Tenure and housing market analysis Church Street

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Tenure and Housing Market Analysis for the Church Street Ward in the City of Westminster or How to close the ‘Rent Gap’ in a Social Housing dominated central London Area by Stealth Achim von Malotki 2015

Transcript of Tenure and housing market analysis Church Street

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Tenure  and  Housing  Market  Analysis  for  the  Church  

Street  Ward  in  the  City  of  Westminster  

or    

How  to  close  the  ‘Rent  Gap’  in  a  Social  Housing-­‐

dominated  central  London  Area  by  Stealth  

   

 

 

 Achim  von  Malotki        2015      

 

   

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The  Church  Street  ward    Map  1  depicts   the  Church   Street  ward   in   the  City  of  Westminster   as   located  north  of  Marylebone   Road,   to   the   south   of   Regent’s   Canal,   west   of   the   tracks   leading   to  Marylebone  Station  and  east  of  Edgware  Road.      

 Map  1:  The  Church  Street  ward  with  its  housing  estates  (City  of  Westminster  2014:  2)    Based   on   the   latest   population   figures   the   ward   has   11,962   residents   (City   of  Westminster   2014:   1).   At   the   time   of   the   Census   2011   it   was   the   most   densely  populated  ward  in  London  with  264.7  people  per  hectare  (UK  Data  Explorer  website).  As  such,  and  with  its  almost  complete  absence  of  terraced  homes,  it  may  be  considered  the  very  antipode  of  suburbia.  The   housing   in   Church   Street   forms   a   stark   contrast   to   its   affluent   adjacent  neighbourhoods.   Arguably,   the   built   environment   corresponds   with   a   massive   social  divide  across  what  are  minuscule  spatial  distances.  Church  Street  itself,  in  the  centre  of  

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the  ward,  is  home  to  Westminster’s  largest  street  market,  lending  the  area  a  social  and  commercial  focus.      The  built  environment   is  dominated  by  social  housing  as  shown  by  Figure  1,  placing   it  within  the  upper  decile  of  all  London  wards  in  that  category    (UK  Data  Explorer  website).      

 Figure   1:   Social   housing   in   Church   Street,   Westminster   and   London   overall   (as  

percentage   of   all   tenures),   left   column  Census   2001,   right   column  Census  2011  (ONS  Neighbourhood  Statistics  website)  

 As  Figure  2  demonstrates,  socio-­‐economically  the  population  of  Church  Street  stands  in  stark  contrast  to  the  City  of  Westminster  as  a  whole.    

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28.9  26.2  

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 Figure   2:   Socio-­‐economic   status,   Census   2011   (omitting   full-­‐time   students)   (ONS  

Neighbourhood  Statistics  website)    Church  Street  is  one  of  the  most  ethnically  diverse  wards  in  England,  ranked  in  the  top  0.3%  according  to  its  Simpson  Diversity  Index  Score  (GLA  2011)  with  a  particularly  strong  presence  of  Arabs.   62%  of  Church   Street   residents   are   from  non-­‐white  ethnic   groups,  and  53%  were  born  outside  of  the  UK  (City  of  Westminster  2013).  For  more  on  housing  tenure,   ethnicity,   income,   etc.,   see   Table   3,   p.   17.   In   terms   of  multiple   deprivation   it  ranks  within  the  highest  category  of  all  London  wards  (see  London.gov.uk  website).    Due   to   housing   allocation   policy   there   is   a   strong   representation   of   the   disabled   and  other  people  with  special  needs.  As  Figure  3  shows,  life  expectancy  is  approximately  ten  years  lower  than  for  Westminster  overall.      

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 Figure  3:  Life  expectancy  from  birth  (City  of  Westminster  2014:  13)    The  Church  Street  ward  is  about  to  undergo  a  programme  of  urban  regeneration  called  the   Futures   Plan.   It   is   a   housing-­‐led   programme   that   aims   to   create   mixed   tenure-­‐developments   which   in   turn   are   intended   to   generate   “mixed   communities”   (City   of  Westminster   2010:   51)   in   this   area   hitherto   characterised   by   a   high   concentration   of  social  housing.      Tenure  analysis  and  house  price  data    To   assess   the   question   of   housing   affordability,   the   distribution   of   housing   tenures   in  Church   Street  was   analysed   -­‐   followed  by   an  examination  of  how   the  housing  market  plays  out  in  the  regeneration  area  with  price-­‐paid-­‐data  obtained  from  the  Land  Registry.    Tenure  analysis    Of  the  ward’s  4,719  residential  properties  (Ward  profile  2014),  CityWest  Homes  (CWH)  alone  managed  3,030  or  64.2%  at  the  end  of  2014.  These  are  divided  into  two  ‘villages’  within  the  ward.  CWH  kindly  provided  the  tenancy  data  required  for  a  comparison  over  

