DELIVERING ESTATE RENEWAL

A briefing from London housing leaders As highlighted throughout Future of London’s Estate Renewal programme1, escalating land values, increased pressure on assets and diminished grant mean estate renewal is key to addressing London’s housing crisis – particularly for the afford- able tenures the capital’s employment base needs. As the 2015 Autumn Statement beds in and the Housing Bill makes its way through Parliament, the ground continues to shift. In addition to the ongoing curb the HRA borrowing cap places on council home-building, the extension of Right to Buy could have a major impact on estate renewal programmes and, coupled with rent reductions, with housing associa- tions’ financial planning and independence. The London-wide top-slice of councils’ most valuable residential assets also risks hindering public-sector ability – and will – to build. Finally, as one practitioner put it, uncertainty around the final content of the Housing Bill is putting the same brake on investment and activity as the Scottish – and now EU – referendum. With so much at stake, the creation of the Heseltine Estate Regeneration Panel2 and its ability to work out the detail of incoming policy was applauded across the London sector.

The Delivering Estate Renewal Chatham House roundtables this briefing is based on were designed to help, by bringing together cross-sector experts in London housing delivery to assess the state and potential of estate renewal, in terms of Strategy, Community Relations and Delivery. Hosted by Bilfinger GVA, the sessions focused on agreeing main obstacles to effective estate renewal and sharing workable approaches with the sector, mayoral candidates and central government.

Future of London Bilfinger GVA Pollard Thomas Edwards Future of London is a not-for-profit policy We recognise that London’s future as a We specialise in the creation of new neigh- network connecting senior practitioners in leading global city rests upon making the bourhoods and the revitalisation of old regeneration, housing, infrastructure and most if its assets, investing in its infrastruc- ones. Our projects embrace the whole spec- economic development. ture and renewing its neighbourhoods. trum of residential development and other Whether it’s , Docklands, or essential ingredients which make our cities, Our public-sector members include local the outlying boroughs, we provide compre- towns and villages thriving and sustainable authorities, housing associations, the GLA, hensive property advice across London. places: schools and nurseries, health and TfL, LLDC and Westway Trust, and our cross- community centres, shops and workspaces, sector partners are leaders in London’s We carefully blend market-leading real places to recreate, exercise and enjoy civic built-environment sector. As an independent estate consultancy skills with market intel- life. entity with a strong board, steering group ligence. Our knowledge of the London www.pollardthomasedwards.co.uk and associate base, we respond nimbly and markets is based on experience of advising usefully to issues shaping London, and en- the capital’s top investors, developers, oc- Lewis Silkin able genuine cross-sector connections. cupiers and landowners. Our clients range from small businesses to Future of London’s aim is to build skills, We work throughout London – setting FTSE100 companies, but even the giants networks and knowledge amongst urban strategies; helping formulate policy; direct- among them value our personal touch, our practitioners – at all levels, across the Capi- ing funding and investment; letting and effective communication, and our individual tal. We deliver rigorous policy research, selling space across sectors; overseeing style. Within the firm you will find not only thought-provoking events and visits, and in- construction; managing offices, shop- recognised experts in all major service ar- tertwine them all with our acclaimed leader- ping centres and leisure attractions; and eas, but also the many others who make our ship programmes to put ideas into practice. winning planning consent on some of success possible and who work as part of www.futureoflondon.org.uk London’s most exciting schemes. We are our wider team in delivering results that our at the forefront of regeneration and estate clients value highly. renewal initiatives across the capital. www.lewissilkin.com Find out more at www.gva.co.uk

Acknowledgements: Contents Thanks to all the roundtable participants for their time and insight – a complete list is at the end of this briefing. The roundtables were chaired and this report INTRODUCTION 1 was edited by Future of London director Lisa Taylor, with contributions from Alexei Schwab, Jo Wilson and Olivia Russell. Thanks also to the Bilfinger GVA STRATEGY 2 marketing and comms teams. COMMUNITY RELATIONS 4

DELIVERY 6 Future of London - 70 Cowcross Street, London, EC1M 6EJ www.futureoflondon.org.uk Roundtable participants Registered in & Wales, No. 0757562 13

Cover photo: . Photo: Future of London INTRODUCTION

It’s worth taking a moment to look for social ills or housing need. As a gentrification debate, so the proposed beyond the current debate about the number of participants put it, we need tenant package must be robust. shape of estate renewal and consider to be clear about goals and about How to get all this done? For one housing need. Those responsible for what is achievable, or we will fail. thing, in addition to the expertise on London supply generally agree that There are serious delivery challenges the Heseltine panel, there is a wealth we must (a) shift gears rapidly from tied to land values and build costs, of cross-sector experience ready to the approximately 24,000 homes a and London needs devolved fiscal be tapped. Renewal is a long-term year being built to at least the 49,000 control to deliver housing effectively. process, requiring long-term perspec- a year target3; (b) house Further, policies which downplay tradi- tive, skills and partnerships. Improving people in socially and economi- tional social housing – particularly estates is also more than a physical cally mixed communities, to sustain renting – risk the economic value peo- issue, and a broader approach is our employment base and avoid the ple in this tenure contribute to London, needed for success. The focus on geographic ghettoisation of unbal- and can hinder delicate discussion physical layout – and the “sink estate” anced cities like Paris; and (c) do all and intervention. The call for higher- stereotype, which most London estates this without counting on much central value council sales is also uniquely do not fit – led a number of round- grant or loan funding4 – and across disruptive in the capital, and delivery table participants to call the recent election cycles. here would benefit from “a set of Savills report tied to central govern- Estate renewal has a key role in locally autonomous policies” and an ment’s estate proposals5 limited and achieving this. However, these acknowledgment that London is forced possibly counterproductive. programmes must be economically to do things differently. This briefing encapsulates anonymised viable; socially and politically at- If we continue on the current path, roundtable discussion and is divided tractive; deliverable; sustainable in more than one practitioner predicted into the same themes of Strategy, the broad sense; and coordinated to the demise of social housing within Community Relations and Delivery. some degree across the capital. Estate the next 10 years, which raises the Each section includes proposed ac- renewal is not the “magic solution” spectre of protest. Regeneration must tions for central government, the new to London’s housing problem or an reprovide existing housing – at mini- London mayor and GLA, and the “untapped resource”. It’s complex, ex- mum, in the same tenure and area cross-sector organisations who lead pensive and delicate, although it may – to have public legitimacy. Pushing house-building in London. We hope be tempting to view it as an easy fix people out will “feed the fires” of the you find it useful.

