Sedbergh: ‘the luckiest town in the country with regard to housing’

01 Tuesday Nov 2022

Posted by Municipal Dreams in Cumbria, Housing

Tags

1920s, 1930s, 1940s, 1950s, 1960s, Sedbergh

In 1947, the Yorkshire Post declared Sedbergh ‘the luckiest town in the country with regard to housing’. (1) In the midst of a national housing crisis, no new council homes had been built in the district since the end of the war and apparently none were needed. Nevertheless, Sedbergh had built before the war and would build substantially in the 1950s and 1960s. The story of council housing in the district is therefore both representative of wider rural dynamics and unique to the town.

Sedbergh in an Ordnance Survey map of 1920 (surveyed in 1912). Reproduced with the permission of the National Library of Scotland

Sedbergh might be best known today for its independent school or as a ‘book town’ conveniently placed for visitors at the western edge of the Yorkshire Dales National Park, close to the Lake District. Until 1974, it lay in the West Riding of Yorkshire, administered by Sedbergh Rural District Council (RDC). Now it lies in Cumbria within South Lakeland District Council. It’s all change again in April 2023 when a new unitary authority Westmorland and Furness takes over. It’s a small town (the population of the Rural District stood between 3- to 4000 for most of the last century), significant historically for farming and woollen production but prospering today, as those past staples have receded, as a local centre of commerce and tourism.

In 1914, when traditional industries still held sway, the Local Government Board – as part of a significant national drive to increase the rate of council housebuilding – had urged the Council ‘to build cottages for the working classes owing to there being a scarcity in the neighbourhood’. By June, the RDC had responded positively, purchasing land in the town (with plans to buy more in the neighbouring hamlet of Millthrop) and commissioning Kendal architect John Stalker to design a scheme of twelve well-equipped houses, each with: (2)

a good living room, scullery, pantry, store closet, w.c., and coal house on the ground floor, and each cottage will have a separate wash house with washing copper. On the chamber floor there will be three bedrooms and clothes closets.

Scarcely six weeks later, the outbreak of the First World War forced other priorities. The plans were abandoned and, perhaps more surprisingly, were not initially revived at war’s end when Christopher Addison’s 1919 Housing Act was passed to fulfil prime minister Lloyd George’s promise of 500,000 new ‘homes for heroes’.

Sedbergh bided its time but its housing needs remained pressing, albeit small-scale. According to the Council’s Medical Officer of Health, Francis Atkinson: (3)

The houses, which are stone-built, are many of them old in type and congested on site, making it impossible to carry out adequate improvements. In Sedbergh town there are many yards branching off the narrow main street, in which the houses are small and congested, and deficient in ventilation and sunlight.

An aerial view of Sedbergh, 1929. The new Fairholme development can be seen clearly at the upper left of the image. © EPW026569, Britain from Above

A postcard view of Fairholme, undated but pre-war. Note the hedges and well-tended gardens © Sedbergh and District History Society

This early view of Fairholme captures well its setting beneath the Howgill Fells that Alfred Wainwright described as resembling ‘sleeping elephants’ © Sedbergh and District History Society

Given the number of houses that might be declared unfit, it was ‘decided that the [Government] subsidy might be required for 30 houses’. In 1925, the Council purchased five acres of land to the immediate north of the town on what became Fairholme and engaged Mr A Knewstubb of Penrith to prepare a layout and plans for six houses; 18 more were planned for the following year.

The Council’s second scheme of around 40 semi-detached and terraced homes at Havera was completed in 1935 – the date is recorded on a plaque in the gable end of a semi-detached pair of houses at the top of the street. The name is derived from the Saxon word ‘haver’, a hillside where oats were grown.

Elsewhere attention turned to reconditioning of existing homes in poor condition. Today, Millthrop is a picture postcard settlement of quaint stone cottages. In the 1930s, most of these were rural slums. Sedbergh’s application for a grant to finance improvements to 17 homes under the 1926 Housing (Rural Workers) Act was refused by the West Riding County Council (which administered the scheme locally) but, in this instance, the owner was prevailed upon to make improvements. Their scale – new floors, roofs and windows, internal redecoration, a new water supply, pail closets replacing privy middens (still no sewerage note) – is a reminder of the appalling conditions prevailing in many rural homes at the time.

Former council homes at Bridge End Field, Millthrop

An article published in the ‘patriotic’ John Bull magazine in May 1936 had publicised the case of an ex-serviceman, his wife and nine children living on the moors three miles out of town ‘in a wooden hutment the exact size of which is 30 feet long and 10 feet wide! No proper sanitation and no water supply’. Applications for council housing had failed as Sedbergh had no home big enough to house the family.(4) Perhaps this prompted the council to build two houses for large families living in unfit conditions on land purchased at Bridge End Field in Millthrop. The extensive back gardens signify a time when it was expected that rural tenants would grow a large part of their own food. (5)

By the outbreak of war in 1939, a total of 77 council homes had been built in the district. The war itself – as a result of Sedbergh’s relatively isolated position – increased housing pressures in the town. In August 1939, 126 children and 41 adults – mothers, teachers and helpers – were evacuated to the town from Bradford. (By the end of the year, just 41 remained in total; ‘generally the evacuees did not seem to take kindly to country life after town’, it was said.) In 1940, 70 children and 29 adults arrived, mostly from London. (6)

Sedbergh prefabs © Sedbergh and District History Society

A press photo, unknown date, of the Pinfold prefabs © Sedbergh and District History Society

These incomers were billeted in local homes but a more comprehensive response was required when, after the bombing of Coventry, Armstrong Siddeley opened shadow factories manufacturing aircraft components in local mills at Farfield and Millthrop. Workers and their families were accommodated in two estates of prefabricated huts to the south-east of the town in Maryfell and, a little further out, Pinfold. Army personnel undergoing training at the 11th Battle Training School, housed in the former Baliol Girls School, were also accommodated in Pinfold.

As the end of the war approached and the closure of the temporary factories loomed, the Ministry of Aircraft Production asked the Rural District Council to take over the management of the two estates. (7) In the event, the council took over the Maryfell estate, buying its 50 bungalows for £80 each, but not Pinfold where Whitehall had deemed the site unsuitable for permanent housing. (The Pinfold site is now a caravan park.) As war workers returned home, Sedbergh had a readymade supply of empty housing to provide to local residents. In 1947, it was reported that there were just six households on the council’s housing waiting list and that vacancies for council homes were advertised in a main street shop window.

The Daily Mirror report concluded: (8)

the Housing Committee, with no worries, can sit back and plan carefully. ‘When our plans are finally approved,’ said the clerk, ‘we can carry out a first-class building programme and not be troubled by present shortages’

The clerk, Mr W F Lee, spoke of a planned building programme of 114 permanent homes but, while the temporary prefabs of Maryfell would certainly need replacing in the near future, for the moment it was a scheme just to the north along Cautley Road and Long Lane that took priority. The Council invited tenders for the construction of 46 houses in July 1950 – 38 in Sedbergh, eight in Dent where six were set attractively around a green on Dragon Croft. Semi-detached and terraced housing was built in the short culs-de sac of Castlehaw and Thornsbank in Sedbergh.

Dragon Croft, Dent

These images from the 1970s show horses and traditional bow top caravans gathered on the green at the edge of Maryfell for the annual gypsy and traveller Appleby Fair. They are now discouraged from parking in or near the town. © Sedbergh and District History Society

The redevelopment of Maryfell came two years later with an initial tender for 24 two-storey houses and 36 flats in three-storey blocks. The estate was completed by summer 1956. Early tenants were apparently discomfited by its open-plan layout, unpersuaded perhaps when the estate’s architect, T M Jones, ‘pointed to the practice on many modern housing estates and said the best effect had been gained through the absence of fences’. (9) Nowadays, only traces of the estate’s former unfenced design remain, even fewer as Right to Buy has exerted its own form of privatisation.

Press photograph, 14 April 1961 © Sedbergh and District History Society

In 1961, after slow beginnings, the Council celebrated the completion of its 200^th home with due pomp when its keys were formally handed to Mrs B Douglas, the fortunate new tenant, by a group of local councillors.

Gladstone House and bungalows, contemporary photograph

The following year, reflecting a typical turn within rural council housing in catering increasingly to an older and poorly-housed population, the Council opened Gladstone House on Fell Close in the Maryfell Estate – eight new warden-assisted bungalows and four flats and a community room, adjacent to some existing accommodation for older people on the estate. The West Riding County Council, whose responsibilities covered the welfare of the elderly, contributed to the scheme’s costs.

It was, according to a local press report: (10)

obviously a much cheaper and more humanitarian way of dealing with the problem of caring for the old by giving them every comfort in their local environment, rather than to send them to a home, which is liable to have something of an institutional character and atmosphere, however well camouflaged.

In the mid-1960s, its last major development, the Rural District Council built 17 three-bed and two four-bed houses and 30 two-bed flats on Castlegarth, to the north of Long Lane. Marking a new relative working-class affluence, 18 garages were provided with a further 31 to follow. A new fire station, new police station and three new police houses – county council responsibilities – were built adjacent. (The fire station remains; the police station is now a funeral directors.)

In all this, Sedbergh RDC had become, in the words of that same press report, ‘one of the foremost local authorities in the North-West in its post-war housing development’. The town’s extensive new housing catered to the wider district as well as established residents; conversely some of the latter now found work in Kendal, many at K Shoes.

To conservation specialists, the town’s new eastern suburbs ‘present a bland appearance with “standard” house types that provide a harsh contrast alongside traditional stone buildings’ and it’s true enough that neither the town’s interwar council housing or, more particularly, its post-war made much effort to ‘fit in’ with a local vernacular. (11) Fairholme represents some of the best of interwar council housing; Havera, a decoratively pared down and presumably cheaper version of the same. The cream to grey roughcast, semi-detached pairs of the early post-war era are used fairly indiscriminately. At Maryfell, though the three-storey flats come as an initial surprise in this rural setting, standard housing is made more attractive by lighter colours and patterning, Castlegarth, greyer, appears rather stark by comparison.

On the other hand, it did all, of course, provide genuinely affordable housing meeting local needs. Currently, it’s estimated that around 12 percent of Sedbergh’s 1323 homes are second homes while, in recent times at least, rising house prices and declining social housing stock, have further limited the ability of lower-income residents or would-be residents to buy or rent local homes. It is reported that: (12)

families are moving out of Sedbergh to larger conurbations or to remote rural areas to access more affordable homes. Businesses of all sizes across all sectors have confirmed that both housing cost and availability is negatively impacting on their ability to recruit and retain staff.

Social rent housing isn’t a cost; it remains, as it ever was, an investment – both in the wellbeing of individuals and the vitality of local communities. Sedbergh’s past and present illustrate these lessons very clearly.

Note

I am very grateful to the Sedbergh and District History Society for providing information and resources to support this account and, as credited, some wonderful photographs to illustrate it.

Sources

(1) ‘Sedbergh Luckiest Town for Housing’, Yorkshire Post and Leeds Intelligencer, 27 January 1947

(2) ‘Sedbergh Housing – Council to Build Working Class Cottages’, Lancashire Evening Post, 19 June 1914

(3) Sedbergh Rural District Council, Annual Report of the Medical Officer of Health for the year 1925

(4) ‘Eleven Doomed to One Room’, John Bull, 23 May 1936

(5) Sedbergh Rural District Council, Annual Report of the Medical Officer of Health for the year 1937

(6) Sedbergh Rural District Council, Annual Report of the Medical Officer of Health for the year 1940

(7) Karen Bruce Lockhart, ‘Wartime Sedbergh – The Final Months 1945’, The Sedbergh Historian, The Annual Journal of the Sedbergh and District History Society, vol VII, no. 3 Summer 2020

(8) ‘Town That Has No Housing Problem Put “To Let” Notices in Shop Window’, Daily Mirror, 6 February 1947

(9) Press cutting, 26 April 1956, supplied by Sedbergh and District History Society

(10) Press cutting, 30 March 1962, supplied by Sedbergh and District History Society

(11) Sedbergh Conservation Area Appraisal Final Report for Public Consultation, December 2009

(12) Joanne Golton, Housing Growth in Sedbergh – Economic Assessment. Final Report, Autumn 2020

Bright, Breezy, Bracing Bridlington: Part 2

05 Tuesday Jul 2022

Posted by Municipal Dreams in Guest Post, Housing, Seaside Municipalism, Yorkshire

≈ 2 Comments

Tags

1920s, 1930s, 1950s, Bridlington

I’m very pleased to feature the second of two new guest posts from Peter Claxton recounting Bridlington Borough Council’s significant council housing programme and its vigorous efforts to promote the town as a seaside resort. (Peter has contributed earlier posts on the history of council housing in Cottingham.) 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 with particular emphasis on public health and housing.

…they were the best houses the Corporation had ever built, surpassing those in other parts of the town. (1)

In my previous blog I examined the varying fortunes of the two diverse parts of Bridlington, The Quay and Old Town during the nineteenth and first quarter of the twentieth century; a period that witnessed the start of municipal provision of housing for the working classes and support for the burgeoning leisure market. In this follow-up blog, I pick up the story as the demands placed upon the borough council by both the ‘local populace’ and ‘leisure interests’ intensify.

The actions of Bridlington Borough council during the 1920s mimicked those of many other seaside authorities. Bournemouth, Folkestone, and Southend had spent £171,000, £96,000, and £135,000 respectively on seafront attractions. (2) North of the harbour, new colonnade shelters and a wide deck promenade provided seating for 3000 people, as well as cover in the unlikely event of an inclement day by the North Sea. Nearby the new Beaconsfield tennis courts catered for the sportier type. However, further development of the north shore – as detailed in the Bridlington Corporation Act, 1920 – was scaled-back and attention switched to the south shore.

Beaconsfield tennis courts and colonnade shelters (EPW023156) ©Britain from A bove

South of the harbour, 1926 witnessed the opening of the art deco New Royal Spa Hall, built at a cost of £50,000. Sadly, the pleasures derived from visiting this attraction were short-lived. Also, the golf course was now in municipal hands and work had already started on a new sea wall south of the Spa. Completed in 1928, it was named after the Princess Mary.

