Edinburgh’s 1919 Act Housing, Part II: ‘Healthy Houses for the People is the Best Public Health Insurance’

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1920s

I’m delighted to feature the second of two new posts by Steven Robb. Steven also contributed an earlier post providing an overview of Edinburgh’s council housing from 1890 to 1945. He 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.

In last week’s post, I concentrated on the main three 1919 Council estates at Gorgie, Wardie and Northfield.  In this part, I will look at 1919 Act housing built for Leith and Midlothian, which was inherited and taken forward by Edinburgh in 1920.  I will also look at the new homes created from existing buildings, concluding with an assessment of Edinburgh’s approach to the 1919 Act.

Leith and Midlothian

In 1920 Edinburgh absorbed Leith Corporation and several suburban areas within the County of Midlothian, inheriting 1919 Act housing planned by these authorities.

Leith had planned sites for over 200 houses, but by September 1920 had only started three tenements on Ferry Road.  Designed by Leith’s Burgh Architect, George Simpson, and judged to be ‘houses of artistic design’, the initial choice of tenements was rare in 1919 housing.   A further nine houses were built round the corner in Clark Avenue.   

Tenements on Ferry Road

Leith also received, towards the end of 1923, 66 new flats in tenements designed by Campbell. Situated on St Clair Street, off Easter Road, these tenements had two small two-bedroom flats on each landing, and due to Campbell’s space planning and the ‘most rigid economies’ cost only £350 a house, showing how far costs had fallen by this date.

Edinburgh inherited schemes by Midlothian County to build pockets of housing including 48 houses at Longstone, and other modest developments at Corstorphine, Gilmerton and Davidsons Mains. Midlothian engaged the private architect David McCarthy, best known for designing the city’s Veterinarian School. His two storey houses were both plain and small, as Midlothian had argued strongly for the right to build no more than two bedroom houses.   

Reconstruction & Conversion

Scotland’s 1919 Housing Act was not only focused on building new homes; there was also a distinct focus on rehabilitating, or reconstructing, buildings for housing. Edinburgh’s overcrowded and decaying Old Town contained a number of many-storeyed historic tenements, several of which were in very poor condition.

Reconstruction works were led directly by the City’s Housing Director (and City Engineer) Campbell. The projects had become favourable after new provisions within the 1919 Act meant acquiring properties for demolition or reconstruction limited owners’ compensation payments to solely the value of the cleared site.

Intended as a cheaper option than newbuild, in many cases the reconstruction could be undertaken at around half the price of new build, with the subsidy often covering all costs.

Old Town tenements in the Cowgate, High Street, West Port, Dumbiedykes and St James were purchased and reconstructed, often with rear additions removed, to provide around 120 small flats. The  flats in the centre of town were close to jobs and amenities and proved popular with tenants. Sadly, the legislation later changed so that no part of a retained building could be subject to a housing subsidy, to the great harm of the city’s heritage.  Thus, later projects in the interwar period were mainly ‘conservative surgery’ schemes involving selective demolition and rebuilding housing in historicist styles.

Burnet’s Close, early 19th-century tenements refurbished under the Act. It was valued at only £150 and reconstructed at a cost of £2200. Courtesy of Capital Collections

An unusual use of the 1919 Act subsidies was the conversion of former army huts into homes, again at around half the price of permanent new houses. Early in 1920, as part of a nationwide project, a demonstration house was displayed to the public in the centre of St James Square. The hut had been converted to a three bedroom house by the Ministry of Munitions.  It consisted of a timber structure on a brick base, lined and roofed with asbestos with internal concrete walls and was designed to last twenty years. 

The demonstration house was obviously well received, as the Council went on to purchase 52 huts from the Ministry at a cost of £7470.  The Council proceeded to convert these huts into 140 homes which they called ‘bungalows’, but we might alternatively call pre-fabs. They were sited in London Road, Meadowbank and Iona Street off Leith Walk, and included the St James Square example, itself converted into two homes. They were given to applicants, including, appropriately, ‘married ex-servicemen’ who were ‘clamouring’ for houses.

