bays and staircase-towers.   As centrepieces to new estates, he introduced feature crescents at Saughton (1932), Granton (1935), Craigmillar (1936) and Warriston (1936).   A subtle touch was the introduction of horizontal stone banding at first floor level, likely sourced from Vienna or Berlin. (11)

Royston Mains Crescent

Royston Mains Crescent (1935)  The only inter-war Council housing built in facing brick, a direct result of the Highton Report. It followed the 1935 Housing Act’s desire for two-storey 4 apartment (3 bedroom) family houses and utilised MacRae’s signature banding at first floor level.

Gorgie Road

Linear street block on Gorgie Road (1936) enhanced with projecting stone elements and canted bays.  Every ground floor flat had a garden with shared spaces to the rear.

MacRae’s last major developments include Piershill (1938) and West Pilton (1938).   Piershill, arguably his masterpiece, used a near-continuous snake of three and four storey, largely stone, tenements angled to address its south-facing site.  It was European in plan but unashamedly Scottish in design.

Piershill 1

Piershill 2

Piershill (1938): Three and four storey tenements in stone and roughcast, designed in MacRae’s traditionalist Scots style. The south-facing plan showcases MacRae’s love of daylight, and included a few sun balconies for the first (and last) time. Image from Official Architect, September 1941

On the city’s periphery, the plans for West Pilton comprised 2000 houses and proper community facilities, with a giant circus ringed with stone tenements as a centrepiece.  Sadly, war intervened, with timber unattainable and bricklayers lost to defence work.  Work recommenced in 1942 to a greatly diminished specification and much increased cost, but space for promised community facilities was seized for temporary housing.

By the time of his retirement, in 1946, MacRae had delivered around 12,000 houses, as well as important studies on Edinburgh’s historic buildings, a precursor to the listing system.  His departure came just as subsidies for private housing were discontinued and council housing gained the ascendancy (12), but it also saw the end of the authority and power of the City Architect, with the first major post-war housing estate being offered to open competition.

steven.robb@hes.scot

Footnotes

Title: ‘Health is greater than history’; this 1923 quote from Adam H Campbell represents the conflict between providing new housing and the loss of historic buildings in the city during slum clearance.

(1) Including the wonderful ‘colony’ developments of the 1860s onwards by the Edinburgh Co-operative Building Company throughout the city.

(2) Steven Robb, ‘Conservative Surgery in Edinburgh’, CONTEXT Magazine (IHBC), July 2017

(3) Many of the developments, in less visible positions were built in brick covered in roughcast, or harling in Scots.  It was a wet-dash render finish normally, and unfortunately, coloured grey to cope with air pollution.

(4) Often old aristocratic estates, hutment ground or, with consequent disquiet, golf courses.

(5) Anderson’s mood likely darkened further when Glasgow appointed a Sanitary Engineer as their Director shortly afterwards.  The City Architect would also have been upset, especially as his Chesser scheme was seen as an exemplar.

(6) Brooks Avenue (1902) in East Ham.  He designed two magnificent Carnegie libraries now both listed.

(7) Over 100 tenement flats were reconditioned under the 1919 Act, with the full costs of works being met.  Although Campbell’s intention was to provide quick cheap housing, many of the tenements were of great historic interest and he essentially saved them by his intervention.

(8) These houses often differed very little from their Council counterparts.

(9) Bare brick wasn’t seen as able to cope with the Scottish climate, and in any case there wasn’t a stock of good bricklayers for facing brick – which was expensive and hard to get hold off.

(10) Niddrie Mains, often referred to as Craigmillar, was demolished in the early 2000s – It is now being rebuilt, ironically, in tenement form.

(11) But possibly closer to home.  An C18th Edinburgh mansion has horizontal banding at first floor.

(12) Two thirds of houses built between 1946 and 1960 were social housing, reversing the inter-war ratio.

Further Reading 

Jim Johnson and Lou Rosenburg, Renewing Old Edinburgh; The enduring legacy of Patrick Geddes (2010)

Lou Rosenburg, Scotland’s Homes Fit for Heroes (2016)

John Frew, ‘Concrete, Cosmopolitanism and Low-cost House Design: The Short Architectural Career of AH Campbell, 1923-1926’, Architectural Heritage V (1995), p29-38.

Steven Robb, ‘Ebenezer MacRae and Interwar Housing in Edinburgh’, Book of the Old Edinburgh Club, Volume 13 (2017)

Pioneer Cottages, Penshurst: ‘three pairs of pretty dwellings’ UPDATE

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Having recently visited Penshurst, I’m able to include some better images of the original Pioneer Cottages and a little more history and illustration of later developments.

Last week, we looked at the very first rural council housing to be built – in Ixworth, Suffolk.  Its pioneering efforts did little to ease the path of its few successors.  It took five years to build the six council homes built in Penshurst in Kent in 1900.  That achievement was very largely due to the tireless efforts of one of our first women councillors – ‘perhaps the most stubborn woman councillor’ – Miss Jane Escombe. (1)

Penshurst, an early undated postcard

Penshurst, an early undated postcard

Escombe seems an unlikely hero of housing reform.  Born in India in 1839, the daughter of an official of the East India Company, she lived in Penshurst in an all-female household as a lady of independent means.  Still, she was a more radical figure than this conventional façade might suggest.

(c) Colchester and Ipswich Museums Service; Supplied by The Public Catalogue Foundation

‘An Etcher Biting’ by Jane Escombe © Colchester and Ipswich Museums Service

She had been an accomplished artist in her younger years, exhibiting several times at the annual shows of the Royal Academy. (2) And when the 1894 Local Government Act created elected parish councils and rural and urban district councils and permitted women to serve on them, she secured election to the village’s new parish council.

Penshurst was an attractive village and an apparently affluent one, already within commuting distance of London by 1900 when it had a population of around 1600. But Escombe knew it was no rural idyll for many of its poorer citizens.  In one of her first actions as councillor in November 1895, ‘joined by a workman who knew where the shoe pinched’, she called on the parish council to build its own housing under Part III of the 1890 Housing Act which allowed local authorities to build where unfit homes had been condemned. (3)

That motion was rejected and, in any case, the Parish Council had to secure permission from higher authorities.  In the following year, however, backed by local GP Louis Wood, the Parish Council called upon the Sevenoaks Rural District Council to support their demand.  To press the case, the Parish Council conducted a survey of employers and workmen regarding local housing needs. It concluded 20 new houses were needed to accommodate local families without homes of their own.

In response, the District Council first canvassed local landowners on their willingness to build.  As low-rental working-class housing was not – then as now – of interest to profit-driven private enterprise, the response was negative and the Council had, reluctantly, to accept the necessity of council building.  It had first, however, to prove the need by means of a public inquiry.

The March 1897 inquiry also concluded the case proven and the District Council followed the next step of this laborious process by applying for permission to build from Kent County Council.  Four months later, approval was granted but the District Council dragged its heels until – under the continued prompting of Miss Escombe – a joint committee with the Parish Council was formed to forward the process.  Wood and Escombe (its honorary secretary) were members.

Penshurst, an early undated postcard

Penshurst, an early undated postcard

Progress was boosted by the decision of the local vicar to sell three-quarters of an acre of the church’s glebe land on Smarts Hill for £130. Escombe was clear though that good quality and attractive housing was necessary: (4)

Our village is one of the most beautiful in Kent, full of picturesque old buildings and cottages; to build brick boxes with slate lids would have been desecration.

Sixty architects rose to the challenge but, while they reckoned ‘the erection of three pairs of pretty dwellings’ would cost £1140, the lowest builder’s estimate came in at £1729.  Eventually, a lower estimate of £1463 was secured and the Parish Council applied to the Local Government Board for approval of a loan of £1800. After a third enquiry, this was granted but construction delayed until an adequate water supply guaranteed.  A well was sunk and water pump supplied.  In fact, Wood and Escombe went further, securing in 1902 the village’s first piped water supply with a reservoir built by the Parish Council, also at Smarts Hill.

Pioneer Cottages Thompson

Pioneer Cottages Thompson 2

These two images of Pioneer Cottages are taken from William Thompson, Housing Up-To-Date (1907)

Finally, construction began in November 1899 and by December the following year the aptly-named Pioneer Cottages were built and fully occupied.  They contained two ground floor rooms with a separate entrance and hallway and an extension to the rear containing a scullery and washhouse with three bedrooms on the second floor.  At this time, separate earth closets were provided at the back of the houses.

This high-quality accommodation came at a price – a rental of 5s a week which Escombe candidly acknowledged was affordable only to ‘the higher class of workmen’ but she hoped – as was typical among housing reformers of the day – that a trickle-down effect would occur and that ‘they would move into our better cottages and leave theirs at a lower rent to the agricultural labourer’.

Penshurst St John the Baptist (11)

The memorial to Jane Escombe in Penshurst parish church

Escombe’s efforts were rightly celebrated – Sidney Webb himself commending ‘the energy of a lady councillor’ which had secured the Penshurst housing – and she became an acknowledged housing expert and campaigner. (5)  She died, aged 64, in 1905 ‘loved and honoured’, her memorial tablet states, ‘by those to whose welfare she ministered with untiring zeal, sympathy and devotion’.

