Four Council Cottages at Mickleton: Rural Council Housing in Gloucestershire before the First World War

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Pre-1914

I’m very pleased to host a new post by Chas Townley. He has written previously on the pre-First World War council housing of Dursley in Gloucestershire. Chas is a Labour District Councillor on Stroud District Council, a ‘no overall control’ authority in the county. He was chair of the Housing Committee. Chas has formerly worked in housing for both councils and housing associations and previously managed the Supporting People Programme in a unitary council. He is a member of the Chartered Institute of Housing.  He is a local historian and genealogist and has written on a variety of subjects including Chartism, Cooperatives, land clubs and building societies, and the Poor Law and pre-NHS health provision.  Chas has recently started a PHD at the University of Bristol exploring the provision of working-class housing before the Great War.

Four houses at Mickleton are the sum total of Campden Rural District Council’s provision of houses before the Great War but they were the first council housing built in Gloucestershire under the Housing of the Working Classes Acts.

Campden was a rural district created in 1894 for administrative convenience from the Gloucestershire parishes within the Shipston-on-Stour Poor Law Union. As the Poor Law Union also had parishes in Worcestershire and Warwickshire, Shipston-on-Stour and Brailes Rural Districts were also created. The offices of the three districts plus the Poor Law Union were at the workhouse in Shipston with the same officers serving the four bodies. Members served a dual mandate as both Rural District Councillor and Poor Law Guardian.

Shipston-on-Stour Poor Law Union map

The Mickleton Parish Council was exploring ways of providing houses and August 1910 discussed information from the Local Government Board on the terms loans for housing schemes could be provided to District Councils – 3 ½% over 80 years for land and 60 for buildings. The report extensively reports Charles Coldicott, who served as both Chairman of the Parish Council and the District Councillor for the Parish. Another quoted was Mr Dixon, a barrister and later a Justice of the Peace for both Worcestershire and Gloucestershire. (1)  

The newspaper report noted that ‘A lengthy discussion took place with regard to the probable cost of erecting four houses and the amount of rent to be charged’.  But one parishioner, Mr J Taylor, offered to give £600 towards the cost of the scheme providing that the rest of the cost could be raised and that houses became the property of the Parish Council – this wasn’t legally possible. Part of Taylor’s argument is enlightened self-interest:

They [the landowners and ratepayers] could not do without the working-man. He should not be in the position he was today if it was not for the men. It was their business and duty as Christians to see that the working-man was better housed.

The outcome of the meeting was that Dixon and Taylor were deputed to consult the ratepayers to see if they would assent to a voluntary rate for the houses.

At this point the Housing and Town Planning Act 1909 was in its infancy and the potential for the Act to deliver the improvement of homes in disrepair and the construction of new housing was largely untried in rural areas – even in four exceptional rural areas which had struggled through the barriers of earlier legislation to provide housing in their local areas.

Earlier housing in Mickelton © David Stowell and made available through a Creative Commons licence

Mickleton was undeterred and the Parish Council meeting in September made application to the Campden Rural District Council to ‘respectfully put into operation the Housing and Town Planning Act’.  The Cheltenham Chronicle account suggests this was due to both a housing shortage as well as the poor condition of existing housing. This led to a wider debate at the District Council about the work needed to put into force the systematic inspection of existing homes under the Act. As to the question of the new housing they set up a joint committee with the Parish Council to look at the provision of new housing in Mickleton. (2)

The Chronicle carried a short article later in the year giving an account of progress noting:

The promoters of the scheme have met with considerable difficulty one way or another, and some members of the Council have seemed reluctant to work under an Act which they know little or nothing about, as was shown by the discussion which took place at the meetings.

It also commented ‘but Mickleton people were persistent in their demand and their representative on the Rural Council (Mr Coldicott) threatened to appeal to the Local Government Board, if the Council refused to do that which was asked of them’. (3) Given that the legislation was a Liberal initiative and Charles Coldicott’s persistence to encourage the use of the new Act, it is easy to assume he was a Liberal but he was the leading Conservative in the village. (4)  

The procedure of the Act provided that four residents of a parish or the Parish Council itself could lay a complaint before the Local Government Board enabling them to intervene and order the District Council to provide housing in a parish. Before intervening the board had to consider the ‘necessity for further accommodation’ as well as ‘the probability that the required accommodation will not be otherwise provided‘ as well whether it is prudent to do so ‘having regard to the liability which will be incurred by the rates’. The Act also provided default powers for the County Council to act instead of the rural district. Compulsion by way of writ of mandamus could result in a range of sanctions including imprisonment for continued default. (5)

If there was a will to avoid building there was a way, as a defect in the legislation left the Local Government Board powerless to intervene beyond persuasion and coaxing unless there was a formal complaint. By the end of the 1912-1913 financial year, only 37 Rural Districts out of 661 had applied for a loan to build housing.  Consequently, by the eve of the Great War frustrations by the Liberal Government with rural districts were leading to an emerging policy of the state taking over the building of housing rather than leaving it to private enterprise and councils. (6) 

The belligerence against rural districts also extended to smaller urban districts and during 1917 and 1918 Addison’s Ministry of Reconstruction advocated for another option of transferring of housing powers to the counties, leading to Lord Salisbury to comment in reaction to Local Government Board proposals, ‘For reasons which we have stated over and over again we believe that the County Council is a far sounder authority’. (7)

By the spring of 1911 Campden were ready to apply to the Government for a £600 loan to build the four cottages, having agreed to lease a site for a period of 99 years from Mr SG Hamilton. (8) The inquiry was held by Major CE Norton, a Local Government Board Inspector. It was left to Charles Coldicott to present the case to the inspector, suggesting this was still very much a local Mickelton scheme rather than one owned by the District Council as a whole. In part this was a consequence of the funding mechanism as any deficit on the scheme was to be met from Mickleton’s ratepayers rather than the District rate.

Coldicott’s evidence recounted a Parish Meeting held the previous year which had resulted in a 40 to 2 vote in favour of the project. He claimed that many cottages had been demolished in recent years and none built. The main industry of the parish was agriculture and market gardening and some of the farm labourers were having to live a considerable distance out of the parish. The suggested rent for the cottages was 3s 6d (17.5p).

Dr Finlay, the Medical Officer of Health, gave evidence that there were no empty cottages in the village and only a day or two ago a family had to go out of the village because the cottage had been bought. He also knew of men who worked in Mickleton who lived in Quinton, three miles away across the border in Warwickshire.

It was left to Charles Gander, the Council’s surveyor and sanitary inspector, to go over the plans which showed ‘a good back living room, scullery, joint washhouse for each pair of cottages, three bedrooms (two large and one small) and separate coal houses and domestic offices’. The selected site was small and Gander justified the lack of garden ground on the basis that ‘all the cottagers rented allotments in the parish’. (9)  

Three opponents, supported by a petition signed by 28 ratepayers, spoke on the grounds that whilst there was an urgent need for housing in the village they thought the site selected was unsuitable. One of them suggested an alternative site which they considered more suitable owned by a Mr Box. The Inspector concluded the hearing by remarking that some alterations would need to be made to the plans before the Local Government Board would give its sanction to the scheme which would defer the matter for some time. Whilst it is not clear from the reports, the construction was probably solid brick rather than a cavity wall and this construction is assumed by the modern energy performance certificates for the properties – although cavity wall construction started in late Victorian times.

Walter Runciman (left) and Sir Ashton Lister (Lister image © Dursley Glos Web and Richard Buffrey)

Walter Runciman, then President of the Board of Agriculture and actively interested in small holdings and rural housing, visited Mickleton in December 1911, accompanied by Sir Ashton Lister, then Chairman of the County Small Holdings Committee and subsequently ‘Coupon’ Liberal MP for Stroud.  A description of the visit provides an account of the challenge for the County Council to provide affordable smallholders cottages alongside the newly developed council smallholdings: (10)

 At Mickleton we came face to face with the rural housing problem in its most acute form. The soil is remarkably fruitful, and lets readily for market-garden cultivation at £4 an acre without buildings. Land which was down at grass a few years ago has been let by the County Council to men who are probably obtaining as much as £4 for every £1 raised from the soil hitherto, or, to use a classic phrase, making four blades of grass grow where only one grew before. Yet there are not enough houses for the people to live in. A two roomed cottage nearly a mile from the occupier’s small holding fetches, it is true, only £4 per year, but in this very cheapness lies the root of the difficulty. ‘The County Council’, Mr Runciman explained, ‘couldn’t put up cottages with three bedrooms which is the standard size, for less than £400 the pair. They couldn’t let them at less than £10 a year each. If such a cottage were on your holding, would you be willing to take it?’.  ‘Well’, was the reply ‘that needs a deal o’ thinking on. Ten pound is a lot o’ money’.  Plainly if the Cottage Bureau should lead to the discovery of that dream of many a reformer, the satisfactory hundred-pound cottage, it will be the salvation of such villages as Mickleton.  

Sir Ashton Lister later noted at a Council meeting that one of the disadvantages for the Council was the fifty-year maximum loan period available for small holding buildings. (11)  This compared to a sixty-year period allowed for the construction of dwellings under the Housing of the Working Classes Acts. It clearly mattered not how the house was used but under what legislation it was provided. 

In another article was a more detailed explanation of the Cottage Bureau proposal that Runciman was developing, which was to ‘gather from all sources – whether English, American, or Continental – plans and specifications of modern-built country cottages, together with the details of the actual cost’. Very soon after in February 1912 Runciman appointed a Departmental Committee on the Equipment of Small Holdings which, when it reported a year later, included details of cottages suitable for rural labourers to be built as council housing. Whilst these developments did not directly benefit Mickleton they did ensure that model plans were available for other councils working to provide council housing in rural areas before the Great War. (12)

Returning to the development of four houses in Mickelton, by July 1911 work to resolve the perceived problems with the scheme had taken place and a new site owned by Mr Dixon was under consideration with a sixty-year lease on ‘nominal terms’ with a continuing lease for 999 years. The Local Government Board were willing to sanction the new site subject to the approval of revised plans. A sticking point appeared to be the design of the outbuildings which were considered to darken the scullery if placed too near the houses. (13)

Whilst we cannot be certain, it appears as if the original scheme was tendered before an application for a loan was originally made as in September the District Council had received an amended tender from the proposed contractor George Adams which was higher than the original taking account of the additional work required to assess the changes. Adams was part of a long-standing building firm based in Shipston-on-Stour and had undertaken other work for the Guardians in the past. (14)

Charles Coldicott was deputed to find out the views of the proposed tenants on a ‘small increase’ in the rent for the properties. This suggests that the properties had also been pre-let when the original plans were developed. At the October District Council meeting the revised tender of £674 was approved as a ‘fair charge’ for the work and formal application for a loan sanction of £700 was submitted to the Local Government Board.

Map showing Back Lane housing site

Mr Gander, the surveyor, reported to the April 1912 meeting of the Council that the difficulty of draining the newly erected cottages had been overcome by connecting with the drains of the cottages opposite by agreement with the Sladden and Collier brewery of Evesham (eventually becoming part of the Whitbread brewing combine) who ran the Butchers Arms in the village.  The Surveyor had also taken water samples from the well supplying the cottages. There is a later report stating that the well was ‘quite unfit ‘ – but this could be a misprint as the cottages were occupied by the May meeting, suggesting that any problems were quickly resolved with the Chairman saying they should be celebrated in a proper manner as the first council housing in the area. (15)

The Back Lane housing

Mickleton like many rural villages in Gloucestershire acquired mains water and sewerage late in the day. A water supply project was completed in 1927 and, in 1933 when the Granbrook Lane council houses were developed, the council resorted to installing a septic tank. There was still no public sewerage system when planning took place for post-Second World War reconstruction. (16)

Granbrook Lane

Who were the first tenants? 

That’s a very difficult question to answer as the records for that period are scant. We know for certain who was resident at the time of the 1939 National Registration giving four families with three of the four having close links to agriculture. One couple, George and Elizabeth Norton, at the time of the 1911 census, were agricultural carriers and had been resident in a cottage close to Charles Coldicott’s farm.

