I’m not the only one who thinks this is extraordinary, but it is still something that maybe not everyone reads and it really is worth spending some time with Gilding the Ghetto, published in 1977. It’s a strange moment to be reading it really, after so many years of austerity, facing many of the same issues with the same roots, but in vastly different contexts. Still, both periods were framed in terms of crisis.
Towards the end of 1976 among the endless reminders of Britain’s economic predicament another theme was brought to public attention: the urban crisis.
This is how it opens – but they are quick to note that this urban crisis was not new — crisis was never new. Forty years later that shit is still not new.
Anyway, In the late 60s and early 70s a number of projects were started — and I found them fascinating so explore them in potentially boring detail here. For the most part they were attempted, they were awesome, but then they were finished and buried, and this cycle is so familiar.
Yet today there is an official silence about these programmes of the late 1960s and early seventies. A striking silence.
This report goes back to the early stage. Written by a group of workers from the National Community Development Project it tries to make sense of the spate of government ‘poverty initiatives’ beginning in 1968 of which CDP was a part. It is written from inside but, we hope, for an outside world. It comes from our own experience as some of the state’s ‘poverty’ workers, and from the doubts that experience raised in our minds about what our employers were really intending.
This sounds so familiar:
The Home Office, with James Callaghan as Home Secretary, embarked on CDP in 1969. The idea was to collaborate with local authorities in setting up local projects, each with a five- year lifespan as ‘a neighbourhood-based experiment aimed at finding new ways of meeting the needs of people living in areas of high social deprivation’. There were to be twelve projects … Their brief rested on three important assumptions. Firstly, that it was the ‘deprived’ themselves who were the cause of ‘urban deprivation’. Secondly, the problem could best be solved by overcoming these people’s apathy and promoting self-help. Thirdly, locally-based research into the problems would serve to bring about changes in local and central government policy.
Makes me really angry of course. Also unsurprising:
A few months’ field-work in areas suffering long-term economic decline and high unemployment was enough to provoke the first teams of CDP workers to question the Home Office’s original assumptions. There might certainly be in these areas a higher proportion of the sick and the elderly for whom a better co-ordination of services would undoubtedly be helpful, but the vast majority were ordinary working-class men and women who, through forces outside their control, happened to be living in areas where bad housing conditions, redundancies, lay-offs, and low wages were commonplace.
So they started organizing the people they were working with, using their research to pressure local authorities and councillors and investigating the structural issues at play – and that’s when they were shut down and buried really. In 1973 a central CDP Information and Intelligence Unit was set up and published a series of (probably embarrassing to the government) reports: The Poverty of the Improvement Programme, Whatever Happened to Council Housing? Profits against Houses and the Costs of Industrial Change. In 1974 central government asked for a review of the programme, with a goal of controlling, curtailing and closing down. (5)
Only six weeks after publishing the highly critical report on the government’s public spending cuts, Cutting the Welfare State (Who Profits), the Home Secretary ordered the closure of the unit.
This pamphlet was written in 1977, when a few projects were still running out their time, but finding it hard to coordinate work or collectively make sense of the findings.
This report is part of that attempt. Though it is not an account of our experience – that is to be found in the various local and inter-project reports — it tries to locate and explain that experience in the context of the series of government moves of which CDP was one….Still we hope that our analysis will help to clarify for others as it has for us, the role of government in relation to both the demands of the economy and pressures from the working class, and the part that such programmes we describe here as the ‘Poverty Programme’ play in maintaining the status quo. (6)
Part 1: The Poverty Programme
The men behind all of this top down malarky, well the men still look the same. Glasses are different of course.
