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ABSTRACT
This article explores the role of the post-war new towns in Scotland in providing people with the opportunity to own their own homes. Most importantly, it traces the development of this policy prior to the ‘Right to Buy’ of the early 1980s when tenants were offered substantial discounts by local authorities, housing associations and crucially, new town development corporations. The article challenges the dominance of rented tenure in existing accounts of Scottish housing, showing that there was demand for ownership in Scotland in the decades before the introduction of incentives. This article takes a ‘top down’ and ‘bottom up’ approach to understand a period of expanding opportunity for some, though not all, of those relocating and starting new lives in East Kilbride, Glenrothes and Cumbernauld. Archive evidence exploring policy and the response of the new town development corporations is complemented by analysis of life narratives provided by those that moved to the new towns and their children. In doing so, this article contributes to a growing scholarship that challenges stereotypical perceptions of class and identity in the immediate post-war decades whilst also revealing new insights into the post-war state as an enabler of opportunity for some.
Acknowledgments
This article is one of the outputs from the Leverhulme Trust-funded project ‘Building a Modern Scotland: The New Towns, 1947-2017’ (ref. RPG-2020-904). This project gained ethical approval for collection of oral history life narratives from the College of Arts Research Ethics at the University of Glasgow on 10 August 2021 (application number 100200185). The authors would like to thank Lynn Abrams and Miles Glendinning for advice on the draft text and points of detail, and Contemporary British History’s anonymous readers for their helpful suggestions and comments.
Disclosure statement
No potential conflict of interest was reported by the author(s).
Notes
1. “No sale” Plea after Corporation Houses Shock’, East Kilbride News, 6 November 1970.
2. East Kilbride Development Corporation (EKDC), Minutes, 22 August 1967. South Lanarkshire Archives, East Kilbride.
3. “Picketing of Show Flat Continues,” East Kilbride News, 2 December 1966.
4. E.g. Ortolano, Thatcher’s Progress; Boughton, Municipal Dreams; and Glendinning and Muthesius, Tower Block.
5. O’Carroll, “Tenements to Bungalows,” 221–41; McFadden, Creating a Modern Home; and Glendinning and Watters (eds) Home Builders.
6. Merrett with Gray, Owner Occupation in Britain.
7. Scott, The Making of the Modern British Home, 233–246. For an earlier study of suburban development or the fear of urban sprawl around London see Jackson, Semi-Detached London.
8. Clapson, Invincible Green Suburbs, Brave New Towns.
9. Clapson, A Social History of Milton Keynes, 59–60 and 154.
10. Boughton, Municipal Dreams, 212–31.
11. Cullingworth and Karn, The Ownership and Management of Housing.
12. Glendinning, “Ballantyne Report”; Begg, 50 Special Years, 13–14; and Hansard, HC Deb 11 May 1950 vol 475 c. 595.
13. Begg, 50 Special Years, 13–14.
14. Begg, Housing Policy in Scotland, 108, 119, and 146.
15. For Stonehouse, see Fair, “Stonehouse: Scotland’s Last New Town”.
16. E.g. Department of Health for Scotland, New Town at East Kilbride, 12.
17. E.g. J.M. Ross memo, 20 February 1974. National Records of Scotland [NRS], SEP15/574.
18. Fair, “Community Centre.”
19. For design: J.H. McGuinness to H.T. MacCalman, 16 November 1946. NRS, SEP15/75, and DHS, New Town at East Kilbride, 12.
20. Abrams et al., “Aspiration, Agency and the Production of New Selves”; and Abrams and Fleming, “Long Term Experiences of Tenants in Social Housing in East Kilbride.”
21. Kefford, “Housing the Citizen-Consumer,” 228.
22. Ibid., 247.
23. Ortolano, Thatcher’s Progress, 21.
24. E.g. Saumarez Smith, Boom Cities; Kefford, “Housing the Consumer-Citizen”; and Fair, “Privacy”.
25. Robinson et al., “Telling Stories about Post-War Britain,” 302.
26. Lawrence, Me, Me, Me, 230–36.
27. See Abrams et al., “Aspiration, Agency and the Production of New Selves”; also Phillips et al., Deindustrialisation and the Moral Economy in Scotland Since 1955, 155–56.
28. Crossman, The Diaries of a Cabinet Minister, 376.
29. Ibid., 377.
30. Cullingworth, New Towns Policy, 429.
31. Ibid., 430–33.
32. “Crossman Plan Aims to Make Home Owning Easier,” Times, 25 November 1965.
33. H.F.G. Kelly to P. Cousins, 16 February 1967. The National Archives, Kew [TNA], T224/1841.
34. P. Cousins to S. Scott Whyte, [2 March 1967]. TNA, T224/1841.
35. S. Scott Whyte to P. Cousins, 10 March 1967. TNA, T224/1841.
36. Ibid.
37. For council housing: Boughton, Municipal Dreams; Dunleavy, Politics of Mass Housing; and Glendinning and Muthesius, Tower Block.