Their cottage was clearly overcrowded with ten living in four rooms – which would have included the living room.  They had been married for 17 years and had nine children, two of whom had died before 1911 and the remaining seven were all still living at home in a four-room cottage. Also living with them was ‘paralysed’ Samson Margretts aged 58. His original head of the household entry had been deleted and relegated to ‘boarder‘, perhaps suggesting he was the tenant of the cottage. But another household – again Norton – in 1911 had been living with members of three other concealed households in addition to their own children.

There is, however, a twist in the tale as all four properties appear to have ceased to be council housing by 1972. One of the properties is in private ownership having been auctioned off in 1972 with the other three owned by a local charity named after the person who leased the land to the Council in 1912. Whilst it is disappointing to find that the first council homes built in Gloucestershire are no longer providing affordable social rented homes, three continue to provide rented housing in the village.

This one scheme at Mickleton was not the end of Campden Council’s entry into the world of housing provision before the Great War as work had begun on developing a scheme of eight homes at Moreton in the Marsh. Despite the scheme having progressed a long way with a site ready to be purchased, plans drawn and loan terms accepted from the Government, paradise was postponed, like so much else, for the duration of the War, in October 1914.

Hill View Close

Within Mickleton a further six council homes were provided on Stratford Road under the ‘homes fit for heroes‘ housing scheme in  1921. (17)  Subsequently, during the late 1920’s and 1930s the provision of more homes took place along Granbrook Lane. (18) More housing followed in the post war period in Cedar Road but the direct provision of council housing ended with the decision of Cotswold District to cease being a landlord in 1997.  And the village was the beneficiary of 15 new social rent homes granted permission at Hill View Close in 2000, one of the first schemes completed by Fosseway Housing – the Cotswold District Council stock transfer association – now swallowed up into the 40,000 home Bromford Housing Group. (19)

Sources

(1) Evesham Standard, 13 August 1910, p5

(2) Cheltenham Chronicle, 8 October 1910, p8

(3) Cheltenham Chronicle, 10 December 1910

(4) Evesham Standard & West Midland Observer, 8 February 1919; Gloucestershire Echo, 4 January 1902 reports him being re-elected as Grand Master of the Mickleton Lodge.

(5) Housing and Town Planning Act 1909 Section 10

(6) The Central Land and Housing Council, The Liberal Land and Housing Policy: Rural Housing, circa 1914.

(7) National Archives Letter by Lord Salisbury Chairman Ministry of Reconstruction Housing Panel circulated to War Cabinet by Christopher Addison. CAB 24/44/76

(8) Sidney Graves Hamilton (1856-1916), born in Dublin and resident in Malvern is described as Lord of the Manor of Mickleton in the report of his will. Cheltenham Chronicle 20 January 1917. See also 1911 Census Class: RG14; Piece: 17650; Schedule Number: 13. The Lloyd George Survey also shows that he owned substantial holdings in the village and one of his farm tenants was Charles Coldicott.

(9) Cheltenham Chronicle, 25 March 1911

(10) Gloucester Journal, 23 December 1911, p9

(11) Gloucester Journal, 13 January 1912

(12) Departmental Committee on the Equipment of Small Holdings, Chaired by Christopher Turner March 1913, Cd 6708

(13) Evesham Standard, 15 July 1911

(14) There is an extensive archive of Adams Builders, Shipston-on-Stour covering the period 1796 to 1968 at Warwickshire Archives which may throw further light on this project.  Ref: 03887

(15) Cheltenham Chronicle, 20 April 1912; Evesham Standard, 18 May 1912

(16) Cheltenham Chronicle, 2 July 1927; The Tewkesbury Register and Agricultural Gazette, 21 January 1933. Gordon E Payne, Gloucestershire: A Survey – A Physical, Social and Economic Survey and Plan (Gloucestershire County Council, 1945)

(17) Gloucestershire Echo, 15 October 1921, p6 – report of Campden RDC meeting

(18) The Tewkesbury Register and Agricultural Gazette, 31 January 1931. This is an advert to complete 12 partially completed properties.

(19) Cotswold District Council planning files 98.02408 Construction of 15 dwellings for affordable housing, Meon Hill Nurseries, Nursery Close, Mickleton.

Cottingham’s Council Housing, Part II from 1930: New Forms of Housing Provision

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1930, 1940s, 1950s, 1960s, Cottingham

I’m very pleased to feature the second post from Peter Claxton on Cottingham. Peter rekindled his love of history at university following his retirement having spent 40 years working in IT. He now focuses most of his research time on Kingston upon Hull and the East Riding of Yorkshire during the 19^th and the first half of the 20^th century. He is currently researching the contentious relationship between private interests and public improvements with regards to health and housing in Kingston upon Hull between 1854 and 1914.

In my previous blog I reviewed the first ‘tentative steps’ made by the Cottingham Urban District Council (UDC) regarding the provision of council housing between 1921 and 1930. In this follow-up blog, I pick up the story in the early 1930s and examine the efforts of the local authority through to the 1960s. It was a time, when for a brief period, provision was undertaken by someone with a national reputation, the village witnesses the creation of the ubiquitous council estate and the local authority ‘strayed away’ from the standard tendering process.

In 1932 with land remaining on the Southwood Estate, for some unexplained reason – possibly hoping to sell yet again at a favourable price – the council purchased land on the north side of the village to erect a further 18 houses. At 1/7d per square yard, it was in fact double the price paid in 1919. Superficial areas were now reduced to 760 and 630 feet super for the three- and two-bedroomed houses. Building again under the 1924 Act, with guidance from TC Slack, Surveyor to the Council, the Park Lane contract was awarded to Robert Greenwood Tarran who at the time was planning his own and subsequently ill-fated garden suburb just to the east of Cottingham.

Robert Tarran

Tarran enjoyed considerable success during the 1930s and 40s, and was known to adopt, when necessary, a somewhat cavalier approach to both business and civic duties. He later became the city’s Sheriff, welcoming the King and Queen to Hull in August 1941 following the heavy bombing raids in May. As Chief Air-Raid Warden, he instigated a personal crusade assisting many of the citizens to ‘trek’ out of Hull each evening to escape the ever-present threat of air-raids. Press exposure and concerns over morale ensured that the early evening movement of citizens out to the countryside, was eventually, placed on a more formal footing.

An advert for Tarran houses in the Hull Daily Mail, 23 August 1934

Tarran houses in Park Lane dating to 1932

Tarran frequently attracted both criticism and publicity in the press. None more so than his company’s involvement as a contractor for the Leeds City Council on the futuristic Quarry Hill flats. Suffice to say that the acrimonious relationships between the parties involved with the build – relating primarily to the pre-fabrication of the blocks with which to cloak the building’s steelwork – extended the project considerably.

Quarry Hill © Leeds Library and Information Service

Yet for Tarran overcoming the on-site casting difficulties proved to be of immense value during the post-war push for prefabricated housing. Under the Housing (Temporary Accommodation) Act, 1944, Tarran Industries manufactured in excess of 19,000 homes. After exhibiting a pre-fabricated house at the Tate in London, he erected, under the public’s gaze, his ‘Experimental House’ close to his works in Hull. The four-day process attracted more than 6000 visitors; a tactic he had previously employed in the city during the 1930s when his company built a pair of wooden ‘Cedar Houses’. A benefit of such a house, according to one of the first residents, was that you could ‘hang a picture without swearing.’ When it came to large-scale speedy production, to some, Tarran was the ‘Henry Ford’ of housing! (1)

Ad advert from the Hull Daily Mail, 1 May 1944

By the middle of the 1930s the council completed the Southwood Estate building 20 dwellings a mix of two and three-bedroomed non-parlour houses under the 1933 Housing Act. It was however a swan-song for the Cottingham UDC, as a reorganisation of local authority areas in March 1935 – the second in seven years – resulted in its demise. The same fate befell the adjacent Hessle UDC, with the provision of housing becoming the responsibility of the newly formed and much larger Haltemprice UDC. In Cottingham between 1918 and 1939, seven percent (86) of the houses had been by local authority provision.

Phase 3 of the Southwood Estate

The post-war push for housing was manifest in the immediacy of the actions taken by the Haltemprice UDC. A swift yet temporary measure was the requisitioning of numerous large houses, becoming ‘makeshift’ accommodation for multiple occupancy. On a similar tack, former Ministry of Defence Nissen and Maycrete huts in the district were acquired and converted into temporary housing. One such site close to Cottingham had previously served as a National Services Hostel housing refugees from the Netherlands.

The shortage of accommodation was further tempered by the allocation of 30 AW Hawksley prefabricated aluminium bungalows, the first one completed was opened by Mr Thomas Williams, Minister of Agriculture Fisheries and Food. in 1949. It is interesting to note that with a unit price of approximately £1450, taking a £600 subsidy plus Exchequer grant into account, at just over £2 per foot super, the temporary aluminium bungalows were close to twice the target build price of conventional permanent housing.

AW Hawksley Aluminium Bungalows in Letchworth © Simon Trew and made available by a Creative Commons licence

Thomas Williams, later Baron Williams of Barnburgh; public domain

1960s permanent council housing replacing Hawksley bungalows

The provision of permanent local authority housing from 1946 onwards was achieved in a number of ways, represented today in the form of the Bacon Garth Estate plus a number of smaller ad hoc developments around the village. The post-war estate is now the usual mix of privately owned properties purchased under the ‘Right to Buy’ scheme, and those that remain within the remit of the East Riding of Yorkshire County Council. Irrespective of the modifications made to many of those properties now privately owned, the estate continues to confirm central government’s post-war intentions of equitable housing for the masses.

Bacon Garth Estate, the Parkway

The construction of the estate at the southern edge of the village, continued on an ‘as the needs dictate’ basis for more than 20 years, and now reflects the changing form of local authority provision. In 1946 the Ministry of Health requested that a minimum of four designs be adopted to avoid monotony and further insisted that a maximum build price of 22/3d per foot super be negotiated, the achievement of which regularly exacerbated the relationships between local authority, contractors and ministry. On one occasion an additional 2d per foot super was deemed unacceptable. Still with a preponderance of agricultural workers in the area – following instructions from the Ministry of Health – a number of horticulturalists were the first to be allocated permanent houses.

1949 Agricultural workers’ houses, Bacon Garth Estate

As an alternative to the standard practice of closed tenders – with contracts invariably awarded to the company with the cheapest quote – used during each phase of construction of the estate, to something a little less formal, the results could be markedly different. On several occasions the council used the Small Builders’ Scheme (SBS), the origins of which were based around a submission to the Ministry of Health by the building trade. Comprising of two parts, the first enabled local authorities to employ a builder to erect houses on his own plot(s) of land and purchase upon completion. The second part empowered councils to provide the land on which properties could be constructed on its behalf.

Using both options, the Haltemprice UDC acquired small clusters of properties around the village. Catering for the building of dwellings of a minimum 900 foot super, at prices that did not exceed those in tenders for comparable properties, there was also flexibility over design. Thus with options to negotiate a build price prior to construction, or purchase price post-construction, councils were well-positioned to procure limited numbers of houses that mirrored private provision. I suspect that today, there are very few, if any Cottingham residents mindful of the origins of these small assemblages.

A good example of the SBS is in evidence at the Hull-Cottingham boundary. Across three phases 52 houses were built along one of the arterial roads from Hull into Cottingham. A variety of designs successfully avoided the monotony so often the case along our main roads. 

Hull Road Cottingham, built 1948 under the Small Builders’ Scheme

Small Builders’ Scheme, looking towards Cottingham

When the opportunity arose in 1947, the council purchased 20 houses close to the centre of the village on the newly built Westfield Estate. And in so doing created an enclave of local authority housing amid those offered for sale. But as the saying goes, ‘beauty is only skin deep’, and one can only hazard a guess as to whether or not the internal finish of houses purchased under the SBS always matched their external appearance.

An incident on the Westfield Estate suggests that sometimes this might not be the case. The baths in all 20 houses were found to be defective and had to be replaced by the council. On this occasion, purchasing post-construction, proved problematical. Efforts to maximise profit margins was often reflected in the internal finish of houses built for sale compared to those built for local authorities through the tendering process and subject to scrutiny during the build cycle.