New Spa Royal Hall 1926 (EPW023157) ©Britain from Above

Yet not everyone benefited from the new attractions and rising visitor numbers. One disillusioned council tenant questioned how: (3)

The town expects to get any rates when all the people who are staying here are in camps. There are many like myself who depend solely on visitors.

Although the change in the ‘holidaying habits’ of visitors affected many of the town’s residents financially, they also presented a new opportunity for the council. It quickly sought to accommodate campers on a purpose-built site south of the town. (4)

Committed to build on foundations recently laid, a lecture at the Spa Theatre by J.W. Mawson titled ‘Town Planning and the Future of British and Continental Health Resorts’ offered the council a way forward. (5) His father T. H. Mawson – once referred to as the Capability Brown of Empire – was a leading landscape architect and town planner. One-time president of the Town Planning Institute, he was offered the position of visiting lecturer following the founding of a chair in civic design at Liverpool University by Lord Leverhulme.

Engaged to formulate both a statutory town planning scheme and a comprehensive development plan for the town and sea front, neither came to fruition. Inter-authority wrangling over apportioning costs relating to the town planning scheme and the radical nature of the proposed town and seafront redevelopment scuppered the council’s ambitions. Fortuitously, the council engaged the services of a bright young architect, Percy Maurice Newton.

Previously employed by the Corporation of Hull, Newton’s work at Bridlington – initially in the surveyor’s department – did much to secure the town’s position as a leading east coast resort. In the Old Town during the 1930s, his work included housing off South Back Lane, Marton Road and Baptist Place. Of the latter, a council member noted, ‘truly practical houses always were beautiful, and he thought those houses came as near to that category as any in Bridlington.’ (6)

Bridlington, 1938. National Library of Scotland, reproduced under a Creative Commons licence

Of the 3000 houses built in Bridlington between the wars, 635 were by the council. Yet Newton’s influence on ‘civic improvement’ was to be seen in more than just housing. And in 1930 the opportunity to display his talent presented itself. A new town hall – to replace the harbourside one lost to fire – was proposed and would be strategically positioned between the two parts of the town. Built in the late Wren style, (7) by local firm Smallwood & Sons, the £34,000 build did not place a significant financial burden on local ratepayers. Support from the Unemployment Grants Committee at Westminster reduced the debt to £12,950. (8) Complete with council chamber, offices and ballroom, the building boasted a fan-assisted ducted heating system and rubber surfaced walkways to aid noise reduction.

But in January 1932 as the build was nearing completion, disaster struck the town. The 1926 New Spa Hall was also lost to fire. Newton was tasked with designing a replacement and the ambitious target of ‘opening for the season’ was set. Taking direct responsibility for the ‘build phase’, Newton ensured that the Spa Hall, built in 52 days, was ready for visitors by the end of July. His health suffered, and in response, an indebted council financed an ocean cruise holiday to aid his recuperation.

1932 Spa Royal Hall (EPW039058) © Britain from Above

Away from the seafront, Newton also designed a new Senior Elementary School. (9) Eventually catering for 800 children, the first phase of the St George’s School accommodated 400 boys and opened in 1935. The girl’s department followed in 1938. (10)

By the mid-1930s, the dated Grand Pavilion on the north shore was finally demolished. Newton’s 1937 replacement – regarded by some as his most aesthetically pleasing work – was built on the Victoria Terrace Gardens. It was later described as ‘visually … the most successful International Modern style building in East Yorkshire, [and] very much a symbol of a modern forward-looking resort.’ (11)

The new Grand Pavilion, photographed by R. Hartley

Bridlington, 1950. National Library of Scotland, reproduced under a Creative Commons licence

Across the road from the new town hall, the Newton designed Corporation Electricity showrooms opened in 1939. It was destroyed by enemy action in 1941 and later rebuilt. The municipal power station had closed in 1935 following the town’s connection to the National Grid.

With permission from Bridlington Local Studies Library

Seasonal visitor numbers increased significantly between the wars. With a resident population of around 20,000 during the 1930s, it was estimated that 60,000 visitors were in the town on August Bank Holiday 1935. (12) This was scant solace for the residents. Even the local fishing industry was in decline during this period.

Post 1945, the Corporation moved decisively in an attempt to alleviate the town’s two perennial problems, ‘winter unemployment’ and ‘lack of good housing’. To the south-west of the town a small industrial estate – for light industry – was built, and by the end of the decade, further industrial development would take place at Carnaby, on a former RAF airfield just to the south of the town. Yet in 1951, the town still had 13 per cent of males and 45 per cent of females employed in personal services compared to 4.5 and 20 per cent nationally. (13)

Attracting new industry to a seaside town often proved difficult. The possibility of a tannery – classified as a special industry – being established on the industrial estate was one such example. Deemed that it would have an adverse effect on the town’s major industry, leisure, the County Planning Officer remarked: (14)

A large proportion of the holidaymakers that come to Bridlington are desirous of leaving behind them such things as ‘special industries’ and would cease to come. If such were the case we might be left with a prosperous industrial estate but a decadent health resort.

There was after all, the title of ‘King of watering places’ to take into consideration.

With almost 1300 families requiring rehousing, the council compulsory purchased 86 acres of the Bessingby Estate. The award-winning West Hill estate designed by Clifford E. Culpin, welcomed its first tenants in 1949. (15) Close to 800 homes would eventually be built on the West Hill site; almost two thirds of the council’s post-war provision.

Proposed West Hill Estate site (EAW013984) © Britain from Above

As the council worked its way through its rehousing programme dark clouds were gathering. The well-established holidaying habits of the town’s loyal seasonal clientele were changing. Coach and rail travel still dominated through the 1950s, but when the axe fell on branch lines in the mid-1960s, Bridlington lost its direct link to both South and West Yorkshire. The motor car gave families the flexibility and freedom to choose alternative destinations. For some, sun, sand, and sangria beckoned.

By 1972 the council had completed its housing provision. Just over 1800 homes had been built by the local authority since 1913. But as with the demise of the Old Town 100 years earlier, Bridlington, yet again, had to re-evaluate its future. Local government re-organisations would come and go, borough status would be lost, and absorption into the area of the East Riding of Yorkshire Council would take place.

Today, many visitors are day trippers, others are owners of mobile homes or static caravans. The ubiquitous guest house still prevails, and the town continually seeks to find new ways to promote itself. Just as the words of a certain James Coates had 200 years earlier. (16)

Peers, knights, and squires, and dames repair
To bathe, and drink, and take the air.
Such situation on the coast,
Such air, such water, none can boast.

References

(1) Bridlington Local Studies Library, Annals 55

(2) Seafront regeneration briefing document, East Riding Archives, BOBR/2/15/4/518

(3) D. Neave, Port, Resort and Market Town: A history of Bridlington (Hull Academic Press, 2000

(4) Hull Daily Mail, 26 April 1933

(5) Hull Daily Mail, 16 February 1927

(6) Annals55

(7) D. and S. Neave, Bridlington: An introduction to its History and Buildings (Smith Settle Ltd., 2000)

(8) Hull Daily Mail, 10 May 1932

(9.) Hull Daily Mail, 18 March 1931

(10) Hull Daily Mail, 16 May 1938

(11) Neave, Port Resort

(12) Neave, Bridlington

(13) K. L. Mayoh, Comparative study of the Resorts on the Coast of Holderness. unpublished M.A., University of Hull, 1961.

(14) Hull Daily Mail, 1 March 1950

(15) Neave, Bridlington

(16) J. Coates, Bridlington Quay, 1813.

Bright, Breezy, Bracing Bridlington: Part 1

28 Tuesday Jun 2022

Posted by Municipal Dreams in Guest Post, Housing, Seaside Municipalism, Yorkshire

≈ 6 Comments

Tags

1920s, 1930s, Bridlington, Pre-1914

I’m very pleased to feature the first of two new guest posts from Peter Claxton recounting Bridlington Borough Council’s significant council housing programme and its vigorous efforts to promote the town as a seaside resort. (Peter has contributed earlier posts on the history of council housing in Cottingham.) 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 with particular emphasis on public health and housing.

Bridlington in winter is a silent place, where cats and landladies’ husbands walk gently down the middle of the street.

T. E. Shaw – Lawrence of Arabia – in his observations on 1930s ‘out of season’ Bridlington, highlighted a problem that beset – and still does to this day – many of our seaside resorts, the lack of year-round employment. (1) Twenty years earlier when the borough council first contemplated the provision of housing, the Medical Officer of Health laid bare the problem to be faced: (2)

The Corporation will have to be very careful in tackling this question in the future. As Bridlington is a seaside resort the majority of the working classes do not desire workmen’s houses but larger ones, so that their income may be largely increased by taking in visitors.

The task was further complicated by the fact that Bridlington was a town divided, as the old Local Board had noted: (3)

The Old Town is mostly residential and takes the bulk of the labouring classes, whilst The Quay is chiefly occupied by lodging houses and private residences.

Bridlington 1849-50, National Library of Scotland, reproduced under a Creative Commons licence

The arrival of the railway in 1846 came to represent more than just a delineation on a map, it influenced the fortunes of each part of the town. Bridlington Quay was no longer a ‘harbour of refuge’ for the coastal trade or the port through which much of the East Riding’s agricultural produce – predominantly malt – was shipped. And as a result, the Old Town to the north-west slipped into an interminable decline. Within a decade of the railway’s arrival the 600-year-old market was in a state of atrophy. The residences and offices of solicitors, bankers and merchants, intrinsic elements of a former vibrant agrarian economy, were by the end of the nineteenth century, but marcescent reminders of its former standing as a market town. Attestation to the area’s demise was further evidenced by a plethora of insanitary working-class dwellings.

Conversely , as a late nineteenth-century trade directory noted: (4)

Bridlington Quay a mean and insignificant village at the commencement of the present century, [is] now a small but handsome town and seaside resort, with all the comforts and conveniences which [a] luxurious age demands …

The Alexandra Hotel (built 1866), North Bay, 1928 (EPW023341) ©Britain from Above

The Quay, to the south-east of the railway, was the new face of Bridlington, offering entertainment for those that came ‘for the day’ or ‘stayed a week.’ It was, ‘the seaside resort nearest to most of the great centres of population of the West Riding.’ (5) It also attracted the commuter and by 1921, more than 2,800 Bridlington residents worked in Hull or the West Riding, with many residing in villa style houses that populated the new roads close to the seafront. (6)

As such, the work of the district council – declared a borough in 1899 – differed at each side of the railway, and by the outbreak of war in 1914, it had erected new housing in the Old Town, and at The Quay, entered the world of entertainment and leisure.

Poster c1913, © Science Museum made available under a Creative Commons licence

Following a visit to Joseph Rowntree’s model village of New Earswick in 1913, it was suggested at a council meeting that: (7)

Rowntree’s cottages in York, they were no doubt excellent in many ways but they could not be erected by the council at anything like the price … Garden Cities – they were not always suitable or satisfactory or cheap.

Words that clearly identified the problems to be faced by the borough council. There was no local benefactor ready to fund provision; agricultural wages were depressed, and other forms of employment predominantly seasonal. These issues would be reflected in the design and size of properties erected. Maximum weekly rents were to be in the region of five shillings (25p) per week, in fact the council hoped that smaller properties might be let at less than four shillings (20p).

Also, there were members on the council associated with the building trade, evidently nervous of the possibility of stepping away from traditional methods of construction. Letchworth was cited as an example, where as well as standard brick construction, alternative build techniques had been introduced. It was noted that ‘many were becoming cracked and [were] generally too-well ventilated.’ (8)

By 1914, the council had built 35 terraced houses – with ten allocated to employees working at the town’s power station – and twelve bungalows. Yet it suffered criticism regarding rents and in particular, the bijou nature of the bungalows for ‘old couples and widows.’ At 300 foot super the three-roomed dwellings were exceedingly small. As a councillor insensitively questioned, ‘How on earth was a fat woman to turn in a scullery such as was proposed …’ (9)

With the town’s sleeping population often quadrupling during the summer months, the sub-letting of rooms became an imperative for many families. (10) The council signalled acceptance of the practice confirming: (11)

[It] had no objection to the taking in of visitors. If they could make a little money that way it would help to pay their rents.

This was a perennial problem for both council and tenants. The council saw the wisdom in building smaller houses, thereby reducing the risk of unpaid rents during the winter months. Tenants were keen on larger properties to augment their income during the summer.

Bridlington, 1926. National Library of Scotland, reproduced under a Creative Commons licence

Ashville Street – council employee housing

Portland Place – council employee housing

Indeed, there were opportunities galore for those with spare room to let. The privately built New Spa south of the harbour attracted 80,000 visitors within a month of opening in 1896. (12)

© East Riding Archives – made available under a Creative Commons licence

The council responded to the lack of amenities on the North Shore in 1904, erecting a glass and iron Floral Pavilion adjacent to the bandstand on the Royal Princes Parade.

The Floral Pavilion and Bandstand – Bridlington Local Studies Library

Two years later it built the Grand Pavilion at the north end of the Royal Princes Parade. With a seating capacity for 2000, it was in the popular ‘oriental end of pier’ style favoured at many seaside resorts.

The Grand Pavilion – Bridlington Local Studies Library

Everything of course changed in August 1914. A provincial weekly publication summed up the town’s plight perfectly: (13)

But the place had a strangely deserted appearance, where it was usual to see thousands, there were only hundreds. You may write to half-a-dozen boarding houses, and find that any one of them can spare you a room or rooms…

The town’s Medical Officer of Health’s comments were far more revealing: (14)

Owing to the outbreak of war in August the season proved a failure, … there is no doubt that many spinsters and widows, who rely upon their income and livelihood to come from visitors, are on the verge of starvation.

In 1919, the council’s intentions were made clear when it purchased the 1907 Spa Theatre and Opera House, as well as the original 1896 Spa. The future of the town and its residents, rested with the development and promotion of the resort.