The Welfare state was under pressure, government unsure what to do, this all sounds familiar too. It was an experiment— the word comes up again and again — conducted with very limited resources in many separate laboratories. The central state drew in the local authorities, disregarding their traditional departmental boundaries. ‘Citizen involvement’ and ‘participation’ were recurring themes. Most important, all the schemes took as their testing grounds, small, working-class districts of Britain’s big cities and older industrial towns. These were the ‘areas of special need’ which had first come to the centre of official concern; soon they were being called ‘pockets of deprivation’. (9) In describing the programming that emerged in response, James Callaghan, Home Secretary said it was:
to provide for the care of our citizens who live in the poorest or most overcrowded parts of our cities and towns. It is intended to arrest, in so far as it is possible by financial means, and reverse the downward spiral which afflicts so many of these areas. There is a deadly quagmire of need and apathy. Hansard, 2.12.68 (10)
Quagmire. Right. Still, I’m only just beginning to realise what a big deal it has been, the centralisation of funds and control over programmes, so this is important
Responsibility for Urban Aid was located in the Community Relations Department of the Home Office, the department also responsible for the Community Relations Commission. The money made available for Urban Aid was not an extra government grant, but money already existing in the Rate Support Grant which was taken out of the general allocation and put into the Special Grant category. This allowed the government to have for the first time some direct control over what was going on ‘at the grass roots’. Local authorities could apply for grants from this Special Grant for specific projects which could be financed for up to five years on a 75/25% basis (10)
It still seems to have been quite decentralised, and going into quality programmes:
As the local authorities grasped the new idea and sent back descriptions of the areas they regarded as being ‘of special social need’ the kinds of projects supported through the Urban Aid Programme widened in scope. From the nursery schools, day nurseries and children’s homes, family advice centres and language classes for immigrants of the earlier phases, it had extended its embrace to many more informal kinds of organisation by the later phases. The Home Office actively encouraged local authorities to support autonomous forms of organisation that were already active in their areas. Women’s Aid centres, holiday play schemes, housing and neighbourhood advice centres, family planning projects were all included in later phases of the Urban Aid Programme. (11)
But of course there was never enough funding
there have been around five times more applications made than those granted. In 1971 for instance the London Borough of Lambeth submitted applications for projects to cost £103,500 – only £13,650 of this was approved (11)
In 1969 the Home Office set up its version of ‘action research’: This included an array of programmes: Urban Aid (a neighbourhood-based experiment aimed at finding new ways of meeting the needs of people living in areas of high social deprivation; by bringing together the work of all the social services under the leadership of a special project team and also by tapping resources of self help and mutual help which may exist among the people in the neighbourhoods. Home Office Press Release 16.7.69 (12)); the Educational Priority Area (EPA) action-research project; Neighbourhood Schemes intensively targeting money into small deprived areas to complement the other programming; and the National Community Development Project. In the words of civil servant Derek Morell who pushed this through:
The whole project is aimed against fragmentation … The starting point of the project is that ours is a fragmented, disintegrating society. But the project aims at evolutionary changes, not revolution. Depersonalisation is another problem. The technical juggernaut is taking over and we are no longer the masters. The most difficult step will be how to discover how to perform the crucial task of raising the people of Hillfields from a fatalistic dependence on ‘the council’ to self-sufficiency and independence –Minutes, 14.7.69
That all sounds familiar too. And as if it were a race, the Department of the Environment announced in quick succession its own ‘total approach’ scheme: the Six Towns Studies.
In our approach to the environment, we have endeavoured in the first two years under the new DoE to make a switch of resources to bad areas .. . I believe that the next most important step for any department is to bring about a total approach to the urban problem. In the past the attitude has been a series of fragmented decisions not properly co-ordinated and not bringing about the improvement of urban areas which is necessary. –Peter Walker, then Secretary of State for the Environment, in the Budget Debate 1972, quoted in Community Action No.8. (13)
The Department of Health and Social Security (Sir Keith Joseph Minister), then set up a working party to explore ‘whether the cycle of transmitted deprivation would be a fruitful area of research’…investigating how ‘deprivation’ is passed on through the family. (13) Ah, how I love to hate that old chestnut. 1973 brought Quality of Life Studies, courtesy of the Department of the Environment, looking at improving access to leisure activities. They were a bit worried about how to coordinate it all by then, so created the Urban Deprivation Unit (UDU), and the Comprehensive Community Programmes. These were all partnerships between local and national government, but the European Economic Community (EEC) was also involved, and sponsored its own ‘Poverty Programme’ focused on the ‘chronically poor’. The research proliferated.
2. The (non) eradication of poverty
The aims of the EEC programme sound familiar: ‘to develop clearer perceptions of a complex problem and pioneer new techniques for tackling it‘.
The results? Mixed. The effort – beggars belief really.
The inner city areas of Liverpool are the delight of every deprivation theorist. They have been treated with each of the government’s urban deprivation programmes in turn, sometimes with several at a time. An EPA in 1969, a CDP in 1970, a Neighbourhood Scheme in 1971, an Inner Area Study in 1973 which then sponsored an Area Management experiment have all been tried there, and up to 1974 £1,707,213 had been spent on a stunning total of 146 different Urban Aid projects.