Recurring themes and recommendations to central government

Social housing residents make an Focusing on poorest-condition estates Estate renewal cycles can last up to enormous contribution to London, in- has merit, but the term “sink estates” 20 years, which means disruption is cluding a direct economic contribution is pejorative and alienating. Further, the new norm. of £15bn, as shown in an upcoming the priority in London, with its unre- > Support long-term programmes 6 report . At the same time, housing af- lenting housing pressures, is best use for communications and meanwhile fordability is considered a major chal- of public assets, including densifica- activity to offset disruption and keep lenge to London’s continued economic tion to increase numbers of homes. communities strong. 7 prosperity. > Acknowledge that London’s popu- Uncertainty over Housing Bill implica- > Commission research and use lation and price pressures make it tions has caused chaos in the sector: existing data on the economic value unique, and that the wider issue schemes on hold, financial impact, es- of social housing to inform policy; here is creating new homes as well pecially on housing associations, and consider residents as economic as better ones; shift funding and a widespread strategic pause which stakeholders. energy to projects that will support stifles housing delivery now and in the this aspect of regeneration. The extension of the Right to Buy long term. policy, coupled with the additional Local authorities can deliver housing > Clarify all aspects of the Housing discount, could cripple estate renewal, that meets local priorities, directly, Bill as soon as feasible. both for effective refurbishment, and through joint ventures and/or via for financially viable replacement. council-owned companies; some need > Assuming the programme cannot additional staff to be effective, but it be stopped, options could be to re- can be done. think the structure, exempt London, > Free councils to build the homes or at minimum loosen constraints on their communities need by raising local authority use of receipts. the Housing Revenue Account bor- rowing cap and supporting staffing.

BRIEFING: DELIVERING ESTATE RENEWAL 1 STRATEGY:Rethinking the rationale for Estate Renewal

Why are we doing it? As one experienced practitioner put it, “We talk about the ’producer side’ (politicians, officers, developers) and the ’consumer side’ (residents, neigh- bours) but do these stakeholders really understand what the others want?” All involved in the delivery of estate renewal – including residents – need an aligned focus on what we want to achieve; once we’ve got that, workable models can be created.

The first wave of estate renewal was Poplar from Balfron Tower. Photo: Future of London driven by the need to replace poor- quality building stock, but in London, where they live. In Earl’s Court,8 for Finally, the ongoing Right to Buy pro- most of those estates have been refur- instance, where 50% of estate resi- gramme is problematic for councillors bished or redeveloped. The agenda is dents are leaseholders, “this leads to as well as private or public develop- now driven by the need to build more interesting and difficult dynamics”. ers. The latter must absorb the costs of homes and get more sustainable use A number of participants pointed out buy-backs or work-arounds, while for from public assets. As a number of that we should be talking about “plac- councillors, RTB can transform tenants’ speakers noted, a serious side-effect es and homes rather than estates.” The rights from a positive ideal to a per- is that estate renewal now involves need is to make these better places – ceived threat, with the connotation of disruption to leaseholders and tenants for quality of life, to raise families and making life difficult before and during who more often than not live in solidly- for economic opportunity and public schemes. built homes. space – and design won’t do that by Where should we be This raises the ancillary question of itself; now-desirable 1930s terraced “Whose estate is it anyway?” Do they houses once had the same social headed? belong to residents, or are they public problems as estates have had. As one Renewal as the norm: Cities are assets? There is potential to move the researcher pointed out, we must use in a constant state of renewal, but quantum of schemes ahead faster, with evidence to distinguish the symptoms estate renewal is still usually treated many estates – five cited by just one from the causes of problems in housing as “the exception to the norm,” and participant – “good to go” in terms of estates. as one participant put it, “some of the feasibility, but stalled for lack of sub- challenge in regeneration is intrinsic It’s also worth re-examining the defini- sidy or political support. Polarisation in this ‘exceptional’ quality”. It would tion of “balanced community” and on this question can make it difficult for help to normalise the process for recognising that home ownership – councillors to support estate renewal residents and others affected, and even by owner-occupiers – is part of that. schemes. However, with the sector shift- to treat renewal as “a new orthodoxy Boroughs also recognise that mono- ing from single institutional ownership of place management”. Housing tenure and residential-only use are not by councils or housing associations to providers can invite the wider business healthy, and, with their housing asso- new structures and tenures, this may be and voluntary sectors to contribute ciation counterparts, are working more the last window for large-scale estate before, during and after the process, with resident groups, local service renewal: “we have one chance to do to avoid characterising renewal as providers and businesses, as conduits this, and we can’t fail.” episodic or isolated. and for area uplift. Communities work What has estate re- best when they are about more than Beyond the physical change: Expanding on that theme, a housing newal become? estate residents, and include those who work in and use the area. association practitioner said that while Most renewal is no longer undertaken “we [can be] fixated on renewal as a As to the industry, much is understand- to tackle physical or social problems physical process, you can do estate ably in flux, given high land values, within the existing estate. London renewal without touching a brick.” policy uncertainty and competition housing estates, especially in central Particularly in cases where social – the last already limited to major play- and western boroughs, are by and problems are a strong driver – as ers, as smaller firms are priced out by large in decent condition, even when with central government’s focus – cost and time. One housing associa- “the design is not great” and they do renewal should be part of long-term tion speaker called for more strategic not make the best use of space. The programme, addressing issues such leadership, to address the fact that argument for densifying and improving as quality of life, jobs, and enterprise, current activity is “haphazard”, with the urban environment is tricky when and/or packaging the physical and organisations forced to be reactive, the residents are fundamentally happy non-physical together for a broader rather than proactive.