North-west of the railway, municipal attention turned once more to the town’s permanent residents. But the vagaries of employment in both agriculture and leisure remained. The local Master Builders’ Association continued its crusade for larger properties: (15)

What is needed in a seaside resort is a house of a rather larger type, with sufficient accommodation to enable tenants to augment their income by taking visitors during the season.

The council’s vision of the way forward, was however, diametrically opposed to that of local builders. There were to be no lavish plans for an inordinate number of large council houses each with spare rooms to rent out. A perceptible change in the ‘holidaying habits’ of those that came to stay for a week had been noted. Visitors were starting to choose, ‘… camp sites for cheaper holidays free from the irksome rules of boarding houses.’ (16) The age of the tent, converted railway carriages or buses, ex-army huts or wooden bungalows had arrived. (17).

A photograph taken by R. Hartley in the 1930s

In tandem with private provision, house building gradually brought the two parts of the town together. Following a modest build of twelve houses in 1921 on the aptly named Borough Road, construction of the Postill estate began two years later. By the middle of the decade the council had erected approximately 200 properties.

Sadly, an attempt to promote home ownership during the 1920s failed to gain traction. A proposed ‘purchase out of rent’ scheme attracted a mere six inquiries and was swiftly shelved by the council. (18) At the same time, a briefing document regarding the regeneration of the seafront reiterated: (19)

Apart from the fishing industry there are no established industries in the Borough which is purely a health and pleasure resort for the large industrial populations …

The document informed that visitor numbers arriving by train ‘during the season’ had risen from 216,000 in 1922, to 320,000 by 1925, (20) and the town had to move with the times. Visitors were now seeking, ‘… music and entertainments as evidenced by the popular craze for dancing.’ (21) It would take a substantial amount of money, approximately £100,000, and the council was convinced that this was the way forward.

Disappointingly, no matter how busy the seafront was during the summer, it could never sustain the whole town through the winter months. But, as we shall see in a follow-up blog, efforts to increase year-round employment proved contentious. And when ambitious plans for the regeneration of the seafront failed to come to fruition, a subsequent appointment by the council proved fortuitous.

References

(1) R. Knowles and P. Clabburn, Cats and Landladies’ Husbands: T.E. Lawrence in Bridlington (The Fleece Press, 1995)

(2) Borough of Bridlington Medical Officer of Health Report, 1911, wellcomecollection.org

(3) District of Bridlington Local Board & Urban Sanitary Authority Report for 1893, wellcomecollection.org

(4) T. Bulmer & Cos., Directory of East Yorkshire, 1892

(5) D. Neave, Port, Resort and Market Town: A History of Bridlington (Hull Academic Press, 2000)

(6) D. and S. Neave, Bridlington: An Introduction to its History and Buildings (Smith Settle Ltd., 2000)

(7) ‘The Housing Problem’, Bridlington Free Press, 31 January 1913

(8) ibid

(9) ‘12 Cottages to be built’, BFP, 20 March 1913

(10) Neave, Port Resort

(11) ’Visitors and Workmen’s Houses’, BFP, 26 September 1913

(12) D. and S. Neave, Bridlington: An introduction

(13) ibid

(14) Borough of Bridlington Medical Officer of Health Report, 1914

(15) ‘Boarding-Houses Preferred’, BFP, 1 March 1920

(16) D. and S. Neave, Bridlington: An Introduction

(17) ibid

(18) ‘Purchase out of rent scheme’, Hull Daily Mail, 28 April 1927

19. Seafront regeneration briefing document, East Riding Archives, BOBR/2/15/4/518

(20) ibid

(21) ibid

Council Housing in Llandudno: Part I, to 1939

31 Tuesday Aug 2021

Posted by Municipal Dreams in Guest Post, Housing, Wales

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Tags

1920s, 1930s, Llandudno, Pre-1914

My apologies for the lack of recent posts – I’m busy writing a second book. The blog will continue to be updated and, in the meantime, I’m very grateful for (and continue to welcome) guest contributions such as this. Matthew Evans, the principal author, works in communications within local government and has been assisted in research and writing by his father, Philip Evans, who has been a councillor on Aberconwy Borough and subsequently Conwy County Borough councils since 1976 and was twice Mayor of Llandudno, in 1983/4 and 2006/7. Many of the details of council minutes, personal details and recollections in this piece come from him. Most photographs (unless otherwise credited) have been kindly taken by the author’s sister, Kimberley Evans.

The context of Llandudno

Llandudno is today a popular resort town of 20,000 or so residents, known for its unique setting between the headlands of the Great and Little Ormes and its wealth of Victorian architecture. It is situated halfway along the coast of North Wales and lies around 45 minutes from Chester and under an hour and a half from the major cities of the North West of England; cities on which its economy has largely depended for 150 years.

It was the growth spurred by the Industrial Revolution and the income that generated – enabling people to enjoy leisure time and vacations – that led to the founding of the modern town in what had up until then been a small copper mining and farming village on the lower slopes of the Great Orme. This small village overlooked marginal grazing land on the isthmus separating the mountain from the mainland and which included the legendary marsh of Morfa Rhianedd. This marsh famously features in the ancient Welsh poem, The Tale of Taliesin, as the place from where the poet prophesied that a ‘monster’ would rise and ‘bring destruction on Maelgwyn Gwynedd’, the ancient King of Gwynedd. This marsh, now drained, is where much of modern-day Llandudno – and its council housing – is located.

The land around Llandudno had been owned by the Mostyn family of Mostyn Hall in Flintshire since around 1460, when Hywel ab Ieuan Fychan had married Margaret ferch Gruffydd, the heiress of the Gloddaeth estate, which lies about a mile outside the present town. Following this, the land around Llandudno lay largely undisturbed as an obscure and remote part of the Mostyn lands for hundreds of years. Only a few writers remarked on the place, most notably the travel writer Thomas Pennant, who in his ‘Tour in Wales’ of 1778 commented on the ‘beautiful half-moon bay of Llandudno’.

All this changed in 1848 when a Liverpool Surveyor, Owen Williams, stranded in Llandudno during a storm, saw the potential of the landscape and setting for a new resort for the newly wealthy middle classes. He shared his ideas with Lord Mostyn, who leapt at the idea, and the two set about building a planned model resort, and obtained the necessary Act of Parliament to start. Within 50 years, and greatly accelerated by the arrival of the railway in 1858, central Llandudno had become essentially the town we see today, with wide, well-planned streets incorporating all the architectural styles of the latter half of the 19^th century. The original plan called for a formal grid of streets, where the height of any building was not allowed to exceed the width of the street. Perhaps mindful of the poor living conditions of the big cities, no court or basement dwellings were permitted and the plan stipulated that ‘the town that is to be shall resemble, as far as practicable, the country’.

Llandudno Town Hall, designed for the Urban District Council by Silcock & Reay and opened in 1902 © John Boughton

All of these measures created an attractive, fashionable town that had many of the grandest hotels, shops and entertainment venues that the Victorian and Edwardian holidaymaker could find anywhere in the UK. But all of these pleasures depended on having a large working population close at hand to work in the hotel and hospitality industries. It was this need, both to ensure a large pool of labour, but also to house them in a way that befitted the town – and was in accordance with the rules of development – that led the local authorities in Llandudno to create the earliest social housing in Wales. A provision of housing for local need that has endured to the present day.

The first council houses

Llandudno can lay claim to having built the first council homes anywhere in Wales. The first 19 ‘workmen’s dwellings’ were built in Council Street, Llandudno in 1897 at a cost of £210 each.

The Minutes of Llandudno Urban District Council (UDC) give the background to the development and how events progressed, and they give an idea of the process involved in building council housing at this time. At a meeting of the Council held on June 17, 1896, the Minutes notes that members ‘Resolved that Part III of the Housing of the Working Classes Act 1890 be, and is hereby, adopted within the Urban District of Llandudno.’

The Local Government Board then held an enquiry in June 1896 to consider the Council’s request for approval to borrow money for the building of the homes. Construction was started in September 1896 and the Local Government Board queried why work had commenced prior to the loan sanction having been applied for. They required a fresh resolution to apply for the loan sanction.

This further resolution read: ‘That application be made to the Local Government Board for sanction to borrow £4357 for the purpose of carrying into effect Part 3 of the Housing of the Working Classes Act 1893 (sic) by the erection of 19 cottages in accordance with the plan and estimates prepared by the Surveyor and approved by the Council.’

In November 1896 the sanction was approved and the contractor was a Mr Hassell.

The scheme was not without its controversies however. The Minutes of the Workmen’s Dwelling Committee of February 22, 1897 record the Surveyor, E. Paley Stephenson, reporting on a series of accusations in the chamber from a Councillor John Owen, relating to the houses. The report states that Councillor Owen had clearly gone public on his criticisms and these comments were also printed in the Llandudno Directory and caused some outrage. The report and minutes note his concerns (all wording and punctuation as original):

They were as follows:-

That the fire-places were of common bricks.
That the floors were not concreted.
That the beam filling in party walls and eaves was not done.
That the roof is not water-tight, and that snow and rain would get through.
That the doors were ‘made in Canada.’
That the windows were bad and appeared as if ‘coming from the Transvaal.‘

The surveyor rejected or explained all these issues and noted there was ‘no liability on the contractor to get them [the doors] made in Llandudno, and they are good’. He seemed confused by the reference to windows from the Transvaal, observing: ‘though I do not know where they were made [they] are of fair workmanship’.

The Committee then paid a visit to see the claims for themselves and the next Committee Meeting of February 27 notes:

After a minute examination of the houses the Committee came to the conclusion they could not endorse the statements made by Mr. Councillor Owen, at the last meeting of the Council. On the contrary, they are of the opinion that the erections and workmanship contrasted very favourably with other property in Llandudno. Although inspected on a stormy day, after 12 hours almost incessant rain, the houses shewed no sign of rain having penetrated.

After this firm rejection of Councillor Owen’s criticisms, the Committee’s only other resolution that day was: ‘That the Council, as an experiment, be recommended to fit up ten of the dwellings with penny in the slot gas meters.’

View of Council Street, now Norman Road. Though appearing modern the structures are original, but have been extensively re-rendered twice © John Boughton

These first council properties were refurbished and converted into warden-controlled flats in the late 1970s. This involved re-rendering and each dwelling was converted into two flats, one accessed from the original front door of each property and the upper flat being accessed from the back, up a stairway. At that time the street was re-named Norman Road. The former name had become unpopular as the houses had declined over time and the houses on one side of the road had never, in fact, been council properties. However, the former name lives on in the western extension of the road, which is a light industrial area called Council Street West.

Despite the criticisms of the likes of Councillor Owen and the press reports of debates on the council, the Council Street scheme was just the start of social housing building as Llandudno looked towards the Edwardian era. On October 28, 1896, the Workmen’s Dwellings Committee dealt with negotiations to buy land for further housing from the Ecclesiastical Commissioners. Terms were subsequently offered by the Commission and accepted by the UDC to buy land for 69 cottages at a total cost of £13,661. This was a scheme in Alexandra Road, West Shore, but this part of the street was subsequently renamed as part of King’s Road.

The part of King’s Road constructed as an extension to Alexandra Road in 1897, 1900 and 1902

On January 28, 1897, the Workmen’s Dwellings Committee notes a Surveyor was authorised to arrange for a memorial stone with the following wording to be fixed in a convenient part of the building: ‘Workmen’s Dwellings erected by the Urban District Council of Llandudno 1897’

In May 1900, the Surveyor put forward a further scheme for erection of 28 houses and in April 1902 tenders were presented for a further 28 houses in Alexandra Road.

Homes Fit for Heroes

The Housing and Town Planning Act of 1919, commonly known as the Addison Act after the Minister of Housing Christopher Addison, laid the foundation for the large rise in council housing the country saw after the First World War. This was part of the call for ‘Homes Fit for Heroes’ made by Prime Minister David Lloyd George towards the end of the war. Llandudno Urban District Council moved quickly into action and decided to build further houses in West Shore. Llandudno was perhaps further spurred into action by the fact that David Lloyd George was the local MP for Caernarfon Boroughs (of which Llandudno was part). The first section of King’s Road was completed in 1920, with a commemorative stone laid on 8th October 1920 by Dame Margaret Lloyd George, wife of the Prime Minister; and Mrs E. R. Woodhouse, wife of the Chairman of Llandudno UDC.

The foundation stones of the houses built in 1920 laid by Dame Margaret Lloyd George and the wife of the Chairman of the UDC

The building of new council housing continued throughout the 1920s and 30s mainly in the West Shore area, in Maesdu (where the majority of council housing would take place after the war) and up the Great Orme itself. Rather than large estates, council developments at this time were mainly one or two roads in size, such as the adjoining Lees Road and Knowles Road. These streets were named after the Conservative politician, philanthropist and supporter of social housing and the Guinness Trust, Sir Lees Knowles, who died in 1928. In 1926 and 1934 Marian Road and Marian Place were built alongside the railway line around the same time that the UDC constructed its new bridge over the tracks linking Deganwy and Llandudno and replacing the level crossing that had hampered communications in the peak holiday season when Llandudno could see over 100 hundred trains a day passing in and out. The bridge also gave its name to the Bridge Road estate built around the same time. In 1934 Cwm Place was built, a development that would later be surrounded by the Tre Creuddyn estate, but which when built was somewhat isolated from the urban area of the town. The full list of developments at this time – always referred to as ‘workmen’s dwellings’ in the council minutes – shows the almost continuous building activity that took place:

1920 King’s Road
1922/23 Dyffryn Road
1923 Mowbray Road
1924 Knowles Road & Trinity Avenue
1925 Knowles Road
1925 Marian Road
1926 Maesdu Road & Maesdu Place
1927 Lees Road, King’s Avenue, King’s Place
1929 Bridge Road
1930 Ty’n y Coed
1933 Llwynon Road
1934 Cwm Place 33 houses and 3 flats
1935 Cwm Place 16 houses and 16 flats
1934 Marian Place
1935 Maesdu Road

The architecture of this housing evolved over the interwar years. Given the difficult economic context of the immediate aftermath of the First World War, the housing of 1920 in King’s Road housing is plain and simple, semi-detached houses with flat fronted and pebbledash render. By the middle of the 1920s, as can be seen in the following images, the houses became larger. The author’s grandmother, known to all her 13 grandchildren by her surname as ‘Nanna Breeze’, lived in a typical 1923 house of this type in Mowbray Road, indicated in the picture, from around 1970, until her death in 2006.