Westfield Close, built under the Small Builders’ Scheme in 1947

However, by way of comparison, some of the early Bacon Garth Estate houses clearly lacked kerb appeal. Fortunately, they bear little resemblance to the rest of the estate. One wonders what the architect involved with these houses was thinking of when he sat at his desk and came up with the following!

The Garth

However, they did benefit internally from a ‘woman’s touch’. Co-opted lady members were asked to advise on the types of fittings necessary to make the houses more homely. Sadly, the opportunity offered to the ladies was somewhat restricted as they were denied complete freedom to express their opinions regarding ‘all matters domestic’. Oddly, cooking ranges remained the remit of male committee members. A Yorkist type range – Wilsons & Mathiesons or equal not weighing less than 4.5 cwt – had to be fitted!

An advert for Wilsons and Mathiesons Ltd Yorkist range, 1938 © Grace’s Guide

Unusually, when the first estate houses were built, the decision was taken not to erect fencing and gates to the front gardens. It was thought prudent to retain direct responsibility for the appearance of the house-fronts rather than rely on residents whose horticultural ambitions, based on previous experiences, appeared to fall well-short of the council’s expectations.

The provision of local authority housing in Cottingham continued well in to the 1960s. From those rather utilitarian dwellings of the interwar period, to a variety of post-1945 styles that catered for and reflected the needs of differing family sizes and age range. The village was spared any pre-cast ‘bolt and hope’ concrete tower blocks, the medieval church clock tower remaining the tallest structure. Those that fancied living in the clouds could gaze wistfully across the fields to the high-rise developments on Hull’s Orchard Park Estate. All now reduced to hardcore and probably finding a second use as foundations for garage floors.

Yes of course the provision of approximately 500 houses over four decades pales into insignificance when compared to the provision in many of our towns and cities during the twentieth century. But spare a thought for those small urban and rural district councils with limited human resources that were suddenly thrust into the roles of both builder and landlord a hundred years ago. What stories are still to be told?

Sources

(1) ‘Here’s a Real Housebuilder’, Daily Mirror, 25 January 1943  

Cottingham’s Council Housing, Part I to 1930: ‘Simple and Harmonious as a Whole’

Tags

1920s, Cottingham

I’m very pleased to feature the first of two posts from Peter Claxton on housing in the village of Cottingham just north of Hull. Peter rekindled his love of history at university following his retirement having spent 40 years working in IT. He now focuses most of his research time on Kingston upon Hull and the East Riding of Yorkshire during the 19^th and the first half of the 20^th century. He is currently researching the contentious relationship between private interests and public improvements with regards to health and housing in Kingston upon Hull between 1854 and 1914.

Much has been written about the provision of local authority housing in our towns and cities but we should not overlook the fact that of the 1806 local authorities questioned by the Local Government Board in 1918 regarding their housing requirements, many were small urban or lightly populated rural district councils. (1) 

With a population of 5133 in 1921, Cottingham in the East Riding of Yorkshire, was one such urban district council (UDC). Today, in part, it butts up to the city of Kingston upon Hull, but at the start of the nineteenth century with just 1927 residents it was one of a number of satellite villages that semi-circled the then port town.

Cottingham, circa 1905

Situated just five miles to the northwest of Hull, by the end of the eighteenth century it had acquired a reputation as an ideal place for the ‘well-heeled’ to relocate to and in so doing build their grand houses and lay-out ornamental gardens.

Elmtree House, built around 1820

Newgate House, built in the late 19th/early 19th century

The arrival of the railway in 1846 accelerated this process, with a number of villas and terraces built to house the emerging middle class. Yet there was a problem for all those that relocated. Keen as they were to escape the pervasive smells of Hull’s multifarious processing industries, distance offered them no such guarantee.

With market gardening Cottingham’s primary economic activity – there were 71 nurserymen in and around the village just before WW1 supplying the markets of both Hull and Leeds – the  daily transhipment of night soil from Hull to the fields around the village ensured that no matter how wealthy or upwardly mobile the incomers were, they could never completely leave their pasts behind them!

Low agricultural wages stifled the ambitions of many village residents, yet the desire for improved housing, just like the inhabitants of its much larger neighbour clearly existed. The reduced number made it of no less importance, it was simply a matter of scale. The village was unaccustomed to change, and in general, the UDC – set up under the 1894 Local Government Act consisted of just 12 members – busied itself approving the erection of private dwellings, undertaking nuisance control measures, tarring the roads and maintaining the street lighting.

As elsewhere, following cessation of hostilities in 1918, there was evidence of change. The laying out of new streets extended the built-up area far beyond the village’s traditional nucleus. (2) And as with the vacating of large properties in Hull during the nineteenth century in favour of Cottingham, the same fate now befell a number of those former imposing residences in the village. The vacant properties complete with their large gardens together with numerous unworked smallholdings in and around the village became ideal plots for local builders. Between 1918 and 1939, 1237 houses were built in Cottingham by 95 builders.

In 1918 when it came to the crunch, Cottingham UDC like so many other local authorities, had no experience of building or renting out houses. Enthusiasm could only achieve so much, which in the case of Cottingham, amounted to the purchase of 9.5 acres in April 1919 of the Westfield Estate at the fashionable west end of the village from Archdeacon J Malet Lambert. Viewed by many as a local philanthropist, he also had something of chequered past.

He was however a former and influential member of the Hull & District Sanitary Association, that had continually questioned the efficacy of Hull’s Local Board of Health, pressing for improvements to housing and sanitation within the Borough. So effective were its methods that a Local Government Board enquiry took place in 1888, subsequently making a number of recommendations for the sanitary improvement of the town.(3) Yet Malet Lambert’s philanthropy had limitations, originally offered £125 per acre, he refused to settle for anything less than £200. (4)

Purchasing a piece of land is one thing, populating it with houses is a different matter entirely. The appointment of Hull architect Harry Andrews on a project-only basis was a sound first move by the council. The first phase was for the provision of a modest 50 houses, yet this relatively small number, would in no way be the guarantee to a trouble-free build. Tenders approaching £10,000 for street works and sewerage had an immediate impact on the project. To reduce the civil costs the architect modified the lay-out of the houses positioning them all adjacent to the main road. Costs were trimmed but so was the number of houses, now down to 36. Built by Hull firm Holliday & Barker, they took the form of a single meandering row of 18 pairs of semi-detached houses.

Yet according to a local newspaper, the 12 parlour and 24 non-parlour three bedroomed houses were reported to be: (5)

One of the finest sites in the district, it has been developed to allow the erection of 98 houses, only 16 of which will have a northerly aspect … while somewhat severe in appearance in conformity with the Ministry of Health’s instructions, are exceedingly simple and harmonious as a whole …

Simple and severe certainly, but in no way were they harmonious, not according to many of the locals whose abhorrence towards the stark appearance of the dwellings, had two weeks earlier, prompted an irksome response from a council member who retorted: (6)

There was a most extraordinary and widespread misconception in Cottingham … The people seem to think the council were entirely responsible for the architecture of the houses which had been put up, and for the quality of materials used. This was not so. They had been entirely over-ruled by the authorities at Leeds.

The Southwood Estate, featured in the Hull Daily Mail, 27 October 1921

This was a direct reference to the Leeds-based Regional Housing Commissioner of the Ministry of Health and Housing who held sway over all matters relating to the provision of local authority housing in Yorkshire under the terms of the Housing & Town Planning Act, 1919.

First impressions clearly mattered, and for some of the class-conscious residents at the west end of the village, their dissatisfaction was all too apparent. The first ‘council houses’ were not detached from the village as in many large conurbations where those re-housed would be beyond the tram terminus or omnibus service, and therefore out of sight and out of mind. This was simply an extension to the western end of the village and therefore contiguous to existing properties. Snobocracy appeared to be alive and well in Cottingham and the neighbours were clearly not happy!

Southwood Villa © Bernard Sharp and made available through a Creative Commons licence

Southwood Hall © George Robinson and made available through a Creative Commons licence

No one in the village could question the need for additional housing, it was simply a matter of predetermined expectations. Inside each house the council had dutifully considered the needs of the soon-to-be tenants. All featured hot and cold water, cupboards, a space for a cycle or perambulator and the fitting of a tiled fireplace, and not just a cast iron mantlepiece. The metal window frames – cheaper and more readily available than wooden ones at the time – included a pivot mechanism on the upstairs frames that facilitated easy cleaning of the glazing. In addition the parlour houses had a window to the side to throw light over the shoulder of anyone sitting reading by the fire.

Yet these features did little to assuage the feelings of the neighbours, whose distain was based solely on the external appearance of the dwellings. Through the use of poor-quality commons and their box-like appearance, the houses were deemed to be an incongruous addition to the village. In an attempt to mollify dissenting voices, the council adopted a course of action which at the time was an earnest attempt to remedy the situation. The solution to the dilemma was to hide the brickwork. Each house was to be covered with a roughcast and colour-washed white with Tungaline paint.

An advert for William Jacks & Co Paints © The Priya Paul Collection, Universitätsbibliothek, Heidelberg

And to further improve matters, the exteriors were to be enhanced by the tasteful application of a contrasting dark brown gloss paint to the woodwork!

Southwood Estate houses facing south

Southwood Estate houses facing east

For a time, all was well until the gradual and increasing appearance of brown blemishes to the white-washed walls. To the council’s horror, it was discovered that ironstone chippings constituted part of the roughcast mix and rust had started to leech through to the surface resulting in the mottled finish.

Continuing evidence of rusting

Yet again with good intentions and financial ramifications, the council attempted to remedy the situation by the removal and re-application of the roughcast. Unfortunately the remedial work was not carried out to an exacting standard and the problem is visible to this day. Recently applied external insulation masks the rusting on those properties still part of the East Riding of Yorkshire County Council housing portfolio.

The generous proportions of the ‘Addison Houses’ and high build costs were reflected in the weekly rents. Many early tenants were employed in local agriculture, and at the time of construction, the first cut of what by 1923 amounted to an overall 35 percent reduction in agricultural wages had taken place. (7)  With wages reduced to 24 shillings per week by 1923 there was little wonder that many tenants fell into rent arrears within the first 12 months of occupancy. An appeal to the Ministry of Health secured a reduction of 1/6d per week for each type of house. But with weekly rents of 11/6d or 9/6d excluding rates, it was still necessary for distraint warrants to be issued against persistent defaulters.(8)

High maintenance costs and difficulties with the collection of rents impaired the council’s judgement regarding further housing provision. Finding the whole experience exceedingly troublesome, it had within a matter of 18 months placed on record that an offer for the remaining land it held lay on the table. At 2/6d per square yard (£605 per acre) some three times the price paid in 1919, it proved too tempting an offer. Parcels of land were duly sold to private developers including the North Eastern Railway Cottage Homes. For the remainder of the decade, the council restricted activity to the authorisation of subsidies to private builders under the terms of the 1923 Housing Act. By the end of the decade, 30 ‘subsidy houses’ had been built in the village.

Reticence towards further provision was of course futile. At the start of the 1930s, a modest 12 houses were built on one of the remaining parcels of land. Gone were the generous terms offered in 1919, replaced by the more circumspect grants of the 1924 Housing Act. With a long memory and a Yorkshireman’s vice-like grip of the purse strings, the council did not repeat the mistakes of old. Tucked away behind the rusting white-washed ribbon development, variations in design improved the prospect of the new houses. Yet again commons were the order of the day but thankfully, the temptation to apply a roughcast finish had been resisted.

Phase 2 facing the NER Railway Cottage Homes

NER Cottage Homes

For the council – with still a little land in reserve – it was now a time for reflection. Builders were ‘ramping-up’ private provision locally and those who had ‘Dunroamin’ settled down at ‘Mon Repos’ and ‘Chez Nous’. (9) But, as a follow-up blog will suggest, even in a relatively quiet village things never stay the same for very long.

Sources

(1) Stephen Merrett, State Housing in Britain (Routledge and Kegan Paul, 1979). Cottingham UDC was one of the 400 authorities that had replied to the LGB by December 1918

(2) KJ Allison, ‘The boom in house-building between the wars: the example of Cottingham’, East Yorkshire Local History Society, Bulletin, No. 55, Winter 1996/7

(3) During this period the town was often referred to (in print) as ‘Squalid Hull’.