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time   (Village   Manager   Survey,   CWH   Central   Area   Management   –   and   data   obtained  from  CWH  again  for  2014).    The  most  powerful  vehicle  for  neighbourhood  change  in  the  UK  since  1980  has  been  the  change  of  tenures  due  to  the  Right  to  Buy,  the  sale  of  council-­‐owned  homes  to  sitting  tenants  (Kearns  &  Mason  2007:  664).  In  London,  as  in  many  other  British  cities,  the  sale  of  council  homes  was  by  far  the  greatest  contributor  to  the  growth  of  home  ownership  (Forrest  et  al  1996:  128).  The  Coalition  government  ‘reinvigorated’  the  Right  to  Buy  by  increasing  the  discounts  on  the  sale  price  to  tenants  to  up  to  70  percept  or  £102,700  in  London  boroughs  (see  Gov.uk  Right  to  Buy  website)  to   incentivise  sales   (Harrison  et  al  2013:  16).  In  addition  to  the  discount,  many  Right  to  Buy  owners  traditionally  put  down  only  a  small  deposit,  leaving  them  with  the  largest  relative  gains  of  all  acquirers  of  home  ownership  (Hamnett  1995:  266).  The  size  of  the  discount  matters,  as  the  experiences  of  2005/06   showed,   when   Right   to   Buy   sales   plummeted   after   the   discount   had   been  reduced  (Wilcox  2008:  5).  As   demonstrated   by   Table   1,   until   2011,   when   the   Futures   Plan   was   conceived,   the  properties  CWH  manages  in  the  ward  had  been  overwhelmingly  tenanted,  with  only  27  percent  leaseholders,  far  lower  than  the  44  percent  in  Westminster  overall  at  the  time.  However,  as  depicted  by  the  same  table,  within  just  three  years  this  has  changed.  259  council   homes   for   rent   have   been   lost   –   more   than   the   Futures   Plan   will   deliver   as  ‘affordable’  homes.  Meanwhile  in  Westminster  overall  there  has  been  hardly  any  shift  at  all,  with  the  latest  figures  showing  45.1  percent  leaseholders,  54.9  percent  tenants  (data  obtained   from   CWH).   Note   also   that   in   the   adjacent   management   ‘villages’   of  Marylebone  and  St   John’s  Wood  there  has  been  almost  no  change  at  all  of   leaseholds  whose  share  was  already  high  in  2011.    

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Table   1:   Tenure   status   of   CWH-­‐managed   properties   in   the   Church   Street   ward   2014   in  comparison  with  2011  (in  brackets)  

 *185  homes  of  HA  Genesis  managed  by  CWH,  not  eligible  for  Right  to  Buy.  Data  of  November  2014   compared  with  November   2011   (Source:   2011:  Village  Manager   survey   conducted   by  author;  2014:  CityWest  Homes,  Central  Area  Management  upon  request)  

 The  number  of   leaseholds  particularly   in   the  Church   Street   ‘village’  within   the  Church  Street   ward   shot   up,   increasing   its   share   by   almost   10   percentage   points   –   almost  closing  the  gap  to  the  Westminster  average.  While  the  large  and  compactly  built  Lisson  Green  estate  stayed  behind,  here  also  the  share  of  leaseholds  rose  significantly.      In  1988  Forrest  &  Murie   identified  Right-­‐to-­‐Buy-­‐sales   to  be  highest   in   localities  where  existing  proportions  of  owner  occupiers  were  high  and   council   tenure   low   (ibid:   145),  which   had   a   polarising   effect   insofar   as   socio-­‐tenurial   differences   between   localities  were  aggravated  by  the  policy,  with  large  compact  housing  estates  showing  much  lower  take-­‐up   of   this   statutory   right.   This   could   well   explain   the   stark   differences   in   the  percentage   of   leaseholds   between   affluent  Marylebone   and   St.   John’s  Wood   on   one  hand  and  the  Church  Street  ward  on  the  other  still  in  2011,  as  shown  in  Table  1.  Those  who  exercised  their  Right  to  Buy  in  the  past  remained  in  their  properties  for  some  time,  with  the  median  period  reported  to  be  16  years  (Fenton  et  al  2013:  374).  Indeed,  as  van  Ham   et   al   (2013:   131)   confirmed   much   more   recently:   few   of   the   first   Right   to   Buy  purchasers  stated  that  they  wished  to  move  on  in  the  near  future  and  many  expected  to  stay  in  their  home  for  the  rest  of  their  lives,  valuing  non-­‐monetary  factors  (such  as  liking  