Houses in Mowbray Road, built in 1923, much of the interwar housing was of this type and standard – the author’s grandmother lived in the house left centre of the picture.

This house had a bay window with a recessed entrance porch, substantial lawned gardens front and back, three bedrooms, inside toilet and separate bathroom, kitchen, large hall with a staircase with 90-degree return, and a front parlour and separate back living room. I recall, even in the late 1980s when I was a child, the front room overlooking the road was reserved for special visitors and completely out of bounds for us children, even though visitors of sufficient quality for entry were few and far between. The back room, where all family life was conducted, faced south and used to become unbearably hot during the summer when, with our parents at work, my sister and I had to go and spend most days in the school holidays with our grandmother.

This picture shows my grandmother Sybil Breeze sitting in the Chairman’s Chair in the Llandudno Council Chamber when my dad was made a Freeman of the Town of Llandudno in the early 2000s. From this seat many of the decisions to build council housing in the town would have been taken.

She was a cleaner in a seafront hotel by that point (well over 70 years of age), but the management allowed my sister and I to sit and play in the guest lounge while she completed her morning cleaning shift. In the afternoons, back at her house, she would naturally have a nap and I would then often sneak quietly into the cool, north-facing front room – unknown to her and in total contravention of the visitors-only rule – to escape the stifling heat in the back room. Sorry Nanna!

A further style of house in Mowbray Road with front door at the side

Such was the quality of this housing that my Nanna recalled having been told by several residents that the houses had been built by a private developer that had gone bankrupt and had to sell his privately built houses to the council for social housing. This was a myth, however, as the Council minutes are clear that this high-quality housing was all planned and built by the UDC itself for working people.

Houses in Knowles Road showing the 1920s houses in the background compared to infill council housing from the 1960s in the foreground

All of this shows that by the eve of the Second World War, Llandudno had made great strides in rehousing substantial numbers of people within good quality housing, with genuine commitment and a pioneering attitude from local councillors and officers. After the Second World War, the inevitable pressures of housing need and changing styles would mean that housing was less substantial and generous in style than before the war. The continuing story will be told in next weeks post.

You can find Matthew Evans on Twitter @MattEvans170

High-Rise in Bristol, Part I to 1960

06 Tuesday Apr 2021

Posted by Municipal Dreams in Bristol, Housing

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1930s, 1940s, 1950s

Bristol had been transformed by council housing between the wars, as discussed in this earlier post. The City Council built over 15,000 new council homes, principally on nine new suburban estates. Together, they formed around 40 percent of the city’s new housing. It would be transformed again in the post-war period – new peripheral estates appeared but, most strikingly and obviously in the central areas, there were also the high-rise blocks which will form the central focus of this post.

There had been modest forays into multi-storey housing before the Second World War. Three-storey flats had been built to rehouse those displaced by a slum clearance scheme in Eugene Street in 1923 at Lawford’s Gate in Old Market and Eugene Street itself. A speech by Sir Hilton Young, Minister of Health and Housing, in Bristol in 1934 probably boosted local efforts. He urged that those displaced by slum clearance – in full swing as a result of legislative and policy changes in the decade – be rehoused centrally (near their places of work) and in flats; he counselled a somewhat sceptical audience to ‘go and look at what can be done in the way of tenement dwellings for wage-earners according to modern standards’. (1) Four-storey flats were built in Hotwell Road, Kingsland Road and Champion Square (St Pauls) in the mid- to late-1930s.

The Kingsland Road flats, St Philips, photographed in 1950 (Bristol Record Office 40307/1/35)

Around 3200 homes were destroyed in Bristol by aerial bombing during the Second World War but raised post-war expectations and a baby boom added their own urgency to renewed slum clearance and rehousing efforts after it. The first, unauthorised, response was a squatting movement which spread like wildfire across the UK; by October 1946, an estimated 1038 camps had been commandeered as emergency housing by almost 40,000 activists. In Bristol, squatters occupied a military base named White City near the Bristol City football ground. Local supporters were keen to stress their respectability: (2)

Their action was unusual, unconstitutional, but let no one think they are ruffians. They are ordinary people, they shave every day, eat at tables, go off to earn their own living.

Squatters at the White City camp. August 1946 (photo courtesy of the Bristol Radical History Group website)

The Labour-controlled Council itself was initially hostile – elsewhere some were positively helpful – but a prominent Labour member of the Housing Committee, Harry Hennessy, supported the action and urged those taking part to: ‘Sit tight. Carry on. Take no notice of rumours. The police cannot touch you’. Some of the army huts were acquired temporarily as council housing and most of the squatters had been permanently rehoused by 1950.

The temporary prefab programme, inaugurated in 1944, was an official state response and around 2700 of these temporary bungalows were erected in the city – the largest numbers (around 150) at a site in Ashton Dell and 127 in the suburb of Horfield.

Bristol Lord Mayor, Alderman Harry Crook, presents the key of the 5000th Easiform home to its new tenants (1955 Bristol Housing Report; Bristol Reference Library, B14100)

The city also went big on permanent prefabrication – the various systems that it was hoped might provide a speedy and cost-effective method of solving the post-war housing crisis. By March 1955, Bristol had built 16,704 permanent houses since war’s end; of these 10,892 were non-traditional – including 5415 Easiform homes made of in situ poured concrete and 1712 Cornish units of concrete post and panel construction. Less common systems nationally such as Unity (precast concrete and steel frame) and Woolaway (another form of concrete post and panel construction) were also built at scale. (3)

Traditional housing on Gatehouse Avenue, Hartcliffe (Bristol Housing Report 1959-1964; Bristol Reference Library, B14100)

It was these suburbs that provided the bulk of the city’s early post-war housebuilding. The Lawrence Weston, Henbury and Lockleaze Estates to the north were approved soon after the war; Withywood and Hartcliffe to the south started construction in the early 1950s.

The Council’s 1951 Development Plan reflected the thinking of the day in its emphasis on the neighbourhood units held to promote community on new council estates. But it marked also a renewed intention to redevelop central areas; it was estimated that there were 10,000 houses in Bristol unfit for human habitation and a further 25,000 that were substandard. The Plan envisaged 19,000 new homes by 1957 of which 10,000 would be flats.

It had been argued since the 1930s, as we saw, that inner-city slum clearance required multi-storey replacement – displaced residents needed to be near their place of work and flats were held to achieve a necessary higher population density. In the 1950s, the case was strengthened by what many councils perceived as a shortage of suitable land for housing (a ‘land trap’, as it was described contemporarily), created by new zoning regulations and green belts pushing peripheral suburbs inconveniently distant. Some councils were also loath to move their ratepayers and voters into neighbouring districts.

In this respect, Bristol, aided by a boundary extension into Somerset in 1951, was relatively well off but the perception of land shortage was a powerful one that influenced decision-making at the time. Patrick Dunleavy, the chief chronicler of Bristol’s multi-storey development, considers the 1956 high flats subsidy (which paid a higher amount the higher the scheme) another significant influence on Bristol councillors’ choice to build tall.

The Redcliffe Redevelopment Area (Bristol Housing Report 1959-1964; Bristol Reference Library, B14100)

Heavily-bombed Redcliffe, immediately to the east of the city centre, was one of the earliest areas selected for redevelopment when in July 1945 the City Council agreed proposals to redevelop the district as ‘a housing area for key workers’. Detailed plans for what Alderman Charles Gill, the powerful chair of the Housing Committee, called a ‘tremendous and interesting project’, were approved in December 1949. (4)

Images of Redcliffe newbuild taken from Cleave Barr, *Public Authority Housing* (1958)

Although reaching only a modest six storeys, this was an early showpiece scheme for the Council, planned to accommodate some 2500 residents in a mix of 775 one- to three-bed homes. ‘An outstanding contribution [was] the bold decision to provide a central-heating and hot-water system for all dwellings’, according to AW Cleave Barr – a district heating system, located in Canynge House, which ‘influenced the form of the scheme in the direction of a few very large blocks of flats and maisonettes, as opposed to a mixed development of flats and houses’. (5) A communal laundry, nursery and doctors’ surgery were also included.

Higher blocks, including the 13-storey Waring House, were completed in the area in 1960. A three-bed flat in the scheme could be rented for about £3.20 which included hot water, laundry and heating. (If you watched the 2020 BBC2 series A House Through Time on no. 10 Guinea Street, you will have seen the development at the end of the road.)

Barton Hill, to the east of the city centre, was another area targeted for redevelopment and controversy over the plans anticipated later difficulties. It was undeniably an area of old and inadequate housing but many of the residents – who felt themselves part of a respectable working-class community – resented the slum label and disliked the multi-storey alternative.

According to Hilda Jennings’ account of a public meeting called to discuss the plans in 1953 (Jennings was the warden of a university settlement in the district): (6)

Opposition to building in multi-storey flats was general; when one official, after expounding their convenience and the necessity for them, agreed that he himself lived, in a ‘nice little house’, the whole audience chanted ‘That’s what we want. A nice little house in a nice little garden, with a nice little fence around it’.

But, apparently, council officials were heard more sympathetically ‘when they claimed that the only alternative to building upwards was moving out to the overspill area’. In any case, the plans went ahead

Actual clearance and reconstruction took far longer. Barton House was completed in 1958; at 15 storeys, then the tallest block outside London. Two eleven-storey blocks (Phoenix and Eccleston Houses) were completed in 1961; four more fifteen-storey blocks (Longlands, Harwood, Corbett and Beaufort Houses) the following year. (Most of the present colour schemes date to a general refurbishment programme carried out in the 1990s.)

These were the balcony-access slab blocks, designed by City Architect, J Nelson Meredith, that Bristol favoured at the time. The blocks here, as elsewhere in the city, were, for all their prominence, placed individually so there were few dense concentrations of high-rise housing and no attempt to emulate the Zeilenbau schemes (arranged on a north-south axis to maximise sunlight) found elsewhere. (7)

Lower-rise blocks of six-storeys apiece in idiosyncratic Bristol-style – Tyndall House and John Cozens House – in the St Jude’s Redevelopment Area were begun in 1957. Two ten-storey blocks (since demolished) were built on the peripheral Lawrence Weston estate.

Winton House and Rockingham House, Lawrence Weston, photographed on a grey day in 1988 © Tower Block Project and made available through a Creative Commons licence

Overall, the share of high-rise in housing schemes approved by the City Council increased from eight percent to nearly 30 between 1954 and 1957. In 1958, the Housing Committee sanctioned a 12-year clearance programme that included plans to demolish half the houses in Easton ward and some 24,500 houses in total by 2001. (8)

These plans would prove more controversial and the political shift they helped bring about locally would have major consequences for how high-rise developed in Bristol in the 1960s. Those topics will feature in next week’s post.

Sources

The website of the Tower Block UK Project provides detail on high-rise public housing in Bristol and nationally.

(1) ‘Minister’s Speech on Housing’, Western Daily Press, 14 July 1934

(2) This and the succeeding quotation are drawn from Howard Webber, ‘A Domestic Rebellion: The Squatters’ Movement of 1946’. You can read more of Hennessy’s support for the squatting movement in this interview with Alderman Wally Jenkins recorded by Bristol Museums.

(3) The detail is drawn from the 1955 Bristol Housing Report featured in Bristol Festival of Ideas, Mel Kelly, Bristol Housing Reports: 1955-1959. A complete breakdown of surviving non-traditional housing in Bristol is supplied in response to this Freedom of Information request made in 2016.

(4) ‘Redcliff Hill Flats Plan to House Port Key Workers Goes Forward’, Western Daily Press, 20 December 1949

(5) AW Cleave Barr, Public Authority Housing (BT Batsford, 1958)

(6) Hilda Jennings wrote an account of the episode in her 1962 book, Societies in the Making. The quotation from it is drawn from Patrick Dunleavy, ‘The Politics of High-Rise Housing in Britain: Local Communities Tackle Mass Housing’, PhD thesis, University of Oxford, 1978.

(7) Stefan Muthesius and Miles Glendinning, Towers for the Welfare State (The Scottish Centre for Conservation Studies, 2017).

(8) Dunleavy, ‘The Politics of High-Rise Housing in Britain’.

A Housing History of Barrow-in-Furness, part II from 1918: ‘Ours must be a slumless city’

12 Tuesday Jan 2021

Posted by Municipal Dreams in Housing

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1920s, 1930s, 1940s, 1950s, 1960s, 1970s

We left Barrow last week just as its first public housing was under construction. These were homes – though not all justified the term – built by the Ministry of Munitions to house Barrow’s huge armaments workforce just as, it turned out, the First World War was drawing to its bloody conclusion. In 1917, the town’s Medical Officer of Health (echoing the Council’s official line), had argued that ‘the only solution for gross overcrowding is a scheme for the provision of houses carried out by the Ministry of Munitions’. By April 1918, the Council’s Health Committee had concluded that ‘it is the duty of local authorities to carry through a programme of housing for the working classes’. Much had changed and this post will deal largely with the council housebuilding programme that ensued, albeit in faltering fashion. (1)

Firstly, however, there was the problem of the two Ministry of Munitions schemes launched in October 1917. The Roosegate development of semi-permanent housing was built by the Ministry itself; 200 bungalows (of the 500 originally projected) were completed in 1918 – to almost universal obloquy. As one Barrow resident recalled, ‘they were one-roomed and two-roomed houses. It was just simply a box with a lid on’. Locals called the scheme ‘China Town’. In June 1920, the Health Committee warned of the ‘intolerable condition’ of its streets; by March the next year, the Committee described the housing as a ‘a threat to the health of residents’. Its closure was announced in July 1925. (2)

The second Ministry scheme at Abbotsmead comprised permanent housing, built by the Council under Ministry contract to designs provided by the latter. The estate’s layout was better though the houses themselves were criticised for their small rooms and poor build quality. A bigger problem was the proposed rent levels, initially set at an exorbitant 17s a week (85p) by the Ministry with the Council considering even reduced rents of 10-12s (50-60p) too high. The scheme was abandoned by war’s end with around half of the proposed 500 houses completed. Hopes that the Council might purchase the homes in peacetime were thwarted by cost; most by the mid-1920s had been sold to sitting tenants.