(4)  From the minutes of Cottingham UDC, 2 April 1919, East Riding Archives

(5) ‘Cottingham Housing Scheme’, Hull Daily Mail, 27 October 1921  

(6) ‘Cottingham’s New Houses’, Hull Daily Mail, 13 October 1921

(7) Martin Pugh, We Danced all Night: A Social History of Britain between the Wars (Bodley Head, 2008)

(8) ‘Cottingham Council Houses, Distraint Warrants Issued for Unpaid Rents’, Hull Daily Mail, 9 August 1923   

(9) Allison, ‘The boom in house-building between the wars …’

‘Till we have built Jerusalem in England’s green and pleasant land’: Women’s Influence on State Housing in the Era of World War 1 and After

Tags

1920s

I’m delighted to feature today the first of two guest posts by Lynne Dixon examining the work of some of our early female housing campaigners and reformers. Lynne has a background in historical geography, town planning, the environment and education. Over the last few years she has been researching and writing about different aspects of women’s history and local history. Her interest in women and housing in the early years of the nineteenth century has evolved from a U3A shared learning project on the origins of the organisation Women’s Pioneer Housing.  She has contributed to blogs on women in World War 1 and extensively on the Well Hall Estate and is currently writing a book on a woman architect/builder, Annabel Dott. 

The words of Blake which I have chosen as part of the title are more usually associated with the Last Night of the Proms or perhaps with the Women’s Institute.  What they represent for me is the determination of women to be involved in the design of state housing a century ago.  The words and music were first used by women at an event promoting the National Service for Women scheme in March 1917 and were then chosen by Florence Hamilton to represent the spirit and purpose of her Women’s Village Council movement in 1917.  The strapline first appeared in her article in The Common Cause in November of that year.

The role of the influential Tudor Walters Report of 1918 has been mentioned several times in contributions on this site.  The committee which prepared it was established to assist in dealing with the shortage of housing which was seen as a cause of industrial unrest during 1917. It was swiftly appointed following the announcement in July 1917 of the Local Government Board’s housing scheme and its resultant report laid down guidance on ‘building construction in connection with the provision of dwellings for the working classes’. (1) 

What is perhaps less well known is the role of women in discussing housing design throughout this wartime and post-war period.  This included their participation in contributions to the Tudor Walters report; their attempts to influence the quality and quantity of publicly funded housing, often in rural areas at a local level; and the report of the Women’s Housing Sub-Committee (WHSC).  The recommendations of this latter’s report were ultimately eclipsed by the relatively more pragmatic and politically acceptable report of the fifteen-strong, all-male committee led by Sir John Tudor Walters.  In this blog, I will discuss women’s attempts to influence publicly funded housing at local levels and in a second contribution I will outline the role of the WHSC in more detail.

The Tudor Walters Report received evidence from 127 named witnesses of whom only fifteen were women.  A number of these women were linked to key organisations such as the Women’s Labour League, the Association of Women Housing Property Managers and the Rural Housing and Sanitation Association. Others appear to be individuals from across the country with no easily identifiable links to campaigning or professional groups. (2)

This undated image shows a Women’s Freedom League publicity caravan

A postcard image of Muriel Matters, an Australian-born actress and leading member of the Women’s Freedom League. Reproduced courtesy of The Muriel Matters Society Inc., Adelaide, South Australia

It was shortly after the creation of the Tudor Walters Committee and the publicity surrounding the government’s housing policy in the summer of 1917 that Florence Gertrude Hamilton – Mrs F.G. Hamilton – together with her sister Maud Rose Raey MacKenzie established the Findon Women’s Village Council, the first organisation of its kind. If Florence had some prior involvement in housing issues I have not been able to identify it but she had been a campaigning suffragist in the Women’s Freedom League in the pre-war period in Wendover, Buckinghamshire, when she had been a tax resister. (3)

By about 1913 she had left Wendover, eventually settling in Findon, Sussex, with her unmarried sister Maud. When the Local Government Board in July 1917 announced in a circular letter to councils that financial assistance was on offer to local authorities building workmen’s dwellings after the war, the two women felt that their Rural District Council was not preparing adequately for this. (4)  

A date of 15^th October had been given for the completion of a form issued by the Local Government Board on which local authorities could provide details of the number of houses needed.  Perhaps Florence’s idea to contribute to this through the influence of women was based not only on her involvement with the suffrage movement, but also on the success of the relatively new Women’s Institute in the southern counties.  She might have seen an opportunity to encourage women’s participation in local affairs through the initial mechanism of becoming involved in housing.

Within three months of the circular to local authorities, she had evolved and then promoted her idea of an organisation and a meeting was held on October 2 in the Wattle House at Findon which was suitably decorated with national flags for the occasion. It seems to have been well attended. (5)

The Wattle House today; photo credit Richard Bell, Findon

A meeting of the Findon Women’s Village Council (from a private collection)

At this inaugural meeting, the Findon Women’s Village Council (WVC) stated its aims as being: (6)

to assist the State-aided Housing Scheme of the Local Government Board by obtaining first-hand information on rural housing, with the present acute shortage of cottages, and bad conditions

to promote Maternity and Infant Welfare, and the cause of Education

to enable working women to educate themselves to take their place on Parish, Rural District, and County Councils.

Inaugural meeting poster; reproduced with the permission of the People’s History Museum

Florence was particularly keen to involve ‘the genuine rural working woman’ in her organisation but she also referred to the usefulness of involving suffragists with their ‘trained cooperation’. With missionary zeal she wanted to seize the opportunity to help remedy the lack of rural cottages and to influence the quality and quantity of new ones. Like a growing number of women, she felt that women were best placed to advise on the design of houses because of the time they spent in them and the work they did there. (7)

And so a resolution was passed at that first meeting in Findon and sent to the Local Government Board: (8)

We have pleasure in reporting to the Local Government Board that the Findon Village Women’s Council (for the purpose of collecting evidence for the State-aided Housing Scheme) has been started, and we beg that we may be recognised and consulted in all reforms and schemes connected with State-aided cottages in our village.

Just a few months later Florence had established a small advisory group to support the newly forming village councils and was making links with the plethora of other women’s organisations in their shared premises at 92 Victoria Street.  She enlisted amongst others the support of Annette Churton, Secretary of the Rural Housing and Sanitary Association and a former member of the Women’s Housing Sub-Committee.

In a description reminiscent of language we would recognise today, an article of 1918 explained that the views on rural housing would come from people themselves: ‘the village women, the farmers’ and the labourers’ wives; it is not superimposed from the top’. The idea for forming such village councils spread across the counties of south-east England and beyond and women were encouraged to organise surveys of their local housing and also to give their own opinions on the ideal design of new cottages. (9)

In Findon: (10)

the headings of the Survey were drawn up by a professional surveyor, and dealt with such points as the materials of the roof (whether tiled, slated, or thatched), the water supply (whether laid on, brought from a distant well, or rain-water; and if the last, whether it was filtered), the number of occupants (how many over, and how many under, the age of sixteen), the sanitary arrangements. 

With the involvement of the local vicar, a report was produced and presented to the Rural District Council outlining the need for 50 new cottages.  I have not as yet been able to research further specifically what happened to their recommendations.  However, on September 1 an article appeared in the Worthing Gazette referring to the building of sixteen houses in Findon by Thakeham Rural District Council under their scheme for fifty-eight houses in their area.  Because 42 applicants for these sixteen houses had been received, the article commented that this was ‘a long way from a complete satisfaction of the demand’.  I have identified a possible group of houses on the north side of the village, The Oval, which might be those built in the late 1920s but have yet to verify their origins.

The ideas of Florence Hamilton were broadly idealistic, going beyond the scope of the quality and quantity of housing into the area of other rural problems. Ultimately, she hoped to educate women in effective roles as citizens with a wider involvement in parish councils.

In Florence’s own words: (11)

The immediate work of the women’s village councils is to demonstrate beyond doubt the tremendous need for state-aided housing and the almost inconceivably bad conditions of many agricultural labourers’ homes; to combat existing opposition and indifference; to suggest the possibility that garden villages need not be ‘blots on the landscape’; to tell of the marvels promised by reconstructive use of science for lighting, water supplies and cooking, and to do death to the legend that the only use likely to be made of the fixed bath would be the coal cellar.  All Women’s Village Councils are asking for third bedrooms, that boys and girls may have a chance of growing up with modesty; they also ask for parlours … The success of the Local Government’s Maternity Bill and the Continuation Classes of the new Education Act depends largely on the co-operation of village women, who have hitherto had small say in their children’s interest and education.

Florence Hamilton conducted her own campaigning at a broader level.  In December 1917, she had met with Henry Aldridge, secretary of the Town Planning Council, who may have provided a vital direct link with the LGB and who went on to invite her to a housing conference in December 1917.  Although she herself did not give evidence directly to the Tudor Walters Committee, it is highly likely that at least one of the other WVC women did.  In 1918 she went on to form a federation of the village councils as the movement grew.  Although it was focussed initially in the south-east, there were other councils which formed elsewhere. They had spread into nine counties by 1919 including some in the Midlands, and reportedly into fifteen by March 1919. (12)

The village councils were said to give women the opportunity of working with the ‘experts’ – in planning, housing and sanitation. A March 1919 Manchester Guardian article pointed out that housing schemes were perhaps more important in rural areas than they were in towns.  Concern about rural depopulation had already led to a rural reconstruction movement and the lack of houses and the poor quality of the housing stock in rural areas were seen as crucial factors. However, there was also a need in urban areas and complementary organisations, the Women’s Housing Councils, were established in those areas from about 1922. This urban equivalent, influenced by their rural sisters, began in North Kensington.  This comment about one of their meetings clearly demonstrates the need for housing improvement, arguably one which still exists: (13) 

Meetings were held, and the residents of the wealthy borough were made aware of the terrible conditions under which their poor neighbours were living – almost at their doors.  Public opinion was eventually aroused, and £7000 has already been subscribed for putting tenement dwellings into habitable conditions.

It should be said that in deference to the more widely known Women’s Institute, which was founded at about the same time as the WVCs, that this organisation also, at least in some areas, attempted to influence the government housing schemes.

By 1923 the urban and the rural organisations had merged and were known as the Women’s Housing and Village Council Federation and later as the Women’s Housing Council Federation before perhaps finally merging with the National Housing and Town Planning Council (NHTPC). It has been impossible to track down any archives from these organisations: the National Archives gives a reference of the NHTPC merging with ROOM which is now part of the Royal Town Planning Institute.  The RTPI cannot find any relevant records.

Florence Hamilton probably remained active at a national level for the last decade of her life.  She was a founder member of the Electrical Association of Women (1924) and continued to be involved in the National Housing and Town Planning Council.  Her involvement in housing was acknowledged in her obituary written by fellow suffragist, Muriel Matters, which appeared in The Vote in April 1932. The inscription on her tombstone in Brompton Cemetery must surely be a reference to her commitment to citizenship: ‘Our Citizenship is in Heaven’.  She was one of a group of women who had developed an interest in housing during the First World War and sometimes earlier, who continued to try and influence the design of housing into the post-war period.  Many of these other women were members of the Women’s Housing Sub-Committee and this will be the subject of my second blog.

lynne.dixon@cantab.net

Sources

(1) ‘The Report of the Committee Appointed to Consider Questions of Building Construction in Connection with the Provision of Dwellings for the Working Classes’ (The Tudor Walters Report, Cd 9191), 1918

(2) The witnesses are listed in the report.

(3) Florence was baptised Florence Gertrude MacKenzie but on her marriage was often referred to as Florence Gardiner Hamilton so that her initials F.G. could stand for either middle name. For extensive information about the suffragists in Buckinghamshire, Colin Cartwright’s book, Burning to Get the Vote (Legend Press Ltd, 2013) is a mine of information

(4) ‘Working Class Houses’, The Times, 30 July 1917 and Florence G Hamilton ‘Findon Women’s Village Council’, The Common Cause, 9 November 1917

(5) There are several accounts of this meeting; see, for example, The Spectator, 15 June 1918, The Common Cause, 9 November 1917, and Worthing Gazette, 24 October 1917

(6) From a poster for the Findon Women’s Village Council, undated, People’s History Museum, ref cc/s.16.