BRIEFING: 2 DELIVERING ESTATE RENEWAL offer. It’s critical to learn residents’ see the local aspect and the context Why are we concerns, often less about design than beyond the scheme boundary. The undertaking estate about questions like “Where will I Savills report, for instance, considered work?’ or “Where’s my child going to renewal and where streetscape but not public transport live?”, and to think beyond completion, access. Transport, public realm and are we going? in timescales of 60, 70 or 100 years. related issues such as parking – which Hilary Satchwell, Director, In the shorter term, roundtable can flip from a glut to a shortage with Tibbalds Planning & Urban participants called for quick wins market sale – are key factors in estate renewal. Design and “meanwhile stories” during a long estate renewal process, such Looking at maps of the capital, Now that the most dysfunctional as improved lighting and security; housing estates show up as gaps in London post-war estates have activities for older people and other the urban fabric, and one practitioner been renewed or are on their marginalised groups; or public realm pointed out, it’s important to “stitch way, the trickier or more con- improvements like tree planting during them back in to the city” to make strained ones, and those with disruption. Even if these are later them – and their surrounding areas – less clear social needs, are on removed, it helps residents to see more resilient. Renewal often takes in the table. External funding is positive impacts of change, and “the ancillary or semi-industrial space, as in harder to secure, so viability process has to be as enjoyable as and Enfield, and that could is critical, both at construction possible.” expand if Strategic Industrial Land is stage and in relation to ongoing Consider the context: From a spatial re-examined. This is more than just a revenue and maintenance costs. planning perspective, it’s important to housing issue. Borough motivation varies. Some want new homes to accommo- date those in need of social or affordable housing. Others want to improve existing stock, and What can central • London has been good at any new homes are a useful by- government do? estate renewal, thanks to product or necessary for viability. cross-party and inter-borough • The Housing Bill naturally In other places, estate renewal is consensus; that must continue overrides everything related or the process will become very used to increase density, support to estate renewal. As currently difficult. Mayoral candidates local economies or rebalance outlined, a number of need evidence to make sound housing tenures. provisions make estate renewal choices for the capital, and must extremely difficult in London; The aesthetics of post-war hous- get pledges locked into their an acknowledgement of the ing estates have also become manifestos. There is a need to capital’s constraints and flex- depoliticise housing and estate a factor. Some estates are now ibility around key provisions renewal, to gather an evidence lauded as great examples of (notably Right to Buy, starter base, and then to engage design (even if they never worked homes requirements and high- candidates and councillors on a well for residents). These have value council asset sales) would non-partisan basis. become fashionable, relatively speed delivery of homes. What can the London affordable places for people • To avoid the planning and keen to be involved in the com- legal delays that can result housing sector do? munity. In other places, prejudice from policy gaps or unforeseen • Motivations and needs vary against 1960s aesthetics has policy consequences, a “ration- across the sector. It could be landed estate renewal on the al position with strong support extremely useful to have “one document that lays out how agenda. from the top” is needed at the delivery level. No matter what different interests align,” so par- Looking ahead, there is an the government’s final estate ties understand both common immediate clash between the na- renewal stance, the clearer ground and challenges, and can tional drive for home ownership the message and guidance the be honest about what can be and the need for schemes to be better. achieved. self-funded. In the longer term, What can the new • While one-size-fits-all approach- we know people will continue mayor and GLA do? es to estate renewal don’t work in practice, the sector can share to need housing but don’t know • There are polarised opinions on expertise more. Networks like what the models will be. In the the question of ‘whose estate Future of London, London Coun- meantime, we must continue to is it anyway?’ The GLA and cils and the Housing Forum can new mayor could support local deliver places that work well, and all help, working with the GLA authorities in managing this. go beyond the purely physical. and feeding into the Depart- ment for Communities and Local Government.

BRIEFING: DELIVERING ESTATE RENEWAL 3 COMMUNITY RELATIONS

In preparing communities for change on the scale of estate renewal, it’s worth remembering that “estates are not ‘sinks’,” as one participant said to general agreement, “but neigh- bourhoods and homes whatever the physical conditions, and people have relationships to the place and to each other.” Historically, estate renewal was usually good news: “knocking down slums and building nice new homes”. Now, the news can feel to residents more like upheaval and fear, or at best, “trading gardens for balconies.” Winstanley & York Road planned leisure centre. Image: Levitt Bernstein In spite of that, most residents prefer “a agreements. The leaseholder offer also comprehensive renewal involving dem- short, sharp shock” and for the disrup- needs to be sorted early, as “you won’t olition and doubling or tripling density tion to be over with. To achieve this, even get to the physical regeneration may always face some opposition. He homebuilders need assured cash flow if you can’t get past this.” A direct, sin- also suggested “unwrap[ping] tenant and contractor capacity, both difficult gle move is ideal, which necessitates and leaseholder” motivations. The to achieve in the current market. vacant sites and finance – Compulsory latter may reject change more strongly, Purchase Orders should be the last or dominate meetings or social media. Early involvement resort. However, one practitioner said Whatever their tenure or background, and a reasonable that from his experience, developing a the loudest people in the room may not offer fair deal for leaseholders seems to be represent the majority, and it’s worth All agreed it’s critical to involve people dealt with from scratch in each place. reaching out to less accessible groups. before the masterplan – estate renewal Leaseholders and freeholders have the There’s also the issue of the slow burn; shouldn’t come as a surprise to resi- most to lose, and need to gain or at a generation or more has lived through dents or to local businesses, which are least come out neutral. the renewal process in places like great communication hubs. Resident As an example, the Winstanley and Aylesbury.12 “All estates have their own support makes everything easier, York Road scheme in LB Wandsworth10 folk story” and angry residents hold on and “once you get commitment from involved a “sensible discussion about to bad stories, while “politicians have residents to move, everything opens values” and a generous offer to the to ride the wave”. The toughest prob- up.” There is a balance to be struck 170 leaseholders was built into the fi- lems stem from promises made and between taking time to do things right nancial model. People were brought on broken – in some cases, people have and avoid later problems on the one board before considering the physical been angry with good reason. hand, and delivering visible progress aspects, and 67% ended up in favour Further, “there is a past and a future and avoiding consultation fatigue on of intervention on the estate. story to estates, and existing and future the other. Understanding the stakeholders have different agendas.” Well-resourced residents’ organisations Whether they are tenants or lease- with clear remits have a key role here. audience holders, ‘incumbent v. newcomer’ They can “lead on the ground” and The demographics of estate residents is a universal tension. Nurturing the reach out to the elderly, marginalised are changing to include more varied ongoing community around an estate or resistant. The continuity they provide economic and cultural groups, and means finding ways to involve incom- through the life of a scheme – and will continue to do so with the phasing ing residents, businesses and organisa- through political changes – is invalu- out of lifetime assured tenancies. A tions with existing groups. able, as is their democratic nature. few participants felt that not enough is They need time, but are taken seri- known about who lives on estates now, Clear, consistent ously by all, including councillors. It’s or about their motivations and needs. communications also worth considering third parties to Real London Lives is one project which The case for change must be pre- 11 manage the community side, as with is tackling this. sented: is it stock condition, housing Manor House Development Trust at One resident representative said that pressure or social conditions? Be open Woodberry Down.9 despite having immediate personal and consistent – from the chief execu- No matter what the communications aspirations, “most tenants do see the tive to the front line – and be prepared channel, “there must be a good propo- need for more housing”. A good offer to work as hard on community rela- sition” for the physical change, decant- for them or their families can make tions throughout the process and after ing, right of return and future tenancy densifying an estate palatable, though completion as at the beginning.