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where   they   live)  more  highly   than  monetary  considerations.  They  declared  no  wish   to  sell   even   if   a   market   price   was   offered   (Balchin   et   al   1998:   74).   Buyers   in   the   more  affluent   areas   above   stayed   put   as   owner-­‐occupiers   rather   than   becoming   absentee  landlords,  unlike  in  the  Church  Street  ward,  where  in  2011  the  majority  of  lessee  homes  was  let  to  other  people.  However,  with  the  rapid  price  increases  seen  particularly  in  the  inner   London   housing  market   over   the   past   years,   the   turnover-­‐rate   of   these   homes  originally  allocated  on  grounds  of  need  entering   the  property  market  as  a   commodity  may  well  accelerate  (Fenton  et  al  2013:  375).    Importantly,  in  2003  a  report  published  by  the  Association  of  London  Government  found  that  a  large  number  of  tenants  in  London  exercise  their  Right  to  Buy  where  and  when  a  regeneration  scheme  is  announced  (ibid:  4).  Anticipation  matters:  if  an  area  is  destined  to  receive  inward  investment  and  a  rise  in  its  popularity  is  expected,  sitting  tenants  will  be  encouraged  to  buy  (Murie  2014:  422),  causing  in-­‐situ  change  of  the  neighbourhood.  In  housing  economics  it  is  well  established  that  any  investment  that  will  make  the  area  ‘nicer’  –  be   it  amenities  and  attributes   like  a  much  embellished  public   realm  –  will  be  capitalised  by   the  housing  market   into  house  prices  or  private  market   rents   (Cheshire  2012:  18).  Particularly   in   times  of  a   febrile  housing  market   it  may   take  not  more   than  just  anticipation  of  these  things  to  come  to  cause  this  effect.  It   is   not   just   tenants   whose   anticipations   matter:   already   in   2003   the   Association   of  London  Government  concluded  from  the  evidence  that  the  Right  to  Buy  system  is  open  to  abuse:  “private  companies  have  been  offering  cash  incentives  to  tenants  to  move  out  so  that  the  property  can  be  rented  out  privately  at  market  rates”  (ibid:  3).  Locations  in  Church  Street   featured  prominently  among  those   targeted  by  such  practices   in  a  BBC-­‐broadcast   Inside   Out:   London   on   12.1.2015   titled   “Fraud   fears   over   London   housing  right-­‐to-­‐buy   sales”   (see   BBC   website).   The   tenant   formally   sells   the   property   to   the  company  at  the  end  of  the  five-­‐year  period  within  which  the  discount  would  have  to  be  repaid   if   sold   earlier.   Rather   than   encouraging   owner-­‐occupation,   the   home  does   not  only   become   privatised,   it   becomes   re-­‐commodified   by   being   turned   into   a   tool   for  capital   gain.   The   Association   of   London   Government   report   (2003:   5)   warned:   “with  private   sector   tenants   more   transient   than   council   tenants,   community   sustainability  and   stability   may   be   reduced   rather   than   increased   as   envisioned   with   owner  occupation”.   The   assumption   that   the   Right   to   Buy   would   permanently   expand  homeownership   and   bring   with   it   all   its   supposed   social   and   financial   benefits   may  simply   not   materialise   if   formerly   publicly   owned   (hence   non-­‐commodity)   housing  enters  the  private  rental  sector  through  the  commodification  process  (Sprigings  &  Smith  2012:  58).  Futures   Plan   community   participants   were   assured   by   council   officers   that   CWH   had  made  significant  improvements  to  its  Right  to  Buy  process  to  give  anti-­‐fraud  and  money  

