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The Experience of the Second Town Planning Act, 1919 to 1933 Thesis Open Research Online The Open University’s repository of research publications and other research outputs The scope and purpose of town planning in Britain : The experience of the second town planning act, 1919 to 1933 Thesis How to cite: Gunby, Derek S. (1987). The scope and purpose of town planning in Britain : The experience of the second town planning act, 1919 to 1933. PhD thesis The Open University. For guidance on citations see FAQs. c 1987 The Author https://creativecommons.org/licenses/by-nc-nd/4.0/ Version: Version of Record Link(s) to article on publisher’s website: http://dx.doi.org/doi:10.21954/ou.ro.0000dea6 Copyright and Moral Rights for the articles on this site are retained by the individual authors and/or other copyright owners. For more information on Open Research Online’s data policy on reuse of materials please consult the policies page. oro.open.ac.uk 31 DXßoei5 iisw VNRESTRICT"-D TOE SCOPE & PURPOSE OF TOWN PLANNING IN BRITAIN The experience of the second Town Planning Act, 1919 to 1933 VOLUME I A Thesis submitted for the Degree of Doctor of Philosophy in the Open University by Derek S. Gunby B. A. (Hons), Dip. T. P., M. R. T. P. I. May, 1987. Atithor'sflumber"- tlDk 1070 Tate of SLnbmlsslal,:I2th Mauý 198 Tateq Avýrd:i$ºý Ast ýi9sT ABSTRACT Title: The Scope and Purpose of Town Planning in Britain: The experience of the Second Town Planning Act, 1919 to 1933 The broad aim of this study is to develop a greater understanding of modern British Town Planning by examining, in depth, its operation during the 1920s and early 1930s, i. e. the period of the Second Town Planning Act. Two main themes are explored; the ideology of town planning and, the practical achievements of the activity. These are studied in their national context and in several empirical studies of events on Teesside and in Hartlepool. The ideology of town planning is seen to be dominated by the notion of consensus. This is seen as part of a wider process in British political life. Such a notion fitted into the view of town planning as a non-political, technical activity. In practice, it is demonstrated that consensus was rarely achieved and dominant landowning forces usually achieved their ends in any conflict over land-use with the aid of the Ministry of Health. The practical achievements of town planning in this period are generally portrayed as weak and of little interest. This study demonstrates that although the scope of town planning was deliberately limited it was reasonably successful in meeting its objectives. The experience of town planning by growing numbers of local authorities in the 1920s and early 1930s helped to lay the foundation of modern town planning. Without this experience it is doubtful if the accomplishments of town planning in the 1940s and 1950s would have been possible. Whilst the experience of town planning between 1919 and 1933 is seen to be much richer and more important than commonly realised the scope and purpose of the activity is seen as limited from the outset by narrow political objectives. i ACKNOWLEDGEMENTS Thanks are due to the County Archivists and their very helpful staff at Cleveland, Durham and North Yorkshire. I would also like to record my thanks to the Chief Executive of Hartlepool Borough Council for permission to study material held by the Council on the Hartlepools Joint Town Planning Scheme and West Hartlepool's Town Planning Scheme. I would like to note the particular debt I owe to Gordon Cherry and Andy Blowers for their constant encouragement and guidance. But for them I might have given up. I am very grateful to Norma Pinder who has undertaken all the typing with great patience, skill and cheerfulness throughout. Finally I want to acknowledge the special help and support of Jenny who, along with Eleanor and Catherine, assisted me in all sorts of ways. ii C0NTENTS 'Page No. ABSTRACT ACKNOWLEDGEMENTS ii PREFACE * Aims of the Study vi * Methodology xi * Source Material xiv * Structure of the Study xvii PART 1- THEORETICAL CONSIDERATIONS Chapter 1 A Review of the Literature 1 Chapter 2- The Theoretical Framework of the Study 24 Chapter 3 The Hypotheses 32 PART 2 - THE CONTEXT FOR THE FIRST TOWN PLANNING ACTS Chapter 4 Pathways to British Statutory Town Planning 36 Chapter 5 The First Town Planning Act 49 Chapter 6 The Genesis of the 1919 Town Planning Act 57 Chapter 7 The 1919 Act. Towns Fit for Heroes? 