For all that, her speech at annual conference of the National Union of Women Workers in 1900 marks her as a woman of her time and place: (6)

It behoved women, now that the privilege of serving on public bodies was granted to them, to use that privilege; they had more leisure than fathers, brothers and husbands and ought to work: sanitary matters appealed especially to them and the housing problem was at the root of all sanitary reform. Badly built, badly drained, insanitary houses led to disease, to the spread of infection, and to lessened vitality.  Lessened vitality in its turn tended to the liability to fall an easy prey to disease and the drink habit.  On children, bad housing had the most serious physical, mental and moral effects, and this from a race point of view was most harmful and damaging.

I’m sure the many working women of her day did not enjoy such greater leisure – in fact, they were probably working a double shift – and some of her concerns reflect a typical Victorian preoccupation with working-class morality.  That uncomfortable reference to ‘race’ echoes the pre-1914 discourse of National Efficiency – a eugenicist concern, which united many on the left and right, with the fitness of the British working classes to work and, if necessary, fight in a world perceived (rightly as it happens) as more competitive and threatening.

Pioneer Cottages (1)

Pioneer Cottages (2)

Pioneer Cottages: contemporary images, February 2018

After Jane’s death, her elder sister Anne – in what looks like a local variant of the Octavia Hill method – collected the rents of the cottages for the Parish Council.  She was proud to claim in 1907 that the cottages had been continuously occupied and only six weeks’ rent lost throughout and that only when tenants had changed occupation.

 

Penshurst Plan Thompson 2

Floor plans of Pioneer Cottages taken from William Thompson, Housing Up-To-Date (1907)

Her only misgiving – a demonstration of an upper-class ignorance of the significance of the parlour kept ‘for best’ in respectable working-class homes – was that: (7)

The tenants mostly live in what we meant for a scullery, but has now become a small living room, the larger room being used only occasionally. Otherwise, the cottages are, I think, satisfactory.

‘We should plan differently now’, she concluded, and that revised plan was presumably implemented in a second scheme of eight cottages let at lower rents built before the war.  The Warren Cottages formed the nucleus of what became a larger interwar council housing scheme at Glebelands.

Penshurst Smart's Hill (1)

Interwar homes on Smarts Hill

Pioneer Cottages (6)

This image shows both the original and later council homes.

In the interim, there was further development on Smarts Hill with what looks like an interwar development of three semi-detached pairs and one short, three-house terrace immediately to the north of Pioneer Cottages towards Penshurst itself. These homes are notable for their tile-hung first floors – a clear homage to the local vernacular and quite a common feature of council housing in the area.

Glebelands

Post-war council housing in Glebelands, Penshurst

At Glebelands, the post-war estate, the homes are the ‘brick boxes’ that Escombe decried but they are attractively laid out amidst spacious gardens.

Penshurst Forge Close (4)

Penshurst Forge Close (2)

Forge Close

The sheltered housing at Forge Close in the village itself is also post-war but thoughtfully designed to fit into its historic surrounds.  There’s a lot of council-built housing for older people in the countryside.  It reflects, presumably, the financial regime operational after 1954 when central government support was limited to slum clearance redevelopment and homes for the elderly as well as the particular needs of country people often dependent on tied housing linked to their employment during their working lives.

All this, of course, is mere history but history has a habit of repeating itself.  In 2014, the Parish Council – one hopes with memories of its illustrious predecessor in mind – conducted a new survey of local housing needs: (8)

High property prices and a predominance of privately owned homes means that some local people are unable to afford a home in the parish of Penshurst. At the time of writing the report the cheapest property available was a 2 bedroom house for £295,000. For a first time buyer to afford to buy this property a deposit of approximately £44,250 is required along with an income of approximately £71,643.

It found 15 households – including 10 in unsuitable privately-rented accommodation, three who were sharing and one in tied housing – who needed some form of social rented housing or shared ownership.

Miss Escombe might be disappointed that such housing needs remained in the village and in such similar circumstances.  Given her enormous efforts to secure suitable affordable accommodation for the less well-off of Penshurst’s people, she would surely oppose the current Government’s intention to extend Right to Buy to housing associations which will further diminish the countryside’s stock of affordable housing. (9)  Sadly, then, this piece of history is as relevant to the continued struggle to house all our people decently as it was over one hundred years ago

Sources

(1) As described by Patricia Hollis in Ladies Elect: Women in English Local Government, 1865-1914 (1987)

(2) The portrait above was exhibited at the Royal Academy in 1877 and features Edwin Edwards who had married Jane’s sister in 1852.  It is wrongly attributed on the BBC Your Paintings website to Jane Esmond.

(3) William Walter Crotch, The Cottage Homes of Old England (1908)

(4) Quoted in Moritz Kaufmann, The Housing of the Working Classes and of the Poor (1907)

(5) Sidney Webb, Five Years’ Fruits of the Parish Councils Act, Fabian Society Tract, no. 105 (1901)

(6) ‘National Union of Women Workers Conference at Brighton’, The Courier, 26 October 1900

(7) Quoted in William Thompson, Housing Up-to-Date (1907)

(8) Tessa O’Sullivan (Rural Housing Enabler), Penshurst Housing Needs Survey, October 2014 with the support of Penshurst Parish Council and Sevenoaks District Council

(9) See, for example, Andrew Motion, ‘Forget Shoreditch: It’s our rural villages most at risk from gentrification, Daily Telegraph, 26 October 2015. The Rural Housing Alliance published Affordable Rural Housing: A practical guide for parish councils in December 2014.

Book Review: Catherine Flinn, Rebuilding Britain’s Blitzed Cities. Hopeful Dreams, Stark Realities

Catherine Flinn, Rebuilding Britain’s Blitzed Cities: Hopeful Dreams and Stark Realities (Bloomsbury, 2018)

I looked at post-Second World War planning in my book, Municipal Dreams: the Rise and Fall of Council Housing, mainly in the context of housing in which much was achieved.  But there was another side to that idealism which lay in the ambition to rebuild and redesign the centres of Britain’s blitzed cities.  There, as Catherine Flinn painstakingly describes in her important new book, the picture is far less positive.

rebuilding britain's blitzed cities cover image snThe worst phase of German bombing in 1940 and 1941 was reckoned to have destroyed 75,000 shops, 42,000 commercial premises and 25,000 factories. By the end of the war the total cost of destruction was estimated at £1,150m. And the practical, and what some saw as the moral, commitment to rebuild the worst-affected towns and cities in particular began early – as early as 1940 when a Cabinet committee on reconstruction was established.

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The impact of the Blitz is shown dramatically in this photograph of Exeter

In December 1940, Sir John Reith, then Minister of Works and Buildings, presented a paper on the ‘Reconstruction of Town and Country’ to Cabinet. His memo referred to the public attention already directed to the issue:

not just because of opportunities in restoration of damaged property but in the hope of a fresh start in a new spirit of cooperation and with the high objective of a better Britain.

Flinn expertly charts the complex iterations of committees and ministries and legislation that followed but, throughout, the expectation remained that the blitzed cities would receive priority in the post-war era and that their reconstruction would indeed foreshadow and exemplify the new and better Britain to emerge.

Reith’s language was measured when compared to the extravagant heights reached by Thomas Sharp, one of the foremost planners of the day, quoted by Flinn.  In ‘Building Britain: 1941’ (which he billed as ‘Words for Pictures Perhaps A Film Script’ and not published – in the Town Planning Review – till 1952), Sharp proclaimed:

There is so much now to plan for, to prepare for,
A whole shining world is possible.
Is there for the asking if we choose to make it:
Is ours if we will.
We are the shapers of our environment.
We are the makes of our own destiny.
We are the creators of our own happiness.
If truly we desire it we can build
A new and noble world for generous living…

If that was a rhetorical outlier, it was only partly so. When We Build Again, a film commissioned by the Cadburys in Birmingham in 1943 and scripted by Dylan Thomas, declared ‘Nothing is too good for the people’.  And it’s interesting to note that in Britain, a country so often mired in tradition, that such plans were uniformly, in Flinn’s words, ‘modern, optimistic and forward-looking’ – an interesting contrast to Germany and Poland, say, where reconstruction often meant restoration.

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Thomas Sharp and his book Town Planning, published in 1940. It sold 250,000 copies – a clear sign of the public interest in post-war reconstruction.

This range of promises of post-war betterment in a variety of forms and media is outlined in Flinn’s second chapter.  It’s hard to disagree with William Holford, another planner and architect, quoted later in the book, that ‘it is true that not only the planners but the Government itself had promised, if not a new heaven, at least a new earth at the end of the war’.

So, if you’re looking at the contemporary British city, you are probably wondering what became of this brave new world. With the significant exceptions of Plymouth (which I’ve written about in previous blog posts) and Coventry, the transformative impact of post-war reconstruction was paltry and often lamented. The rest of the book explains why.

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Corner  of Royal Way and Armada Way, Plymouth city centre – a product of 1943 Plan for the city. © John Boughton

The simple and established answer is that post-war priorities rapidly shifted from physical to economic reconstruction.  The great value of the book is not only to detail the processes by which this occurred but to delineate the myriad other obstacles to post-war rebuilding that facilitated this shift.

Taking that economic focus first, the little-known Investment Programmes Committee established by the Attlee government in 1947 takes centre-stage and, in particular and almost the villain of the piece, its chair, the civil servant FF Turnbull.  Turnbull repeatedly vetoed the building licence allocations that city centre reconstruction required; his widely-accepted rationale (in Flinn’s words) was that:

Resources going to the blitzed cities would necessarily draw on precious needs for industry and other business relating to exports and economic recovery.

