no. 28, 29/1995
Richard TURKINGTON Suzanne WHEELAGHAN
The Refurbishment of High -Rise Local Authority Housing Blocks^
Involving the Tenants - Lessons from the U.K,
Housing Refiirbishnient High-rise }iousàig blocks Great Britain
Sùìce the late 1960's it has beei\ a popular perception in Britain that "H^h-Rise" social housing blocks (over six storeys) are undesirable and therefore a major problem for Local Authority landlords. However, the status and s^nißcance of high rise blocks in t/ie UK is beginniiig to charge. This article discusses sonie of the programmes of refurbishmeiU of high-rise local authority housing.
Richard Turkington Suzanne Wheelaghan Sanacija občinskih stanovanjskih stolpnic - Vključevanje na-jemnikov: izkušnje iz Zdnižene kraljevine
Stanovan/a Stolpnice Sanacija Velika Britajiija
Za obdobje do konca 60. let naprej velja v Veliki Britaniji splošno spoz-naiy'e, da so socialne staiv>vanjske stolpnice (višje od šestih nadstropij) nezaželene, zato lokalnim oblastem povzročajo velike težave. Status iii ponien stanovaiyskili stolpnic se vendar le spremirja. Ta članek obravnava nekatere programe sai^acye stanovaiyskih stolpnic, ki so v lasti lokalnih oblasti.
The High-Rise Legacy
Since tlie late 1960*s it has been a popular fjerception in Britain that 'High-Rise' social housing blocks (over six storeys) ai'e undesirable and Uierefore a iiiajor problem for Local AuÜiority landlords. The 'conventional wisdom' tliat Uiere ai'e in-sunnoiintable problems concerning tower blocks in particular is indeed based on the combination of a number of different factors. Without providing an exhaustive list, it is sufficient to say that problems tliat have aiisen and been recognised (not necessarily by llie L.A concerned) fall into a number of categories:
Social Problems: usually deriving more from tlie insensitivity or inadequacy of letting policies of the relevant L.A. housing depailment:
Problems of Location: Many high-rise blocks were located either on small redevelopment sites in areas of sliun cleai^ance, that had lost tlieir social sti'ucture and community facilities, or were built out of town on peripheral estates with little or no community or shopping facilities to start with;
Structural and Maintenance Problems: this is by far the major source of difllculties with many of tlie 1950's and '60's high- rise blocks, often built from experimental concrete 'factory' systems tliat were poorly assembled, and are now suffering from structuial decay due to water penetj^ation, etc, witli low insulation standards and cheap and inadequate heating systems.
However, the status and significance of high rise ÌDlocks in the UK is
beginning to change. In 1979, the Conservative Government introduced tlie intention to 'pri\^t{se' (sell off) all council housing; in the 15 years of privatisation of municipal housing, the result has been the sale of over one-fifth of houses, but there has been an almost negligible effect on tlie stock of fiats in England. Consequently, flats have doubled as a proportion of the social housing stock, from three per cent in 1979 to an estimated six per cent at the present time. Witli an unceasing demand for affoixlable rented (and Uierefore social) housing, flats of all types, and high rise Hats in pai'ticular, ai^e gradually coming to be seen by local hoLising authorities as an asset rather than a liability. However, such a change of perspective is often reluctantly reached, and only a few mimicipal autliorities are attempting to apply more positive policies to secure tlie future of their high rise flats. Tliis ambivalence towards high rise is even more marked amongst housing associations, few of which have involved themselves with the take-over of municipal blocks or wiUi high rise refurbishment. The extent of refuiiDishment activity in tlie UK has been restrained by a combination of a lack of commitment to the future of high rise housing and a lack of finance. The resources available to mimi-cipal authorities have been progressively limited by a central government committed to reducing public sector lx)iTowing and encouraging a greater role for the private sector. 'Iliroughout the 1980s and into tlie 1990s, the major source of capital funding for social housing has been tlirough the Estate Action programme administered by the De-
partment of Uie Environment Through this programme it is intended that municipal authorities, by means of competing for limited resources, should target those housing estates in greatest need of intervention. Such estates frequently include blocks of high rise Hats. One of the conditions for obtaining Estate Action funding is the need to demonstrate that residents alfected by refui'bishment schemes have been consulted about tlie work to be undertaken. Tliis in itself is a reilec-tion of the changing status of social housing tenants in the UK, tliat they should have greater rights to consultation and conti-ol over those housing processes which alTect their lives. Tlie realities of such consultation and conti'ol ai-e another matter however. Tenant involvement In high rise refLidoishment is a new phenomenon in tlie UK in general and in England in particular. The special technical considerations involved in high rise re-fuibishnient, and the priorities of stinctural upgrading, ai-e frequently presented as obstacles to effective tenant involvement. Approaches developed at this stage of securing the future of high rise housing may well set patterns for Uie future and consequently, some assessment of tlie elfecUveness of tenant involvement in high rise refurbishment is timely. The municipal auUiority for Bir-mmgham, with 377 bloclcs, has one of tlie largest high rise stocks In the UK. 'l1ie City Council has taken a positive approach to the future of its high rise flats, and a number of reflirbishment schemes have been completed under the Estate Action programme. Over the past year, in-teiviews have been conducted with senior officers of tlie City Council, and at a local level with ofilcers and tenants' representatives on sLk high rise estates which have been fully or partially refurbished, '^llie aims of these inteiviews have been to consider tlie range of approaches (aken to tenant consultation; tlie outcome of consultation, and Its effectiveness. This paper summarises progress on tlie SLX estates with particular emphasis on the relationship between 'professional' and tenant perspectives in Üie complex business of high rise refurbishment.