In 1968 when the poverty initiatives came to town, 25,000 people were registered as out of work on Merseyside. Four years later their numbers had more than doubled with 52,000 people unemployed. Today, 85,600 men and women, 11.3% of Merseyside’s population, are out of work. Even these telling city-wide figures cover up the real story of the inner-city areas. There the predicament of would-be workers is even worse with up to 20% unemployed and up to 30% among younger people. (19)
It’s all structural, innit. No one wants to tackle that though.
Both the CDP and the Inner Area Study agreed that immediate action was needed to tackle inner-Liverpool’s housing crisis. But though the message of their reports became more insistent, the actual housing output declined. (20)
It all boils down to this, always and everywhere seems like:
The poverty initiatives then have clearly not made any great inroads on inner-Liverpool’s real material problems. All they have done is to restate, usually in academic terms, what the people who live there have known for a long time.
Let’s just repeat that, because we are still doing it.
All they have done is to restate, usually in academic terms, what the people who live there have known for a long time.
Right, to continue:
If you live on Merseyside you have a better than average chance of being made redundant, being on the dole for a long time, living in slum conditions, being evicted, and forced to wait over six months for hospital treatment. Your children are more likely to die in infancy, or when, after getting no nursery schooling, they finally get to school, of being in larger classes in worse buildings, only to emerge finally onto the dole. Over 10,000 people leave Liverpool each year as a way of avoiding these problems. Those who are left can debate them in the neighbourhood councils and area management experiments left behind by the ‘poverty projects’. But, as they well know, talk is not going to make any impact on the worsening situation that faces them. (20)
12.5% households were still without hot water in 1966, though that had dropped to 6.5% by 1971 (21). Homelessness figures, though, were rising:
Homelessness has doubled since 1970. On an average day in that year there were 12,874 people applying for temporary accommodation throughout Britain: by 1975 this had increased to 25,120 people a day. Meanwhile there are one million households still on local authority housing waiting lists throughout England while in London alone the total number on the housing waiting list increased from 152,000 in 1965 to 233,000 in 1974. (21)
So what change was achieved?
The problems of ‘deprivation’ then would seem to be as acute as ever for those who live them, and the prospects are bleak. Neither the poverty initiatives, nor the government’s more general policies towards the poor could be said to have had much impact on the problems facing the people who live in the older urban areas. But the programmes have always been small compared to the size of these. Not so much geared to solving the problems, they set out to provide the basis on which policy at both central and local government levels could be improved. Did the EPAs, Inner Area Studies, CDPs and the rest at least succeed in this respect? When it came to it neither Tory nor Labour governments seem to have taken much notice of the major policy recommendations emerging from the programmes although several years have now passed since their first reports were available. (22)
For housing specifically:
In housing too the pattern is much the same. One of the major recommendations of all three Inner Area Studies was the need for more spending on house improvement, with changes in policy to allow poorer owner-occupiers to take up improvement grants and more powers to enable local authorities to ensure that rented property was improved. The local authorities got their greater powers in 1974, as part of the Housing Action Areas scheme, but powers alone are useless without money, and they have now been denied the resources to carry out these proposals at all as government spending on improvement grants has gradually been cut back from £195.2m in 19734 to £85.8m in 1975-6. (23)
1976 brought in a renewed period of cuts — more money going to the ‘urban problem’, but not as much as was being cut in other spending in face of national economic crisis. So – it’s structural inequality. A great quote from the quote from the Liverpool Inner Area Study:
A number of issues emerge from this description of inner area characteristics and the work carried out by Inner Area Studies. The chief one is the poverty and neglect of the area and its people in every sense. To a great extent this poverty is a reflection of inequalities in society as a whole. Clearly the scale and character of the problem is too great for policies concerned solely and specifically with inner areas to be effective. Any fundamental change must come through policies concerned with the distribution of wealth and the allocation of resources. IAS/L1/6 Third Study Review, Nov. 1974. (24)
Next post — the larger political economy of the 1960s, and just why all this spending on certain kinds of solutions could never provide the right answers. I can’t believe we’re still having that conversation, but the CDP did it masterfully.
One thought on “Gilding the Ghetto: Poverty and Poverty Programmes in the 60s and 70s”
thanks I work in vol sector in barking and dagenham. there is alot of civil society and local authority relationship re-setting (away from decades of paternalism with a new no one left behind / buikldihng resilience council manifesto It is interesting and timely to look back at this work.