Flinn also notes how a governmental ‘insistence on the maintenance of Britain’s world role’ and a ‘tendency to focus on global status diminished some of the discussions on the domestic agenda’.

abercrombie plan new city centre

The Abercrombie Plan’s zonal reimagining of central Hull

On the ground, the ‘overwhelming complexity in preparing and implementing reconstruction in the blitzed cities’ is amply illustrated by her three representative case studies of Hull, Exeter and Liverpool. Both Hull and Exeter had commissioned grand plans for post-war rebuilding, from Sir Patrick Abercrombie and Thomas Sharp respectively.  Liverpool, by contrast, pursued a more in-house process in closer collaboration with interested parties.

For all the differences between the three cities (in terms of history, local economy and political control), common themes stand out. The first and most crucial is the lack of central government support already noted, reflected not only in the issue of allocations (or lack of them) but in the sometimes obstructive, often critical attitude of Ministry officials who believed they knew better than councillors and planners on the ground.

abercrombie osborne street shopping area

The proposals for a new shopping centre envisaged here by Abercrombie around Osbourne Street were scuppered by trader resistance.

Beyond that, issues of existing property ownership and the competing financial interests they represented were uppermost.  In Hull, for example, the Council’s vision was challenged by a rival plan put forward by the city’s Chamber of Trade in 1947. In the end, Flinn concludes ‘the Abercrombie plans were not only controversial but, in practical terms, impossible to implement’.  Her forensic examination of the complex conditions operating in all three cities not only explains why so little was achieved but leaves you a little surprised that anything was built at all.

The final irony is that such reconstruction as did occur was often critically received.  D Rigby Childs, the editor of the Architects’ Journal, writing in 1954, thought that:

With the new permanent buildings one gets the impression that only too frequently the architects have been overwhelmed with frustrations of all kinds, allied with problems of finance, leading to a building which is, at best, humdrum and lifeless.

Rebuilding in Exeter, an historic city and victim of the Baedeker raids in April-May 1942, was described as ‘insipid’ and criticised by local residents.

exeter centre contemporary

A contemporary image of Exeter city centre © John Boughton

For all the subsequent disparagement of post-war rebuilding, it was decidedly not, in John Gold’s words, ‘the product of imposing utopia visions’.  While council officials were able to some extent influence the overall look of new developments, practical issues around finance and rationing played a greater role in what went up. It’s true, however, that the sparse, clean lines of modernist design also sat somewhat uncomfortably with popular taste.

jameson street paragon square sn

Jameson Street and Paragon Place are fruits of Hull’s post-war reconstruction © John Boughton

Flinn sets out, in a broader sense, to examine ‘why cities look the way they do’.  A large part of the answer in this instance, as explained in a later chapter which raises interesting questions for further research, lies in the role of private property developers. Here Ravenseft stands out; a company which began by building a small terrace of shops on a Bristol council estate and then expanded to develop large city centre schemes in Exeter, Hull and other blitzed cities. The firm was initially backed by Harold Samuel of the Land Securities Trust and acquired by that company in 1955. Landsec in its new incarnation is now the largest commercial property development and investment company in the UK.

The lack of financial support from government and the pressing need to replace rates income lost to wartime destruction left local authorities dependent on such economic muscle. The developers themselves, of course, were more interested in lettable space than aesthetics.

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‘Exeter Phoenix’. The sculpture was placed on the original Princesshay shopping centre opened by the then Princess Elizabeth in 1949, subsequently demolished. It’s now on the exterior of the new precinct opened in 2007. © John Boughton

Flinn’s close empirical study provides much more detail, not only with regard to central government policy but also in relation to the local personalities, politics and issues in her three case studies. It is complemented by a range of relevant images – of plans, proposals as well as pre-existing and completed realities.  As such, it is essential reading to anyone interested in post-war reconstruction as well as that larger question as to why our ‘cities look the way they do’.

It’s an academic book and scholars in the field will be grateful for its apparatus of data and references. That means, of course, that it comes at an academic price and is probably out of reach to the general reader.  But it repays study at your local library –  or perhaps we can persuade the publishers to issue a cheaper edition for a wider readership.

Catherine Flinn, Rebuilding Britain’s Blitzed Cities: Hopeful Dreams and Stark Realities was published by Bloomsbury on 27 December 2018. (Hardback, ISBN – 9781350067622).  Follow the link for further information. 

Grenfell and the Need for a Tenants’ Voice

This is a reblog of a post which I’ve written for the Housing after Grenfell blog published by the Oxford University Faculty of Law.  Do visit the blog to read a range of posts on  the many issues raised by this awful man-made tragedy. 

The tragedy of Grenfell Tower has thrown up many issues but one of the most powerful has been that of the accountability and responsiveness – or lack of them – of its management to the blocks’ residents. Eight months before the disaster, one activist residents’ group accused the Kensington and Chelsea Tenants’ Management Organisation (in charge of Grenfell) of literally ‘playing with fire’. With horrifying prescience, the Grenfell Action Group contended ‘only a catastrophic event will expose the ineptitude and incompetence of our landlord’. In the aftermath of the fire and as demands for a renewed social housing programme have risen on the political agenda, a broader debate has emerged about the reforms required to ensure that residents’ voices are heard and heeded.

Justice for Grenfell banner

Justice for Grenfell banner affixed to a wall on the Lancaster Estate © John Boughton

Beginning with Grenfell, it is clear that lines of accountability were attenuated and inadequate. Tenant Management Organisations (TMOs) had originally been established under the Conservatives’ 1988 Housing Act that introduced ‘Tenants’ Choice’. This was basically an attempt to transfer council housing stock to housing associations and other approved social landlords. The reform had strong ideological motives – an antipathy in particular to the Labour councils which owned and managed much social housing to this point – but there was also a genuine attempt to devolve management to bodies deemed more accountable and responsive than local authority housing departments considered bureaucratic and sclerotic. TMOs, intended as a grassroots initiative from tenants themselves (after further legislation in 1994, they could represent as few as 25 households) were the purest example of this. The Kensington and Chelsea TMO was an anomaly resulting from the Conservative council’s transfer of its entire housing stock, some 9700 homes, in 1996.

Formally, the new organisation – a limited, non-profit company with a board comprising eight residents, four council-nominated and three independent members – appeared representative but most subsequent accounts suggest residents experienced it as distant and unresponsive: a problem reflecting both its scale and ethos. The Council, meanwhile, which retained ownership of the stock and control of overall housing strategy, has been accused by its own new (post-Grenfell) chief executive, in a criticism accepted by the Council, as behaving like ‘a property developer masquerading as a local authority’.

In the light of the Grenfell tragedy, it’s tempting to see the behaviour of both the TMO and Council as particularly egregious. My fear is that, in many ways, it’s all too typical of what had become the new realities. Those realities encompassed, firstly, as we have seen, the loss of direct democratic control of housing (however imperfect in too many cases); and, secondly, as direct public investment was slashed from the early 1980s, the financialisation of housing in which public housing and land were increasingly seen as assets to be traded. However progressively intended in some cases, the latter has invariably seen social housing stock diminished in favour of properties for sale or let at dishonestly designated ‘affordable’ rents. The new breed of housing associations which have resulted from the many mergers and take-overs within the sector in the same period reflect both these trends – a growing distance and detachment from local and resident interests and a willing embrace of an entrepreneurial role far removed from their founding, philanthropic purposes.

The necessary regeneration of social housing stock and estates has taken place in this context, part-funded by private capital and executed by public-private partnerships and a cost-cutting, profit-driven agenda. Over 60 contractors worked on the regeneration of Grenfell and the Lancaster West Estate – itself a shattering of accountability – and it is claimed £300,000 was saved by substituting cheaper, less fire-resistant cladding for that originally commissioned. Some Grenfell residents believed – perhaps mistakenly but it’s a sign of the distrust existing – the entire regeneration process motivated by a desire to sell off the block.

Ironically, the marginalisation of tenants’ voices had created concern over a decade ago. The Cave Review of Social Housing Regulation, commissioned by the then Labour Government and published in 2007, noted ‘inadequate concern for tenant interests’ and ‘a strong case for regulation to protect tenants’. The Tenants’ Service Authority (TSA) – ‘a regulator that had the rights of consumers at its heart’ in the words of its first chief executive, Peter Marsh – was established the following year as an independent regulator. One early proposal of the TSA was to set up a register detailing whether social housing blocks had up-to-date fire risk assessments. Tenant Voice, created to give social housing tenants a say in national housing policy, followed in 2010.

Conservative MP Grant Shapps

Conservative MP Grant Shapps, formerly the Housing Minister in the early Conservative-Liberal Democrat coalition government. Image shared under the CC BY 3.0 license obtained by Wikimedia.

Both these bodies were abolished by Housing Minister Grant Shapps in the early years of the incoming Conservative-Liberal Democrat coalition government. This must be seen as part of a wider government assault – what was once chillingly described before Grenfell as a ‘bonfire of red tape’ – on what was judged unnecessary and bureaucratic regulation. Building control was, in effect, handed over to hired guns when the Thatcher government introduced independent inspectors into the sector (previously overseen by local government) in 1984. The Building Research Establishment was part privatised in 1997 by John Major. David Cameron proudly proclaimed a ‘one-in, two-out’ rule for his 2010 Government – for every regulation added, two would be removed. In this context, the failure to outlaw flammable cladding – a deadly problem highlighted by the fire which killed six residents in Lakanal House (a social housing block in Southwark) in 2009 – becomes all too comprehensible.