Št. 28,29/1995
Birmingham's High-Rise Housing
Binninghajn City Council has a total of 377 blocks of flats of six storeys and above (BCC, Nov 1994). Flats in general, and high rise blocks in particular, went Uirough a process of being stigmatised in the 1960s and 1970s, tlien idenlified as a necessaiy housing resource in the 1980s. The introduction of tlie right to buy'scheme in 1980signil'ic;;ijilly affected tlie City Councfl's housing stock. Total sales of houses and flats of all types reached 24.218 by 1993 (BCC, Nov 1993). Wliereas flats made up 27.15 % of the housing stock in 1980, this figure had increased to 30.47 % by 1993 (BCC Annual Report. 1993). Due to tlie shortage of alternative accommodation, the City Council's Housing Committee reversed its "no chiklren in flats' policy on the 13 Februaiy 1992. In other words, tower blocks (oUier tlian those specially designated) must be used for general needs provision. Unfortunately, many high rise blocks are now in need of extensive repair, and problems have emerged which ai-e unique to these buildings.
Establishing a High-Rise Repair Programme
In response to the specific requirements of Uie high rise stock, tlie City Coimcil established in 1984 a Multi-Disciplinaiy Team, including quan-titysurveyoi-s, architects, structural engineers. hoLising managers and materials scientists. Their role was to detennine the stmctural problems facing the high-rise stock; to prioritise requirements, and to plan the implementation of refurbishment work. The MDT employed an abseiling team to cany out an initial sui-vey of each block. Samples of concrete were analysed by (he City Council's materials laboratoiy; defects were iden tiPied and the need for structural repair work was determined. From this suivey, it was possible to prioritise which blocks required the most urgent repair. A prograjnme of continual reassessment allows (he Housing Department to monitor the condition of the high-rise stock. It is now estimated

no. 28,29/1995
Üiat over 200 of Binningham's blocks require significant structural repair, and are subject to water penetration and condensation. Problems sLich as spalllng concrete and decaying outer fabric have led to the provision of protective canopies around the base of 49 blocks. Additional surveys on fire safety have revealed Üiat 85 blocks fall into a 'high risk' category: 156 are of'medium risk', and 196 ai-e 'low risk' - should a fire break out (BCC, Nov. 1993). The estimated cost of upgrading these blocks to fire safety standards was, in 1993, over # 16m.
The High-Rise Repair Programme
'flirough external survey and stmc-tui-al examination, blocks are categorised according to one of tliree repair options, providing eithen
1.A	short terai option of under 10 yeai-s following repaii-s, for Üiose blocks witli severe structui-al problems which cannot be resolved at an economic cost;
2.	A medium temi option of over 10 years following repairs, where there are no immediate structural defects, and where a longer tenn solution may become economic in the future:
3.	A long terni option of over 30 years following repairs.
Witliin the MDT, structural engineers have ti-ied to detemiine broad repair solutions to meet these three criteria. The integrated work of tlie materials laboratory and of ai'chi-tects translates these solutions into appraisals of work to be imderta-ken, which are costed by quantity surveyors. A range of options ai'e proposed to the Technical Senices section, who consult with tlie Neighlx)urhood Office and tenants' groups to detemiine the best coui-se of action. The resulUng repairs are caiTied out as pai'tof Uie City's capital programme; tlirough capital receipts and/or Housing Investment Programme (HIP) allocation fund-mg. If it is believed tliat tlie life-span ofa block is less tlian ten years, Üien no optionmaybe considered. Pallia-
tive repairs may be canled out on blocks which are expected to stand for Lip to eight years but new windows will only be fitted if a block has at least a 15 year life-span. As at October 1993, 48 % of blocks had received palliative repairs: 28 % were stiU awaiting attention and 11 % were due for demolition (BCC, Nov 1993). Twelve blocks had already iDeen demolished. Where structural repairs have been carried out, only 10 % have been repaired to a 30 year life standard, and tliree per cent repaired to a 12 year life standard. Given that Uiese blocks were originally expected to last for 60 years, Üie deterioration of the stock has serious implications for use and cost.