BRIEFING: 4 DELIVERING ESTATE RENEWAL Part of that is discovering and sharing change to laws, markets, planning or up and spun across social media. One what is not possible, which involves politics which make it difficult to stick front-liner advocated slowing down, politicians being clear on their com- to original goals. It’s critical to be flex- picking up multiple themes being mitments. Politicians naturally start ible enough to respond – and to adapt aired online and making a considered out as leaders on renewal schemes, stakeholder conversations. No matter response. and “some will still try to front a what, reporting back to residents, even Countering negative attention is a chal- project when there are challenges”. when nothing has changed, is a must. lenge, especially when “the internet Even within a single party there are Defensive communications “will never makes everything permanent”. To tensions, and officers must support paper over cracks or flaws”. have a useful dialogue, everyone who those in leadership. According to one Before communicating between the “in- engages with residents needs the full 13 stakeholder, West blew up side and outside world”, including with history of an estate; a ‘who-said-what’ partly because false starts during an local and national politicians, partners tracking system can help, and this is overlong process led to distrust and an- must agree who speaks for the project. another place where direct resident 14 ger, and partly because two parties That being said, it’s rarely as simple as involvement helps. in a marginal borough were “playing one message to one place. Social me- politics” with tenants and leaseholders. dia, initially lauded as a dynamic tool Strong political leadership is key to for community communications, is a successful estate renewal. double-edged sword. It’s no substitute As one experienced practitioner al- for face-to-face contact, and can be lowed, “You can’t buttonhole every- an echo chamber for small but vocal Community relations thing and expect no bad news.” A groups. The minute a planning applica- - core principles scheme can take decades, during tion is published, for instance – and Chris Hall, Director, which time there is often massive sometimes before – it can be picked Bilfinger GVA • Make a clear case for change tied to the condition of hous- What can central What can the new ing and place as a whole government do? mayor and GLA do? • There is a real fear amongst • One suggestion was firmer • Have a sound, high-quality tenants that they will lose policy direction from the GLA proposition for tenant (re-) out permanently; even when on the Compulsory Purchase housing, estate as neighbour- unfounded, this fear makes Order process, to give clarity to hood, and area integration the decant process much more all involved and to support the complicated. With the end of councillors who must answer to • Alert stakeholders early to the assured tenancies, a strong, those directly affected. potential for regeneration, clear tenant package for right What can the London through local plans, corpo- to return and related options is housing sector do? rate strategy, etc.15 key. Any policy underlying the • “Tick all the boxes” – show tenant offer should be carefully why a scheme is needed, why • Engage local service provid- vetted, so promises made can a CPO is needed, and that ers and resident association be kept. they have engaged with those leaders early • To build goodwill and help affected. CPO specialists are • Use multiple ways to com- renewal schemes succeed, it’s often brought in late, and must worth considering support for find justification where good municate with residents and local delivery vehicles such as process hasn’t been followed. businesses – including social community trusts, and fund- Article 8 of the Human Rights media, but as a bellwether ing to leverage the inclusion of Act (respect for personal, family non-residential elements such life and home)16 plays a big • Ensure the entire delivery as workspace and community role here. Political support is organisation shares commit- services, from start through oc- also needed to use CPO pow- ment to delivery and the way cupancy. This can apply to GLA ers, so it must be timed with the proposition is communi- funding and support in equal election cycles. When it comes cated measure. to contentious areas of estate • Consider language – the term renewal, best practice is right • Include an economic strategy ‘sink estates’ has heightened morally, and will also reduce to enhance employment op- tensions and is outmoded in cost, complication and risk. portunities London. • To get greater value from estate renewal, recognise that people • Renew or build new commu- want to live in a neighbour- nity facilities first to establish hood, and work to preserve the confidence best in an estate’s character. Make estate renewal as neigh- bourly for the community as possible.

BRIEFING: DELIVERING ESTATE RENEWAL 5 DELIVERY: Overcoming obstacles

Funding challenges London estate renewal presents considerable viability and delivery challenges, primarily because of the high proportion of leaseholder properties, and because of the high cost of land assembly. In many cases, it is not viable to deliver traditional social housing under current conditions. For estate renewal in particular, the “density prize is smaller than people think” as one development executive put it. Despite – or because of – these challenges, funding and delivery mechanisms must be built into the process from the start – not as an afterthought or when a new scheme has been designed. One central government initiative in particular, the Help-to-Buy scheme, was lauded for helping to achieve good sales rates and simultaneously locking Packington Estate. Photo: Pollard Thomas Edwards purchasers into the owner-occupier tenure which helps mixed communities. obstacle various times, mostly in units per year, saying “otherwise However, the prioritisation of private connection with Right to Buy or Housing [they] couldn’t do the decant or build ownership, especially via starter homes, Revenue Account rules. On Right to affordable homes.” When the number brings real risks to estate renewal in Buy, one local authority officer said the of households needing to be rehoused a market like London’s. “Where is the initiative would be less detrimental if is underestimated, that also “seals up cross-subsidy if the market crashes?” there was more flexibility in the use of supply”. Finally, on the less flexible side, asked one developer, suggesting that receipts. The “three-year time-frame is the financial health of outer London market rent can provide that flexibility, the killer”, which he called especially boroughs following the Spending while also contributing to balanced frustrating because “we can fund at Review was cited as a major concern. communities. two times the level of the GLA, with less In many of these cases, a borough has political support for regeneration, but Private rented sector (PRS) housing bureaucracy”. no money to deliver it. was also cited as a remedy to another Relaxing rules around Housing Revenue major obstacle, the dearth of front-end Account assets was also broached. Funding approaches funding options. Acclaimed schemes “The accounting rules were prepared Cross-subsidy, including PRS/market like Packington,17 which was required to for good reason but can block estate rent: “Cross-subsidy allows [housing deliver a high level of social housing at renewal or drive unusual outcomes” like associations] to take risks, though of the start, had gap funding; one project unwieldy schemes combining council course we can take higher risks with stakeholder said “that scheme could not General Fund and HRA monies, or higher value sites”. In LB , there is happen in the current climate.” where large areas of HRA land must be appropriated. Secretary of State potential for 3,000 new private rented That responsibility to deliver affordable consent is also required for transfer, sector homes. The borough cannot housing despite initial cash-flow adding another layer of expense and increase its ‘pure’ social housing, but issues can slow estate renewal as delay. Many councils are starting could cross-subsidise, and look more much as or more than the consultation to behave more commercially in the broadly at ways to deliver affordable and planning processes, with major interests of their residents, and have homes, financially and spatially. PRS programmes such as Kidbrooke housing was praised as a way to attract 18 potential to do much more. Village lasting up to 20 years. Private investors, kickstart project funding, Others suggested that regeneration’s partners on big schemes like this must enable acceleration and offer boroughs biggest financial-cum-delivery constraint manage the release of sale properties long-term institutional investment. to optimise values, and local authorities – certainly one unique to the activity Asset optimisation: Capturing want local occupiers, not buy-to-let or and exacerbated with comprehensive value from one part of a borough ‘buy-to-leave’ owners. Developers could demolish-and-rebuild schemes – is to fund regeneration in another was build more quickly, but this would mean the decant process. Rydon and suggested by a range of participants. reducing “sensible social objectives”. Countryside Properties deliver similar projects, with no phase above 150 For example, there is potential to Lack of flexibility was cited as a funding sell in south to support