Assessment

The 1919 Housing Act saw Edinburgh (and its recently acquired neighbours) build around 1300 new homes, with another 260 from reconstructed city tenements and converted army huts. The total cost was over £1.5m with over 80 percent of expenditure borne by the State.

Although this fell far short of the 3750 home envisaged, it was abundantly clear the circumstances were not ‘entirely favourable’.  The State had embarked upon the largest country-wide public housing programme ever seen in the immediate aftermath of a catastrophic World War.   Dormant building contractors, reduced numbers of skilled tradesmen, and a sudden demand for scarce building materials led to spiralling costs. By the beginning of 1921 labour costs had risen by 300 percent, but the city still struggled to find builders. Joinery, lime and plaster costs had risen by 250 percent, brick costs had doubled and even the cost of carting materials to site had risen by 350 percent. Edinburgh suffered particularly with costs up to 70 percent higher than the Scottish average. As a country, Scotland ended up building around 25,500 houses, only 20 percent of its, admittedly more ambitious, target.

Facing brick in Northfield Crescent – brick prices doubled in the post-war period

Oversight and approval from the Board of Health elongated the process, but the City still hoped for a subsidy extension to allow them to reach their targets (although some questioned whether the targets had been set too high). However, in mid-1921 State expenditure was drastically curtailed with ‘Geddes Axe’ cuts.   

Over time the building market had begun to reach some form of equilibrium, and costs had started falling sharply in 1922.  However, by this date it was forbidden to start new schemes, and expansion of existing schemes was confined to minimum standards to cut costs.  Very sadly, at the point where criticism of expensive housing had ceased to be an issue, the subsidies were withdrawn.

As built Edinburgh’s 1919 Act housing provided a specifically tailored version of the garden city ideal, differing from many other Scottish towns and cities by using a mix of cottages, flatted blocks and tenements.  

In Scotland around 63 percent of all 1919 Act housing was within cottages, but Edinburgh’s percentage was closer to half that. Seen by many in the city as an imposed English housing model, cottages were initially used at Wardie and Northfield but their high costs saw them being phased out throughout the life of the Act.

Instead, around half of Edinburgh’s 1919 Act housing would be built within flatted blocks, the hybrid between cottage and tenement.  This was far in advance of a Scottish average of only 31 percent.   

Flatted block in Gorgie. Entrances to the upper flats are recessed either side from the front façade

Another Edinburgh anomaly was the use of the tenement, far in advance of a very low Scottish average of 6 percent.  This was especially evident in the latter phases of Gorgie, Northfield and Wardie which all used three-storey tenements.  Edinburgh’s Housing Director had set out his stall as early as March 1921, determining that tenements of ‘up to date design and arrangement’ were the undoubted solution for the ‘poorest and lower middle classes’ in the city, allowing them to live near their workplaces.  They could be ‘provided at less cost and with greater convenience’ than the cottage type of dwelling on the city fringes. 

Less use of cottages also meant smaller flats, with over 65 percnt of Edinburgh’s 1919 homes built with only two bedrooms, with the Scottish average at 57 percent.  Edinburgh had 16 percent of its housing with three bedrooms, well below a Scottish average of 35 percent.  The remaining 20 percent were either one or four bed. Such figures may be considered ungenerous in comparison with the expected accommodation south of the border, but it was supposedly demand-led and still represented a quantum leap from the one- and two-room houses of the overcrowded city centre. 

Stone was Edinburgh’s dominant building material, but it was only used extensively in Gorgie, and sparingly, (but to fine effect) at Northfield.  Gorgie was consistently lauded as an example for stone building well into the interwar period.  Although not unknown in the city, brick was still seen by many as an English material, and, with the exception of a few facing brick blocks at Northfield, was almost always covered in pollution-resilient grey harl.  Edinburgh’s experimentation with unharled concrete blocks at Wardie didn’t pay off.   

Solid stone walling at Northfield

The design of the housing used Arts and Crafts styling with wet dash harling, rubble stonework, natural slate bell-cast roofs and multi-pane sash windows. The layouts were inventive, varied and attractive with generous green infrastructure, including large gardens, grass verges, trees, parks, open spaces and allotments.  