Despite acknowledging in March 1919 that ‘the provision of housing [was] one of its most pressing needs’ and despite the combination of generosity and compulsion offered by the 1919 Housing Act, the Council was slow to respond. However, belatedly in April 1920, it agreed proposals to build in 113 homes on Devonshire Road and 44 on Walney Island. Both schemes were largely completed in 1921.

Local as well as national politics had shifted. Labour gained its first majority on the Council in 1920 and would govern again between 1928 and 1931 and 1934 to 1938. An average turnout of 69 percent through the interwar period, peaking at 81 percent in 1925, shows how fiercely contested these municipal elections were. (3)

However, through much of this period, economics loomed larger than politics. With military orders withdrawn and facing unprecedentedly harsh international trading conditions, Barrow’s traditional industrial mainstays were decimated. By 1922, 60 percent of its shipbuilding workforce and half of its engineering workers were unemployed – 44 percent of its insured workforce overall. Vickers’ workforce fell from 23,000 in July 1918 to a low point of just over 3700 in 1923. Wage cuts forced a bitter engineering strike in the town in May 1922.

The new housing crisis was manifest in rent arrears and evictions, the latter sometimes fiercely contested as when 20 police officers were sent with bailiffs to enforce evictions in Vickerstown (where 800 tenants had been laid off and rent arrears approached £7000) in February 1922. In the 1920s, the Council’s preoccupation lay with collecting rents – reduced in 1924 from the already low levels of 7s 6s to 5s (37½ to 25p) weekly – rather than building anew.

A second major slump hit Barrow with the onset of the Great Depression in 1929 when at peak in 1931 some 7500 of the locally insured workforce was jobless. There was little female employment in the town to offset mass male unemployment. Rearmament in the later 1930s would restore the town’s fortunes whilst other of its former large employers in railway and locomotive building and metal founding closed permanently.

Flats on Thrums Street, Roosegate Estate

The Labour-controlled Council was able to commence one small building scheme in 1931 on land purchased from the Ministry of Munitions’ failed Roosegate development: 56 flats for elderly people on Thrums Street, followed by an adjacent scheme of 116 semi-detached houses finally completed in 1948.

The national shift towards slum clearance signified by the 1930 Housing Act and, in Barrow’s case more particularly, the 1935 Housing Act provided greater scope for the Council. Some 6384 homes were inspected under the surveys required by the latter legislation and just over half found ‘not in all respects fit for human habitation’ between 1935 and 1937. Applying overcrowding criteria, 887 homes accommodating 5475 persons were found overcrowded in 1937, equating to 6 percent of the town’s housing stock. Twenty-seven clearance areas were declared.

Barrow also suffered unusually from what might be kindly called ‘informal housing’ – shacks and tents predominantly on Walney Island’s western shore. Some of these were occupied by young people evading the household income provisions of the means test and the Council proceeded cautiously but 28 huts at Biggar Bank on Walney Island were cleared by 1939.

The biggest scalp, however, were the Scotch Flats in Hindpool discussed in last week’s post – tenement buildings dating to 1871 which were among the first of Barrow’s company housing. After two public enquiries, the Ministry of Health agreed the inspector’s decision to demolish in 1939 though – with war intervening – they were to survive till 1956.

From a low point of some 66,000 in 1931, Barrow’s population had increased to around 75,000 by 1940. Population pressures and increased finances encouraged the Council to embark on larger building projects in the later 1930s. The Risedale Estate was commenced in 1936; its 148 new homes were completed in 1948.

The Vulcan Estate, built on the site of the former Vulcan Ironworks in Salthouse, was built between 1936 and 1937 as a slum clearance estate to house those displaced from the Strand Clearance Area. Its relatively plain housing may reflect those origins.

Land a short distance to the north was purchased for the Greengate Estate, North and South, in 1937 but, with contracts for 180 houses and 54 flats not agreed till the summer of 1939, little progress was made before the war – just 18 houses in Greengate South were completed by February 1940.

The Barrow Blitz: Exmouth Street, May 1941

Some of those were damaged in the Barrow Blitz, two sustained bombing raids on 14-16 April and 3-10 May 1941. Ironically, the town’s heavy industry was relatively unaffected but some 83 civilians died and over 10,000 homes damaged. In Barrow, as elsewhere, the desire to build bigger and better in the post-war world was expressed as conflict raged.

Unsurprisingly, the Ministry of Health rejected immediate plans for rebuilding proposed by the Council as early as 1943 but the Borough Surveyor prepared further plans for Greengate South and a new estate of 900 homes in Newbarns – part of a vision announced by the mayor, Councillor GD Haswell, in November that year to create a ‘new post-war Barrow’. The Newbarns scheme was approved in May 1944.

The Council’s Barrow Development Committee, tasked with overseeing peacetime reconstruction, was clear on the ‘paramount necessity of suitably housing our people’:

The social benefits to health, education, family life and ‘moral well-being’ are of course ample justification for the provision of houses adequate in number, properly designed and located with ample accommodation. But even from an economic point of view ample and suitable accommodation is a valuable asset. The fact that we have the necessary labour to offer is enhanced in value greatly if we can show it is properly and suitably housed. Ours must be a slumless city.

As that ambition took shape, the town was allocated 400 temporary prefabs to help meet the immediate housing crisis in November 1944. Many of these Tarran concrete bungalows were erected in Tummerhill on Walney Island, replaced from 1956 by permanent housing; others dotted around the town survived longer. Permanent prefabs – in this case around 200 steel-framed British Iron and Steel Federation houses – were built by Laings on Park Road, and north of Chester Street and Bradford Street on the Ormsgill Estate. They were replaced in the mid-1970s as the estate continued to grow.

Earlier plans for the Greengate estates were completed in the late 1940s but Barrow’s new hopes were placed in the Newbarns Estate, planned to comprise some 800 homes housing around 3000. Post-war planning ideas around ‘neighbourhood units’ were reflected in the provision made for new churches, schools and recreation facilities though the promised tennis courts and recreation centre were never built.

Building continued apace with the Abbotsmead Estate completed in the mid-1950s and what was promoted as ‘a new town at Walney’ of over 2700 homes in the north of the island approved in 1953 where building continued into the 1960s. Some 2600 council homes were built between 1945 and 1961.

Later council housing in the south of Walney Island at Cote Ley Crescent

For Barrow, the era of large-scale council housebuilding was over by the late-1960s; new schemes were smaller and largely infill, including the Cartmel and Grange Crescent flats in the centre of town and bungalows and flats principally for older residents around Cotswold Crescent on the former site of the Griffin Chilled Steel Works. A scheme of 79 houses and flats on and around Exmouth Street in 1985 marked an adaptive return to more traditional terraced forms.

At peak, in the early 1980s, the Council owned around 5500 homes in the borough. Currently, it owns and manages just over 2500 homes with a much smaller number run by housing associations. Around 10 percent of households live in social rented homes, a surprisingly low figure – below the national average – for a town dubbed the most working-class in England (an admittedly inexact judgement apparently reflecting its prevalence of chip shops, workingmen’s clubs and trade union offices). That may reflect the early tradition of working-class owner occupation referenced last week, the amount of company housing since transferred to private ownership and council housebuilding programmes constrained by economic downturn. (5)

‘The Spirit of Barrow’ by Chris Kelly was unveiled in 2005

The town continues to be marked by its industrial history and the ups and downs of the local economy. Vickers, now BAE Systems (that is a considerable simplification of a complex history), was sustained by nuclear submarine orders into the 1990s but now employs only around 5000 workers from 14,000 in the 1980s. The pre-pandemic unemployment rate stood at around 4 percent, a fall from recent figures but above the national average. Earlier this year, the town was reported as having suffered the largest population fall of any area in England – around 6.8 percent between 2001 and 2019 to the present figure of around 67,000. (6)

Elsewhere, Barrow is often described as being at the end of the longest cul-de-sac in England due to its location at the tip of the Furness peninsula, 33 miles off the nearest motorway and 33 miles back. The fact that this ‘western industrial periphery’ had briefly been ‘a major Bessemer iron and steel centre of Europe and the world’ tells you something of its impressive and turbulent economic history. (7)

Give Barrow a visit – it has some proud municipal heritage and a unique housing history; it’s a hardworking town working hard to adapt to changing circumstance as it has throughout its lifespan. And that ‘remote’ location is actually pretty special.

Sources

(1) Quoted in Bryn Trescatheric, How Barrow Was Built (Hougenai Press, 1985). Much of the information here and particularly that on later council housing, which is little documented elsewhere, is drawn from this invaluable source by Barrow’s leading historian.

(2) Quotations drawn from Elizabeth Roberts, ‘Working-Class Housing in Barrow and Lancaster 1880-1930’ Transactions of the Historic Society of Lancashire and Cheshire, vol 127, 1978 and Trescatheric, How Barrow Was Built

(3) Sam Davies and Bob Morley, County Borough Elections in England and Wales, 1919-1938: A Comparative Analysis (Routledge, 2016). The unemployment figures which follow are drawn from the same source.

(4) Quoted in Trescatheric, How Barrow Was Built

(5) On the town’s working-class character see Caroline Evans, ‘Barrow, Capital of Blue-Collar Britain’, The Guardian, 5 October 2008

(6) Eleanor Ovens, ‘Barrow named as having biggest population drop in England’, The News, 20 June 2020

(7) The quote is drawn from John Duncan Marshall and John K Walton, The Lake Counties from 1830 to the Mid-Twentieth Century: A Study in Regional Change (Manchester University Press, 1981)

Preston’s Council Housing, Part I to 1939: ‘Compactness, Convenience and Taste’

03 Tuesday Nov 2020

Posted by Municipal Dreams in Housing, Preston

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1920s, 1930s

In 1709, Preston was described as ‘a very pretty town with abundance of gentry in it; commonly called Proud Preston’. The gentry may have disappeared and the town (a city since 2002) changed out of all recognition but the appellation has remained. Local pride might be seen now in what has been dubbed the ‘Preston model’ – a form of ‘guerrilla localism’ in the words of Aditya Chakrabortty; a scheme of community wealth building based on plural ownership of the economy, local procurement and socially productive use of land and property. (1)

The Preston Martyrs Memorial on Lune Street by Gordon Young, commemorates the four strikers killed in 1842 © Andrew Gritt and made available through a Creative Commons licence

These posts will look at what might be properly understood as an earlier form of community wealth building – the city’s history of council housebuilding. That history was rooted in a common experience though one writ large in the Lancashire town – industrialisation and urbanisation. Preston’s first cotton mill was opened in 1777; by 1835, there were 40. Working conditions (and Chartism) led to a general strike in 1842 during which four protestors were shot dead by the military. An eight-month lockout and strike in 1853-54, witnessed by Charles Dickens, inspired his famous description of ‘Coketown’ in Hard Times:

a town of red brick or of brick that would have been red if the smoke and ashes had allowed it; but as matters stood it was a town of unnatural red and black like the painted face of a savage. It was a town of machinery and tall chimneys, out of which interminable serpents of smoke trailed themselves forever and ever and never got uncoiled.

Karl Marx added his own excited commentary: ‘The eyes of the working classes are now fully opened, they begin to cry: Our St. Petersburg is at Preston!’. (2)

A Preston townscape. The lithograph shows unemployed mill hands at work on Preston Moors in 1862 during the ‘Cotton Famine’ caused by the American Civil War

St Petersburg/Petrograd may have come good for Marx in 1917 but Preston’s municipal politics in the interwar period in its first great era of council housebuilding were, as we’ll see, to be far more collaborative and collegiate.

Preston’s population grew from under 12,000 in 1801 to 117,000 in 1920 and its insanitary terraced housing brought cholera outbreaks in 1832 and 1848 and a major typhus epidemic in 1862. Infant mortality rates remained well above the national average – in the early 1890s standing at 235 deaths per thousand against an English average of 151 – but they fell before the First World War as the Corporation converted privies to water closets at the rate of 1- to 2000 a year. Living standards remained low, however, with the prevalence of female employment (around 30 percent of married women worked in the mills in 1905) having the collateral effect of reducing male wages. (3)

An active housing improvement programme notwithstanding, the council – a county borough since 1881 – had no interest in housebuilding. It remained – despite the election of its first Labour councillor in 1904 – a largely Conservative borough. However, as was typical across the country, the First World War changed much.

This wind of change was illustrated powerfully by the March 1918 Local Government Board circular requesting local authorities to provide detail of ‘definite building schemes’ and numbers of new council homes projected. Preston Borough Council discussed the circular in April, not only forming a Housing Committee but identifying land in Moor Park and Deepdale (near the Preston North End football ground) as suitable for building. It was one of 1300 councils replying by the deadline of December 1918. (4)

Thereafter, progress was slow and more controversial. By February 1919, the Preston Trades and Labour Council (PTLC) was viewing ‘with regret the inaction of the Town Council in the matter of housing’, Next month, the Housing Committee resigned when its detailed plans for an estate at Holme Slack were rejected by full council which instructed it ‘to advertise and offer prizes for competitive designs’. In May, the PTLC intervened again, decrying the paucity of council proposals and demanding that ‘at least 50 per cent of direct representatives of labour should be co-opted’ to serve on the now reconstituted Housing Committee.