(7) The quotations are drawn from Florence G Hamilton, ‘Findon Women’s Village Council: An Experiment in Local Organisation’, The Common Cause, 9 November 1917, and further analysis from Women Correspondent ‘The Village Council of Women: their Contribution to Housing Reform’, The Manchester Guardian, 11 March 1919

(8) Georgina Home ‘Findon Village Council’, The Spectator, 15 July 1918

(9) C Osborn, ‘Women’s Village Councils’, Charity Organisation Review, vol 43, no 256, April 1918 

(10) Georgina Home, ’Findon Village Council’, The Spectator, 15 July 1918

(11) Mrs Hamilton, ‘Women’s Village Councils Federations for State-Aided Housing and Rural Problems’, The Common Cause, 19 July 1918

(12) Women Correspondent ‘The Village Council of Women: their Contribution to Housing Reform’. I have managed to establish the names of some thirteen councils: West Sussex; Findon, Storrington, Durrington, Wiston, Rustington, Broadwater, Washington, Wiston, and elsewhere Ellesborough (Buckinghamshire) Solihull and Aldridge (Walsall Rural District); Runton (Norfolk); Sarisbury (Hampshire)

(13) ME Blyth, ‘The Women’s Housing and Village Councils Federation’, Yorkshire Post and Leeds Intelligencer, 13 July 1923

Tayler and Green and Loddon Rural District Council, Part II: ‘a triumph of artistic patronage’

Tags

1940s, 1950s, 1960s, Loddon Rural District Council, Tayler and Green

As we saw in last week’s post, David Green was appointed consultant architect to Loddon Rural District Council in March 1945.  Together with his partner Herbert Tayler, he would enjoy a relationship with the council described by one close observer as ‘a triumph of artistic patronage’. (1)  The architectural excellence of the housing commissioned by Loddon and designed by Tayler and Green is widely known but we’ll look too at the wider context in which their joint enterprise flourished.

‘Swedish Houses’, Leman Grove, Loddon. The vertical panelling on the left reflects the original form.

Before that, however, the housing crisis in Loddon district, as elsewhere in the country, presented more pressing issues. The Council had bid successfully for 30 temporary prefab bungalows in 1944; 20 were built in Loddon itself and 10 in Raveningham. Permanent prefabricated housing was another favoured solution. By 1948, 34 so-called ‘Swedish Houses’ (imported from Sweden and built of timber) and 62 pre-cast concrete Airey Houses had been erected across the district. (2)

Tayler and Green were closely involved with their construction, often presenting a list of defects to the Housing Committee to be corrected before new homes could be signed off. It was unsurprising that by February 1948 their report to the Housing Committee  concluded that: (3)

in their opinion non-traditional houses could not yet compete with traditional types as regards cost and finish and that their advice to the Council was to press for more brick and tile houses and not consider erecting any more non-traditional types.

In south Norfolk, decommissioned airbases presented another field of activity. In April 1947, the Council agreed to convert sick quarters and other disused buildings at Seething Airfield to provide 14 temporary dwellings; in the following month it was agreed to adapt six Nissen huts in Raveningham. There were 72 such ‘converted hutments’ by 1949.  Meanwhile, rationing and building materials shortages hindered new construction – even lavatory basins were rationed until June 1948. (4)

That a traditional building programme was needed was not in doubt: the Housing Committee’s 1949 annual report detailed 175 sub-standard houses in the district, 71 cases of overcrowding and some 194 households on the waiting list. (5)  Belatedly – and belatedly for those of you understandably keen to focus on the work of Tayler and Green – that programme was bearing fruit.

College Road, Thurlton

Tayler and Green’s first schemes for the Council were completed in 1948 – in Leman Grove, Loddon, shared with some Swedish Houses, and College Road in Thurlton, an extension of a pre-war scheme.  Writing in 1947 as their schemes developed and thinking evolved, the partners asserted the obvious but neglected truism that rural housing should differ from urban. ‘Far too often the ordinary semi-detached urban dwelling is planted down in the countryside with all the consequent disadvantages to the occupier’. In contrast, their schemes resulted from  ‘a study of rural requirements’. (6)

A rural worker wears gumboots which ‘have to be taken off in a sheltered position without bringing mud into the house’; ‘he grows a certain amount of his own food’ and requires additional storage space for tools, potatoes, etc.’; ‘he requires to be able to wheel manure through to his garden’; he needs to store wood for fuel; ‘he makes greater use of his bicycle than does the townsman’.

For this reason, Tayler and Green replaced front and back doors with a single side entry which opened off a roofed passage connected to a large outside store: (7)

Thus the sequence of arrival, storing of bicycle, and then going indoors is completed under cover and in privacy … The kitchen without a back door ceases to be a passage for the whole household.

This might have been an architectural innovation rooted in prosaic reality (even down to the concrete floors lifted just three inches to ease the movement of bikes, prams and wheelbarrows) but it became part of the unique aesthetic that the architects brought to their designs.

Windmill Green Ditchingham

That was seen more dramatically at their next major scheme, Windmill Green in Ditchingham, the first phase completed in 1949, in the use of terraces; in Tayler’s words, ‘not used in rural districts since the 18^th century, with their advantages of economy, warmth and restful appearance in the landscape’. (8)  Terraces also served to conceal what Tayler called the ‘rural scruff’ of back gardens from public view.

Windmill Green Ditchingham

The thirty houses at Ditchingham, arranged in a horseshoe around a large open green, seemed to Ian Nairn to be ‘an attempt to entrap the whole of East Anglian space in one great gesture’. (9) As Tayler acknowledged, in Norfolk ‘it is the land itself which competes with you, as it always competed with man before architecture existed’. (10)

The junction of Kenyon Row and Forge Grove at Gillingham captures the range of Tayler and Green’s decorative techniques.

By coincidence, I found almost the identical image published in the Architectural Review in 1958. I think the later image shows how well the designs have aged.

Beyond this, there was a conscious attempt to capture the picturesque, not in the twee way this term often implies, nor in an ‘in keeping’ archaism.  This was modern architecture though Pevsner thought it might be better described as ‘post-modern’. Tayler was clear, however, that they had broken with the austerity of the international modern style. He felt: (10)

people lacked decoration and enjoyment in the look of the houses, so we introduced colours (different for each house), brick patterns, dates. The date of the terrace in raised brickwork was an immediate success. Everybody liked it, people do like decoration.

Colour wash was used in earlier schemes to disguise unattractive Fletton bricks and was later replaced by coloured facing bricks as these became available.  Open screens and trellises on walls and fretted bargeboards on gable ends followed.

As their portfolio developed, Tayler and Green emphasised how ‘each site is given a marked individuality and each is immediately recognisably different from the others’. This, as they argued, was ‘in itself, is a step forward for “Council housing”’.  Indeed, much of it is no longer council housing and that individuality has been further emphasised by the fact that in Windmill Green, for example, 60 percent have tenants have exercised their Right to Buy.

The first single-storey homes were built at Geldeston in 1949 and bungalows intended primarily for older people became an increasing feature of later schemes. This was significant in rural areas where farm workers often lived in tied housing, provided by their employers during their working lives.  By the later 1950s, bungalows formed around 17 percent of council stock by which time the Council owned and managed near 900 homes, around 20 percent of the Rural District’s total.

This reflected a broader demographic change apparent into the 1960s – a declining agricultural workforce, rural depopulation and an ageing population that remained. The great age of rural council housebuilding was over.

Two images from the 1949 Housing Manual

The contribution of Tayler and Green to its heyday was widely recognised.  The Ministry of Health’s 1949 Housing Manual (in which rural housing featured surprisingly heavily) included no less than four illustrations of their schemes. Early schemes at Woodyard Square, Woodton, and Bergh Apton, completed in 1951, were widely praised, as was Forge Grove, Gillingham, built in the mid-1950s.

Davy Place, Loddon, plaques

In all, Elain Harwood reckons the duo were awarded five Festival of Britain Merit Awards, three awards from Ministry of Health and its post-1951 successor the Ministry of Housing, two Civic Trust awards and a RIBA Bronze Medal. (13)

Woodyard Square, Woodton, bungalows

Woodyard Square as seen in the Norfolk landscape in an image from Architectural Review, 1958

In 1958, Ian Nairn could already cast an almost valedictory eye on a programme (which would eventually total some 687 homes) that was ‘almost finished’. He concluded that the region was ‘more rural, more Norfolk-like than it was in 1945’ – ‘no other [Rural District] that the writer has been in could say that of itself’. (14)

This was achieved by interpreting the local spirit but doing so:

in purely twentieth-century terms, using twentieth-century industrial organisation, creating five or six standard types of each detail and ringing the changes on them according to the needs of each site … In doing so, they have been faithful to the genius loci in a deeper sense that that implied by a few design clichés.

Church Road, Bergh Apton

More recently, the architect Charles Holland commented that the houses: (15)

unremarkable in some ways, still stand as an exemplary way to build sensitively and well in the countryside … It’s quiet and unassuming but in a generous rather than austere or hairshirt way. It convinces you that if you plan things intelligently and with beauty and care you can leave the rest to itself. The houses seem to cater for life rather than prescribe it, which is something that modern architecture finds incredibly difficult to do generally.

The Housing Committee minutes suggest very little of all this. A suggestion by Councillor Fairhead that downstairs toilets be placed outside the main entrance was brushed aside by Green and rejected by the Committee.  A suggestion that parlours (a second living room) be provided was opposed by Green as being £80 dearer than their present plans; they would also presumably have mitigated the bright, airy interiors of the south-facing living rooms that were integral to all their designs.  In general, the Housing Committee was simply ‘a good client’ as Tayler and Green were magnanimous in agreeing that ‘Loddon Council have undoubtedly been’. (16)

Scudamore Place, Ditchingham

The councillors therefore occupied themselves principally with finance and management.  A comprehensive points system was devised to determine allocations; the fact of being an agricultural worker granted 20 points, living with relatives a further 20, and so on in some detail.  The Council also applied its discretion in charging agricultural workers reduced rents, typically 2 shillings (10p) less than the 12 to 15 shillings normally charged for its family homes. Agricultural wages were around 40 percent lower than the national average. (17)

Rural realities impinged in other ways too.  In 1947, the Committee informed Mr Hazell of no. 3 Council Houses, Woodton, that rearing pigs in his back garden contravened his tenancy agreement. But then they relented; by June 1948, it was agreed that pig-keeping regulations (stipulating sties ‘of brick and concrete construction’) be drawn up. (18)

The term ‘problem families’ was first used in 1943. By 1951, it had made its way to Loddon in uncompromising form when the Medical Officer of Health referred to around 100 families in the district characterised by ‘intractable ineducability [and] instability or infirmity of character of one or both parents’. These, he maintained, expressed themselves in: (19)

persistent neglect of children, in fecklessness, irresponsibility, improvidence in the conduct of life and indiscipline in the home wherein dirt, poverty, squalor are often conspicuous.

New issues of housing management – though articulated in ways not far removed from the nineteenth-century language of the ‘undeserving poor’ – were presenting themselves.

Forge Grove, Gillingham

In many ways, Loddon Rural District Council was typical of rural authorities across the country. There were new demands to decently house the rural working class amidst harsh realities of rural life both persistent and evolving.  But in Loddon an aspirational authority combined with two architects, in Tayler and Green, uniquely committed to the design of high-quality council homes.  Together they bequeathed a legacy of decent, affordable housing which stands not only as a monument to past achievement but to present necessity.

Note

I’ve added additional images of some of the schemes on my Tumblr account: Bergh Apton, Ditchingham, and Gillingham and Loddon.

Sources

The best illustrated and fullest architectural online guide to Tayler and Green’s work is provided by Matt Wood in his Ruralise blog. The essential text is the Harwood and Powers volume referenced below.