68 PART 3- THE CHANGING ECONOMIC, SOCIAL & POLITICAL CLIMATE FOR TOWN PLANNING 1919-1933 Chapter 8 Changing Britain in a Changing World, 1919 to 1933 82 Chapter 9 The Pressure for Planning - Controlling Growth 103 Chapter 10 The Pressure for Planning - The Social Case 126 Chapter 11 The Central & Local Government Framework for Planning 158 Chapter 12 The Pressure for Planning - The Political Debate 174 PART 4 - THE SUCCESS & FAILURE OF TOWN PLANNING 1919-1933 - THE NATIONAL EXPERIENCE Chapter 13 Objectives for Town Planning - The Town Planning Movement 200 Chapter 14 Objectives for Town Planning - The Political Agenda 228 iii Chapter 15 Statutory Objectives for Town Planning 245 Chapter 16 The Success & Failure of Statutory Town Planning, 1919-1933 257 PART 5- TOWN PLANNING IN TEESSIDE & HARTLEPOOL - THE LOCAL EXPERIENCE Chapter 17 Themes for Local Studies 285 Chapter 18 The Evolution of Teesside & Hartlepool 309 Chapter 19 Town Planning on Teesside & Hartlepool, 1919-1933 335 Chapter 20 Dealing with Conflict : Local Experience and the Consensus Approach 366 Chapter 21 The Success & Failure of Town Planning - The Teesside & Hartlepool Experience 419 Chapter 22 Implementing the Plans - Two Case Studies 462 CONCLUSION * Aims & Hypotheses Reviewed 491 * The Role & Purpose of Town Planning 493 * Town Planning in Practice 507 * Cont emplations on Contemporary Linkages 512 APPENDICES 1. Town Planning Procedure in the 1920s 518 2. Gard en Cities & Town Planning Association Leaflet, 1923 530 3. Soci o-Economic Change Indices 532 4. 'Pla nning & National Reconstruction', 1932 538 5. The Origins & Early Development of ICI Billingham 542 BIBLIOGRAPHY 547 iv LIST OF-TABLES Page No. Numbers & Percentages of Insured Workers Unemployed 143 Percentage Unemployment in Staple Industries 144 Percentage Unemployed by Region 144 Town Planning under the 1909 & 1919 Acts: A Cumulative Picture 259 The Position of Town Planning Schemes in England & Wales as at 31st March, 1933 261 The Formation of Joint Town Planning Committees, 1920-1933 274 Population of the Main Teesside & Hartlepool Settlements, 1801-1951 312 LIST OF MAPS The Study Area in its Regional Setting 310 The Teesside & Hartlepool Areas 311 South Teesside Advisory JTPC Area, 1921-30 338 South Teesside Executive JTPC Area, 1930-48 345 North Tees JTPC Area, 1923-33 352 Hartlepool Town Planning Areas, 1919-33 358 North Tees - Points of Planning Conflict 370 South Teesside - Points of Planning Conflict 375 The Trunk Road 463 The River Tees Crossings 479 V PREFACE * Aims of the Study * Methodology * Source Material * Structure of the Thesis AIMS OF THE STUDY This study aims at deepening our knowledge and understanding of modern town planning by critically examining its role and practice during the course of the second Town Planning Act, 1919 to 1933. The general view is taken that historical studies can assist in the comprehension of contemporary social and political problems. Town planning has been beset by a crisis of confidence and identity for many years. This has been reflected in both public attitudes and professional concern. Part of the explanation for such a crisis may lie in the lack of appreciation of the historic role and purpose of town planning in our social system. A lack of understanding about the limitations imposed upon town planning by dominant class interests may have led to an unreal expectation of outcomes, especially from within the ranks of professional town planners. The gearing of an ideology to suit those limitations may also have been imperfectly understood by practitioners and public alike. The rhetoric of town planners has always tended to fall short of actual delivery displaying both a desire for social reform as the raison d'etre of town planning and a lack of appreciation that town planning was required to serve the fundamental needs of regulating land-use and development in the interests of industry and other developers. The ideology of town planning rooted in notions of compromise, consensus and the activity as an apolitical technical function, so dominant in the post Second World War years, has masked the true nature of. power and influence in our society. This study attempts to address this issue by focussing on what is seen as the root years of contemporary town planning. It is a widely held view both from within the town planning profession and outside, that modern British town planning starts essentially in the 1940s and vi particularly from the 1947 Town and Country Planning Act. It is usually this so-called 'golden age' of town planning which provides the contrasting point to subsequent experience. Such a view misses the fact that statutory town planning was established in Britain in 1909 and that by 1947 there had been nearly four decades of local town planning practice. Whilst the 1947 Act and the linked legislation of the 1940s made town planning far more comprehensive and in many ways more effective, it did not represent a radical departure from previous purpose, procedure or basic legal tenets. The 1909 Act had established the framework of British town planning in terms of broad principles. Subsequent legislation added to this rather than altered it until it reached its most comprehensive form in the 1940s.
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