That proposal was deemed unlawful – the Preston Building Trades Employers’ Association had also expressed their displeasure – but it’s an interesting sign of local politics and national trends that it was agreed in September to co-opt two members of the PTLC alongside one representative of the Preston Property Owners Association. The emphasis on women’s voices on housing in this post-war period (discussed in a recent post) was reflected in the inclusion of one representative of the (Conservative) Preston Women Citizens’ Association and one from the local Women’s Cooperative Guild. (5)

All this before the 1919 Housing Act, overseen by Christopher Addison, received its Royal Assent in July. The housing needs survey required of all local authorities was produced by Preston in October when the Medical Officer of Health reported that 980 local homes were overcrowded, 136 unfit for habitation and 12 areas comprising in total 806 houses justified clearance. Up to 2000 new homes were needed. (6)

By then progress had been made. The government’s regional Housing Commissioner had visited the town in May and plans for estates of around 500 homes each in Holme Slack and Ribbleton had been approved. At this point the Council was taking an unusually close interest in the fine detail of the proposed housing.

This image of Waldon Street on the Callon Estate shows more recent streetscape improvements made by the City Council

Members of the Housing Committee visited Merseyside for ideas and models as well as the Daily Express Model Homes Exhibition in London. In November 1919, a subcommittee was appointed to ‘consider the construction, materials and equipment of the houses’ and later in the month four pages of detailed written notes were provided covering such minutiae as tarmacked garden paths and concrete clothes posts. (In further testimony to the hands-on approach taken here, handwritten notes in the archives record the names and addresses of new council house tenants.) (7)

The new houses were (as required) cottage homes built to Tudor Walters standards but the Council sought to go further by insisting on 8ft 6in height ceilings, rather than the 8ft recommended. It would compromise on this issue – it was agreed upper-floor ceilings should be 8ft high – under protest. The Council was less successful in insisting on lower rents than those demanded centrally. Rents of 8s (40p) and 10s (50p) for two- and three-bed non-parlour house respectively were agreed but the Council’s plea that the larger parlour houses were ‘intended to be tenanted by large families with young children’ was rejected and these were let at 12s 6d (62½p) and 15s (75p). (8)

Despite the generous financial terms of the 1919 Act, the expectation was that rents would be ‘economic’ and, with Preston’s new council homes costing between £891 and £976 to build, those rents would be out of reach to many. The Council, as was typical in this post-war era, prioritised ex-servicemen and their widows in its allocations policy but by 1930, in socio-economic terms, only some 38 percent of Holme Slack heads of households could be classified as manual working class; 30 percent belonged to the non-manual working class whilst 17 percent comprised those in professional, managerial or commercial categories. (9)

Practical problems of materials and labour shortages delayed construction despite the special subcommittee (which included representatives from the Preston Master Builders’ Association and Preston Building Trades Operatives) appointed in May 1920 to overcome supply difficulties and the strong action in November when the Council used its powers under the Housing (Additional Powers) Act to temporarily halt construction of non-essential work on a cinema. (10)

Early council housing on Chestnut Crescent, Ribbleton Estate

The first two houses on the Ribbleton Estate, one opened as a show home, were completed in March 1921. Designed by local architects Messrs JH and W Maugan and reflecting the attention paid by the Council to their design, the local press was suitably complimentary: (11)

The house furnished for the exhibition at once suggests compactness, convenience and taste … [The estate] comprises blocks of two, three and four houses arranged on the garden city plan. There are no continuous and monotonous lines of houses.

A cupboard and glass cabinet in the parlour, linen cupboard and wardrobe in the main bedroom, ‘ample provision in the way of shelves’ as well as the sanitary necessities that would previously have been luxuries to many of the new tenants, all made this high-quality accommodation, ‘tastefully treated’ throughout. (12)

Homes on Manor Road, the Holme Slack Estate

If the new residents were grateful, they were far from humble. A Holme Slack Householders’ Association had been formed by September 1921 whose main object was to: (13)

inculcate and foster a spirit of mutual endeavour in all things calculated to promote the welfare of the new district, having special regard to the upkeep of the gardens and the appearance of the dwellings.

That mix of pride and expectation was reflected in complaints about the unfinished nature of the early estates, illustrated by the Ribbleton Estate Tenants’ Association ‘strong disapproval at the deplorable condition of [its] roads, pathways and system of drainage’. Such criticisms – typical of estates nationwide where completed housing was prioritised above infrastructure – continued into 1922. (14)

The generous housing programme of the Addison Act was axed in July 1921 but a broadly cross-party commitment to build council housing in Preston remained. In July 1923, the Council agreed to recommence housebuilding without government grant but Labour’s 1924 Housing Act restored a more generous level of financial support that enabled it to embark on a much larger programme – 1910 houses under its terms by 1932.

The Miller Road Estate of 165 homes was sanctioned in July 1924; the Callon Estate of 591 homes in October. Other significant estates were built at Delaware Street, Deepdale and Greenlands alongside an extension to the Ribbleton Estate. The new homes were generally slightly smaller than those built under Addison and overwhelmingly non-parlour; the large Callon estate contained 10 parlour homes.

Another attempt to build more cost-effectively was seen in the acceptance of a tender from Makinsons of Horwich to build ten steel-framed houses: a ‘system of roofing before walls are built’ as the Lancashire Daily Post reported it, having the ‘the advantage that the houses were erected more quickly than by the ordinary method’. The reference to Blackpool in the report suggests these were a licensed variant of the ‘Dennis Wild’ houses built in that town – one of a number of largely unsuccessful attempts to apply prefabrication to housebuilding in the era. The fact that nothing more is heard of this experiment suggests it fared little better. (15)

The high rents of this early council housing excluded many of the poorest of local residents and slum housing remained on a large scale. In October 1924, the Medical Officer of Health recommended the clearance of the Marsh Lane area, ‘condemned on the ground of its narrowness, closeness, bad light, and want of air and proper ventilation’. Of 118 houses inspected, nearly all were structurally defective. The Health Committee had rejected the proposal but in full council it was passed by 25 votes to 16. The Labour councillor HE Rhodes expressed the view that: (16)

The property owners who allowed their property to get into such a condition should not be paid compensation, but should be recommended for penal servitude, because they were murdering the child life of the town. The property … was a disgrace to the town and was situated in an area where the streets were bad and where there was nothing beautiful. He appealed to the committee to go on with the work and make one bright spot in the place.

That was perhaps an unusually trenchant intervention from a Labour representative; elsewhere the party has been criticised by some for its accommodation with existing civic elites. That came to a head in 1928 when Labour (with 22 councillors) formed a majority of elected members but controversially abided by a ‘gentleman’s agreement’ that retained an overall Conservative majority through the latter’s number of aldermen. In an apparent quid pro quo, Labour councillor WE Morris became chair of the Housing Committee. On the other hand, as we shall see so far as housing was concerned at least, there remained a reforming majority so it may be equally plausible to commend a broadly progressive (though contested) cross-party consensus on the matter.

In fact, Preston was ahead of many authorities in tackling slum clearance in the 1920s but that issue would be prioritised nationally in housing legislation in 1930 and 1935. In October 1931, three further central areas were designated for clearance and a programme of 600 new council homes proposed, generally in extensions to existing suburban estates. (17)

The problem that more distant estates and continuingly relatively high rents precluded some in greatest need was seized on by some hostile to public housing more generally. In 1933, Cllr JS Howard argued ‘the time had come when they ought to stop municipal building, especially as there were quite a number of tenants who ought not to occupy municipal houses’. He advocated some form of means test. More sympathetically, Cllr Blackburn observed: (18)

that many of the people displaced by slum clearance schemes were not remaining in the houses provided for them by the Corporation, but drifting back to their old surroundings. The slum clearance problem was too hastily met by building houses in the suburbs. The need should be met by some other method, such as the building of flats or other suitable dwelling.

This was a genuine problem but the fact that over 600 families on an over 2000-strong waiting list for council homes were living in shared accommodation ensured that opposition to newbuild was easily overcome.

Housing on Grizewood Avenue in the pre-war Moor Nook Estate

The Great Depression, whilst it did not hit a slightly more diversified and modernising economy in Preston as strongly as it did elsewhere, brought new hardships. The National Unemployed Workers Movement’s plea for a 10 percent rent reduction across the board in January 1932 was rejected. But general rent reductions (ranging from 4d to 1s 6d a week on weekly rents ranging between 6s 9d to 9s) were agreed in 1933 and 1934. Preston also implemented the provision of the 1930 Housing Act which gave the power to enact rent rebate schemes by granting reduced rents to displaced slum dwellers according to family size and income. (19)

The Farringdon Park Estate as planned and with completed homes in 1950

The housing survey required by the 1935 Housing Act revealed 1399 houses ‘not in all respects fit for human habitation’. By 1938, as some 300 new council homes were being built on the Thirlmere and Farringdon Park estates, it was reported this number had fallen to 980. In all, the Borough Council had provided some 2847 new council homes between the wars.

The war itself would bring new challenges and new expectations and those will be discussed in next week’s post.

Sources

(1) See Aditya Chakrabortty, ‘In 2011 Preston hit rock bottom. Then it took back control’, The Guardian, 31 January 2018 and Centre for Local Economic Strategies and Preston City Council, How We Built Community Wealth in Preston: Achievements and Lessons (July 2019)

(2) Karl Marx, ‘Only the Beginning’, New York Daily Tribune, 1 August 1854

(3) Elizabeth Roberts, ‘Working-Class Standards of Living in Three Lancashire Towns, 1890-1914’, International Review of Social History, vol 27, no 1, 1982

(4) William Hudson, ‘Welfarism Anew? Territorial Politics and Inter-War State Housing in Three Lancashire Towns’, University of Liverpool PhD, 2002

(5) See Preston Borough Council, Housing Committee Minutes: CBP 32/1 1919-1923, Lancashire Archives

(6) ‘Preston Council Housing Scheme Approved’, Lancashire Daily Post, 30 October 1919

(7) 19 September and 12 November 1919, Preston Borough Council, Housing Committee Minutes: CBP 32/1 1919-1923. See also DR Beattie, ‘The Origins, Implementation and Legacy of the Addison Housing Act 1919, with special reference to Lancashire’, University of Lancaster PhD, 1986. On new tenancies, see, for example, the minutes of the Housing Sub-Committee dated 16 July 1930.

(8) See Beattie, ‘The Origins, Implementation and Legacy of the Addison Housing Act 1919’, Hudson, ‘Welfarism Anew?’, and ‘Preston Housing’, Lancashire Daily Post, 29 July 1920

(9) See Michael Savage, The Dynamics of Working-Class Politics: The Labour Movement in Preston, 1880-1940 (Cambridge University Press, 1987)

(10) See 24 November 1920 Preston Borough Council, Housing Committee Minutes: CBP 32/1 1919-1923 and Beattie, ‘The Origins, Implementation and Legacy of the Addison Housing Act 1919’

(12) ‘Preston Housing Scheme’, Lancashire Daily Post, 24 March 1921

(13) 14 September 1921, Preston Borough Council, Housing Committee Minutes: CBP 32/1 1919-1923

(14) 23 November 1921, 3 March 1922 and 27 June 1922, Preston Borough Council, Housing Committee Minutes: CBP 32/1 1919-1923

(15) ‘Preston Town Council Tenders For 50 More Houses. A System of Roofing Before Walls Are Built’, Lancashire Daily Post, 30 October 1924

(16) ‘Preston’s Unhealthy Areas’, Lancashire Daily Post, 27 November 1924

(17) ‘Demolition of Houses. Animated Discussion at Preston Council Meeting’, Lancashire Daily Post, 29 October 1931

(18) ‘Preston Council Debate Housing’, Lancashire Daily Post, 30 March 1933

(19) On the NUWM delegation, see 13 January 1932; on rent reductions and rebates see, minutes in March 1933 and 1934, Preston Borough Council, Housing Committee Minutes: CBP 32/3 1929-1939

Council Housing in Greenock, Part II, 1918-1945: their ‘Ain Wee House’

01 Tuesday Sep 2020

Posted by Municipal Dreams in Greenock, Housing, Scotland, Uncategorized

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1920s, 1930s

We left Greenock last week in the unusual circumstance of building new council homes in 1916 in the midst of war. Across the country, war’s end brought a unique combination of pressures and ideals to build anew at quality and on unprecedented scale. The pressure, for ruling-class politicians, came from their fear of working-class unrest, even revolution (given local force by the political turmoil on ‘Red Clydeside’). The professed idealism came in prime minister Lloyd George’s stated ambition ‘to make Britain a fit country for heroes to live in’.

Nowhere was the need for new council housing stronger than in Greenock: a reflection of the burgh’s appalling existing housing conditions and its continued growth – Greenock’s population peaked at 82,123 in 1921 when it was sixth largest town in Scotland. (Its current – 2011 – population of 44,248 tells you something of the hard times it has suffered subsequently as its traditional industries have declined.)

Scotland’s 1919 Housing Act required all local authorities to survey housing needs and build where need was demonstrated. In Greenock, a 1919 survey claimed that new or improved homes were required for some 26,818 inhabitants. The Council acted promptly by purchasing 154 acres of land in July that year and preparing plans for 480 houses, albeit partly in a style and form reflecting local circumstance and tradition: (1)

They would be allowed to build from 12 to 24 houses per acre and special privileges would be granted Greenock, owing to the scarcity of land, to erect tenements as well as houses.

Across Britain, the Tudor Walters report had set cottage homes at no more than twelve to the acre as the housing gold standard.

The Cowdenknowes Estate, centred around the new main road of Dunlop Street one mile south-east of the town centre, was laid out on a greenfield site on cattle pastures owned by the Ardgowan Estate and, nevertheless, mostly comprised solid, white-rendered, two-storey semi-detached houses with front and back gardens as prescribed by Tudor Walters.