(1) The architect and critic Sherban Cantacuzino quoted in Norman Scarfe, ‘The Impact on a Layman of Tayler and Green’s Exemplary Housing’ in Harwood and Powers (eds), Tayler and Green, Architects 1938-1973: The Spirit of Place in Modern Housing (1998)

(2) Loddon Rural District Council, Housing Committee minutes, ‘Housing Programme’, 26 July 1948

(3) Loddon Rural District Council, Housing Committee minutes, 9 February 1948

(4) On ‘converted hutments’, see Loddon Rural District Council, Housing Committee minutes, 28 April 1947 and 1 May 1947; on materials shortages, see 24 June 1947 and 28 June 1948

(5) Loddon Rural District Council, Housing Committee minutes, 31 May 1949

(6) ‘Rural housing for Loddon RDC, Norfolk; Architects: Tayler & Green’, RIBA Journal, vol. 54, October 1947, pp607-09

(7) ‘Loddon Rural District Council, Norfolk: various schemes; Architects: Tayler & Green’, Architecture & Building News, 29 October 1948, pp358-363

(8) ‘Rural housing at Gillingham for Loddon Rural District Council; Architects: Tayler & Green’; RIBA Journal, January 1959, pp 98-99

(9) Ian Nairn, ‘Rural Housing: Post-War Work by Tayler and Green’, Architectural Review, October 1958

(10) Quoted in Elain Harwood, ‘Post-War Landscape and Public Housing’, Garden History, vol. 28, no. 1, Summer, 2000, pp. 102-116

(11) Quoted in David Gray, ‘Tayler and Green, Architects, 1938-1973’, AA Files, no. 37, Autumn 1998, pp. 65-68

(12) Loddon Rural District Council, Medical Officer of Health Report, 1957

(13) Elain Harwood, ‘Tayler & Green and Loddon Rural District Council’ in Harwood and Powers (eds) Tayler and Green, Architects 1938-1973: The Spirit of Place in Modern Housing (1998)

(14) Ian Nairn, ‘Rural Housing: Post-War Work by Tayler and Green’

(15) Charles Holland, ‘Kitchen Sink Realism’, Fantastic Journal blog, July 11 2012

(16) Loddon Rural District Council, Housing Committee minutes, 14 May 1948 and 17 January 1949. The final quotation is drawn from ‘Rural housing at Gillingham for Loddon Rural District Council; Architects: Tayler & Green’

(17) Loddon Rural District Council, Housing Committee minutes, 29 December 1949 and, rents, 6 August 1947. Wage figures from Alun Howkins, The Death of Rural England: A Social History of the Countryside Since 1900 (2003)

(18) Loddon Rural District Council, Housing Committee minutes, 13 October 1947 and 28 June 1948

(19) Loddon Rural District Council, Medical Officer of Health Report, 1951

 

Tayler and Green and Loddon Rural District Council, Part I: ‘a set of council houses unequalled in the whole country’

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1930s, 1940s, Loddon Rural District Council, Tayler and Green

The architects Herbert Tayler and David Green created in south Norfolk what Ian Nairn described as ‘a set of council houses unequalled in the whole country’ – 687 houses, bungalows and flats for Loddon Rural District Council. (1)  Much has been written about the architectural quality and influences of their designs by people better placed than me to explain them and I’ll reference that analysis in my posts.  In this first post, however, I’ve set out to provide some fuller context for their work and, in particular, the otherwise very typical rural local authority that provided their platform.

Herbert Tayler (1912-2000) to the left and David Green (1912-1998)

That context is provided firstly by local government: the county councils established in 1889 and the rural district councils five years later.  The initial role of rural district councils was limited, confined largely to matters of water supply and sanitation.  Dominated as they were by the local gentry and middle-class ratepayers, few ventured further. Despite, as we’ll see, the desperate need, very few built housing.  Ixworth in Suffolk and Penshurst in Kent, which built the first rural council housing in 1894 and 1900 respectively, were rare early exceptions.

While legislation in 1890 and 1919 at first allowed and then, to some degree, required councils to build housing, up to 1926 smallholder dwellings had been ‘virtually the sole means of public supply of rural housing’. (2)  The first Small Holdings Act of 1892 and its successors allowed county councils to advance loans to farm labourers and other landless villagers to purchase areas of land up to 50 acres in extent. By 1926, some 30,0000 such small holdings existed. The 1926 Housing (Rural Workers) Act provided another means of addressing the rural housing crisis by enabling local councils to provide loans to landlords to recondition unfit homes.

Map of Loddon Rural District Council, taken from Harwood and Powers (eds), Tayler and Green, Architects 1938-1973: The Spirit of Place in Modern Housing

But the breakthrough so far as rural council housing was concerned did not come till 1936. Then new legislation declared not only ‘the duty of the council of every county … to have constant regard to the housing conditions of the working classes’ but also to ensure ‘the sufficiency of steps which the council of the district have taken, or are proposing to take, to remedy these conditions and to provide further housing accommodation’. The 1936 Act also gave rural councils the power to declare and rebuild ‘slum clearance areas’ which Loddon Rural District Council (RDC) did in Loddon itself and the villages of Ditchingham, Gillingham and Hales.

The bureaucratic language concealed a truly shocking picture.  We can take Loddon as an example.  In 1937, the council’s Medical Officer of Health found 139 homes surveyed unfit or ‘not to be in all respects reasonably fit for human habitation’.  Sixty-six homes inspected for overcrowding were found to contain 72 families and 446 people. (3)

The problem reflected far more than the dereliction of isolated properties.  Public health legislation since 1848 had addressed urban squalor but improving standards of sanitation and sewerage did not extend to rural areas.  Even in 1938, a scheme of 18 new council houses completed in Loddon was provided an external water supply (by means of a well sunk for the purpose and electric pump) but no internal supply or fixed baths. To have provided baths would have required connection to sewers for drainage and that, councillors lamented, was simply too expensive given the inadequacy of government grants. (4)

The 1944 Rural Water Supplies and Sewerage Act was a belated attempt to address this problem and Loddon RDC was the first council to adopt its provisions. Necessarily so. In 1950, only seven percent of the district’s homes were connected to sewers, fully 83 percent (3000 in number) were reliant on pail closets.  The council employed its own workers to collect what was euphemistically termed ‘night soil’ in three villages. (5)

The litany of statistics can get wearying but it’s worth recording that even by 1964 – after significant progress and in figures which underestimate rural deficiencies by their inclusion of more suburban areas on the Norwich fringes – that 22 percent of homes in the Loddon rural district lacked a cold water tap, 45 percent a hot water tap and 43 percent a fixed bath. Forty-two percent still lacked sewerage. (6)

Typically, after the war new council housing schemes that did eventually emerge were among the first to be properly equipped and connected to mains water and sewerage.  (The usual peripheral location of new council schemes on roads leading into villages made this process easier.) David Green himself took a close and practical interest in the provision of these basic services, looking after ‘engineering matters, such as footings and weight-bearing and drainage’ whilst Tayler was the principal ‘aesthetic arbiter’ of their schemes. (7)

College Road, Thurlton

If pre-war standards weren’t, as we’ve seen, quite so exacting, the Council had nevertheless embarked on a significant housebuilding programme by the late 1930s.  It had pressed for increased government support in a resolution passed by the Housing and Town Planning conference of Local Authorities in the Eastern Counties in 1937. (8) Notwithstanding that, in 1938, the Council completed 118 new homes, contributing to a pre-war total of 262 council homes across the district. Land for a further 163 homes was purchased and provided the Council’s building programme a running start at war’s end.

Leman Grove, Loddon. The side extensions reflect later sanitary improvements.

As yet, there was no hint of architectural enterprise. These were the solid, boxy, red-brick houses that began to mark (some said blot) the English countryside in the era.  In 1955, Tayler was to comment caustically that ‘beauty is almost suspected by ratepayers as a fancy extravagance’ whilst advocating for precisely the design and planning then being successfully implemented in Loddon. (9)

Back in 1938, the Council was sufficiently proud of its unreconstructed schemes to include a plaque and date for each as the examples in Loddon and Thurlton show.  Tayler and Green would continue this tradition far more colourfully.

Loddon began its post-war planning in 1944. Tayler and Green had moved to nearby Lowestoft in 1941, following the death of Green’s architect father that year. Even recent biographical accounts are strangely reticent of the fact that they were a gay couple. No doubt, discretion was required in earlier years but it seems, to me at least, that today this is something we can celebrate.  They became significant members of an active East Anglian cultural scene which included, amongst others, Benjamin Britten and they lived together, having retired to Spain on local government reorganisation in 1974, till Green’s death in 1998.

As a business partnership, they received their first local housing commission from Lothingland RDC in 1943 for six houses in Blundeston and Wrentham in Suffolk. Housing for agricultural workers was then in great demand and being heavily promoted by the Ministry of Agriculture.  Such demand – allied with as yet relatively unmechanised farming techniques – was maintained into the 1950s. In 1951, of a local workforce in Loddon Rural District of around 2900, 53 percent worked on the land. (10)

Trees and Wheat Field near Fuller’s Farm, Toft Monks © Roger Jones and made available through a Creative Commons licence

The area itself was low-lying and ‘very flat’ as Noel Coward might have said though gently undulating to those of more discerning eye.  Its beauty, if you saw it, lay in its open skies; apart from Loddon itself, just qualifying as a small town with a population of 1100, its other settlements were ‘queer loosely linked agglomerations of houses whose wayward charm is due more to light and air than to the buildings themselves’. (11)  Its overall population stood at a little over 11,800 across some 60,000 acres – just 2 per acre.

In 1945, the Council were looking around for a new consultant architect and in February a delegation inspected Tayler and Green’s work at Wrentham.  The design tweaks and innovations they had applied to the recommended standard design had already attracted attention and the councillors left suitably impressed. Green was appointed the following month.

The rest is history but it’s worth decoding.  Who were these councillors that gave free rein to Tayler and Green to produce such high-quality homes?  Well, they were not, in Ian Nairn’s words:

a miraculous Norfolk race of Men of Taste left over from the eighteenth century; they were just ordinary councillors who had to be argued with and convinced like any set of councillors anywhere.

In 1947, the Housing Committee comprised 15 councillors of whom six were women and four were clergymen.  The chair was Charles Hastings, a land agent at one of the big local houses, Gillingham Hall.  His niece, Mary Bramley, was the lady of the manor and a supportive chair of the RDC from 1962. Elain Harwood references ‘ex-officers, a builder and his wife’ too.  (12)

Beyond this and the implied noblesse oblige of some of the local upper classes at least, it’s hard to go but the local Norfolk Southern parliamentary constituency had returned a Labour MP in 1945 (Christopher Mayhew – he lost his seat in 1950) and the county as a whole was a stronghold of agricultural trades unionism. In 1957, Labour took control of the Council – a first for ‘a rural district council in a purely agricultural area’ as the Daily Herald proclaimed. (13)  One must assume that this working-class voice made its voice heard too.

The Council was at any rate, as Tayler claimed in 1960: (14)

an excellent client in every respect, but particularly in this, that they never fussed over architectural matters, but stated their opinions freely and then left it to us.

This, and the wider story of the district’s council housing, will be followed up in next week’s post.

Sources

(1) Ian Nairn, ‘Rural Housing: Post-War Work by Tayler and Green’, Architectural Review, October 1958

(2) Trevor Wild, Village England.  A Social History of the Countryside (LB Tauris, 2004)

(3) Loddon Rural District Council, Medical Officer of Health Report, 1937

(4) ‘Baths in Council Houses’, Yarmouth Independent, 8 January 1938

(5) Loddon Rural District Council, Medical Officer of Health Report, 1950

(6) Loddon Rural District Council, Medical Officer of Health Report, 1964

(7) Norman Scarfe, ‘Obituary: David Green‘, The Independent, 9 October 1998 and Alan Powers, ‘David Green, Modernist exponent of rural housing’, Architects’ Journal, 15 October 1998

(8) ‘East Anglia Housing Needs’, Yarmouth Independent, June 19, 1937

(9) Herbert Tayler, ‘Landscape in Rural Housing’, Housing Centre Review, no. 3, May/June 1955

(10) 1951 Census, Occupational Classification, Loddon RDC

(11) Ian Nairn, ‘Rural Housing: Post-War Work by Tayler and Green’

(12) Elain Harwood, ‘Tayler & Green and Loddon Rural District Council’ in Harwood and Powers (eds), Tayler and Green, Architects 1938-1973: The Spirit of Place in Modern Housing (1998)

(13) Daily Herald, May 13 1957

(14) Quoted in Harwood, ‘Tayler & Green and Loddon Rural District Council’

The Dursley Housing Scheme, 1912, Part II: ‘No Better Housing Scheme’

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Dursley, Pre-1914

I’m very pleased to host this second post by Chas Townley, a follow-up to his article last week which looked at the background to Dursley’s pre-war housing scheme. Chas is a Labour District Councillor on Stroud District Council, a ‘no overall control; authority in Gloucestershire. He is currently chair of the Housing Committee. Chas has formerly worked in housing for both councils and housing associations and previously managed the Supporting People Programme in a unitary council. He is a member of the Chartered Institute of Housing.  He is a local historian and genealogist and has written on a variety of subjects including Chartism, Cooperatives, land clubs and building societies, and the Poor Law and pre-NHS health provision.