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laundering   processes   much   more   prominence.   However,   there   seems   to   be   little  incentive   for  councils   to   identify  Right   to  Buy  abuse  cases  as   the  practice   is  not   illegal  and  there  is  little  that  boroughs  can  do  to  prevent  it  (Association  of  London  Government  2003:   7)   Local   authorities   rarely   have   the   resources   to   track   which   Right   to   Buy  purchases  involve  subsequent  sublets  to  companies  (ibid:  4).  Recipients   of   means-­‐tested   benefits   like   Housing   Benefit   are   not   excluded   from  exercising  their  statutory  Right  to  Buy.  According  to  Westminster  council,  22  per  cent  of  Right   to   Buy   sales   had   been   to   people   in   receipt   of   housing   benefit   at   the   time   of  application.  At  time  of  completion  of  the  sale,  11  per  cent  still  were  (see  Douglas,  Inside  Housing   2014).  With   69   per   cent   of  Westminster   council   tenants   and   75   per   cent   of  Registered   Social   Landlord   tenants   in   Westminster   in   receipt   of   housing   benefit  (Westminster   City   Council   2011),   therefore   even   this   fact   is   no   barrier   –   all   the  more  creating   an   incentive   for   property   investors.   These   have   offered   rewards   of   up   to  £100,000   to   tenants   if   they  buy   their   homes   from   the   council   under   the  Right   to  Buy  scheme  and  then  hand  it  to  over  to  them  to  be  resold  (see  Mclennan:  West  End  Extra  article  22.8.2014).    Home  ownership  has  traditionally  been  seen  as  a  source  of  capital  gains.  But  nowhere  does   this   seem   quite   as   evident   as   in   the   buy-­‐to-­‐let   sector   built   on   the   re-­‐commodification  of   formerly  publicly   owned  housing   stock.  At   least   36%  of   all   homes  sold  by  councils  across  London  are  now  let  by  private  landlords.  (Copley  2014:  1).    The  price-­‐paid-­‐data  obtained  from  the  Land  Registry    Data   were   obtained   for   Greater   London   overall,   the   boroughs   of   Camden   and  Westminster  combined,  for  properties  in  the  Church  Street  ward,  and  –  as  a  subgroup  of  the   latter   –   for   properties   in   Church   Street   that   were   formerly   part   of   the   council  housing  stock.  Table  2  indicates  the  absolute  figures  for  each  reference  area  each  year  for  which  data  were  obtained.  For  2014  house  prices  were  calculated  until   the  cut-­‐off  date  of  31.10.2014  (‘YTD’  =  year  to  date).    

     Table  2:  Absolute  figures  (N)  of  price-­‐paid  transactions  for  area  per  year.  

   Figures  4  and  5  give  an  indication  of  the  development  of  median  house  prices  for  former  council-­‐stock   properties   in   Church   Street   and   for   homes   in   the   Church   Street   ward  

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overall   in   comparison  with  Westminster   and  Camden  and  with   London  overall.  House  prices  of  Figure  5  are  calculated  as  rises  relative  to  where  they  were  in  the  year  1999,  which  is  used  here  for  indexation.  Median  house  prices  were  chosen  instead  of  average  ones   to   subdue   the  distorting  effect  of  prime  market  properties   clustered  primarily   in  just  five  postcode  areas  within  St.  James,  Belgravia,  and  Knightsbridge.      

 Figure  4:  Median  house  prices  in  comparison  since  1999  (from  1999  to  2011  two-­‐year-­‐intervals,  

since  2011  annually;  YTD:  ‘year  to  date’)  

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 Figure  5:  Development  of  median  house  prices  (index  1999=100;  YTD:  ‘year  to  date’)  

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Note  that  the  line  graphs  of  Figures  4  and  5  are  accurate  for  the  years  1999  to  2011  only  insofar  as  calculations  were  made   for   two-­‐year-­‐intervals  –   so   the  connection  between  the  two  measurements  only  give  a   rough   impression  of   the  trend   for   this   time  but  do  not   supply   precise   figures   for   the   years   in   between   for   which   house   prices  were   not  calculated.  All   prices   only   refer   to   transactions   between  private   parties.   Right   to   Buy-­‐sales  at  a  discount  from  the  local  authority  are  not  included.      As   we   can   see   from   Figure   5,   in   comparison   with   1999   and   relative   to   the   original  investment  made,  ex-­‐council  homes  in  the  Church  Street  ward  offered  the  best  returns  for  2014  –   leaving  both  Westminster  &  Camden  and  London  overall  behind.  Homes   in  the  Church  Street  ward  overall   (that   include  ex-­‐council  properties)  start  to  outperform  in  relative  terms  both  Westminster  &  Camden  and  London  overall  early  on,  from  2001  consistently   until   2014.  No   particular   effect   due   to   the   inception   of   the   Futures   Plan,  which  would  have  left  its  mark  since  2011,  is  visible.      Figure   5   gives   a   good   impression   about   the  potential   profit   to   be  made  when   former  publicly  owned  dwellings,  purchased  at  a  discount,  are  resold  on  the  open  market.  Note  that   at   the   time   when   the   Right   to   Buy   transaction   takes   place,   not   only   does   the  discount   benefit   the   buyer,   but   homes   also   tend   to   be   undervalued   (Association   of  London  Government  2003:  6).  Condensing  the  Right  to  Buy  figures  of  Table  1  for  Church  Street  with  the  information  provided  by  Table  2  and  Figure  4,  the  following  prognosis  is  hereby  made:  After   the   five   year   period  has  passed  during  which   a  proportion  of   the  discount   can   be   reclaimed,   a   considerable   proportion   of   Right   to   Buy   sales   will   feed  through  into  the  price  paid  figures  and  the  number  of  former  council  homes  arriving  on  the  housing  market  will  rise  considerably.    From  Figure  4   it   becomes  obvious   that   house  prices   in  Church   Street,   including   those  formerly  part  of  the  publicly  owned  stock,  are  out  of  reach  for  but  a  few  of  the  ward’s  residents.  According  to  the  GLA’s  household  income  estimates  for  2014,  the  estimated  mean   annual   household   income   for   Church   Street   is   £31,134,   the   median   annual  household  income  merely  £19,572  (see  GLA  2014).  The  ratio  of  ex-­‐council  homes  prices  for  2014  versus   local   annual  household   income  would  hence  be  13.4,  with   regards   to  the  median   annual   household   income   a   staggering   21.3.   For   homes   overall   in   Church  Street  the  ratios  would  obviously  be  higher  still.   In  other  words:   if  they  do  not  already  own  a  home,  the  vast  majority  of  Church  Street  residents  has  effectively  been  priced  out  of  their  own  neighbourhood.  This  will  be  even  more  the  case  for  any  new-­‐built  private  housing   in  the  area,   likely  to  be  priced  at  well  above  median   local  house  prices  of   the  existing  stock.  One  of  the  key  policy  aims,  to  enable  upward  tenure  mobility   for  those  currently  in  social  housing  into  more  market-­‐oriented  tenures  or  into  home  ownership  