BRIEFING: 6 DELIVERING ESTATE RENEWAL regeneration in north Westminster. At housing and placemaking aims” but the same time, the Harrow Road area looking across a whole area – within a Unlocking local has 29 housing associations – “what’s borough-wide strategy – has promise. authority house- the best approach to get effective area Different types of finance such early building potential regeneration through stock swaps PRS housing and a mix of sources – not or combining council housing stock solely market-based – can help reduce John Lumley, Assistant Director, throughout the borough?” Given the risk and move projects from complex Housing & Regeneration, London difficulties of securing affordable land assembly through decant through Borough of Hackney homes using Section 106 contribution social housing provision. provisions, a number of speakers felt Hackney council’s own 2,760- Local authority low-cost borrowing: home, 18-site estate regeneration it was key to look around the estate in Local authorities need bigger schemes programme is already in its sixth question. to transform capital into New Homes year, making the authority the Portfolio diversification: In places like Bonus and the revenue streams councils biggest house-builder in the bor- 19 North Tottenham , an increasingly rare so desperately need for service delivery. ough. The programme provides value ‘sweet spot’ where it’s possible There must be an understanding that 52% of the new homes for social to get 40-50% affordable housing in this is a “business opportunity for renting and shared equity/owner- ship, and 48% for private sale to estate renewal schemes, the borough the whole council”. Lifting the HRA help fund the programme. We are is testing a mix of mechanisms and borrowing cap would also make a tenures. LB Haringey is using both joint replacing poor-quality homes, in- difference. Council gearing ratios are cluding bedsits and one-bedroom venture and development agreement, currently 6% in comparison to a 50- properties, with new homes built and building homes at a range of 60% average for housing associations to spacious ‘lifetime’ standards, rents. “It will take a long time to see if and varied rates for developers; the including sustainability measures the huge resource poured into North public sector is able and increasingly that mean lower energy bills for Tottenham can deliver against its willing to carry this financial risk. residents. So far, 201 new council homes for social renting have been What can central What can the new built, as well as 20 for shared government do? mayor and GLA do? ownership/equity and 42 for • Help provide estate renewal • The GLA could be more flexible private sale. Three hundred more funding at marginal rates, and with funding; sharing risk and are now on site and hundreds consider expanding the govern- providing equity and upfront more will start construction over ment debt guarantee scheme funding to generate cash flow. the next year. An estate infill available for infrastructure. This • Central government is starting programme has also just been would be outside local authority to devolve fiscal responsibility approved, which will deliver a fur- borrowing caps and be project- via business rates reform; the ther 400 new council homes, 70% based. This could be facilitated GLA, working with Treasury and of which will be for social renting by the GLA as a London-wide DCLG, needs to help local au- and shared ownership. This is fund to create scale and be at- thorities prepare for the coming being achieved at each site in tractive to funding markets. changes and coordinate their close consultation with residents, • Provide exemptions to the starter impact on housing and services beyond statutory obligations, home requirement for estate across the capital. so that ultimately they can help regeneration. What can the London shape their neighbourhoods. • For large-scale regeneration housing sector do? projects, HRA rules could be re- We could build even more new • At the front end of funding, bor- homes of all tenures if given the laxed to enable local authorities oughs and housing associations to consider issues at a corporate ability to raise additional bor- can bring in assets from beyond level, and focus on schemes rowing, ideally with complete the ‘red line’ boundary of an rather accounting issues. removal of the Housing Revenue estate renewal scheme. • As highlighted by the London Account borrowing cap. The Finance Commission, London • They can also use more soft- delivery of new homes is be- is forced to rely heavily upon market testing to preview op- coming ever more challenging, central government for housing portunities and check appetite. particularly in the face of new funding and policy direction.20 This has worked for Ealing and measures such as the forced sale For the GLA to play the role it Peabody among others. The of council homes and the 1% should and could, the mayor caveat is that this could slow the reduction in social housing rents, needs more fiscal autonomy. process, and councils are under which will only act as a further • More broadly, consider the pressure to act quickly. brake on local authority capacity. appraisal of infrastructure like • More and more boroughs are Local authorities such as Hackney Crossrail 2 alongside housing starting to hold onto key assets, have huge untapped potential to and social benefits, i.e. some directly, through partnerships contribute to housing supply, and schemes will require less funding or council-owned companies, government does not have to do due to the uplift from being near much to unlock it. new stations. continued on next page