Cornhaddock Street Date Stone reads 1920 CC Thomas Nugent

With further estates of similar size at Bridgend and Cornhaddock, Greenock built 436 homes under the 1919 legislation. This impressive rate of construction was maintained under subsequent legislation with substantial numbers unusually – 552 new homes – under the 1923 Act and a total of 625 under the more generous Wheatley Housing Act in 1924. (Wheatley, appropriately, was a ‘Red Clydesider’ and MP for Glasgow Shettleston.) The later 1920s Bow Farm Estate included a larger number of flatted blocks as the housing drive continued. (2)

There remained, certainly among more left-wing members of the council, considerable urgency to the building drive. A proposal from the Housing Committee to delay construction of homes on Bow Farm in 1927 led to a special meeting of the council and what The Scotsman cautiously described as ‘particularly lively scenes’. The threat made by a Labour member, Mr D MacArthur, to take one opponent outside and ‘paralyse him’ may have been unparliamentary but it was apparently effective. The meeting agreed to proceed with construction by 17 votes to seven. (3)

The problem remained that the relatively high rents of council housing excluded the poorest who needed it most. This was true across the UK but was peculiarly and powerfully so in Greenock whose staple industries – shipbuilding, ship repair and marine engineering – suffered grievously in the economic downturns of the interwar years. One-third of working women worked in textiles, many in ropemaking which also served the town’s maritime trade. Greenock’s final major employer – of both men and women – also reflected this history. The town was Britain’s second largest sugar refining centre (after London), processing raw sugar cane and molasses from the West and Est Indies. (4)

Such was the extent of unemployment and poverty that for some ‘home’ became the poorhouse (the Scottish equivalent of the workhouse) and they suffered the full severity of a Poor Law regime that we sometimes imagine had been abolished years previously. Some 1349 individuals entered the Greenock poorhouse in 1925-26 where they were set to work ‘sawing trees and repairing furniture, assisting tradesmen and scrubbing wards and such like’.

Back court, Market Street, c1935

Housing conditions for many of those who escaped that final indignity remained appalling. Housing density in Greenock reached 717 persons per acre; almost half the population lived in one-room accommodation. A council enquiry into Market Street in 1931 revealed that, of 630 homes, only two had baths and none had hot water; on average, seven to eight families shared toilet facilities.

In 1925, the Greenock Housing Council, comprising ‘well-known ministers and social workers’, drew particular attention to the scandal of so-called ‘farmed-out’ houses – a system in which slum tenements which could not be let ordinarily were leased by a ‘farmer’ and then subdivided into single rooms rented for short periods. They estimated there were 229 ‘farmed-out’ houses in the burgh and gave graphic examples of the appalling circumstances suffered by their unfortunate tenants: (5)

Five persons besides husband and wife over ten in the same sleeping compartment … water flows from WC above, coming through ceiling; walls falling in. Bed without bedding; one table, three stools, two beds in one room; one female lodger in same room as subtenant’s sons.

Naturally, such conditions led to ill-health – recurrent typhus outbreaks and increased incidence of scarlet fever, smallpox and poliomyelitis, for example. Greenock was also ‘the tuberculosis capital of Britain, with twice the number of cases per capita as the national average’. By 1932, the burgh’s infant mortality rate – at 307 deaths per thousand – was the highest in Scotland, twice the national average.

If the statistics seem abstract, take the case of Mary McLaughlin who endured more than 20 pregnancies between the wars, 14 full-term. Of her 14 children, ten died before the age of seven from diphtheria, polio and scarlet fever.

Whilst little happened to improve Greenock’s economic circumstances until rearmament and war at the end of the decade, the 1930s did at least see substantial efforts – instigated under the Scottish Housing Acts of 1930 and 1935 – to improve housing conditions. A programme of 3000 new homes was agreed in 1933, including a scheme of 840 in the eastern Gibshill area of the town. In total, some 2085 new homes were built under the 1930 and 1935 legislation and a further 383 under a 1938 Act. In all, the Burgh built 4033 new homes between 1919 and 1939. (6)

The 1930s legislation also prioritised slum clearance, which included in Greenock the belated demolition of the Market Street area (now King Street). Another, unusual benefit of central area clearance was the opening of a hostel for single women in Westburn Street, opened in 1933; the Burgh boasted it was the first in Scotland initiated under the 1930 Housing Act. The hostel comprised 40 apartments, let at 5 shillings (25p) a piece, each containing a living room, scullery and toilet; baths and washhouses on each wing were shared by seven households. The local press claimed it was not really a hostel; each tenant enjoyed their ‘ain wee house’. (7)

The Westburn Buildings commemoration of Mary Slessor

There’s another unusual feature to be found in the Westburn building (renovated in 2012 by River Clyde Homes as contemporary social housing): a celebration of feminism marked by the sets of initials on the building’s 14 gutterboxes, each celebrating a notable woman including Flora MacDonald, Florence Nightingale and (illustrated above) the missionary Mary Slessor.

John Street tenements prior to renovation

Elsewhere, Greenock’s hilly terrain and shortage of land promoted interest in other unconventional solutions to its housing crisis. In 1936, the Council considered plans for ‘a new and revolutionary type of tenement building’ proposed by Scotland’s leading architect and planner, FC (Frank) Mears. (8)

The buildings will be roughly circular in shape, and of four storeys. From a circular stairway in an open well in the centre three wings radiate like the three leaves of a shamrock. Each wing has two houses per flat, making a total of 24 houses per block.

Following the programme of slum clearance, adapted versions of Mears’ proposals were built in the John Street area from 1939.

The impact of the Blitz on Baxter Street

Frank Mears

In the following year, after the outbreak of war, Mears was appointed planning consultant to the Council and whatever ideas he may have entertained for the burgh were given sharp focus and even greater urgency by the tragic events of 6-7 May 1941. Greenock was a major shipping centre but the Greenock Blitz fell most heavily on its residential areas. Around 280 people were killed, 1200 injured; 10,000 houses were damaged, 1000 beyond repair.

We’ll follow the story of Greenock’s post-war council housing in next week’s post.

Sources

(1) ‘Greenock Housing Scheme’, The Scotsman, 30 July 1919

(2) TW Hamilton, How Greenock Grew (James McKelvie and Sons, 1947)

(3) ‘Greenock Housing: Town Council Scene’, The Scotsman, 2 February 1927

(4) Much of the information which follows is drawn from the detailed account provided by Annmarie Hughes in ‘The Economic and Social Effects of Recession and Depression on Greenock between the Wars’, International Journal of Maritime History, vol 18, no 1, June 2006

(5) ‘Greenock Housing’, Aberdeen Press and Journal, 31 August 1925

(6) Hamilton, How Greenock Grew

(7) ‘Hostel for Women’, Greenock Telegraph and Clyde Shipping Gazette, October 25 1933

(8) ‘New Type of Tenement’, The Scotsman, 6 February 1936

Council Housing in Oxford, Part I: ‘‘We don’t despise these people but …’

29 Wednesday Jul 2020

Posted by Municipal Dreams in Housing, Oxford

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1920s, 1930s

The Cutteslowe Walls in Oxford – built by developers in 1934 to separate their private estate from council housing next door – were infamous: a symbol of a contemporarily class-ridden society but also sadly a prejudice towards residents of public housing that has survived their demolition in 1959. This week’s post looks at that story and takes a broader, more nuanced look at the housing politics of interwar Oxford.

The Cutteslowe Wall seen from Aldrich Road on the council estate

Oxford was one of the fastest growing industrial cities in Britain between the wars. That takes us some way away from our usual image of the ‘city of dreaming spires’ (though they were to pay their part in this history) but the statistics are stark. Oxford’s population grew by 88 percent – from around 57,000 in 1921 to (with a significant border extension to absorb growing suburbs) 107,000 in 1941.

This breakneck growth was largely due to the rise of the local motor industry and allied trades. William Morris built his first car – the doubly eponymous Morris Oxford – in 1913; his workforce grew from 200 in 1919 to around 5000 from the mid-1920s. Pressed Steel, founded in 1926, employed similar numbers. The new trades provided almost a third of local jobs by the late 1930s when almost half Oxford’s insured male workforce were immigrants to the town, many from the local region but a significant number from the unemployment blackspot of south Wales. (1)

Morris’s Cowley works, 1925

This would affect the city’s politics in due course but it did so only slowly; for the time being the old order reigned. Oxford was a reformed corporation dating to 1835, a county borough from 1889, but its council retained university representation (nine councillors – three elected by convocation and six by college heads and senior bursars – and three aldermen) which persisted, incredibly, to 1974.

That said, it’s not clear that this affected the fundamentally conservative nature of the council: ‘Between 1918 and 1939 the distinction between Liberals and Conservatives on the council was said to have become almost nominal’. Against this, Labour representation – the first member in 1918, rising to 13 by 1939 in a council of 68 members – had little impact. (2)

Penson's Gardens St Ebbes Oxford History Centre

Despite the depth of housing need and the prevalence of inner-city slum housing (St Ebbes was described as ‘a swamp converted into a cesspool’ as early as 1848), the Corporation was largely passive: (3)

Before 1914 undiluted laissez-faire predominated on Oxford City Council, in the field of housing as in other municipal activity. The council was notoriously unwilling to enforce sanitary improvements and impose building controls, and made almost no use of national legislation to deal with the worst unfit housing.

Headington’s new council housing, 1925

The First World War changed much, particularly in the field of housing. The first council homes in Oxford were actually built by Headington Rural District Council in 1920: 101 in total on London Road and Barton Road, designed by local architect James Wells and described by the Oxford Times as of ‘smart appearance, with their whitewashed fronts and red tiled roofs’. (Headington became an Urban District in 1927 but was incorporated into Oxford proper in 1929.) (4)

London Road council housing, 2017

But Oxford City Council could no longer afford to ignore local needs and national pressures though it did continue to follow its own path. In response to national directives leading to the 1919 Housing Act, the Council initially proposed to build 400 homes; in the event just 215 were completed by 1922.

These first estates were built at the fringes of the city on Iffley Road and Cowley Road, of high quality and architect-designed with ‘steeply gabled roofs and careful Arts and Crafts detailing [showing] a strong debt to the work of Parker and Unwin at Letchworth Garden City and Hampstead Garden Suburb’. Their rents, though, were among the highest in the country as, perversely, the Council rejected Treasury funding, preferring to finance the schemes from its housing revenue account. (5)

It relented in 1924 when it acquired powers to borrow but the high standards remained as did the high rents. The latter were, apparently, a deliberate choice, intended to confine council homes to the better-off and more ‘respectable’ working class and allowing the worse-off to move from city slums to the slightly superior homes vacated by the new council tenants – the ‘filtering-up’ theory which was influential before the First World War.

An early view of the South Park Estate

The new, generously-sized, neo-Georgian-style homes were designed by Kellett Ablett who joined the City Engineer’s Department in 1925. (He went on to become Chief Housing Architect for Nottingham City Council and Chief Architect to Hemel Hempstead New Town.) The South Park Estate and Morrell Avenue in particular, built between 1929 and 1931 on Headington Hill, is the showpiece, built on land formerly owned by the locally prominent brewing family; ‘as good as any of this kind built in England at the time’, according to Geoffrey Tyack.

Morrell Avenue, South Park Estate, Oxford

An early image of Morrell Avenue

That quality is first apparent in the streetscape – a curving, tree-lined road with verges separating road and footpath. It’s seen in the semi-detached and terraced homes in their brick banding, clay tiling and classical pilastered doorcases amongst other careful detailing. Similar homes of the same quality and design can be found in the earlier housing of the nearby Gipsy Lane Estate.

Headington Road, Gipsy Lane Estate

After a slow start, the Council had built 1647 homes between 1923 and 1930, its room for manoeuvre hampered by the city’s growth and pressure on land and the reluctance of Oxford colleges to sell land for public housing. The problem of slum housing – only 129 houses had been demolished by 1929 – and the rehousing of its residents remained, however.

1930 – the year of the Greenwood Housing Act targeting slum clearance – marked a sharp turn nationally and locally. By 1939, the Council had cleared 872 slum houses, most of them in St Ebbes and there were plans for the demolition of almost another 600 St Ebbes’ homes and their replacement by working-class flats.

Croft Road New Marston 1935Des Blenkinsopp

Croft Road, New Marston. The houses bear a plaque marking their date of construction, 1935 © Des Blenkinsopp and made available through a Creative Commons licence

The Council built several hundred more council homes in the 1930s (others were acquired through the expansion of its borders), principally on new estates in a constellation around the city fringes: Wolvercote to the north, New Hinksey to the south, and New Marston to the east.

Abingdon Road, New Hinksey SN

Abingdon Road, New Hinksey

Some were built to previously high standards, as seen above in the plans and finished housing on Abingdon Road but most, while solid, decent homes were notably plainer and smaller than their predecessors. This reflected the changing and less generous subsidy regime over the interwar period and a belief that the so-called slum working class might be housed more cheaply. The contrast can also be seen clearly in the later housing built on the Gipsy Lane Estate.

Later housing on the Gipsy Lane Estate

That prejudice lay behind one of the great causes célèbres of interwar Oxford – the Cutteslowe Walls. The Council had bought agricultural land for housing in Summertown in the 1920s. The first Cutteslowe Estate was built between 1931 and 1932. Work on the second began in August 1933. Meanwhile, the city had sold part of the land to private developers, the Urban Housing Company. Through some apparent miscommunication, Aldrich and Wolsey Roads on the new council estate joined up with their private estate counterparts. (7)

The Company alleged council tenants were responsible for vandalism on the private estate. It also claimed that the rehousing of former slum-dwellers on the estate breached an undertaking given by the Council that it wouldn’t be used for this purpose. Whatever the (not so) niceties, it’s not hard to see the naked class prejudice and commercial interest that lay behind the Company’s supposed grievances. It erected two-metre high, spiked walls – separating the council homes from their private equivalents – across the connecting streets in December 1934. They forced a 600-metre detour for council estate residents trying to reach the main road.

Protest, May 1935

This local class war provided an obvious opportunity for the city’s Communists led by Abe Lazarus but the Party’s attempt to lead local residents in the demolition of the walls in May 1935 was thwarted by the police and, in the words of another Oxford communist, the capitulation of ‘certain legalist members of the [tenants’] committee’. (8)

In this fight, however, the City Council was on the right side of history. They wanted the walls down and, having pursued various legal avenues, they ended up taking what turned out to be their own form of direct action in June 1938 when Council workmen bulldozed both walls. A back and forth ensued between the workmen of both parties while Urban Estate residents looked on with some concern, as reported by the Daily Herald: (9)

‘We don’t despise these people’ said a Carlton-road dweller, ‘but …’ – and a finger was pointed at three cheerful urchins climbing a tree.