Bell-cast slate roof at Gorgie

So far so good, but the 1919 Act housing was not as transformative as hoped, with only a small dent made in the city’s horrendous overcrowding figures.  Housing the very poorest wasn’t the concern or intention of the 1919 Act, and the Council soon sheepishly admitted the rents being sought set the housing way beyond the reach of many working-class families.  

Although some councillors were keen to impose low rents, others had concerns over the gap between actual and economic rents. In any case they were at the mercy of the Board of Health who insisted on higher rents (upwards of £30pa) to keep subsidies low.  Edinburgh set out to prioritise ex-servicemen with families, but an ability to pay the high rents would arguably become more important than homes for heroes. If paying high rents was not enough, the (then) peripheral locations required additional costs to travel to work and amenities.

So, rather than the Old Town poor, the new estates attracted the aspirant upper working and middle classes.  A glance at the 1925 Valuation Roll for Boswell Avenue, admittedly Wardie’s best street, shows several clerks, engineers, a civil servant, geologist, lecturer, surveyor, engineer, excise officer and a Chief Armourer (me neither?) paying up to £44pa.   Tenements were often allocated to those paying lower rents, but the 1925 Valuation Roll for Northfield shows tenement rents of between £31 to £37 with clerks and civil servants, an accountant, teacher, artist and engineer, besides occupations such as painters, joiners and a warehouseman.

Nos 22-24 Boswall Avenue. In 1925, the two semi-detached cottages were occupied by an apprentice Chartered Accountant and a painter, both paying rents of £38 pa.

An often overlooked part of the Act’s housing were the 120 or so houses achieved through the reconstruction of older buildings (and another 140 through reused army huts). As well as reflecting a strong conservation sensibility within the city, these ‘stitch in time’ conversions saved many of the city’s aged tenements that would otherwise have disappeared. Today we applaud the reuse of these historic buildings, but Campbell, who noted that ‘health was greater than history’, appears to have viewed the work pragmatically, as cheap fixes to give people improved homes as quickly as possible. 

Conscious of the 1919 Act’s failure to house the poor, a few years later a Council memo noted that unless new housing models were developed the:

betterment of the slum dweller is doomed to a further postponement, with consequent ill health, low vitality, loose morals, and criminal habits, which are but part of the penalty we pay for suffering the continuance of slums within the boundary of our city.

Such models would be developed with new housing acts in the 1920s and 1930s, when overcrowding and slum clearance to assist the poorest became a priority, and the private sector were warmly encouraged by the Council to provide general needs housing for the clerks and armourers.  

However, subsidies in the next housing Acts of 1923, and especially 1924, were far less generous, with surplus expenses shouldered by the Council.   In the majority of schemes densities went up and the quality of design went down. By the early 1920s Campbell was arguing for one-bedroom flats of 485 sq ft, well below accepted minimum standards. 

Plain tenements in Prestonfield (1927)

Plain flatted blocks and tenements designed to limited patterns took the place of expensive cottages, which would not be built again in the city until after WW2, notably at The Inch.  Until the early 1930s repetitive estates of facsimile designs would replace the varied architecture and sinuous layouts of the 1919 Act.

Today the three main 1919 Act estates remain popular, with many houses privately owned.  However, Right to Buy wasn’t a recent phenomenon, as 1919 Act provisions had allowed over a hundred council houses to be sold off before the second world war. 

All the estates have suffered to some extent by the scourge of off-street parking, with the removal of boundary hedges and paved-over gardens, sadly and pointlessly eroding their essential greenery and garden suburb character.  This really is unforgivable.

Paved over front gardens on Northfield Drive – a vehicular cul-de-sac

Most sash windows have gone, but the masonry walling and steep natural slate roofs largely remain in good order. Although none of the 1919 estates has yet been designated a conservation area, and only one stone crescent at Northfield is listed, (and deservedly so) there is a general appreciation of their quality, and the generosity of their planning.  Perhaps, now the estates are a century old there may be some moves to recognise their significance as a part of the city’s twentieth century history ?

Conclusion

Scotland’s 1919 Act housing followed a different approach than England, and within the country, Edinburgh pursued its own bespoke path.