BRIEFING: DELIVERING ESTATE RENEWAL 7 ...continued while selling others for tenure mix and cash flow. All The case for estate renewal joint local authorities can be active, retain ownership and ventures act as master developers, though some need to build expertise. Jerry Freeman, Director, • Mix tenures to create community and increase Bilfinger GVA demand. The Help to Buy scheme was called “phe- A 50/50 joint venture won’t be right for all local au- nomenal”, but builders need more balance between thorities, but does allow for faster delivery of more open-market and other stock for mixed communities homes. Benefits include: and effective delivery. • Local authorities don’t control construction, but are • True alignment of interests – a 50/50 JV gives still limited to builders they can use, meaning a weak the public sector equal decision-making ability procurement position. They must be more creative in through the JV board, providing greater trans- how they procure projects, and who they partner with. parency and influence, and the private sector • It could be useful to agree valuation metrics for non- has its public partner alongside for difficult physical regeneration such as workspace provision, decisions. A clear business plan will ensure local procurement efforts or community and cultural alignment and clarity on aspects the public sec- activities. Social impact is included in most develop- tor will want control over. ers’ corporate sustainability targets, but broader ap- plication of the Social Value Act21 or metrics designed • True sharing of risk and reward. Assigning with RICS or other bodies could support renewal appropriate risks to the public sector partner business cases. adds real value to the bottom line, meaning more cash is available for the scheme as most authorities will want to reinvest their returns. • Public-sector funding is accessible at attractive rates and can ease early cash-flow pressures, with this more ‘patient’ funding model taking its return later. • JVs contain deadlock mechanisms which encour- age pragmatic decision-making, compared with Development Agreements in which council controls are framed in the negative, e.g. not to do X without land-owner consent. • Many councils want to retain income-producing Grahame Park. Photo: Pollard Thomas Edwards assets like new PRS housing. A JV enables them to share development returns (usually around 20%) to help fund the acquisition of these as- sets. • JV dividends can be accounted for as revenue, usually more attractive to LAs than capital pay- ments. • JVs more easily facilitate multi-site renewal programmes. • A caveat for the private sector is the ability of its public-sector counterpart to adequately meet its director responsibilities in the JV – resourcing Whitecross Market. Photo: Future of London this must not be underestimated.

Dover Court. Photo: Pollard Thomas Edwards

BRIEFING: 8 DELIVERING ESTATE RENEWAL Processes + politics The local authority’s functional role in estate regeneration is to forge relation- ships, provide land, and smooth the process. Each scheme “has its own rhythm” and, as one borough officer put it, it’s not the speed of each indi- vidual scheme that matters for delivery as much as the speed or efficiency of a borough’s pipeline of schemes. One of the problems with this is that is that estate regeneration and political cycles rarely marry up, and politicians must generally answer to the existing rather than the incoming community. One practitioner said his team uses monthly bullet-point briefings – even if nothing’s happened – to support coun- cillors and to help “keep their eyes on the prize” of new homes, diversity, etc. Another speaker pointed out that “there are some very good politicians in London who do get it.” At a London-wide scale, there are also fundamental debates, including the use of public land to build homes for Social Renting in London 2011. Map: Duncan Smith, CityGeographics sale. One of the participants raised the option of using 1% of the Green Belt for home-building rather than focus- ing on estate land, but this is already Right to Buy: Implications and impacts marked as no-go territory for mayoral candidates. Andrew Beharrell, Senior Partner, Pollard Thomas Edwards Another factor that came up in the Central government needs to take a non-ideological look at the true impact roundtables and is an ongoing obsta- of Right to Buy on post-war estates in London. At the same time, opponents cle is the relationship – or lack thereof of RTB need to acknowledge its potential benefit in promoting social diver- – with third parties, especially utili- sity (which is disputed partly because so many properties have ended up in ties, whose works can jam up renewal the less salubrious end of the private rented sector). The practical effect has works for months. One housebuilder been a huge increase in the cost of regeneration, along with controversy, said they had given up on power con- uncertainty and delay. nections and prepared for occupation For many post-war estates, physical condition and layout mean radical using generators, and two borough change, including full or partial replacement, is the best long-term way representatives cited completion delays to improve conditions for existing residents and create additional homes of up to a year. for a more diverse population. There is clearly scope for infill to make a Dealings with other public-sector significant contribution to housing numbers, but sometimes it is a short-term landholders could also be improved. fix which precludes a bolder scheme later – poor-quality stock is harder to Transport for London is very much demolish if it is hemmed about by newer homes. Our recommendation is engaged with estate renewal and other always to carry out an objective assessment first, and then select the right development activity, and is work- option for the scheme. ing with the GLA and government to Continuing Right-to-Buy limits those options. It contributes to a spiral of in- fine-tune value-capture mechanisms. creased costs, which are then met by pushing density to highly contentious Entities such as the NHS can be less levels, and an unsustainable imbalance in favour of market-sale properties engaged, and the Department for Edu- against a spectrum of rented homes. This in turn leads to resistance among cation’s Education Funding Agency, existing communities. Twenty-five years of successful London schemes show with its fast-track purchasing powers, that regeneration can work – but future success requires intelligent efforts has secured land earmarked for hous- to reverse this vicious cycle. ing on a number of occasions. All of these could work better together. No matter what the regeneration model and how smooth the third-party