38. “Remits for Sub-Committees.” NRS, DD6/221; First Draft Report [May 1945]. NRS, DD6/230.
39. Ministry of Town and Country Planning/DHS, Final Report of the New Towns Committee, 9–11.
40. Cullingworth and Karn, The Ownership and Management of Housing in the New Towns, 16–17.
41. Begg, 50 Special Years, 163.
42. Ibid., 181–88.
43. “Interim Summary Report.” TNA, HLG115/798.
44. Ibid.
45. Glenrothes Development Corporation [GDC], Annual Report, 1966.
46. East Kilbride Development Corporation [EKDC], ‘Official Guide to East Kilbride’ [1972]. East Kilbride Central Library, uncat.
47. EKDC, Annual Reports, 1959 and 1962.
48. EKDC, Minutes, 12 January 1962. East Kilbride Central Library, uncat.
49. EKDC, Annual Report, 1965.
50. EKDC, Annual Report, 1969.
51. GDC, Annual Report, 1967.
52. Cumbernauld Development Corporation [CDC], Annual Report, 1978.
53. CDC, A Businessman’s Tour of Cumbernauld Edinburgh: CDC, 1978, 10.
54. EKDC, “Official Guide.”
55. “Owner-Occupation and the Role of Private Enterprise.” 14 March 1967. TNA, HLG116/323. Also Cullingworth, New Towns Policy, 432.
56. Harwood, Space Hope and Brutalism, 54.
57. Draft circular: “Private Enterprise in New Towns.” TNA, HLG116/554; P. Cousins to A. Sylvester-Evans, 13 July 1967. TNA, T224/1841.
58. Note on Cost [Llantrisant, c. 1967]. TNA, T341/597.
59. Derek Lyddon memo, 7 July 1971. NRS, SEP15/733; also Fair, “Stonehouse.”
60. Minutes of 23 July 1969. TNA, HLG116/552.
61. E. Thompson to M. Stevenson, 1 January 1970. TNA, HLG116/552.
62. Draft Circular: “Private Enterprise Housing in New Towns.” TNA, HLG116/554.
63. Scottish Development Department, Central Scotland: A Programme for Development and Growth.
64. West Central Scotland Plan Team, West Central Scotland Plan, 120.
65. Draft Report. NRS, DD64/2382.
66. West Central Scotland Plan Team, West Central Scotland Plan, 9 and 19.
67. Interim Summary Report 2 [November 1967], 58. TNA, HLG115/798.
68. Briefing Note for Lord Hughes, November 1968. NRS, DD6/4486.
69. Interview with George Young, New Towns Record [Planning Exchange CD-ROM, 1996].
70. Cullingworth and Karn, Ownership and Management, iii.
71. Ibid., 153.
72. Ibid., 67 and 131.
73. Ibid., 66.
74. Ibid., 154.
75. Ibid., 153.
76. Ibid., 131 and 140.
77. “The Market for Private Housing in Scotland” [October 1971]. NRS, DD6/2382.
78. Working Group Introductory Paper. NRS, DD6/2382.
79. 1st Draft Report. NRS, DD6/2382.
80. Draft Circular: “Private Enterprise Housing in New Towns.” TNA, HLG116/554.
81. Meeting with Scottish Association of Registered Housebuilders, 8 October 1970. NRS, DD6/4487.
82. Draft Circular: “Private Enterprise Housing in New Towns.” TNA, HLG116/554.
83. Cullingworth, New Towns Policy, 444.
84. Revised Draft Circular: “Private Enterprise Housing in New Towns.” TNA, HLG116/554.
85. Ibid.
86. New Town Circular 43: “Owner Occupation in the New Towns,” 1967. TNA, HLG116/552.
87. First Draft Report; Second Draft Report. NRS, DD6/2382.
88. New Town Circular 43: “Owner Occupation in the New Towns,” 1967. TNA, HLG116/552.
89. Boughton, Municipal Dreams, 144; See also Forrest and Murie, “Residualisation and Council Housing”; and Murie, “Divisions of Home Ownership.”
90. In 1972, in England and Wales, the Housing Finance Act effectively resulted in rent increases as council housing subsidies were reduced and replaced by controlled rents with ‘fair’ rents. In Scotland, the 1972 Housing (Financial Provisions) Act resulted in rent increases for some local authority tenants but with a system of rent rebates and allowances. See Hansard HC Deb 24 March 1975 vol 889 cc 35–172 for further details.
91. Minutes of 23 July 1969. TNA, HLG116/552.
92. Note of meeting with Building Societies, 24 July 1969. TNA, HLG116/552.
93. “Subsidies for Owner Occupiers,” 21 January 1971. NRS, DD6/2383.
94. “Study of Financial Benefits.” TNA, HLG116/552.
95. Cullingworth, New Towns Policy, 441.
96. E. Thompson to M. Stevenson, 1 January 1970; TNA, HLG116/552.
97. “The East Kilbride Survey 1970.” East Kilbride Central Library, uncat.