The city provided high quality homes within modified garden city layouts with a variety of handsome designs and materials.  In addition, parts of the overcrowded historic city centre were regenerated with the refurbishment of ancient tenements.  

By planning a housing mix that included smaller flats within flatted blocks and tenements, instead of simply concentrating on large peripheral estates of land-hungry cottages, the city limited urban sprawl.  This was part of a strategy, at least in the Act’s later phases, that saw tenements in the ‘inner belt’ of the city as the solution to house the city’s workers close to workplaces and amenities.  Campbell’s approach was followed by his successor EJ MacRae, but where large peripheral estates had to be built, they often floundered.

Above all Campbell believed in prevention rather than cure.  His solution to the acute medical problems present in slum housing was to build ‘healthy houses for the people’.  This, he maintained, was ‘the best Public Health Insurance’. 

The capital suffered unduly from the high costs and labour shortages of the post-war period which sadly limited the numbers of homes built and reconstructed.  It also saw a later dip in quality and space standards, that would accelerate throughout the 1920s with cost cutting and policy changes.

However, although it didn’t solve the city’s overcrowding problems, and their depiction as Paradise is undoubtedly a high bar, a hundred years on much of Edinburgh’s 1919 Act housing remains amongst the best social housing the city has ever created. 

Sources

A Grierson (Town Clerk, Edinburgh), ‘Housing Schemes in Edinburgh’ in Thomas Stephenson, Industrial Edinburgh (Edinburgh Society for the Promotion of Trade, 1921)

John Frew, ‘”Homes fit for heroes”: Early Municipal House Building in Edinburgh’, The Architectural Heritage Society of Scotland Journal, no 16, 1989

Town Council Minutes and City Chamberlain’s Reports, Edinburgh City Archives

Scotsman Newspaper Archive

Lou Rosenberg, Scotland’s Homes Fit for Heroes, Garden City influences on the Development of Scottish Working Class Housing, 1900 to 1939 (The Word Bank, 2016)

Edinburgh’s 1919 Act Housing, Part I: ‘Healthy Houses for the People is the Best Public Health Insurance’

Tags

1920s

I’m delighted to feature the first of two new posts by Steven Robb. Steven contributed an earlier post providing an overview of Edinburgh’s council housing from 1890 to 1945. He 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.

Northfield Crescent, a listed crescent of stone tenements

Just over a hundred years ago in October 1920, Edinburgh’s first 1919 Act housing was opened by a proud city councillor.   

In the first of two blogs I will look at Edinburgh’s particular housing issues and the ways in which the city used the Housing (Scotland) Act of 1919 to try and address them. It will then examine the three major housing estates built by Edinburgh Council, which between them provided around 1000 houses. The second part of the blog will look at additional housing provided in the city, and will conclude by assessing Edinburgh’s particular approach to housing under the Act.

The problem

Overcrowding was Scotland’s major housing problem. Edinburgh’s 1911 census found over 110,000 people living in either one- or two-room houses, which represented 41 percent of the city’s housing stock.  Almost 40,000 people were living at least three to a room.

Although Edinburgh’s average density at this period was only around 30 persons per acre, in the most overcrowded districts like the Old Town, it rose well into the hundreds, with homes in tenements and houses ‘made down’, or subdivided, to cram in more tenants.   In one block of eight tenements in St Leonards there were 186 separate homes containing 747 people; a density of 896 persons per acre.

Overcrowding was partly a consequence of Scottish building practice.  Unlike England’s rows of relatively cheap brick terraces, Scotland’s urban workers were housed in stone tenements of three or four storeys.   Such robust construction and stricter building regulations resulted in far higher build costs. 

In addition, land values in Scotland were elevated by the medieval system of land tenure (feu duties), resulting in the UK’s most expensive building land (outside London).  

To maximise returns developers built high density tenements, with their costs recouped by the highest rents outside the English capital. Rents were often paid communally by congested tenants. 

Towards the end of the nineteenth century the private sector found it uneconomic to continue building at affordable rents. To address this market failure, prior to WW1 Edinburgh Council built or reconstructed around 750 houses under legislation, including the Housing of the Working Classes Act (1890).   The City Engineer’s new ‘sanitary tenements’ had open deck-access balconies providing light and fresh air to small flats. They were popular and partly responsible for significant improvements in infant mortality and death rates. However, the cost to the Council was excessive, with compensation payments to owners sometimes costing nearly as much as the new housing.