Project Fieldwork
(undertaken by S. Wheelagahan)
In order to taclde Uie significant structural problems which face the city's tower blocks, the City Council has made 11 successful bids for Estate Action funding since 1988. This funding has been used to tackle botli the physical deterioration of tlie blocks and the social decay of estates. The Housing De-pai-tment's data base of the condition of the high rise stock is used in drawing Lip bids to central government for Estate Action funding. Estate Action programmes require local autlioriUes to establish a con-sLiltation programme wltli the tenants affected by improvement The eariiest project started in 1987/88 and the programme continues to date. The requirement to consult residents on Estate Action programmes provided a valuable reseai'ch opportunity to identify schemes of high rise refurlDishment which involved residents. Iniüal interviews wiUi the Technical Services Department and the Area Improvements Section of Biraiingham City Council enabled six high rise estates to be identified which had l^een the focus of Estate Action. Located at Nec-hells, Highgate, Pool Farai. Lady-wood. Hockley and Newtown, they are typical of high rise estates found Uiroughout Binningham and England, UK. The oldest was constructed in 1952 and was the fii'st high

št. 28,29/1995
rise estate to be biiilt in tlie city. The most recent was completed at the end of the 1960s when Britain's high rise boom was coming to an end. The full range of technical, managerial and social problems was represented on Uie estates, not least the growing division between those tenants who had been in residence for up to 40 years and those who had arrived more recently and were less 'settled'. Housing management in Binningham has been devolved to Neighbourhood Housing Oillces (NHOs). Tlie relevant oflice for each estate was visited, and inteiviews undertaken with the Neighbourhood Housing Manager (NHM) or appropriate Housing OlTicei-s. Tliese interviews were used to cletennine how tenant consultation took place; how refuit)ishnient priorities were detenninecl; how the programme of works was implemented, and what improvements have been made. This stage of interviewing is being followed up by intei-views witli representatives of all tenants' and residents' groups working on each estate. Tliis fìeldwork (which is still in progress), is intended to delennine the effectiveness of tenant consultation and the views of tenants and professionals in relation to refurbishment. The findings presented below are drawn from interviews with housing officers and residents on all six estates, and have been presented by theme.
Fieldwork Findings:
1. The constiltation process
It would appeal" that each Neighbourhood Office developed ils own consultation process and without a common approach. There were no agreed gtiidelines on how processes should operate; on shared aims and objectives or on stinctures to promote greater tenant participation. Estates appeared to have been chosen for Estate Action involvement due to : a) pressure from residenis, backed by support from the Neighbourhood Housing Manager, (as in Ladywood and Nechells), or: b) tlieir identification centrally by the City Council as being appropriate for Estate Action fimding, (as in Hockley
and Highgate); iii) initiatives by of-ficei^ at the local level, (as at Pool Farm and Newtown) .
It was apparent Uiat consultation operated ihroLigh a combination of open public meetings; door-knocking and leafletting; open days; tlie setting up of'show flats'; displaying infonnation in the NHOs and through existing tenants' and residents' groups. In all but two of the estates, Uie consultation process consisted of infonning tenants about developments on Uieir estates.
Excepüonally on one eslate, the NHO established a process which enabled community aixhitects to work wiUi tenants to develop the progi-amme for improvement and refurbishment On a second estate, tenants were given training and support to enable them to make decisions for themselves, and eventually to ialte responsibility for the running of tJie estate.
Primarily, consultation has been used to establish tenants' preferences, with security and heating tlieir main priorities. New kitchens and baUirooms, which were a typical accompaniment of refurbishment schemes, were often regarded as less important by tenants. In many cases, consultation has refeired simply to deteniiining colour schemes for new iDathroom and kitchen units installed in flats.
2. Tenant management initiatives
On only one estate were tenant organisations actively encouraged and provided witli a tenant participation worker. Jointly funded by a housing association. In Uiis case, there appeared to be a clear goal of encouraging greater tenant participation not only in tlie physical improvement of llie estate, but also in wider management issues. The eventual aim was to create some forni of 'community management board' which would manage the estate independently of the municipal authority. No other NHO envisaged such an independent fiiture for tlie
no. 28, 29/1995
inanagement of their estate, and Uiere was little evidence of tenants being encoui-aged to consider such alternatives. Altlioiigh tenant organisations had been encouraged, and had been involved in the programmes concerning refurbishment, no NHO indicated that a tenant management organisation might l^e set up to manage housing in the immediate future. However, on another eslale the NHM recognised an increased interest by tenants in the mnning of the estate, and a development worker had been employed to assist the tenants' group. Only one housing officer stated that he did not think tlie process of involving tenants in refurbishment programmes had improved landlord-tenant relations.