98. EKDC, Annual Report, 1956.
99. It was suggested that the ‘high level of valuation’ in the town deterred construction firms. GDC, Annual Report, 1954.
100. GDC, Annual Report, 1958, 1959. The Department of Health for Scotland approved their proposals for the sale of houses in 1960. GDC, Annual Report, 1960.
101. CDC, Annual Report, 1962 and 1966.
102. Fair, “Privacy.”
103. EKDC, Annual Report, 1966.
104. “700 Inquiries for 200 Homes,” Scotsman, 28 August 1964.
105. GDC, Annual Report, 1968.
106. By 1968 all of the 30 plots set aside in the Park area for owner-occupation had been sold, and over half of the houses were built or under construction. CDC, Annual Report, 1968.
107. EKDC, Annual Report, 1959.
108. Glasgow Herald, 9 May 1966.
109. EKDC, Minutes, 26 June 1958 and 26 September 1958.
110. GDC, Annual Report, 1966.
111. CDC, Annual Report, 1968.
112. EKDC, Annual Report, 1966.
113. Ibid.
114. EKDC, Annual Report, 1964.
115. “Buy Your Houses, E.K. Tells Tenants,” Glasgow Evening Times, 7 September 1966.
116. Ibid.
117. EKDC, Annual Report, 1968.
118. EKDC, Annual Report, 1967.
119. EKDC, Minutes, 20 September 1966 and 11 October 1966.
120. EKDC, Minutes, 11 October 1966.
121. CDC, Annual Report, 1968.
122. EKDC, Annual Report, 1970.
123. Ibid.
124. GDC, Annual Report, 1970.
125. CDC, Annual Report, 1970 (and also 1971).
126. CDC, Annual Reports, 1972.
127. EKDC, 1970 Residents’ Handbook.
128. EKDC, Annual Report, 1973.
129. GDC, Annual Report, 1972.
130. CDC, Annual Report, 1973.
131. Ibid.
132. Ibid.
133. GDC, Annual Report, 1974.
134. Phrase first used in GDC, Annual Report, 1975 and CDC, Annual Report, 1976.
135. EKDC, GDC and CDC, Annual Reports 1972–82.
136. GDC, Annual Report, 1977, point reiterated in 1978.
137. GDC, Annual Report, 1979.
138. CDC, Annual Report, 1980.
139. EKDC, Annual Report, 1982.
140. GDC, Annual Report, 1980.
141. Alexander, Interview with Valerie Wright (VW), Glenrothes, 9 November 2021.
142. Alexander, Interview with VW, Glenrothes, 9 November 2021.
143. See also McFadden, Creating a modern home.
144. Abrams et al., “Aspiration, Agency and the Production of New Selves,” 600.
145. Savage, “The Politics of Elective Belonging.”
146. Lawrence, Me, Me, Me, 102.
147. Ibid.
148. Although as Lawrence argues this ‘vulnerable equilibrium’ becomes increasingly strained or complicated by social and cultural changes during the 1960s. See Lawrence, Me, Me, Me, 103–63.
149. Jim B, Interview with VW, Glenrothes, 4 November 2021.
150. See Glendinning and Watters, Home Builders, esp. 285–86.
151. Fair, Privacy, 336–42.
152. As at 31st March 2020 the Scottish Government estimate 58% of dwellings are owner occupied, https://www.gov.scot/publications/housing-statistics-2020–2021-key-trends-summary/pages/6/ [accessed 19 January 2023].
153. Andy, Interview with VW, Cumbernauld, 31 May 2022.
154. Glendinning and Watters, “Cumbernauld,” 232–62.
155. Andy, Interview with VW, Cumbernauld, 31 May 2022.
156. Sarah, Interview with VW, Cumbernauld, 19 July 2022.
157. See more on courtyard houses in Cumbernauld see Fair, “Privacy.”
158. Sarah, Interview with VW, Cumbernauld, 19 July 2022.
159. Fraser, Interview with VW, Edinburgh, 7 December 2021.
160. For example all three development corporations had implemented graduated rent schemes in the 1960s which meant supplementing those families with lower incomes. CDC, Annual report, 1963; EKDC, 1965; GDC, 1967. This was later replaced by the government’s national policy of paying rents directly for those in receipt of social security benefits through the DHSS. Nevertheless rent arrears mounted and by 1982 a fifth of tenants in Glenrothes were ‘seriously behind’ with their rent owing between £100 and £500. Arrears were less in East Kilbride but had increased by 0.25% in 1982. GDC, 1982, EKDC, 1982. Cumbernauld Development Corporation did not report arrears in its annual reports.
161. Lawrence, Me, Me, Me, 163 and 193.
162. Lawrence, Me, Me, Me, 194 and 233–6.
163. Phyllis, Interview with VW, by phone 30 May 2022.
164. Collins and Levitt, “The ‘modernisation’ of Scotland.”
165. Black et al., Reassessing 1970s Britain. For another alternative perspective see Tomlinson, “De-Industrialization Not Decline.”