The Rent Restrictions Act (1915), introduced after major rent strikes and civil unrest in Glasgow, together with the anticipated post-war costs of building, meant State intervention in the housing market was both inevitable and desirable.  

The solution?

The Housing (Scotland) 1919 Act looked to address overcrowding and the housing shortage under the ethos of ‘a healthy family in a healthy home’.  Scotland’s specific problems saw a far more ambitious target than England and Wales, to provide 120,000 new homes.

Acknowledging Scotland’s higher building costs, there was a lower Council cap on expenses, at 4/5 of a penny on the rates rather than England’s penny.

The Act incorporated, informally during implementation, a series of recommendations from the 1917 Scottish Royal Commission on Housing (Ballantyne Report), which, along with the Tudor Waters report, acknowledged the different conditions and traditions in Scotland. 

One of these traditions was that Scotland’s houses contained less rooms, with a custom of larger living and kitchen space doubling up as accommodation. The result was that 50 percent (but later increased) of 1919 Act houses were permitted to be the minimum three apartments (living room and two bedrooms), where England and Wales generally looked for three-bed houses. 

Again, recognising traditions, there was a toleration for housing other than cottages, as individual houses on one or two storeys were called.   Flatted blocks (four in a blocks) were acceptable and, although generally discouraged, there was even a place for suitably designed tenements.

The Scottish Act finally gained Royal Assent on 19^th August 1919, but as early as November 1918 the Local Government Board (later Scottish Board of Health) had asked Edinburgh to assess its housing needs. The city responded with plans for 3000 new homes and 750 rehabilitated dwellings, a figure thought feasible within three years, if the ‘circumstances were entirely favourable’.

Edinburgh’s Town Clerk described the Act as being ‘imposed’ on the Council, and although, unlike previous legislation, it did compel action, this time the intention was Councils wouldn’t be left out of pocket, with generous subsidies bridging the difference between the outlay in building costs and rents received.  

Gorgie (386 houses)

The Council had their eye on half a dozen sites within the city but soon settled on Gorgie, where they already owned land.  

In January 1919, 50 acres of semi-rural land adjacent to the City’s Livestock Market were transferred (at £250 per acre) and James Williamson, the City Architect, drew up plans for 660 houses.  In April 1919 the Board of Health found Williamson’s proposals for gently curving streets with individual flatted blocks ‘eminently satisfactory’. These streets enclosed areas of communal allotments and open ground.

Stone flatted block with additional storey on Chesser Avenue

Gorgie’s flatted blocks consisted of four houses under a piended (hipped) roof with a separate entrance to each flat.  They were a hybrid between a cottage and a tenement, and suited a Scottish desire for one-floor-living.  Cheaper than cottages, they could, virtually, be built to a garden city layout, in this case 14 houses to the acre, close to the recommended 12. 

To keep tender costs down the Council’s surveyor recommended estimates for both stone and brick, as some builders were geared up for the former, and a mix of materials might be cheaper. The first tenders for 48 houses came back in June at around £800 a house, with the stone option only 0.5 percent more than the brick.  In order to accentuate the Scottish character of the housing, against the perceived Englishness of brickwork, the housing Committee agreed to use rubble sandstone sourced from nearby Hailes Quarry, adding that ‘Scottish people wanted substantial houses’.  

Stone flatted blocks on Chesser Loan

However, after brick prices fell and cavity walling was permitted, the cost difference increased, and the Board of Health refused to pay the additional subsidies for stone. Despite their earlier support the Council soon conceded that the second phase of Gorgie could be built in brick, which was rendered to cope with Scotland’s weather, and a lack of skilled Scottish facing-brick layers.

Chesser Gardens – a street of rendered brick flatted blocks

Begun in July 1919, Gorgie suffered several delays due to lack of skilled labour, rising material costs and availability, and even a plumbers and joiners strike.  Pegged to costs, the economic rent for a two-bed house would have been around £60-65pa. The Council suggested rents of £25-27pa, but these were soon upped to £31 by the Board of Health.