Shapps passed on the responsibilities of the TSA to a Housing Ombudsman operating under the aegis of the Homes and Communities Agency (HCA). A ‘serious detriment’ test applied to tenant grievances and a focus on economic regulation ensured that it had little impact or visibility. The survivors’ group, Grenfell United, has stated that it was unaware of the regulator’s existence till after the fire.

In 2017, in a speech to the National Housing Federation after Grenfell, Minister of Housing, Communities and Local Government Sajid Javid, complained ‘too many people in positions of power saw tenants less as people with families and more as problems that need to be managed’ and promised government would ‘look again at the way tenants are listened to and their concerns acted on’; an apparent condemnation of his own party’s policy since 2010. The Government Green Paper on Social Housing issued in August 2018 made similar promises to empower tenant voices. The Shelter Housing Commission Report published in January 2019, Building for our Future: a Vision for Social Housing, has called for a new social housing regulator with enhanced powers.

As Ed Daffarn, of Grenfell United and a member of the Shelter Commission, has argued:

Social housing is not like choosing a doctor – you can’t just up sticks and move if your housing association gets a low rating. Much more is needed to put power in residents’ hands. We need a new regulation system that will be proactive and fight for residents, with real repercussions for housing associations or councils that fail in their duty.

It seems as if the unconscionable tragedy of Grenfell might, at least, result in a positive move in this direction. Had stronger forms of accountability been in place before Grenfell, had residents’ voices been listened to, it is possible that the fire might have been averted. But a caveat must be added. The residents did not complain about the cladding; they had no reason to believe that flammable cladding would be permitted. If the man-made disaster of Grenfell is not to be repeated, we need both to strengthen tenant representation and ensure that the state itself upholds and imposes its duty of care towards all its citizens, not least those who are often most marginalised.

Stow Road, Ixworth: ‘Thingoe’s Follies’ UPDATE

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Another repost! I think it’s a post worth a re-visit in its own right (or it may be interesting to new readers of the blog) but I’m also able to include some new photographs and a brief chronological update.

They called them ‘Thingoe’s Follies’ – the eight homes built on Stow Road in Ixworth, Suffolk, which formed the first council housing built (in 1894) in the English countryside. And so they were if the attempt to provide decent homes for some of the poorest in England – the agricultural working class of the day – was folly.

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Four of the Stow Road council houses

In reality, they are a site of struggle.  Depending on your perspective, it’s a story of rural class struggle, pitting an oppressed labouring poor against the entrenched Tory landowning class which ruled village England before the Great War. Or you might see in it an enlightened Toryism – more Downton than Tolpuddle – that remembered traditions of noblesse oblige and adapted the local state to its purpose. Most dramatically, it could be taken to mark the rise of modern Liberalism, a radicalism mobilised by and personified in the unlikely figure of the village’s new vicar, FD Perrott, who believed that his care of souls extended to the tortured bodies of his poor parishioners.

'A Cottage with Sunflowers' at Peaslake, Surrey by Helen Allingham. Undated, probably 1890s

‘A Cottage with Sunflowers’ at Peaslake, Surrey, by Helen Allingham. Undated, probably 1890s, made available through Wikimedia Commons

In telling it, we can begin by forgetting any notions of pastoral idyll we might entertain: (1)

You pass through our quiet villages and you see old cottages covered with honeysuckle, roses, and ivy; you think how beautiful! how restful!  But you little imagine what sad decay and misery the outer beauty covers.

British agriculture was suffering an unprecedented depression (largely caused by grain imports from the opening of the American Mid-West) in the last quarter of the nineteenth century.  The rural population was falling – fuelling the growth of the cities which has been the main concern of this blog – but conditions for those who remained were often abysmal, as bad as any in the cities.  In Ixworth, with a population of about 850 in 1901: (2)

There is a row of houses, the total number of inhabitants is forty-four, and there are three closets for their use. In one house, consisting of two rooms, there are ten in family… Doors are very bad, and the walls tumbling down.  When it rains much, the water runs from the back kitchen into the sitting-room, and forms a pool in the centre.

Such conditions were shocking to Perrott who arrived in the parish in 1888, finding that ‘the Church had scarcely anything to do with the people and the people scarcely anything to do with the Church’.

St Mary's Ixworth: Perrott's church © Wikimedia Commons

St Mary’s Ixworth: Perrott’s church © Wikimedia Commons

One of his first acts was to help form – at a time when agricultural trades unionism was a growing though embattled force in the country – the Ixworth Agricultural Labourers’ Association.  The Association surveyed local housing needs – both the sorry condition of existing homes and the desperate need for new – and petitioned the local Rural Sanitary Authority (the Thingoe Board of Guardians at this time) to take action under the 1890 Housing of the Working Classes Act.

The Sanitary Authority responded by evicting existing tenants under Part II of the Act addressing unfit accommodation.  Perrott and the Association mobilised – ‘meeting after meeting was held’ – to halt these evictions (which would only exacerbate a local housing shortage) and press for action under Part III of the Act, permitting the building of new homes.  Reluctantly, the Authority asked the Local Government Board to organise a local inquiry which could compel – if the need for proven – the County Council to grant the permission Thingoe needed to adopt Part III.  (This laborious procedure was a major reason for rural authorities’ inaction on housing – and also a fine pretext for it.)

High Street, Ixworth, Suffolk © Andrew Hill and made available through a Creative Commons licence

High Street, Ixworth, Suffolk © Andrew Hill and made available through a Creative Commons licence

The Inquiry was chaired by Lord Francis Hervey, the local Conservative MP with – before you leap to conclusions – great care and sympathy. (3)  He concluded the case was clearly proven and went further in arguing, against those who railed at the expense to rate-payers: (4)

A certain number of families will be removed from unwholesome lodgings, devoid of proper conveniences, to healthy dwellings with a sufficiency of garden ground; and it is reasonable to suppose that there will not only be less poverty arising from sickness, but that there will be also an addition to the family resources from the sedulous cultivation of the soil, in both cases with results favourable to the ratepayers…Upon economical grounds alone, therefore, the putting in force of Part III of the Act is capable of being justified; but it is impossible to forget that we are in presence of other considerations, social and moral, which, though not susceptible of being gauged by money values, are intrinsically of still higher importance.

There (with just a little archaism) you have the economic and ethical case for council housing – as true now as then – made by a Tory aristocrat.

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This contemporary image shows the allotment space to the side of the homes still being put to good use.

Still, the question of finance remained.  Hervey had assumed the expense would be borne by the wider district rather than the parish of Ixworth. The Sanitary Authority seized on this alleged unfairness to its ratepayers to secure a second inquiry, ostensibly to tackle the question of funding but in practice used to re-open the entire question.

Perrott’s response was fierce; he attacked the Sanitary Authority: (5)

They were not and had not shown themselves to be guardians of the poor. They had simply been guardians of the rates…They had not treated this case as a poor man’s one but as only as one touching their own pockets… Could there be a body in England so fatuous?

Perrott – by now dubbed the Radical Vicar of Ixworth – also clashed with the local lord of the manor, Captain RN Cartwright, an opponent of the new housing and owner of three quarters of the parish’s 1700 acres and 14 of its run-down cottages.  He had earlier attacked Cartwright for evicting an elderly widow in order to house an estate worker. The rhetorical flourish of Perrott’s published address to the Labourers’ Association had a clearly local resonance: (6)

Under the shadow of the luxurious ‘Hall’, at the gate of the tenant-farmer’s comfortable homestead, the labourer (upon whose work both live) drags out a hard life, compelled with wife and children to find shelter and make ‘home’  under a roof beneath which neither squire nor farmer would stable their very cattle.

The inquiry, under Colonel Frederick Pocklington, was convened at 3pm in a deliberate attempt to exclude local workers – though a newspaper report records (after its list of the local great and the good) that ‘a few labourers stood at the back’. (7)  It overturned the result of the first inquiry.

At this point, Hervey returned to the field.  He secured legal opinion that – as no new evidence had been adduced – Pocklington’s decision was invalid.  The verdict of the first inquiry decision stood – the Thingoe Sanitary Authority was compelled to build. Elections to the Authority in 1892 returned a reforming majority and Perrott (as chair) served for one meeting to secure the housing’s final go-ahead.

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A contemporary image of the eight council homes on Stow Road

After all that sound and fury, the results might seem disappointing.  Eight cottages, designed by Mr F Whitmore, Suffolk County Surveyor, were built on four acres of land at a cost of £1700.  They comprised four semi-detached, two-storey houses with a single-storey extension at the rear, housing kitchen, washhouse and lavatory.

With its homes let at £5 5s a year and an additional charge for their large, allotment-style, gardens, financed on a short thirty-year loan, the scheme was not a financial success and the houses proved too expensive for the poorest of the local people for whom they were originally intended.

sn ixworth stow road (7)

A side view with a glimpse of the rear extension.

But they were the first fruits of a hard-fought struggle by which the rural working-class would escape a reigning near-feudalism.  By 1900, just six rural district councils (the new bodies of local government established in 1894) had adopted part III of the 1890 Act and Thingoe’s eight cottages remained its sole concrete fruits.  A 1900 Act, intended to support council housing in the countryside by allowing county councils to build where district councils refused and formally giving parish councils the right to petition for action, had little impact.