BRIEFING: DELIVERING ESTATE RENEWAL 9 relations, there is invariably a lag staff, but for both groups, retention between planning stages and delivery, can be a challenge. At the next level, Closing the skills including the decant–demolition–build project outsourcing has in some ways gap cycle itself, plus inherent constraints fragmented the capital’s base of on construction, especially in built-up expertise. There is a good talent pool Mark Mitchener, Managing areas. To manage this well, dialogue in London, and embedded expertise Director, and continuity are critical on the ‘back- is needed at the local level. Boroughs Rydon Construction of-house’ project side as well as the are best placed to absorb and use Constructors have transitioned public-facing side. that talent, but have been hardest hit from managing impossibly low by cuts. Staffing/expertise margins during the last reces- Finally, there is the question of best One practitioner highlighted two sion to managing the inflation- practice: how can different areas of key issues: first, the need for strong ary costs of labour and materi- London benefit from what’s happened leadership from politicians. Politicians als resulting from rapid market elsewhere? “We should not still be are able to stop or facilitate regenera- growth. The sector will always making bad mistakes,” as one partici- tion, and can provide leadership (as face risk, but the skills shortage pant put it. A mechanism to harness they have in education) to get results. is driving construction costs to a and share expertise is needed, and Second, the need to devolve power level where it is common for con- local authorities must be involved. Par- to those working in housing delivery; tractors to turn down projects in ticipants spoke out against standardi- a core project group which can make the capital, and this could easily sation or centralisation, but agreed decisions to move things along. result in us getting nowhere near on the need for a pool of knowledge our ambitious targets. Local authorities need resource to coordinated by the GLA, Future of Estate renewal is one of the most deliver these programmes; most have London, LSE or others and available promising ways to address our no money for staff, despite growing to local politicians, officers, develop- housing imbalance, responding housing targets. Boroughs like Ealing ers, policymakers and the new mayor. use contractors as well as permanent to local demand for the homes and community facilities people need. Yet it can also be one of the most complicated to de- What can central “estate renewal will never be liver, requiring the integration government do? quick” and politicians can’t push of particular skills – from design • Government could facilitate or for schemes to be completed too and construction trades to project require cooperation from depart- fast, as the work needs to be management and resident liaison done well. The GLA can support ments such as Transport and – to understand the issues and Environment, and particularly this understanding. from land-intensive or land-rich • Local authorities are not in com- provide scheme-specific solutions. entities such as the Department petition, and could share more This expertise can only be for Education and the NHS. resource, perhaps centrally acquired through project experi- • Align policies more, to avoid advised by the GLA or related pulling in different directions, entities. Suggestions include a ence, and delivery teams can e.g. Right to Buy increases the ‘flying squad’ of secondees and take years to develop the rela- the potential for housing as- cost and complication of estate tionships and trust required for renewal across all models. sociations and local authorities to share staff. successful regeneration. We must What can the new look long-term. What can the London mayor and GLA do? • Given the high level of opposi- housing sector do? This means we need a skills • With the GLA, provide clear tion to estate regeneration now, strategy to boost the number evidence and experience to the GLA could help with policy support mayoral candidates of apprenticeship programmes, justification, though that must (and politicians and other encourage more graduates and take into account local issues. stakeholders at all levels) with experienced professionals to join • There is a need for ongoing stra- clear information on social tegic GLA leadership and policy housing, local authority pow- and re-join the sector, so that context, tied to the London Plan ers and finance, Housing Bill we can invest with confidence and extending through election impacts and more. and assure our workforce that cycles. Leadership on issues such • Explore and use a mix of estate as use and/or reclassification they have a life-long career in a renewal models to meet com- of land to meet housing need rewarding industry. munity and corporate strategy would be particularly helpful. needs: Refurbishment or part- • The GLA could help borough refurbishment of estates, infill planners speed the processing where it works, taller buildings of applications and help with where clusters make sense, legalities of housing, such as including atop existing build- CPOs. ings – learn from other parts of • Help manage political expecta- London and beyond. tions: as one practitioner put it,

BRIEFING: 10 DELIVERING ESTATE RENEWAL Conclusion Effective Delivery Arrangements Estate renewal has great potential for We are also particularly keen for the London. On top of upgrading and add- summer 2016 release of the Peabody Michael Hill, Business Strategy ing much-needed housing, the place- and Centre for Economic & Business Director, making aspect of this work can help Research report on social housing’s Countryside Properties remove the historic stigma attached to economic impact, which offers evi- Estate regeneration is likely to estates, improve area integration, and dence for why all levels of government increase substantially in the next create economic, cultural and com- would be well-served to help sustain few years. Given that only 50 munity opportunities. The structure and housing estates and other affordable mixed-tenure estates have been increasing investment attractiveness models in London. The opportunity cost delivered across London in the of these places make estate renewal of losing this tenure – and its valuable last 20 years,22 this increase will feasible despite the challenges, and it residents – to other cities has not been call into question local authori- makes sense to prioritise this compo- explored in this much depth before, ties’ capacity to manage the nent of housing delivery before owner- and is enormous. ship becomes even more complex. process; housebuilders’ ability As outlined at the start, it was the to fund the work; and the supply This is delicate, difficult, long-term intent of the Delivering Estate Renewal chain’s to resource delivery. It is work which must bring residents along, roundtables and this summary to agree essential that the sector focuses and be promoted and delivered as a key obstacles and share workable ap- rigorously on effective delivery normal, positive element of urban life, proaches. A comprehensive analysis is arrangements: rather than an ‘episode’ to be survived. impossible in such a capsule view, but • Secure the support of the The Heseltine Estate Regeneration Future of London, the project partners majority of existing estate Panel clearly has its work cut out, but and our wider network stand ready to residents for any proposals. there is no shortage of people ready help provide the evidence, cross-sector This will require design and to help. cohesion and best-practice sharing needed to make estate renewal work – construction quality, demon- In that vein, this collected commentary for all involved. strable community and eco- is not offered or meant to be taken in nomic benefits and resident isolation. Our focus on estate renewal involvement throughout. complements the much broader report • Address local authority of the London Housing Commission, to appetite/need for greater be released simultaneously; ULI’s Build financial involvement and to Rent report; and the new Shelter re- 23 control, including ownership port on Brownfield . Further resources of the affordable and some- are listed overleaf. times market-rent housing, by evolving a standard JV model that achieves the speed and simplicity of a development agreement whilst addressing the requirements of JVs. • Commission the assess- ment of a range of estate regeneration business plan scenarios to guide grants and loans. Scenarios could range from a Zone One opportunity to, for example, low-density suburban with potential to increase densities as a result of improved PTAL ratings, but a high proportion of RTBs and low housing values. • As the GLA winds down its land-supply role, it must develop its enabling role, e.g. through best-practice research and through its own grant/loan programme. Woodberry Down. Photo: Future of London