With the first completions in October 1920, on opening, a councillor noted the houses were ‘commodious inside and artistic outside’ and would ‘compare favourably with any houses being built in England or Scotland’.  Noting the generous gardens in front and allotment ground behind, the councillor added that ‘The City Gardener was preparing creepers for the walls and rambler roses for the gardens.  If these houses were not Paradise, he did not know where they would have to look for such a place’.

In early 1923 the city architect’s second phase to Gorgie was built on Slateford Road. By this date the individual flatted blocks with gardens on curved streets were dispensed with in favour of cheaper tenements built facing the main road.  These three-storey rendered brick tenements provided another 108 two-bed houses. Indeed, the majority of Gorgie’s houses, around 70 percent, were the recommended minimum of two bedrooms, with only 10 percent four bed and the remainder three.

Two-bedroom tenements on Slateford Road

Today the most distinctive Gorgie houses are the first-phase chunky rubble stone flatted blocks on Chesser Avenue, especially those with an additional twin-dormered storey for the few four bed flats. They retain distinctive sweeping slate roofs with swept eaves.  On adjacent streets are a mix of rendered and stone houses with a handful of red sandstone blocks, all with generous gardens.    

Competition

In mid-1919 the City Engineer Adam Horsburgh Campbell became Housing Director, controlling Council housing delivery until he retired in mid-1926.   He insisted on combining this new role with his existing engineering job, and would soon stray into architectural work.

Despite the skills within his Department the City Architect had already been snubbed in April 1919 when the Council agreed to hold an open competition for the remaining housing sites. Early studies like the Tudor Waters Report had advised involving the private sector, and the Council had also been lobbied by the Incorporation of Architects in Scotland (later RIAS).

The competition, open to private Midlothian architects, offered four new sites with firms asked to submit the most economical designs for cottages, flatted blocks and tenements with two, three and four bedrooms at 14 houses per acre. Conditions included limited use of combed (sloping) ceilings, avoidance of rear additions, and minimum room sizes, including living rooms of 180 sq ft, principal bedrooms of 160 sq ft and ceiling heights of 8ft 6 inches (2.6m).  

In August the panel Chairman Sir John Burnet, who had previously judged a 1918 Workers Housing Competition, awarded first prize for all four sites to Edinburgh architects AK Robertson and Thomas Aikman Swan.

However, as it had been previously decided no firm should have more than two schemes each, Robertson & Swan were awarded sites at Wardie and Craigleith. Charles Tweedie was given Saughtonhall, and Fairlie, Reid & Forbes allocated Northfield.

In due course the sites at Craigleith and Saughtonhall were abandoned so sadly Charles Tweedie, second placed in three competitions, got nothing.   Meanwhile, Fairlie, Reid & Forbes, third-placed in only one competition, got one of the two surviving commissions.

Wardie (366 houses)

In April 1919 the Council purchased 73 acres of land occupied by nurseries belonging to the trustees of Major Boswall, at a cost of £250 per acre. The architects, Robertson & Swan, designed a geometric garden city plan with tree-lined streets, open spaces, and cul-de-sacs, built with a mix of cottages, four in a blocks and later a few tenements placed on main roads and closing vistas.  Over 600 trees were planted at a cost of £180.

Tenement ending a vista along Boswall Avenue

At the end of 1920 work began on 360 houses, but the Council only developed the western side, the eastern half being developed privately.

Plan of Wardie. Only the western side was completed under the 1919 Act

Unusually, to combat high brick costs, the houses were built with unrendered concrete blocks, provided by the Unit Construction Company of London. This early use of concrete was purely on cost, the tenders (for £408,246), being £12,000 cheaper than brick. The tender worked out at around £1130 a house, but by March 1921 costs had risen with the first batch of 300 houses coming in at around £1300 each.  The largest four-bed cottages in Wardie would eventually soar to £1600 each, with critics considering them to be worth only £300 once the building boom was over. Their economic rent would have been £100pa but they would be let for, the still substantial, £44pa.