Still, Ixworth was a harbinger though, in practice, it would be a new post-war politics that made the difference.  The 1936 Housing Act, providing rural councils with a subsidy of up to 80 per cent for the construction of agricultural labourers’ cottages, was crucial. By 1939, 159,000 council houses had been built by England’s rural district councils. (8)

These and their successors were to become a vital component of village life. They are now, sad to say, under unprecedented threat from the Conservative Government’s extension of Right to Buy to Housing Association properties and we’ll need a new generation of middle-class reformers and working-class activists to defend them. (9)

The Reverend Perrott left Thingoe in the year of victory, 1892, and resigned from the priesthood four years late.  Re-qualified as a barrister, he remained active for some years as a campaigner for housing reform and, as Frank Duerdin Perrott, the unsuccessful Liberal candidate for the safe Conservative seat of Clapham in the 1900 General Election.  He died in 1936, bequeathing funds to support parapsychological research at his alma mater, Trinity College, in Cambridge. (10)

As for the ‘village Hampdens’ of the Labourers’ Association, I can provide neither names nor details.  The houses remain their monument, one pair, no’s 1 and 2 Stow Road, are now Grade II listed – a reminder of the struggle of working people to secure decent housing and its continued necessity.

Update

Visiting the 1894 homes, it was good to see the story of council housing brought closer-to-date with an attractive post-1945 development immediately behind on Peacock Rise –  some modern semi-detached homes from the 1960s (?) and some of the bungalows for elderly people found so often in our villages.

sn ixworth peacock rise (1)

sn ixworth peacock rise (5)

Sources

(1) Jane Escombe, quoted in Moritz Kaufmann, The Housing of the Working Classes and of the Poor (1907)

(2) George Francis Millin, Life in Our Villages (1891)

(3) Lord Francis Hervey (1846 –1931), educated at Eton and Balliol College, Oxford; a barrister and Conservative MP from 1874-80 and 1885-92.  However, he had also served for three years from 1876 on the London School Board as a member for Finsbury and this perhaps gave him a better understanding of working-class conditions.  He went on to become head of the Civil Service.

(4) Quoted in William Walter Crotch, The Cottage Homes of Old England (1908) – the fullest guide to the intricacies of the process.

(5) ‘The Ixworth Labourers’ Association’, Bury Free Press, 19 December 1891

(6) ‘The Vicar of Ixworth on the Ixworth Houses’, The Bury and Norwich Post and Suffolk Standard, 6 October 1891

(7) ‘The Ixworth Housing’, Bury Free Press, 26 September 1891

(8) Trevor Wild, Village England: A Social History of the Countryside (2004)

(9) Andrew Motion, ‘Forget Shoreditch: It’s our rural villages most at risk from gentrification, Daily Telegraph, 26 October 2015. The Rural Housing Alliance published Affordable Rural Housing: A practical guide for parish councils in December 2014.

(10) Perrott became a committee member of the London Reform Union and published three pamphlets in 1900 – The Demand for Fair Rent Courts, Overcrowded London and the less snappily titled but descriptive The Housing of the Working-Classes Act, 1890. An Account of the Solitary Instance of the Putting Part III of the Act Into Operation in an English Village where the Labourers Were Rack-rented and Overcrowded in Dilapidated and Insanitary Dwellings

Nissen-Petren Houses: ‘Not obnoxious and the people would be delighted to pay an economic rent’ UPDATE

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I don’t usually re-post old blogs but I’m pleased to add here some interesting information and insight provided by Mark Swenarton. 

If you’ve travelled along the A303 in Somerset, you may have noticed, like many thousands of others since the mid-1920s, a rather strange sight to the north of the village of West Camel. Amidst the green rolling English countryside, four chimneyed semi-circular red roofs add a touch of rolling exoticism.  They look like a domesticated version of the army Nissen huts familiar to older generations and that, indeed, is pretty much what they are. This is their story; the story of one of the most unusual attempts to provide the cheap and decent council housing our country has needed.

SN West Camel distant 2

West Camel

The four pairs of semi-detached homes in West Camel were erected in 1925. Their prototype was developed by Lieutenant Colonel Peter Nissen of the 29th Company Royal Engineers some nine years earlier in April 1916 in the midst of the Great War whose execution demanded such economic and easily assembled buildings to house its personnel and services on an enormous scale.  Production began four months later and by war’s end some 100,000 of these eponymous Nissen huts had been erected. (1)

The end of the war saw an unprecedented commitment to provide ‘homes for heroes’ for those whose sacrifice had secured victory but the idealism and financial generosity of the 1919 Housing Act was short-lived – quashed by austerity measures imposed in 1921. And while new Housing Acts passed in 1923 and 1924 were intended to boost council housing, shortages of traditional building materials and skilled labour continued to hinder its construction.  The search for new cheaper and labour-efficient methods was on and in 1925 the Ministry of Health (also responsible for housing) allocated £34,000 to support the building of demonstration homes using non-traditional methods in 86 local authorities across the country. (2)

Ten councils were already pioneering such efforts.  A bewildering variety of systems was on offer though broadly differentiated by those using steel, timber or pre-cast concrete factory-made components for on-site assembly and those using pre-cast or in-situ concrete components manufactured on-site.  (3)

The Somerset houses were designed by John Petter and Percy J Warren, a local architectural practice appointed Borough Architects to Yeovil Town Council in 1911.  The obvious debt to Nissen was acknowledged in their formation of Nissen-Petren Houses Ltd – a company established to market their new design to local authorities – with Nissen on the board of directors, alongside Sir Ernest Petter, a Yeovil industrialist and founder of Westland.  (Petren was a compound of Petter and Warren as you’ve probably worked out.)

My thanks to Mark Swenarton whose investigations have added further important context here:

One of the foremost promoters of non-traditional methods was Neville Chamberlain who served briefly as Minister of Health and Housing in 1923 during Bonar Law’s short-lived government and again in Stanley Baldwin’s government of 1924-29.  The clauses promoting non-traditional construction in Labour’s 1924 Housing Act (the Wheatley Act) were inserted purely at Chamberlain’s instigation.

For Chamberlain, part of the appeal of new methods was that they cut out the union-controlled building trades and put the unions and the public into opposed camps (in contrast to Wheatley’s programme, which had placed them on the same side).  Non-traditional methods were also a central plank in the housing policy of the ‘New Conservatives’ in the party’s 1924 election manifesto.

Chamberlain’s particular ally was the armaments manufacturer Lord Weir and, in fact, though Chamberlain did not state this publicly, his initiative was centred on the timber-framed, steel-clad ‘Weir House’ whose components were manufactured in Weir’s Glasgow shipyards.

Sir Ernest Petter was very much a local counterpart to Weir and probably the driving force behind the West Country initiative. Westland had manufactured over 1000 planes for the Government during the First World War and Petter believed he could produce 100,000 houses a year using the Nissen system!

In 1927, Westland got a large order for its new Wapiti biplane which may explain Petter’s loss of interest in the housing proposals.  Chamberlain himself lost interest in the new methods as their problems (not least cost) became apparent.  But he had, in the meantime, overseen the expansion of the Building Research Station and its move to Garston near Watford where it remains today.

Mark discusses Chamberlain’s espousal of non-traditional methods more fully in chapter 11, ‘Houses of Paper and Brown Cardboard’ in his book Building the New Jerusalem:  Architecture, Housing, and Politics, 1900-1930.

NP advert Times 7 April 1925 SN

Times advert, 7 April 1925

The Nissen-Petren homes were steel-framed houses, obviously so given their dominant feature – the semi-circular steel ribbed roof (covered with ‘Robertsons’ Asbestos Protected Metal’) bolted on to concrete foundations – with, in this first iteration, pre-cast concrete cavity walls. The company’s advert in The Times proclaims the advantages of this revolutionary and unusual design – it required only half the skilled labour needed to build traditional brick-built homes and could be erected in half the time.  Another benefit: the early erection of the roof enabled ‘the work of filling in the walls and building the fireplaces and chimney backs to be proceeded with independently of weather conditions’. The estimated cost of construction, at £350, was reckoned £100 less than that of traditional housing. (4)

SN Goldcroft Yeovil

Goldcroft, Yeovil

The first two of the Nissen-Petren houses, commissioned by Yeovil Town Council, were erected on Goldcroft in the town in 1925 and the Council’s pride in its pioneering role was amplified when it was visited ‘by a large and distinguished company’ including ‘representatives of the War Office, the Air Ministry, various municipalities and members of the London Press’ in March. The delegation was conveyed by car to the Borough Restaurant where it was addressed by Sir Ernest Petter who stated his hope that the experimental houses ‘would prove to be the solution of the housing problem of the country’. (5)

There were cavils about the appearance of the new homes (to which we’ll return) but these were swept aside by the Mayor:

when the model of the new houses was first shown to the Council many of them were not enamoured of them but they felt that there was something far more important in Yeovil than mere outward appearance of the houses.  The great problem which confronted the local authorities today was to build a house, the rent of which the ordinary wage-earner could afford to pay.

In those terms, their estimated rents – at 5s (25p) a week plus rates and reckoned to be well within the reach of the average working man – were a critical advantage.

SN West Camel

Howell Hill, West Camel

The same point was argued strongly by the chairman of Yeovil Rural District Council, JG Vaux, and, given the low wages of the rural working class, was judged even more important. (Yeovil Town Council was an urban district council; the surrounding countryside was administered by its rural counterpart):

Whatever their appearance, they were better than some of the brick hovels existing today.  If they could put up 200 of these houses they would be able to demolish some of the hovels in their district. He believed that with regard to the dome-shaped roofs they had been just a little prejudiced against them and that if a number were erected away from the brick houses that people would soon get used to them.