Returning to Dursley and our 38 first houses, the decision to investigate providing housing started in January 1912 as a result of a circular letter from the Government which offered meetings with officials to assist the council. They also had information from Cirencester Urban District Council, which was already seeking to build houses with rents of 4 shillings a week. Dursley Rural District Council (RDC) members considered this to be far too much rent for ‘the workmen they were concerned about in the area’ – as the rents of those to be evicted from their closed hovels had very low rents. (1)

The plaque marking the opening of the new scheme in Lower Poole Road

Despite such early negativity discussions proceeded and a news report of the Dursley Annual Parish Meeting addressed by Mr Sidney Bloodworth, Chairman of the Dursley Parochial Committee (DPC) and Vice-Chairman of the RDC presented a narrative on why they were looking to build council housing.

It is worth explaining the membership of the DPC which was a Dursley RDC committee consisting of all parish councillors and any RDC members representing the Parish of Dursley. I have come across this form of committee in several researches and it appears to have been a normal method of delegating purely local matters for action. Sadly, as they appear to have operated on an ad hoc basis their records have rarely made it into the official archives. In this case my account is based on occasional newspaper reports.

Bloodworth reports the dilemma that the RDC faced following the Housing and Planning act which ‘demanded the closing of houses which were declared unfit for human habitation’ and that the District Council ‘wanted to be assured that there was somewhere else for them to go’. It is stated that the condemned houses were let at a shilling or 1 shilling and 6d per week (5p to 7.5p). It was admitted that it was impossible to build at anything like that rental ‘without being a burden on the rates’.

They had approached the owner of a site on the Uley Road and ended up conducting discussions with Mr Vizard through his drawing room window overlooking the site with him posing the question pointing at the land ‘Now, if this was your house would you like to sell that field?’ Consequently, he was not prepared to sell at any price. The idea of compulsorily purchasing the site had been gone into but it transpired that compensation would have had to be paid for the devaluation in the house overlooking the site.  Another site was now under consideration and it was hoped to reach agreement with the two owners but it would be necessary to remove a rubbish tip.

Sir Ashton Lister, Managing Director of R A Lister & Co and later Liberal MP for Stroud, 1918-1922

An argument against funding the housing was advanced suggesting that the ‘firm that imported the labour which overcrowded the town should provide the dwellings and the Parochial Committee should ask them.’ Counter-arguments claimed that workers should not have to live in houses provided by their employer.

Later in the debate Sir Ashton Lister spoke on behalf of the engineering firm stating they were not the only employer in the town and that ‘if the town did not think the building would be in the interest of the town, then they should not endorse the scheme’. In the discussion he commented that the firm had erected 64 houses and bought 20. Lister also believed there was a need for a further 50 houses in the town.

Houses in the completed scheme on Upper Poole Road

Despite the passion and heat of the debate the meeting was brought to a close with a unanimous decision to request the DPC to prepare a scheme. (2)

By July an Inspector from the Local Government Board visited the town and was accompanied by a large group of local councillors and inspected some housing sites, the preferred site in two separate ownerships of a Mrs Poole and Bristol Corporation – hence the scheme being in Upper Poole Road.

This contemporary map shows the two sites eventually chosen for the scheme.

Agreement had been reached with Mrs Poole but Bristol Corporation were reported to want a ‘ridiculously high value’ on their land. The inspector was shown a variety of other sites including the garden of the workhouse. The report concludes by noting ‘the opinion of the Inspector was that there were two possible sites to choose from’ which are understood to be the Upper Poole Road site and the land they could not purchase at any price. (3)

It now transpired from an enquiry from a member of the House of Lords that the compulsory purchase powers could not be used to obtain the land from Bristol Corporation and John Burns had written that the Rural District Council had been advised to consider a smaller scheme or a slightly different site. (4)

Lower Poole Road

Later than month, a press report referring to the DPC as the Dursley Housing Committee noted that they wanted to persevere with the Poole Cottages scheme and would enter further negotiations with Bristol Corporation. It is suspected that these were fruitless and the scheme was designed to fit the land available, but ironically four or five years later Bristol flogged off the whole of their Dursley land holdings by auction. (5)

It was reported in November 1912 that 150 architects had applied for particulars of the design competition. The rent was not to exceed 4 shillings and 6d (22.5p) and the accommodation was specified as being one living room, three bedrooms, kitchen, scullery with bath and also larder, etc. (6)

Upper Poole Road

Later in the month Arthur Probyn, a 46 year-old architect and surveyor from Gloucester, was announced as the winner. It transpired later that his was one of 40 designs submitted. (7)  From newspaper reports, Probyn undertook works for various organisations mainly in Gloucester including the Gloucester Cooperative Society, the Gloucester Royal Infirmary (at their original Southgate Street premises) and he was one of seven architects engaged on the Tuffley housing scheme in 1920. He was also architect for a school hall for Dursley Tabernacle completed in 1914 and perhaps this scheme meant he was a known quantity. (8)

When it came to the official Board of Health loan sanction inquiry held in March 1913 before the same Inspector who had considered the appropriateness of the site chosen there were no formal objectors. However, Mr Loxton, a member of the Rural District Council who had provided critical challenge to the project, explained some of the deficiencies that had been considered to exist in the scheme including whether the site was sufficient for the number of houses and whether the scheme could be built within the estimated costs.

Upper Poole Road

When the tenders came in in August 1913, all of the tenders exceeded the original estimates. As is often the case, the cheapest from S Williams & Sons of Bristol at £7030 did not represent good value as it excluded the cost of roads and drains. W J B Halls Gloucester £8050 was the next lowest with the highest of seven including being nearly £10,000. One bid had been from Lister & Co, suggesting they had their own building team. It is interesting to note that the actual tender costs all appeared in the newspaper, transparency indeed! Even with Halls’ tender the consequence was to increase both the loan for the scheme and the proposed rent from 4s 6d to as high as 6 shillings.

Given the high level of democracy attached to the scheme, a parish meeting was held to ascertain the views of ratepayers and this is reported at length in the Gloucester Journal. Much of the debate focused on the rental costs with, for example, Arthur Shand arguing that the ‘rent was too high for the working man of Dursley’ and Mr A S Adams suggesting ‘the council would be catering for an entirely different class of people to that which was originally intended’. There were some voices that the Council should abandon the scheme.

Upper Poole Road

The result was that the DPC was asked to go away and find a way to build the houses for rents of 4s 6d, which was way off the original concern felt by Council members back in January 1912 – perhaps showing that the council by inclusion had taken the community with them. It is notable that, despite the contentious nature of the meeting, it was unanimous in thanking DPC ‘for their labours on behalf of the working men of the town’. (9)

In the face of community protest, which wanted low rents, local industrialist Sir Ashton Lister, owner of an expanding engineering factory and later a Liberal MP, dipped his hand in his pocket and gave £500 on condition rents were 5 shillings a week. (10)  Was this an act of ‘charity’ that his Party in Parliament condemned or enlightened self-interest – perhaps the latter as he had already supported the provision of housing by his company.  Consequently, when the matter came before the fortnightly meeting of the District Council, it was agreed to make application for an increased loan of £7852 to enable the housing scheme to be built. (11)

The contract which was let to Halls of Gloucester provided for the first block of four houses to be completed by 31 January 1914 and then two houses to be handed over every two weeks until the scheme was completed. An attempt was made to invite John Burns MP, President of the Local Government Board, to inaugurate the housing scheme but he advised the Council he was unable to attend. (12)

Upper Poole Road

If you do your maths that means the last two were due to be handed over on 26 September 1914 but completion of the scheme wasn’t reported until January 1915, suggesting that there were some delay in completing the scheme. The newspaper columnist was able to report, ‘It has been stated on good authority that no better housing scheme has been formulated under the Housing and Planning Act anywhere in the country.’ (13)

To be frank, as the 38 houses had been shoehorned into the available land with 28 on one site between Upper Poole Road and Lower Poole Road and the remaining ten a short distance further up Upper Poole Road, it was not an adventurous design. It does not have the smart landscaping of later developments like the Circle in Uplands Stroud but this collection of eight terraces of four houses along with three pairs of semis, all built in very solid red brick, was a well-designed scheme with large windows to provide plenty of light.

An early post-war scheme, built in the 1920s. The Circle, Uplands Stroud. The Gloucestershire and England cricketer Jack Russell learned to play the game on the green.

As such it is perhaps a story of opportunity and chance that Dursley was one of a handful of Districts in Gloucestershire to have built council housing before the war. In fairness, the actual numbers built were pretty small but it is important to recognise the widespread way in which councils of all complexions had started to develop the aspiration that they could respond to local needs by increasing the supply of homes for the working class.

I’m not such a curmudgeon that I don’t think we shouldn’t celebrate Lloyd George’s Homes Fit for Heroes or the sea change achieved by Addison’s 1919 Act. But we also need to celebrate the heavy lifting of John Burns and the pre-war campaigners that created the environment in which building local democratically-controlled council housing was accepted as the obvious policy choice for a post-war Government to encourage.

Chas Townley (chas.h.townley@gmail.com)

Sources

(1) Gloucestershire Chronicle, 6 January 1912

(2) ‘The Housing Question in Dursley’, Gloucester Journal, 16 March 1912, p3 

(3) ‘Dursley: The Housing Question’, Gloucester Citizen, 24 July 1912, p3 

(4) ‘Dursley Housing Scheme Local Government Board’s Suggestion’, Gloucester Citizen, 8 August 1912,  p5  

(5) ‘Dursley: Dursley District Council’, Gloucestershire Chronicle, 31 August 1912′  p2 

(6) ‘General News: Dursley Housing Scheme’, Gloucestershire Echo, 5 November 1912, p3 

(7) Gloucester Journal, 1 February 1913,  p11

(8) ‘Gloucester’s New Houses: Some Rapidly Nearing Completion’, Gloucestershire Chronicle, 4 September 1920, p6. Also Cheltenham Chronicle, 8 July 1914

(9) ‘Dursley Housing Scheme Parishioners Disapprove’, Gloucester Journal, 23 August 1913, p11 

(10) ‘Timely Gift of Sir A Lister Dursley Housing Scheme Rescued’, Cheltenham Chronicle, 6 September 1913, p7 

(11)’Dursley Guardians and District Council’, Gloucester Journal, 6 September 1913, p11 and also ‘Sir A Lister and Dursley Housing’, Evesham Standard & West Midland Observer, 27 September 1913, p6 

(12) Gloucester Journal, 21 February 1914, p10

(13) Berkeley Vale Gleanings: Dursley Housing Scheme’, Cheltenham Chronicle, 9 January 1915, p3  

The Dursley Housing Scheme, 1912, Part I: Housing Reform before the First World War

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Dursley, Pre-1914

I’m delighted to host this article by Chas Townley which is not only a fascinating account of some early council housing in Dursley, Gloucestershire but a significant contribution to the debate around the significance of a pre-war spurt in council house construction pre-dating the 1919 Housing Act. This first post examines the background to the scheme; the follow-up will examine the scheme in detail.