Cottage with original door and windows

Contractors were accused of profiteering, an ugly accusation in the aftermath of World War One, but the system didn’t encourage parsimony.

The letters page of the Scotsman newspaper saw a flurry of taxpayer complaints.  Critics judged Wardie as too remote from trams, schools and shops, whilst the houses were labelled ‘shoddy with small pokey rooms’.  Others even grumbled that the rooms were too small for their furniture.

Having said all this, the housing was popular and would be oversubscribed, with 10,000 initial enquiries for Wardie’s 360 houses, perhaps before the high rents were set.

Scotland’s climate put paid to Wardie’s experimental concrete block housing, and by 1928 all 360 of its increasingly damp houses were roughcast by the Council at a cost of £10,000.

Tree-lined grassed verge in Boswall Avenue

Today the estate is popular, with Boswall Avenue’s tree-lined grass verges perhaps Edinburgh’s best approximation of the garden city ideal.  The houses are in an Arts and Crafts style with natural slate swept hipped roofs and generous garden space.  There is a good variety of designs and mix of house types.

Northfield (322 houses)

In April 1919 the Council agreed to acquire 40 acres of agricultural land from the Duke of Abercorn’s Duddingston estate at £300 per acre. 

In June 1920 the architects Fairlie, Reid & Forbes exhibited their ‘admirable housing scheme’ for 320 houses at the Royal Scottish Academy.   It was thought likely to ‘produce a pleasing and picturesque ensemble upon the rising ground at the base of Arthur’s Seat’.

The firm was specially created for the competition. Reginald Fairlie was a noted Arts and Crafts architect who would later design the National Library, and became a specialist in Roman Catholic churches. George Reid & James Forbes would become Scotland’s foremost interwar school designers.  

The plan is sophisticated, belying its lowly competition place. On the highest point is a large circus ringed by cottages – almost a cul-de-sac – but connected to the other streets by small pedestrian link paths – which bisect the estate. There is a raised pedestrian entry path on the busy Willowbrae Road, planted verges, generous gardens and open spaces.  

Expensive semi-detached cottages on Northfield Circus, a large cul-de-sac with central park

The first tenders, in March 1920 suggested 196 cottages and flatted blocks could be built at an overall cost of £210,000 making a two-bedroom house £950 and a four bedroom house £1100. Again, costs rose quickly. Later estimates saw a four-bed cottage costing between £1360 and £1400.  A Scotsman article judged these ‘phenomenal costs … preposterously and impossibly high’.

Flatted blocks with brick and tile detailing

The cost of these cottages led to later phases of the estate being built in three-storey tenements. Between March 1921 and December 1923 around 130 tenements were built, all with gas for heating and electricity for lighting.    

Stone tenement with communal open ground in front

Details of stone tenements

Northfield’s planning is sophisticated and the housing attractive and hugely varied, both in use of materials from facing brick, rendered brick and stone, to the rarely duplicated house patterns. Fairlie’s Arts and Crafts eye is evident in the stone boundary walls, decorative stone piers and carved timber gateposts, as well as in the stone tenements with relieving arches and brick and tile detailing.  The tenements here served as a prototype for the Council’s later work in the city.

Details of stone wall and timber gateposts

In next week’s post, I’ll look at the council housing schemes inherited by Edinburgh from Leith and Midlothian and offer an overall assessment of Edinburgh’s approach to the 1919 Act.

Sources

A Grierson (Town Clerk, Edinburgh), ‘Housing Schemes in Edinburgh’ in Thomas Stephenson, Industrial Edinburgh (Edinburgh Society for the Promotion of Trade, 1921)

John Frew, ‘”Homes fit for heroes”: Early Municipal House Building in Edinburgh’, The Architectural Heritage Society of Scotland Journal, no 16, 1989

Town Council Minutes and City Chamberlain’s Reports, Edinburgh City Archives

Scotsman Newspaper Archive

Lou Rosenberg, Scotland’s Homes Fit for Heroes, Garden City influences on the Development of Scottish Working Class Housing, 1900 to 1939 (The Word Bank, 2016)

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

Tags

1920s, 1930s, Pre-1914

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.

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.  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 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.

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 (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?

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 (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.

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 (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)