BRIEFING: DELIVERING ESTATE RENEWAL 11 ENDNOTES

1. http://www.futureoflondon.org.uk/?s=Estate+renewal 2. https://www.gov.uk/government/news/heseltine-launches-panel-of-experts-to-kick-start-estates-regeneration 3. https://www.london.gov.uk/what-we-do/planning/london-plan/current-london-plan 4. www.theguardian.com/society/2016/feb/27/david-cameron-sink-estates-fund-turns-out-to-be-loan 5. http://pdf.euro.savills.co.uk/uk/residential---other/completing-london-s-streets-080116.pdf 6. Peabody recently commissioned research from the Centre for Economics and Business Research to evidence the business case for affordable housing in London. Initial findings suggest the economic contribution of residents in social housing in 2015 was over £15bn. These findings were discussed at a March 2016 roundtable hosted by the CBI and the report is due to be published in July 2016. 7. http://londonfirst.co.uk/wp-content/uploads/2014/09/Moving-Out-Final.pdf 8. http://www.myearlscourt.com/ 9. http://www.hackney.gov.uk/woodberry-down.htm#.VtYUo4yLToE http://www.mhdt.org.uk/about-us/woodberry-down-regeneration/ 10. http://www.wandsworth.gov.uk/info/200539/winstanley_and_york_road/1308/winstanley_and_york_road_regeneration 11. http://reallondonlives.co.uk/research/ 12. http://www.aylesburynow.london/ 13. http://west-hendon.co.uk/ 14. http://www.newstatesman.com/politics/2015/01/how-council-promises-have-fallen-away-leaving-west-hendon-estate-dire- straits 15. Haringey’s mini-site is a good example: http://www.haringey.gov.uk/regeneration/wood-green 16. https://www.liberty-human-rights.org.uk/human-rights/what-are-human-rights/human-rights-act/article-8-right-private-and- family-life 17. http://www.theguardian.com/society/2012/dec/04/packington-redevelopment-london-social-housing 18. http://www.kidbrookeregeneration.info/index.cfm?articleID=1 19. http://www.haringey.gov.uk/regeneration/tottenham/tottenham-regeneration 20. https://www.london.gov.uk/moderngov/documents/s38273/City%20Centred%20Campaign%20-%20Update%20-%20Ap- pendix%202.pdf 21. https://www.gov.uk/government/publications/social-value-act-information-and-resources/social-value-act-informa- tion-and-resources 22. http://www.ippr.org/publications/city-villages-more-homes-better-communities 23. http://england.shelter.org.uk/professional_resources/policy_and_research/policy_library/policy_library_folder/report_when_ brownfield_isnt_enough

FURTHER RESOURCES

• Capital Failure: The Roots of London’s Housing Crisis, IPPR, December 2015. http://www.ippr.org/files/publications/pdf/capital-failure-dec2015.pdf?noredirect=1 • Completing London’s Streets, Savills, January 2016. http://pdf.euro.savills.co.uk/uk/residential---other/completing-london-s-streets-080116.pdf • Estate Regeneration Sourcebook, Esther Kurland, Urban Design London, February 2015. http://www.urbandesignlondon.com/new-estate-regeneration-sourcebook/ • Estate Regeneration Statement, Dept for Communities & Local Government, February 2016. https://www.gov.uk/government/publications/estates-regeneration-statement • Home Truths: Tackling London’s affordable housing crisis. FT 14.10.2015 http://www.ft.com/cms/s/2/8ef50668-63b3-11e5-9846-de406ccb37f2.html#axzz41OTHAvcl • Managing the Estates, Claire Bennie, RIBA Journal, 23.02.2016 https://www.ribaj.com/intelligence/the-state-vs-the-estate

BRIEFING: 12 DELIVERING ESTATE RENEWAL Delivering Estate Renewal Roundtable Series Participants:

Jon Abbott Project Director, Elephant & Castle London Borough of Ruth Angel Head of Housing Regeneration Royal Borough of Kensington & Chelsea Paul Augarde Head of Creativity and Innovation Poplar HARCA Ken Baikie Director, Thamesmead Regeneration Peabody Alastair Baird Regional Managing Director Barratt London Dave Baptiste Head of Housing Development London Borough of Ealing Andy Bates Manager Leathermarket JMB Andrew Beharrell Senior Partner Pollard Thomas Edwards Claire Bennie Independent Housing Consultant Claire Bennie Mark Boleat Chair, Policy & Resources Committee City of London Corporation David Bowler Chief Executive Vital Regeneration Chris Brown Chief Executive Igloo Regeneration Simon Brown Head of Estate Regeneration & Stock Transfer Dept. for Communities & Local Gov’t Barbara Brownlee Director of Housing & Regeneration City of Westminster Anne Byrne Head of Regeneration (Woodberry Down) London Borough of Hackney Philippa Cartwright Founder/Director Urban Regeneration Consultancy Andy Collyer Regional Business Development Manager Lovell Judith Damerell Partner, Head of Planning Lewis Silkin Louise Duggan Principal Regeneration Officer Authority Ros Dunn Independent Chair South Kilburn Trust Angela Epps Delivery & Construction Director Peabody Pauline Ford Executive Director, Thamesmead Peabody Jerry Freeman Director, Development Bilfinger GVA Nuala Gallagher Senior Area Programme Manager Rachel George Regeneration & New Supply Manager London Borough of Chris Hall Director Bilfinger GVA Pat Hayes Executive Director, Regeneration & Housing London Borough of Ealing Katharine Hibbert Director DotDotDot Property Guardians Michael Hill Business Strategy Director Countryside Properties Gerry Hughes Chief Executive Bilfinger GVA John Hughes Group Director of Development Housing Adam Hunt Area Regeneration Manager London Borough of Haringey Andy Hunt Director Quod Neal Hunt Development Director Poplar HARCA David Jowsey Principal Policy Advisor Transport for London Toby Lloyd Head of Policy Shelter Sarah Lovell Area Regeneration Manager London Borough of Haringey John Lumley Assistant Director, Housing & Regeneration London Borough of Hackney David Lunts Executive Director, Housing & Land Greater London Authority Genevieve Macklin Head of Strategic Housing London Borough of Lewisham Dan Massie Project Director, Woodberry Down Berkeley Group John Paul Maytum Chair/Resident Leathermarket JMB Barry McCullough Director Levitt Bernstein Mark Mitchener Managing Director Rydon Construction Lucy Owen Head of Area (South) Greater London Authority Tricia Patel Senior Partner Pollard Thomas Edwards Chris Patterson Business Development Communications Mgr Catalyst Housing Eleanor Purser Head of Regeneration Notting Hill Housing Clare Reddy Partner, Head of Construction Lewis Silkin LLP Hilary Satchwell Director Tibbalds Kath Scanlon Research Fellow LSE Cities – Housing Alexei Schwab Head of Programme Future of London Paul Simpson Estate Regeneration Communications Coord London Borough of Lisa Taylor Director Future of London Greg Tillotson Regional Development Director Barratt London Carl Vann Senior Partner Pollard Thomas Edwards Simon Vevers New Business & Strategy Director Hyde Housing Neil Vokes Director, Strategic Capital Programmes London Borough of Lambeth Jo Wilson Head of Policy Future of London

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