The semi-detached Goldcroft houses were non-parlour homes with a living room, bedroom, scullery, bathroom, larder and coal store on the ground floor and two bedrooms and two box-rooms on the upper floor. Despite this rather unconventional layout, they were judged (by one observer at least) as ‘cosy and comfortable’:

The rooms are wide and airy, being well lit and properly ventilated. It would seem to the layman that the new roof far from restricting inside space, has allowed of more room.

Later, the tenants themselves were said to be ‘very satisfied with the accommodation provided’. (6)

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Higher Bullen, Barwick

This then was an optimistic period for the promoters of Nissen-Petren housing in a context where they appeared to offer a genuine solution to a very real need.  Yeovil Rural District Council followed up its initial interest with a decision in April to invite tenders for six Nissen-Petren parlour houses in Barwick, four (two parlour and two non-parlour) in South Petherton and six non-parlour in West Camel. But only after a ‘heated discussion’.  One member had declared himself personally ‘very much against these things’ (‘I call them “things”’) and there were allegations of water leakage in some of the houses built to date. (7)

SN Fairhouse Road, Barwick

Fairhouse Road, Barwick

A compromise ensued in the next meeting in which the Council agreed to proceed only where desired by the local parish councils.  Some remained enthusiastic. Barwick ‘urged the erection of houses in that district with the utmost speed’, knowing that ‘it was impossible for an agricultural labourer to pay a rent of 8s or 9s a week’ that traditional homes cost. West Camel now asked for eight Nissen-Petren homes and South Petherton said it could take more. But Montacute refused them and, one month later, Ash requested brick or stone houses in preference to Nissen-Petren. (8)

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Ryme Intrinseca

A pair of Nissen-Petren houses was also built in the beautifully named north Dorset village of Ryme Intrinseca –  it features in a John Betjeman poem – by (I assume) Sherborne Rural District Council but clearly taking its inspiration from Yeovil six miles to the north.  In their idyllic setting, Lilac Cottage and the Lilacs look quite bucolic and the facing of the concrete cavity walls has a patina of age not dissimilar to that of adjacent cottages in local stone.

Bamtpn Streetview

Frog Lane, Bampton (Google Streetview)

Interest in the new homes had spread further, however.  Petter and Warren’s design had been worked up in conjunction with DJ Dean, the Surveyor for Bampton Urban District Council in Devon and that council built a block of three semi-detached Nissen-Petren houses in Frog Street. The British Empire Exhibition at Wembley, in which the Palace of Engineering (overseen by Sir Ernest Petter) featured seven prototype new homes including a model of the Nissen-Petren houses, was still running and the locals apparently nicknamed them Wembley Terrace, a name which has stuck unofficially. (Or perhaps, more likely, it was a reference to the twin domes of the then new Wembley Stadium.)

A subcommittee of the adjacent Tiverton Rural District Council visited Yeovil and returned ‘favourably impressed’ though Mr New, the chair of the Council, felt it incumbent to ask ‘the members to set aside prejudice’ – ‘the houses were not obnoxious and the people would be delighted to occupy them and pay an economic rent’.  That might sound a little like damning with faint praise but a tender for 16 Nissen-Petren houses in Uffculme was accepted for a contract price of £5000 in December 1925.

At £312 each, that was low but problems of water percolation were reported in the new homes in the course of erection in 1927. (9)  The local contractors erecting them stated that had followed the specifications set by the Nissen-Petren Company (to whom they paid royalties) and the Company claimed this was the first time they had had a complaint (though, as we’ve seen, water seepage was reported in the Yeovil Rural District). Presumably, a damp course inserted took care of the immediate problems but the houses themselves have, to the best of my knowledge, subsequently been demolished.

Queenborough

Edward Road, Queenborough (Google Streetview)

Meanwhile, councils beyond the West Country were expressing an interest in the potential of the new homes. Ipswich appears not to have taken this further but a delegation of two councillors and the Borough Surveyor from Queenborough on the Isle of Sheppey (who had visited Yeovil in May 1925) were, having investigated a number of other options, keen to proceed.  It was agreed to build three semi-detached ‘specimen houses’ on Edward Road, numbers 6-8 and 10-12 as parlour houses, and 2-4 as non-parlour. On this occasion the external walls were constructed of roughcast brickwork. (10)

The final authority to investigate the Nissen-Petren houses was Bexhill-on-Sea in East Sussex where an initial tender was accepted for homes on the Sidley estate and a further tender for 36 homes in the new Buxton Drive housing scheme in July 1927.  A final tender from Nissen-Petren Houses Ltd – but not the lowest – was received in September 1928.

By this time, things were going downhill for the enterprise.   The final bill for the Goldcroft houses in Yeovil was received in September 1925 and came to the grand total of £1028 – over £513 per house and more expensive than conventionally built homes of the time.  The architects waived their fees and the builder accepted a £100 loss but – despite reassurances that costs would be lower in larger future schemes with consequent economies of scale – that was essentially the end of the experiment.  The Council congratulated itself on its initiative but licked its wounds. (11)

Nissen-Petren Houses Ltd was wound up in September 1928 and a bankruptcy notice issued in 1930. (12)  I’m not clear that any of the Bexhill houses were built – I can find no further record of them. Does anyone know?

That is almost the end of the story so far as Nissen housing in Yeovil is concerned but for two quirky codas.  In 1946, in the midst of an unprecedented housing shortage, a wave of squatting spread like wildfire across the country. By October an estimated 1038 military camps had been commandeered as emergency homes by almost 40,000 activists.  Two of these unlikely radicals were – as named by contemporary press reports – Mrs Frank Ward (her husband was a dustman for Yeovil Town Council) and Mrs Kenneth Bowley (whose husband was serving with the RAF in Egypt); each had a three-year old child. They jointly occupied ‘the better of two Nissen huts off Eliott’s Drive’, a local site for barrage balloons, cleaned them out, hung curtains and got the stove going. (13)

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Goldcroft, Yeovil

Finally, to return to the Nissen-Petren houses proper, many are now listed, beginning with 172 and 174 Goldcroft in Yeovil in October 1983 despite their being described at the time by local councillors fighting their preservation as ‘eyesores, abysmal and shocking’. (14) Those in Barwick, Ryme Intrinseca and Bampton are also listed; those in South Petherton had been previously demolished.  The pair in Queenborough survive without protection for the time being.  (15)

Of around 4.5m new homes built in Britain between the wars, it’s estimated that not more than 250,000 were of non-traditional construction.  Most of these, despite their unconventional construction, mimicked a more or less traditional form.  The Nissen-Petren houses, of which there were around 24 in the Yeovil district and not more than 50 nationally, stand out.  Their distinctive appearance wasn’t always well liked but many survive to provide an eccentric addition to some of our towns and villages and an arresting footnote to our wider housing history.

Sources

My thanks to all those people who responded to an earlier Twitter exchange on Nissen-Petren homes.  The ‘Nissen-Petren Houses’ are also discussed by Bob Osborne in his A-to-Z of Yeovil’s History and Yeovil in Fifty Buildings.

(1) ‘FWJ McCosh, Nissen, Peter Norman (1871–1930)’, Oxford Dictionary of National Biography (September 2004) [Subscription needed]

(2) ‘Steel Houses’, The Times, 18 June, 1925

(3) Harry Harrison, Stephen Mullin, Barry Reeves and Alan Stevens, Non-Traditional Houses. Identifying Non-Traditional Houses in the UK 1918-1975

(4) Nissen-Petren Advert, The Times, 7 April 1925 and ‘Steel Houses at Yeovil’, The Times, 11 March 1925

(5) ‘The Nissen-Petren House’, Western Chronicle, 13 March 1925. Quotations which follow are drawn from the same source.

(6) ‘Nissen Houses’, The Times, 29 May, 1925

(7) ‘The “Nissen-Petren” Houses. Heated Discussion by RDC’, Western Chronicle, 24 April 1925

(8) ‘The “Nissen-Petren” Houses’, Western Chronicle, 22 May 1925 and ‘Yeovil Rural District Council’, Western Chronicle, 17 July 1925

(9) ‘Housing in Tiverton Area’, Exeter and Plymouth Gazette, 1 May 1925, ‘Tiverton Rural District Council’, Western Times, 11 December 1925 and ‘Complaint Concerning New Buildings Being Erected’, Western Times, 4 February 1927

(10) Susie Barson, Jonathan Clarke, Geraint Franklin and Joanna Smith, Queenborough, Isle of Sheppey, Kent Historic Area Appraisal (Research Department Report Series no 39/2006, English Heritage)

(11) ‘The Nissen-Petren Houses Houses’, Western Chronicle, 25 September 1925

(12)  The Times, 17 August 1928 and The Times, 11 September 1930

(13) ‘Families in Army Huts. Squatters in the West Country’, Taunton Courier and Western Advertiser, 17 August 1946

(14) ‘Nissen Huts Not Needed’, Building Design, no 677, 17 February 1984

(15) You can read the Historic England listing details for these buildings on their website.

The Newlyn Clearances, part II: ‘the modest homes that make a nation’

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Last week’s post provided the background to the clearance of Newlyn’s slums and described the modest council estate built to replace them. Far more dramatic events ensued as the broader scope of Penzance Borough Council’s intentions became clearer. The five-day public inquiry into its plans in July 1937 was the locus of a housing protest which briefly gripped the nation.

Rosebud Westminster

The Rosebud at Westminster, October 1937

There were, to begin with, perhaps justified complaints that the Council had been less than open about its plans.  The clearance orders had been passed by the Council without it having seen the wider proposals of Borough Surveyor Frank Latham.  Latham’s wish to widen the harbourside road through the village (and the demolition of homes not deemed unfit this required) drew further criticism and the sardonic observation that the regular traffic to Mousehole comprised merely a local bus.