3. Safety and security on estates
'Hxese were the most frequently expressed concerns of residents, both in relation to Üie internal and external environments of blocks. In order to improve the security of high rise flats, Binningham City Council has . invested heavily in providing concierge systems in conjunction with Close Circuit Television (GCTV). A1-Uiough such systems were tenants' lop priority in tenns of improvements, and are hugely popular once installed, their elfectiveness in improving the management and maintenance of blocks has yet to be fully evaluated. Evidence of reductions in tin-nover rates or voids is still unclear. With the exception of High-gate. all of the blocks involved in this Pi-oject, have had or will have concierge systems installed as part of their refurbishment. Three NHOs. mentioned problems raised by tlie central government 'Ceu^ in the Community programme, which obliges municipal authorities to house those released from such Institutional care as mental hospitals. In a number of instajices. people with continuing mental healtli problems have experienced difficulty in adjusting to life in blocks and/or have caused problems for otlier tenants. Problems have included violent behaviour and abusive language by resettled tenants and a failure by care agencies to provide after-care support.
4. Other issues and problems
Tenants recognised that wider problems than the physic^ condition of their flats and blocks affected their quality of life. Such problems fell into two categories, either those relating to the physical environment of the estate, or to residents' socioeconomic circumstances. In relation to physical conditions, issues such as removing subways from busy roads and instailling traffic lights; tralTic management projects to res-tiict 'joyilders'; incorporating 'imad-opted' open space and improving street lighting were all linked to feelings of safety find security. Improving facilities for shopping; for children's play and for young people addressed the need for social and recreational provision. Whilst some of these measures fell within the Estate Action remit, tliey represent a 'grey* ai'ea in. terms of responsibility for action, and may not be addressed by hoLising led refiu-bish-ment schemes. However, the other area of concern, and which fell outside the scope of physical refurbishment. was related to the socio-eco-nomic circumstances of residents. Pvit simpiy. estates which may have been used as 'dumping grounds" for 'problem' tenants in recent years, and whose residents were almost exclusively dependent on state benefits could be physically but not socialty transfonned. Wliilst the experience of involvement in a refurbishment scheme may be empowering for a small minority, the economic conditions of the majority remain^ the same. FurUiermore. improvements to the flats necessitate increases in rentSj with the level of increase dependent on the extent of improvements, for example:
Improvement
Rate of rental increase
Concierge system £5 per week Heat-Lease system £ 2 - 3 To kitchen	£2
To bathroom	£ 2
Consequently, tenants who request all improvements could face an increase in rents of up to £ 12 per
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week. Up to 70 % of tenants in flats are in receipt of full or partial Housing Benefit and because of the way the ^stem is funded, improvements have economic implications for both municipal authorities and central government In some cases, rent levels may force those on low incomes back into imemployment to regain eligibility for full Housing Benefit Rent increases may force some tenants on low incomes into arrears, whilst others may make reductions in such essential areas as food and heating.
Comment
As already stated. Uie continuing demand for affordable family dwellings has led to the 'no-children' policy in high-rise flats being revoked by the municipal housing authority for Binningham. The lack of alternative housing has meant that, on a majority of the estates examined, a significant number of statutorily homeless families are now being allocated to high-rise flats. Serious questions are raised concerning the appropriateness of such accommodation; its impact on children's health and the relationship between older, more 'settled' residents and yoLmg families. A key and imans-wered question is whether or not physical refurbishment schemes
can help to 'stabilise' préviously unpopular estates with high rates of tenancy turnover. At present, it is too early to assess the long term impact of greater tenant involvement in high rise refurbishment and its efl'ect on the sustainability of higli-rise living. Interviews currently under way with tenants make clear lliat their priorities ai-e centred around issues of security and saT fety; liousing families with children and the costs of refurbishment for tenants who are on low incomes. Ironically current improvement schemes may miss some of these targets or even aggravate them.
Dr. Richard Turkington, Director of Research, School of Housing, UCE Birmingham.
Suzanne Wheeiaghan, Ph. D. Research assistant in School of Housing, UCE Birmingham
References
Blnningliain City Council (BCC). (1993). Housing Investment Programme Strategy Statement.
BCC. (1993), Housing Deparljnent Annual Report. •
BCC. (1994). Housing Investment Programme Strategy Statement.
* BasedonapapcroriginallygiventotJip European Network for Housing Research, Conference. 'Mousing: making Uie Connection', Glasgow, 29. 8.-2. 9. 1994.