Chas is a Labour District Councillor on Stroud District Council, a ‘no overall control’ authority in Gloucestershire. He is currently chair of the Housing Committee. Chas has formerly worked in housing for both councils and housing associations and previously managed the Supporting People Programme in a unitary council. He is a member of the Chartered Institute of Housing.  He is a local historian and genealogist and has written on a variety of subjects including Chartism, Cooperatives, land clubs and building societies, and the Poor Law and pre-NHS health provision.

I have the privilege to be Chair of Housing at Stroud District Council which this year has been a housing provider for 105 years, despite still only being 45 years old!  This arises from the construction of 38 working class cottages by Dursley Rural District Council, one of seven pre-1974 rural and urban districts which served our patch. (1)

While it remains a housing provider the council has not built at scale since schemes were planned in the late 1970s, although we have delivered a programme of new council homes over the last five or six years, mainly to replace defective housing or utilise sites in Council ownership. We aspire to more but this isn’t the place to write about the future.

Dursley at around the time of the First World War

As a local historian, I am presently trying to piece together the motives that drove at least four of our predecessors to actively contemplate housing schemes in their areas in the Edwardian era. In addition to the Dursley scheme, two other sites at Wotton-under-Edge and Stroud had been purchased already and active discussions were taking place elsewhere, before the skids were put on further progress by the chaos of war in August 1914.

While at first glance the Stroud District is very much a rural area with stunning landscapes in the Cotswolds and the world-renowned Slimbridge Wildfowl and Wetlands on the Severn Estuary, it has an industrial heritage to compete with places like Ironbridge or the Black Country. Maybe I’m just a little biased but we have a fantastic industrial heritage story.

The Budding lawnmower patent © Museum in the Park, Stroud (2972/2)

Near Stroud, Edwin Budding invented the lawnmower, developed from machinery in the cloth industry. If that wasn’t enough, he also gave us the adjustable spanner; What good toolbox is without one of those?

Two coopers outside the Lister Churn works © Museum in the Park, Stroud (1975.131)

In the south of the District, the growth of Dursley had been greatly influenced by the development of RA Lister and Co as a major engineering company famed for its diesel engines which started life as an agricultural implements company in 1867. Sadly what little remains – not even based in Dursley – is a minuscule reminder of the past successes of its enterprise and innovation.

Much of the industry was linked to the woollen industry and our council offices are a converted mill – as is the headquarters of Renishaw, a world leading engineering and scientific company. The last remaining cloth firm, once famed for its scarlet for military uniforms, remains in production producing vibrant yellow and green for tennis and snooker.

And perhaps it is worth remembering that the industrialisation of the weaving industry was the start of a long tradition of active trade unions defending the rights and working conditions of employees.

Collectivism also extended to strong support for the Cooperative movement and some towns and villages at one time boasted 50 percent participation. The main society in the area, the Cainscross and Ebley, in addition to renting out cottages also supported home ownership. Fifty loans had been granted, mostly in the Dursley area, perhaps indicating this was an area with enormous housing demand, but this activity was small fry – the neighbouring Gloucester society claimed to have given out 700 loans! (2)

Bramwell Hudson, photographed in 1912 as General Manager of the Cainscross and Ebley Cooperative Society

The links of industrialists to our predecessor councils are well known but it is worth remembering that our councils represented all shades of opinion – as they do today. Bramwell Hudson, the inspirational general manager of the Coop for much of the early years began his sixteen-year stint as Chairman of Stroud RDC on his retirement from the Coop in 1928.

Margaret Hills, photographed as a suffragist speaker and campaigner in Manchester, 1909

And, of course, we find amongst the women on our councils Margaret Hills, who learnt her political craft in the suffrage movement. She too was inspirational and could hold a packed Manchester Free Trade Hall audience in the palm of her hand. As Stroud UDC Chair of Housing, she developed housing for older people back in the early 1930s.

While this article is relatively early thoughts on our predecessors’ initiative, I am convinced they were responding to a housing crisis which is probably of as great an impact as we face today; Gloucestershire’s inspirational community action was not some isolated action but part of a national response to a growing crisis. For example, in the 1917 debate about whether Gloucester City should support an initial 200 dwelling post-war scheme, in response to Government requests, Councillor Fielding (a partner in the now lamented Fielding and Platt Company) highlighted a successful housing scheme undertaken by Hereford City Council. (3)

The Government Minister who created the impetus for action was John Burns, a trade unionist who served as President of the Local Government Board from 1905 until 1914 when he was moved to another Ministry. As a pacifist, he inevitably resigned from Government on Britain entering the Great War and never again played an active part in national politics.

John Burns MP, President of the Local Government Board, c1911

Burns’ influence on housing policy and the wider ‘activist’ role for local government before the Great War is underrated. In part, this is because he did not make the transition to the Labour Party and remained as a radical in the Liberal Party. On the other hand, there are significant anti-Semitic character flaws which do not make for comfortable reading today.

In the period before Burns there had been considerable complacency about poor housing conditions. When Rider Haggard (Yes, he of King Solomon’s Mines) visited Gloucestershire as part of national agricultural survey in 1901, he interviewed Dr Martin, the Medical Officer of Health for a combined area covering three councils in the Stroud area. Haggard reported that: (4)

The cottages were fair with good gardens, and there were few cases of overcrowding; still he had been obliged to condemn some of them.

Martin’s own Medical Officer of Health reports for this period are similar in tone with a degree of blame on tenants for poor conditions. (5)

Burns, through the Housing and Planning Act 1909 (which our Dr Martin had claimed ‘was one of the most important public health Acts of recent years’), instigated systematic inspection of housing conditions in the whole area of each District. This had been actively opposed by one of the local government associations of the day and one of Dr Martin’s employers, Stroud Rural District Council, joined the campaign to oppose this as they thought it was an unneeded imposition on the council and there was nothing to see here.

The personal interest in housing reform of John Burns is illustrated by this signed copy of an influential book of the time.

Systematic inspection had instant results. In Bristol over 1000 unfit properties were found in the first year, many were improved but 110 were closed, an astonishing increase on the average of just twenty in previous years. Perhaps, a lesson from history as to why we need to rediscover the zeal for high levels of inspections of housing standards? (6)

While it is difficult to be certain of the numbers in Gloucestershire rural districts the language used in annual reports of the Medical Officers of Health significantly changed to one of heightened concern with poor housing conditions and a failing housing market, with carefully crafted polite encouragements to members to act, usually based on external evidence. (7)

Such appointments were precarious before one of Burns’ reforms as they served at the (dis)pleasure of the council, often relying on annual reappointment. In Gloucestershire one such victim was Dr Thomas Bond who was sacked by Sodbury Rural District Council in 1905. He retained the confidence of other employers and had the temerity to write about his grievous injustice publicly. His cause was taken up nationally and eventually he was reinstated following Government action. (8)

Within Stroud area there is also strong evidence of political campaigns by Liberals, Conservatives and the relatively new Labour and Trades Council to advocate for council housing in the period from 1910 onwards rising with intensity to copy Dursley and also Cirencester. (9)

In the Stroud Rural District, under pressure of campaigning, surveys had identified an urgent need for additional lower cost housing in five of seventeen parishes. In the case of the village of Minchinhampton, the cause was blamed on the number of properties owned by ‘weekenders’ who then remodelled cottage properties to their needs – apparently at the expense of local manual workers. The impact of second homes remains of concern today across many rural areas like the Cotswolds. (10)

An odd feature of Rural Districts was the allocation of some costs as ‘special expenses’ rated on specific areas of the District – usually but not always a whole parish. This approach resulted in cost shunting the risk of deficits on specific housing schemes to relatively small groups of ratepayers. Consequently, schemes were limited to parishes that were prepared to meet the additional rate costs.

Frank Gwynne Evans, was the Stroud Constituency Liberal prospective parliamentary candidate for the impending 1915 General Election (which never took place due to the war). As a member of Stroud RDC and he argued that if the cost was spread across the district the amount would be ‘infinitesimal and would be repaid in short time by the relief of the poor rate, chronic rheumatism and consumption’. Such arguments as this for collective sharing of costs led to the creation of the Housing Revenue Account as the blessing and curse that we enjoy today.

On a national scale the support for council housing led to several attempts to provide better finance systems, including a recognition for the need for government grants to local authorities, rather than permissions to borrow on the security of the rates.

There are of course interesting modern ironies of positions then taken.  The debate on the Housing of the Working Classes Bill 1912, a private member’s bill sponsored by a Conservative MP, advocated subsidised rents, national grants, transfer of functions to county councils and a significant degree of central control. It was opposed in debate by a succession of Liberals who derided subsidies as ‘charity rents’. In one case a member arguing they would ‘destroy private enterprise altogether’. There were also references of returning to the dependency created by the old poor law some eighty years before. (11)

Some of the Conservative MPs argued that the level of new council housing building was too low to replace the houses lost under the compulsory inspection of housing conditions. In part this appears to be part of a strategy to question the justification of focusing on increasing standards at a time of housing shortage as well as trying to embarrass the Liberal Government for their failure to meet needs.

The relatively small number of Labour members described as occupying seats ‘below the gangway’ – which has been the traditional home of minor parties for generations – supported municipal housing with a passion and perhaps an ideological zeal. George Lansbury in his contribution stated ‘quite cheerfully I shall go into the [Tory] Lobby in support of the second reading.’ And, of course, the reason there are no female voices in this debate is that women were still fighting to be admitted to our legislature.

That bill, like so many private members’ bills even today, suffered the indignity of not making progress as the Liberal Government of the day refused to support a money bill, leading to its demise. A question I know not how to answer is whether, if progress had been made, would the Griffith-Boscawen Act have been a notable housing act? Perhaps it was bound to fail?

A taster for next week’s post: some of Dursley’s completed housing on Lower Poole Road

Next week’s post, however, will examine the successful scheme commenced in Dursley before the First World War.

Chas Townley (chas.h.townley@gmail.com)

Sources

(1) These are the Urban Districts of Stroud and Nailsworth and the Rural Districts of Stroud and Dursley and parts of the Thornbury and Gloucester Rural Districts. Additionally, a 1991 boundary review transferred Hillesley and Tresham formerly in in the Sodbury Rural District from the Northavon District to Stroud.

(2) Unpublished research by Chas Townley on Cainscross and Ebley Cooperative Society based on society records at Gloucestershire Archives (D2754/2)

(3) ‘Gloucester City Council: The Housing Question’, Gloucester Journal, 29 September 1917 p7. This proposal eventually became the original scheme of 200 post-war homes built in Tuffley in the south of Gloucester. 

(4) Rider Haggard, Rural England: Being an account of agricultural and social researches carried out in the years 1901 & 1902 (Longmans, London 1902)

(5) See for example Dr H Martin, MOH Annual Report to Stroud UDC 1909 where he considers the condition of working class housing is generally good and notes “but of necessity in so large a town a certain number of houses are in an unsatisfactory state owing to neglect on the part of either the owners or the occupiers”. Wellcome Archive

(6) Dr DS Davies, Bristol City Council, Medical Officer of Health Annual Report 1912. Available online at the Wellcome Library

(7) Dr O Andrews,  Medical Officer of Health Annual Report 1913;  West Gloucestershire United Districts Housing and Planning Conference Report p14. Online at Welcome Library

(8) Dr Bond, letter concerning Chipping Sodbury Council and Dr Bond

(9) Petition to Stroud RDC by Stroud Trades and Labour Council reported in ‘Housing Problem in Stroud District Special Committee’s Report’, Cheltenham Echo, 24 April 1914, p3. Also Stroud  Conservative Workingmen’s Debating Society considered a paper on building council housing at one of their regular meetings in 1913.

(10) ‘Housing Problem in Stroud District  Special Committee’s Report’, Cheltenham Echo 24 April 1914, p3 

(11) Housing of the Working Classes Bill Second Reading Debate, Hansard Vol 35 Col 1414-1494, 15 March 1912. 

 

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

Tags

Penshurst, Pre-1914, Rural council housing

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

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.

‘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

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.

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’.

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: 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.

 

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.

Interwar homes on Smarts Hill

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.

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.

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.

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

Tags

1920s, Devon, Non-traditional, Rural council housing

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.

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.

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)

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.

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)

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)

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)

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.

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.

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)

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.