Duke Street demolished 1937

Duke Street, Newlyn

The most vocal complaint centred on the issue of compensation.  Owners of homes officially designated as unfit for human habitation and subject to demolition (marked pink on council plans) received only their site value. Homes marked grey on the plans (to be cleared to allow rational reconstruction), on the other hand, were not classified as slums and their owners were to be compensated by their full market value. This difficult demarcation proved controversial in both respects.

The meat of the ensuing struggle was contained in the legalistic wranglings which resulted but its emotional heart lay elsewhere.  That was provided in the beguiling image of simple Cornish fisherfolk battling bureaucratic and unfeeling modernity.  Newlyn was its ideal site.

Home-Along Evening Stanhope Alexander Forbes

Stanhope Forbes: Home-Along: Evening (Newlyn Harbour, 1910) © Bristol Museum and Art Gallery

One major factor in this was the presence of an artists’ colony, active in the village since the 1880s. Stanhope Forbes, the grand old man of local artists, regarded: (1)

the idea of demolishing any part of our priceless village as a piece of sheer vandalism and folly. To me and thousands of holidaymakers the prospect of new and ugly buildings will be ghastly.

Local artists such as Geoffrey Garnier played a leading role in the Newlyn Housing Committee formed to oppose the clearances; Phyllis Gotch (the Marquise de Verdières since her 1922 marriage) was the daughter of two Newlyn-based artists and the instigator of some of the campaign’s more imaginative protests.  Her letter to the Manchester Guardian (complete with an ‘authentic’ local voice) is worthy of lengthy quotation and captures some of its most romantic imagery: (2)

Newlyn, by an astonishing order of the Penzance Town Council under the Slum Clearance Act, is to be swept away. Her cobbled streets, where Perkin Warbeck strode in his glory, her ancient manors and moulded ceilings, her secret lifts and smugglers’ passages are all to go…

Many of the houses are owned by the inhabitants, who are of a fine and independent spirit, scorning outside help if they can possibly help themselves, and facing hardship with dumb and gallant courage…

A deputation came to me to-day. The spokesman was a grand, old fisherman. God-fearing and wise. He said:

Miss Phyllis, for we shall always call ee that, we’ve been thinking that if you was to tell England and Scotland and Wales and the people over to Ireland what was happening to we, how the homes we’ve laboured for are being took away, and how there be’nt no money to pay lawyers to help us. Surely there’d be some as would plead for us, some as would say ‘This must not be?’

A petition of Newlyn women to the new Queen played on some of the same tropes in its plea ‘to the first lady in the land, our kind and beautiful Queen’ who would know ‘so well what the love of home means and…understand above all what the Celtic people feel about the soil on which their forefathers have dwelt for centuries’. (3)

Life class at Newlyn, Picture Post 15 October 1938

‘Life class at Newlyn’, Picture Post, 15 October 1938

It’s altogether tempting, in this context, to see elite manipulation at play in such presentation but that would merely add another patronising depiction to a more complex, multi-layered story.  It ignores, as Tim Martindale argues, the ‘extent to which members of the fishing community of Newlyn actively participated and performed in the construction of their representation’, the socially embedded role of local artists, and a powerful sense of Cornish identity among local residents. (4)

This was wonderful stuff for a national (indeed international) press looking, then as now, for human interest stories to tug their readers’ heart strings.  Punch took up the baton and took a side-swipe in its doggerel at Penzance, the villain of the piece: (3)

Each to his own. Penzance may sleep,
Swaddled in palms and sanitation
So Newlyn (and the country) keep
The modest homes that make a nation;
If not, both reason and romance
(if England study either school in)
Tell us we might not miss Penzance
But cannot do away with Newlyn

PZ87 Rosebud in Westminster Charles Hoyland in Margaret Perry Collection

PZ87 Rosebud in Westminster, an early colour image by Charles Hoyland © Margaret Perry Collection

All this provided the context for the campaigners’ most inspired and theatrical protest – the voyage of the 50-foot Newlyn lugger, Rosebud in October 1937 to Westminster and a meeting with the Minister of Health and Housing, Sir Kingsley Wood.  The skipper Cecil Richards, a Newlyn fisherman and a resident of one of the condemned homes, and his crew were met by local MP Alec Beechman. His speech avoided controversy but Billy ‘Bosun’ Roberts made it clear that the ‘Cornish boys [were] here to fight for their homes!’

Crew with Alec Beeman

The crew of The Rosebud with Alex Beechman MP

Then, in the words of Pennsylvania’s Reading Eagle, ‘the grizzled fishermen…cap in hand’ met Wood and told the Minister ‘how much they loved their picturesque cottage homes, how unhappy they would be in the new houses “over the hill”.’ (5)  Wood, clearly an early master of PR, provided the deputation with a Cornish cream tea and a thoroughly sympathetic hearing.  His verdict would come two weeks later but, for the time being, the Cornishmen were impressed by his apparent honesty and understanding.

Daily Express October 18 1937

Coverage from the Daily Express, 18 October 1937

For all the resonance and power of this campaign, opinions in the village were divided. We saw Reverend George Richards’ opinion of the new council homes on the Gwavas Estate last week – he had described them as ‘among the monstrosities being condemned by architectural experts’.  A Daily Mirror article contrasted pictures of the old village and the new estate under the headline ‘What Would You Rather See?’.

But such attitudes angered many in the village. ‘A Tenant’ who called into the offices of the Cornish Evening Telegraph described his family’s experience of living in a one-up, one-down cottage with a single bedroom, a solitary, rapidly filled bucket which served as a toilet, and a washbasin shared with three other households. He commented caustically that ‘the most militant in defence of the old village already lived up the hill’ and reckoned:

eighty percent of the working people of Newlyn welcome the building of the new houses and are longing for the day when they will have a chance to live in them.

Gender and generational differences emerged.  Some women – as wives and mothers – seemed to favour new and better-equipped homes as their husbands, out at work and relieved of domestic duties, defended the old.  A petition from ‘Younger Residents of Newlyn’ urged the Minister to sanction the clearances and expedite an early move to more sanitary accommodation. Its advocates were outspoken:

We say that Newlyn is no longer a fishing village – granted a few elderly men and a few out-of-date boats…they will soon disappear. The sons of these men are not going fishing. No sir, they are finding employment in Penzance and elsewhere.  We say that far too much has been made of a small grievance which the few fishermen might have, for after all they represent a very small minority in Newlyn.

That petition was signed by some 400 people; a rival petition protesting ‘the wholesale destruction of our village [and the] ruthless appropriation of private property’ attracted 1093 local signatures.  You can make your own judgement on the balance of forces in play.

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Chywoone Avenue, Gwavas Estate

To be fair to the Newlyn Housing Committee, they were clear that defence of the old homes did not require opposition to the new and it avoided criticism of the new estate. Still, in what was a compelling narrative, it became natural to juxtapose the two.

The Newlyn Housing Committee also commissioned Professor Stanley Adshead (a leading architect and planner and the designer of significant council housing developments in Norwich, Stepney and Brighton amongst others) to review the clearance scheme. He took an advanced position in opposing its road widening element (‘Is it not conceivable that reduction in the size of the cart is better than improvement in the strength of the horse?’) and concluded firmly that the Housing Acts should be amended ‘to make special provision for dealing with cottages and villages possessing historic interest and peculiar charm’.  In the present, however, all hinged on Sir Kingsley Wood.

Wood pronounced in November 1937 in a letter to Penzance Borough Council. In the rush to headlines, the press initially greeted a victory for the protesters.  One block of homes was to be saved, some frontages preserved, and he called on the Council to: (6)

to rehouse the fishermen and the older people near the harbour and to cooperate with all those who would help them secure a redevelopment which will meet the legitimate interests of those affected and also preserve the amenities of the village.

Navy Inn Court

Navy Inn Court

In a follow-up letter to the Council in December, he commended its cooperation with the Council for the Preservation of Rural England and RIBA and the priority given to rehousing fishermen and the elderly at Navy Inn Court. (7)

It was a masterly political response. Woods had saved only 23 of the homes slated for demolition; he had transferred 54 from ‘pink’ to ‘grey’ thereby ensuring more generous compensation, and he offered more cash to those whose homes were still condemned as ‘unfit’.

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Chapel Street, Newlyn

The Fragdan SN

The Fragdan, Newlyn

Disillusion soon set in among the campaigners but the battle was essentially over and it was, in the end, a qualified victory for their cause. A guerrilla war, fought over legal issues of designation and compensation, delayed clearance. The Council, wary of the storm it had created, was, in any case, in no hurry to proceed. Only 58 demolitions had taken place by 1940, some more in 1943, and larger clearances in 1951 and 1955. By 1974, 130 of the homes originally condemned still stood and many were now part of a conservation district. Times had changed.

Harbour SN

The harbour, Newlyn, 2018

For one, those younger residents were wrong about Newlyn’s fishing industry – in 2016 it was the largest fishing port in England in terms of quantity of landings. It remains a busy, bustling harbour and, not far away, lie the narrow lanes and traditional cottages beloved of tourist Cornwall – now with all mod cons and, presumably, a great many of them occupied as second homes or holiday lets.