‘It is not that we look down on them’, said another, ‘but we live a different life from theirs’.

The High Court found the Council to have acted unlawfully and the walls were duly reinstated. And amazingly there they remained, despite a few mishaps, until demolished on 9 March 1959 – a sign of changing times perhaps but achieved by the legal manoeuvre of the Council buying the land on which they stood.

The wall demolished, March 1959

Class divides were not always so clear-cut. Oxford City Council had built over 2000 houses since the war; private developers around 7000. We’ve seen an intra-class division operating within council housing – between the superior housing designed for a more ‘respectable’ working class in the 1920s and that provided for displaced slum-dwellers in the 1930s. Some of the new private housing would have been occupied by a more affluent working class too, notably the relatively well-paid car workers.

We’ll follow the post-war story of class and housing in Oxford in next week’s post.

Note

I’ve written previously about a similar wall erected on the Downham Estate, south London, which stood between 1926 and 1950.

Surprisingly, the class divide reared its ugly head again in Oxford in 2018 when the City Council repaved ‘posh’ Wentworth Road and halted its resurfacing as it became Aldrich Road on the council estate at precisely the point where the wall had previously stood. At least one local saw this as ‘Class War’ and expressed the view in spray paint. The Council claimed it was a purely pragmatic decision based on need.

There’s been a fair amount written on the Cutteslowe Walls, notably Peter Collison, The Cutteslowe Walls: A Study in Social Class (Faber and Faber, 1963). Apart from the sources listed below, the Past Tense blog provides an interesting perspective in this post: Class Walls – Cutteslowe, Downham and roadworks.

Sources

Much of the detail on individual estates in Headington is drawn from the well-researched and informative local history website, Headington History and this page on the area’s newer estates.

(1) Eleanor Chance, Christina Colvin, Janet Cooper, CJ Day, TG Hassall, Mary Jessup and Nesta Selwyn, ‘Modern Oxford’, in A History of the County of Oxford: Volume 4, the City of Oxford, ed. Alan Crossley and C R Elrington (Victoria County History, 1979)

(2) CJ Day, Modern Oxford: a History of the City from 1771 (Reprinted from the Victoria County History of Oxford by Oxford County Libraries, 1983)

(3) Alan Crosby, ‘Housing and Urban Renewal: Oxford 1918-1985’ in Kate Tiller and Giles Darkes (eds), An Historical Atlas of Oxfordshire (Oxfordshire Record Society, ORS vol 67, 2010)

(4) Stephanie Jenkins, Headington history: Miscellaneous

(5) The quotation is from Geoffrey Tyack, Oxford: An Architectural Guide (Oxford University Press, 1998); the reference to funding from Crosby, ‘Housing and Urban Renewal: Oxford 1918-1985’

(6) Oxford City Council, Oxford Preservation Trust and English Heritage, Our East Oxford: A Character Statement and Heritage Asset Register Survey for East Oxford (October 2014)

(7) Much of the detail here is drawn from Brian Robert Marshall, Cutteslowe Walls

(8) Duncan Bowie, Reform and Revolt in the City of Dreaming Spires (University of Westminster Press, 2018)

(9) ‘Rival Gangs in Wall Battle’, Daily Herald, June 9 1938.

Council Housing in Portsmouth, Part I to 1945: ‘Providing for the health and betterment of the people’

21 Tuesday Apr 2020

Posted by Municipal Dreams in Housing, Portsmouth

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1920s, 1930s, Planning, Pre-1914

Portsmouth is the UK’s only island city. Though the relatively narrow Portsbridge Creek, on the landward side, has been bridged several times, historically the city’s location has given it the highest population density in the country and it’s helped contribute to what is a particularly rich and diverse housing history.

Portsmouth’s population grew from around 32,000 in 1800 to over 188,000 by century’s end. That rapid growth created the poor housing conditions typical of the era; a cholera outbreak in 1849 killed around 1000 people and a Government health inspector Robert Rawlinson described the town as ‘one huge cesspool’. It had become through its long Victorian terraces what some call ‘the northern city on the south coast’. (1)

Dr Andrew Mearns Fraser, pictured in 1934

Municipally, our story begins in 1909 when the unusually go-ahead Medical Officer of Health of the Borough Council (it became a city in 1926), Dr Andrew Mearns Fraser, carried out a survey of Portsmouth’s insanitary housing. He identified, in a report entitled ‘Improvement Scheme for an Unhealthy Area in Portsea’ published the following year, a particular area near the naval dockyards as worthy of reform and, unusually, recommended not mere clearance or a garden suburb but an inner-city town planning scheme. (1)

Map of Improvement Area

Mearns Fraser’s original plans for Curzon Howe Road

A notable feature of Mearns Fraser’s proposal was a central square ‘planted with trees, which shall be a lung for the neighbourhood, and afford a playground for children’. His determination to tackle the prevalence of lung disease in the neighbourhood (seven times higher than the rest of the borough) was shown in another innovation; whilst the cottage designs generally reflected the progressive influence of housing reformer Raymond Unwin, Type B offered ’a more original plan’ – a single, dual-aspect ‘large, and well lighted living room’ to replace the smaller parlour and living room then usually favoured.

Curzon Howe Road today

In the end, cost-cutting won the day. Though 193 run-down houses were demolished, a far more conventional – though still attractive and well-proportioned – linear street of 43 new houses emerged. The council could, however, still take justifiable pride in Curzon Howe Road when it was officially opened in October 1912. The Cluett family recorded a tenancy of 76 years at no 26, beginning in 1915 but apparently now just three of the homes remain in council ownership.

The plaque unveiled in 1912 and pictured contemporarily

The First World War and its aftermath brought more pressure to clear slums and build the ‘homes for heroes’ promised by prime minister Lloyd George. The Council, still securely in Conservative hands, hesitated initially, concerned over high building costs (at around £1000 per house) and rents likely reaching 12 to 16 shillings (60 to 80p) a week. It’s an indication of the pressure brought by central government at the time that it took a phone call from the Ministry of Health and Housing’s local commissioner – threatening a motion for default against the council – to force its hand. (3)

Councillor Charles Childe (chair of the Housing Committee) at least was clear that the Council must seize the moment:

He agreed the housing schemes were not a business proposition, but there was a side of the housing question that was not economic. By carrying out these schemes they would be providing for the health and betterment of the people. It was better to spend money in that way rather than in building sanatoria.

Medina Road, Wymering Garden Village

In the end, helped by a 1920 boundary extension which incorporated Cosham and Wymering on the mainland to the north, Portsmouth built 591 homes under Christopher Addison’s 1919 Housing Act. Among the largest estates were Henderson Road in Eastney, with 254 homes, and what was called a little grandiloquently Wymering Garden Village. After that, the Council’s eloquence failed and most of the estate’s hundred or so new houses – good quality homes along tree-lined streets – were built on First, Second and Third Avenues off Medina Road.

Unusually this pair of houses on Medina Road, Wymering, is precisely dated: 1924

Lloyd George’s promise and Addison’s programme were cut short by spending cuts in 1921 but municipal housebuilding was revived by Housing Acts in 1923 and, more importantly, 1924. Portsmouth built 951 homes under the 1924 Act, most dotted around the island, a few to the far north on Portsdown Hill.

Cottage flats, St Faiths Road

Nationally, the housing programme took a new direction in 1930 when Arthur Greenwood’s Housing Act targeted slum clearance and the rehousing of its residents for the first time. Here Portsmouth was ahead of the game, having demolished 381 derelict homes in Portsea under the 1924 Act. Eighty-nine further homes were cleared around Voller Street in Landport. The street disappeared but the 52 cottage flats built to replace them on St Faiths and Temple Streets remain.

Campaigning by the local press may have played its part. The Evening News invited readers on the waiting list – over 1000-strong in 1924 – to send details of their housing circumstances and it publicised the most egregious cases, for example a five-roomed cottage inhabited by twelve people: ‘the applicant has six children and his wife died of tuberculosis and the lodger is in the last stages of the disease’, it reported. (4)

Isle of Wight Estate Brightstone Road SN

Brightstone Road, Isle of Wight Estate

Portsmouth built a further 1148 homes under the 1930 legislation – houses in Landport and Portsea on the island and major schemes to the north in Wymering, north of Whitstable Road and south of Medina Road on the so-called Isle of Wight Estate where roads were named after Wight towns.

Slum clearance remained a priority, however, pushed by central government and encouraged by Mearns Fraser’s successor as Medical Officer of Health, Dr AB Williamson, who described slums as ‘radiating centres of disease and health and mental degradation’ at a local church conference in 1934. That message was endorsed by Councillor AE Allaway, chair of the Health Committee, who was clear that ‘money spent on slum clearance will be more than saved in other health services’. (5)

For the moment, Portsmouth was prepared to put its money where its mouth was. The Council had scheduled (declared for clearance) fifteen areas, nine of them on the island, involving the demolition of 796 homes and the rehousing of some 3659 residents. Some 508 individual insanitary houses were additionally slated for demolition. In total, the Council estimated around a 1000 new council homes would be required. (6)

Cllr AE Allaway

The issue of where this housing should be was also beginning to preoccupy the Council. Councillor Allaway hoped that by means of three-storey flats it would be possible to ‘to put quite one-third more people on the sites than if we built houses’. By 1937, turning back to the pioneering work of Andrew Mearns Fraser, a Special Committee of the Council had been convened ‘to consider the layout of the Portsea area’. (7) The time and expense of travel to work from distant Corporation suburbs were a particular issue for many of the poorer residents displaced from central Portsmouth.

Privett House, off Cumberland Street, Portsea CC Mike Faherty

By 1939, the Council had built 2806 new homes. Around 430 of these were flats in the inner city including those in Privett House, a five-storey block north of Cumberland Street, commenced in the late 1930s.

This image of the centre of Portsmouth with cleared bombsites in 1950 shows the extent of the impact of wartime bombing.

But that constructive work was rapidly overshadowed by the devastating impact of the Blitz on Portsmouth. From July 1940 to May 1944, the city suffered 76 air raids and some 930 civilians were killed. It was estimated 6625 houses were destroyed – around 10 percent of housing stock – and a further 6549 severely damaged.

This photograph of Conway Street in Landport in 1940 shows its personal impact.

Typically, planning for the post-war world began early with the Council setting up a Special Replanning Committee in February 1941. It was boosted by a visit from Lord Reith, Minister of Works and Buildings, in March at which he urged Portsmouth ‘to plan boldly and on a large scale … with the expectation that a good many of the difficulties that have prevented them doing so in the past will be adjusted’. FAC Maunder, then Deputy City Architect, was tasked with preparing preliminary proposals for the Council. (8)

Other interested parties also made their views known. A Replanning Advisory Panel of the Chamber of Commerce, set up in July 1941, recommended the dispersal of around 50,000 of the city’s current population to large new settlements on the mainland. In 1943, the Replanning Committee of the local Labour Party urged municipally owned estates and ‘self-contained houses wherever possible’. Despite their political differences, both reports opposed flats except, in the Labour Party’s words, ‘in a few instances where absolutely necessary’. In this, they captured popular sentiment: a Mass Observation survey in the city showed 92 percent wanting to live in a house rather than flat. (9)

Maunder’s report, accepted with one dissentient, was published in February 1943 and largely followed these lines. It advocated an urban (in effect, island) population of 150,000 at no more than 70 persons per acre, grouped – the coming idea – into neighbourhood units. Its big idea was to disperse around 60,000 of the current population into two new settlements, one around Leigh Park (on land within Petersfield Rural District and Havant and Waterloo Urban District) – envisaged as a satellite town, ‘the Garden City of the South’ – and another, more of a dormitory estate, around Waterlooville. Maunder himself was appointed City Planning Officer heading a new City Planning and Reconstruction Department in July 1944.

Cllr FGH Storey

Little could be achieved under the exigencies of war but the Council had already acted boldly as Reith had advised in setting in motion the purchase of land at Leigh Park. It had rather daringly entrusted Conservative councillor FGH Storey with full powers to negotiate the deal as early as August 1943 and the land (with an additional extension in 1946) was bought in 1944.

We’ll continue this story in next week’s post, examining what became – amongst other things – of those high ideals around Leigh Park and the conflicting ideas around suburban and inner-city development.

Sources

(1) Portsmouth City Council, A History of Council Housing in Portsmouth (2011). The ‘northern city’ quotation is drawn from John Ashmore, ‘Rebalancing Britain: The northern city on the south coast’, CAPX, 18 July 2019.

(2) Andrea Verenini and Fabiano Lemes De Oliveira, ‘The Ambiguity of Town Planning: Innovation or Re-Interpretation?’, 15th International Planning History Society Conference, July 2012

(3) Details drawn from ‘Portsmouth Council. More About the New Houses: their Cost when Erected’, Hampshire Telegraph and Post, 14 May 1920 and ‘Portsmouth’s Housing. The Council and the Hill Scheme’, Portsmouth Evening News, 4 December 1920

(4) ‘Portsmouth’s Terrible Record. Facts for the Town Council’, Portsmouth Evening News, 31 December 1924

(5) ‘Slum Clearance’, Portsmouth Evening News, 6 March 1934

(6) Councillor AE Allaway, ‘The Housing and Slum Clearance Problem in Portsmouth’, Journal of the Royal Sanitary Institute, vol 55, no 1, January 1934

(7) ‘Portsmouth Slum Clearance’, Portsmouth Evening News, 28 April 1937

(8) ‘Plan Boldly’, Portsmouth Evening News, 21 March 1941

(9) Tatsuya Tsubaki, Post-war Reconstruction and the Questions of Popular Housing Provision, 1939-1951, PhD thesis in Social History, University of Warwick, 1993

(10) ‘Portsmouth City Council Buy Leigh Park Estate’, Portsmouth Evening News, 9 February 1944

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