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Rosebud Court and plaque

As a visitor myself, it seems impossible to lament their survival and the failure of the rational modernism once threatened.  But their current situation highlights housing realities, both interwar and contemporary. There are rightly a number of monuments in Newlyn to the Rosebud and the struggle it represented. Ironically, one of these, Rosebud Court, is social housing; a block of four flats completed for the Penwith Housing Association in 2000.  And, above the old village, the Gwavas Estate continues to offer the decent and affordable housing that – with over 900 on local waiting lists – private enterprise seems incapable of providing. The Newlyn clearance saga, often romanticised as the struggle of the ‘little man’ against faceless modernity, offers complex lessons.

Sources

(1) ‘The Newlyn Slum Clearance Scheme. RAs Fight to Save a Village’, Cornishman, 22 October 1936

(2) The Marquise de Verdières, ‘Letters to The Editor: Slum-Clearance in Cornwall’, The Manchester Guardian, 18 October 1937

(3) Quoted in Michael Sagar-Fenton, The Rosebud and the Newlyn Clearances (Truran, 2003). Other detail is drawn from the same source which offers the most comprehensive coverage of the extended saga.

(3) Punch, 27 October 1937. Quoted in Michael Sagar-Fenton.

(4) Tim Martindale, ‘Livelihoods, Craft and Heritage: Transmissions of Knowledge in Cornish Fishing Villages’, PhD thesis, Goldsmiths, University of London 2012

(5) ‘Britain Gets Rid of Slums. Five Year Clearance Programme Meets Some Protest in England’, Reading Eagle, 28 November 1937

(6) ‘Cottages at Newlyn’, The Times, 4 November 1937

(7) ‘Rehousing at Newlyn’, The Times, 28 December 1937

The Newlyn Clearances, part I: the Gwavas Estate – ‘among the monstrosities being condemned by architectural experts’

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The 1930s’ Gwavas council estate on the hill above the fishing village of Newlyn in Cornwall doesn’t look anything out of the ordinary but it was to play its part – alongside the controversial slum clearances which accompanied it – in one of the most resonant housing protests of the interwar period.  Matters came to a head when a Newlyn lugger, the Rosebud, and its local crew sailed up the Thames to Westminster in October 1937 to demand an end to the demolition of their traditional village homes. This was romantically portrayed as a protest of the ‘little man’, epitomised in the press images of Cornish fisherfolk, against modernising bureaucrats. As ever in reality, matters were a little more complex.

Newlyn Trail Guidebook

An example of the romanticised imagery that attracted artists to Newlyn

Newlyn’s role as a fishing port dates at least to the 1400s but it’s been a chequered history. If you watch Poldark, you’ll know the significance of the pilchard catch but it waxed and waned.  The port was boosted by the completion of the Tamar Bridge in 1859 (and a direct rail connection to the capital) but the village was a quaint, rather backward backwater when first ‘discovered’ by the artists Walter Langley and Stanhope Forbes in the early 1880s. By 1887, there were 27 artists living in the village. Its place as an artistic centre of the en plein air movement (a form which stressed working directly in nature and subject matter drawn from rural life) was cemented by Forbes’ foundation of the Newlyn School of Art in 1899.

Forbes, Fish Sale

Stanhope Forbes, A Fish Sale on a Cornish Beach (1885)

In fact, the village was changing.  Large new piers to expand the port were constructed in 1887 and 1888. And there were riots in 1896 as local, staunchly Methodist, fishermen protested against rivals from the north landing fish in the port on a Sunday.  Tradition and modernity were already vying as one of the Newlyn artists, Norman Garstin, noted as early as 1909: (1)

The Newlyn of today and that of the first artist settlers twenty-five years ago are two quite different places. When Mr Stanhope Forbes painted his fish sale there was no harbour; today there is a spacious one, which large as it is, [is] crowded with fishing boats, steamers, sailing vessels and craft of all descriptions. All this has brought a life and animation that no one would have dreamt of a quarter of a century ago.

The artists, of course, loved Newlyn for its ‘old world’ charm but some of those picturesque cottages were clearly unfit for human habitation. Paul Urban District Council condemned 18 homes in Newlyn in March 1915 and in 1920 a ‘lady inspector’ found 30 unfit houses and two unhealthy areas in the district. One of these was the birthplace of the working-class radical William Lovett which was demolished in 1921. (2)

Penless water shoot 1890 Penlee House

Newlyn Street scene, 1890, water shoot to the rear left  © Penlee Gallery

Paul was by no means an activist authority.  Matters were to come to head after 1934 when Newlyn (alongside Mousehole, Paul village, Sheffield and Heamore) came within the newly extended borders of the Borough of Penzance.  It was said – it was certainly felt by many in Newlyn – that Penzance had little regard for its smaller, poorer neighbour but housing conditions in the village spoke for themselves.  Most Newlyn homes had neither running water nor sewerage.  Water was drawn from the many ‘shoots’ in the village; toilet facilities often consisted of an Elsan bucket emptied ‘over cliff’ at night. (3)

Penzance’s Medical Officer of Health, Richard Lawry, made his first foray into Newlyn in 1935. The first clearance order followed with little controversy.  The former Navy Inn now comprised flats accommodating some 29 people. It and neighbouring properties in Factory Row and Factory Square were decanted by 1937 and cleared by 1939. Navy Inn Court, comprising 32 one- and two-bed flats) and Bowjey Court were built on the cleared sites.

In his official report to the Council in the following year, Lawry stated he had visited 100 houses in the village, nearly all of which he judged unfit for human habitation. This time sensing possible controversy, he requested back-up on a follow-up visit and was duly accompanied by an alderman and two councillors.

St Peters Sq since demolished

St Peter’s Square, since demolished

The first tranche of compulsory purchase orders under the 1936 Housing Act for the properties deemed slums duly followed – for Lower Green Street, Fore Street, Vaccination Court (the name itself is a reminder of cholera epidemics which hit Newlyn in 1832 – when over 100 people died – and 1873), St Peters Hill in 1936, and Fore Street, Gwavas Road, Boase St and North Corner in 1937.

Chapel Street 1937

Chapel Street, 1937

In total, some 350 properties were earmarked for demolition in the original orders. Not all were slums. Those marked in pink were and their owners were offered site value only in compensation; neighbouring properties (marked grey) whose clearance was administratively necessary were offered market price.  Around 6.75 acres of the old village were affected including areas to be cleared for a proposed road widening scheme at the harbour’s edge.  A five-day official inquiry into the proposals began in Penzance in July 1937.

Meanwhile, the Borough was moving ahead with the construction of an estate of ‘workmen’s dwellings’ to replace those homes scheduled for clearance.  Twenty acres of land had been acquired on a greenfield site above the village, enough the Borough Surveyor, Frank Latham, estimated to accommodate some 250 homes at 12 per acre. In the event, 242 were built on the new Gwavas Estate by local contractors at a cost of £95,380.

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Higher Gwavas Road, showing the steep ascent to the estate

There were some complaints about the location. It’s a stiff 350 feet climb up the hill to the Estate. Alderman Treganza objected that ‘they were taking people 79 and 80 years of age to the top of Paul Hill. How were they going to get there!’  A comment from the audience in the council chamber on the ‘good air there’ only drew his riposte that it would ‘take an aeroplane to get them there’. (4)

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Chywoone Avenue, Gwavas Estate

The homes themselves – block-built and characteristically rendered in local style – were solid and laid out, along curving roads and crescents, in a miniature version of the garden suburb style favoured in its time.  Some disliked their appearance. The Reverend George Richards had condemned them as ‘among the monstrosities being condemned by architectural experts’ at the earlier public inquiry.

But they came with toilets, bathrooms, hot water – the basic facilities so conspicuously lacking in the cottages of old Newlyn. The first residents (from Navy Inn Court and Factory Row) moved in just before Christmas, 1937, and the estate was substantially complete by May 1938. For many of the new residents this was a huge and welcome improvement in their standard of living.  Still, there were some complaints.

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Chywoone Crescent, Gwavas Estate

The climb up to the estate was, naturally, one of these, alongside the high bus fares paid by those who required transport. Typically, the rents were significantly higher, sometimes double, than those charged in the old cottages – over 8 shillings (40 pence) in some of the larger houses.  Tenancy regulations which banned trades or business in the new council homes were also a problem to some who had supplemented their income with needlework, net-mending, laundry work and so on.

The biggest grievance – for the 124 potential residents who signed a petition to the Council in March 1937, at least – was the decision to install gas cookers rather than the Cornish cooking ranges which they favoured.  (These cast iron ranges provided heating as well as an oven and stove top.)  The Council stood firm that the new facilities – ‘provided for the convenience and comfort of those who would have to live in the houses’ – would prove more economical though some residents were to complain about cold and damp in the new homes. (5)

This, of course, is only half the story.  Dramatic events were unfolding down in the village as the clearance process moved on and the estate itself was drawn into that controversy.  We’ll examine all this in next week’s post.

Sources

(1) Quoted in Stef Russell, Cornwall & Scilly Urban Survey, Historic Characterisation for Regeneration: Newlyn (Cornwall Archaeological Unit, October 2003)

(2) Joanne Mattingly, Penwith Project: Housing Issues 1914-34

(3) Michael Sagar-Fenton, The Rosebud and the Newlyn Clearances (Truran, 2003). Much following detail is drawn from the same source which offers the most comprehensive coverage of the extended saga.

(4) ‘Penzance Town Council. £95,380 Housing Scheme for Newlyn’, The Cornishman and Cornish Telegraph, 16 January 1936

(5) ‘Penzance Town Council. Reduction of 8d in the Rates’, The Cornishman and Cornish Telegraph, 11 March 1937