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within  newly  built  homes   in   the  ward   (City  of  Westminster  2010:  12)  seems  therefore  hard  to  reconcile  with  the  reality  of  local  house  prices.  There  is  not  only  a  gap  between  local  incomes  and  property  prices  –  the  gap  is  also  too  wide  between  social  and  private  rents   for  progression  out  of   social-­‐rent  housing   to   intermediate  housing   to  happen  as  long  as  rents  for  that  so-­‐called  ‘affordable’  sector  are  pegged  to  market  rates  (see  Arbaci  &  Rae  2013:  472).    With  the  very  considerable  median  price  of  £417,500  for  an  ex-­‐council  home  in  Church  Street   in  2014,  any  buyer  with   intentions  to   let  the  property  as  a   landlord  will  have  to  charge  very  considerable  rents  to  service  a  buy-­‐to-­‐let  mortgage  and  generate  a  return  (Sprigings  &  Smith  2012:  71).  It  is  certainly  much  more  profitable  to  enter  into  deals  with  sitting   tenants   to   benefit   from   the   discount   he   or   she  will   enjoy.  Murie’s   (2014:   421)  assumption  that  those  who  access  a  former  council  property  through  the  market  may  be  “…very  similar  to  those  that  would  have  moved  in  if  the  property  were  still  in  the  social  rented  sector”  could  possibly  apply  to  sublets  by  someone  who  enjoyed  the  discount  –  as  rents  could  be  lower.  For  a  ‘second-­‐generation’-­‐landlord  who  bought  the  property  on  the  open  market  this  seems  unlikely,  as  the  rents  required  would  be  too  high.  Already  in  December  2012  private  household  rents  in  Church  Street  –  albeit  being  lower  than  the  Westminster  average  –  stood  at  a  median  rent  for  a  1-­‐bedroom  flat  at  £375  per  week  and  for  a  2  bedroom  one  at  £594  (City  of  Westminster  2013:  10).  Rents  would  hence  be  above  the  Local  Housing  Allowance  (LHA)  cap  introduced  by  the  Coalition  Government.  So  landlords  specialising  on  lettings  to  recipients  of  HLA  may  be  deterred  from  doing  so  in   Church   Street.   Additionally   a   mechanism   highlighted   by   Rowlands   &  Murie   (2009:  242)  comes   into  play:   in  high-­‐demand  markets  a  distinctively  higher-­‐income  group  will  begin  to  move  in.  “This  is  a  form  of  gentrification  following  explicit  policies  of  the  state  to  privatise  the  housing  stock  and,  over  an  extended  period  of  time,  could  significantly  alter  the  social  make  up  of  neighbourhoods.”  (ibid:  242).    When   commercial   landlords   snap  up  property   that   once  was  publicly   owned  not  only  ownership  changes.  The  neighbourhood  will  change  as  well  if  homes  are  let  at  high  rents  to   a   transient   population   (Leary   &   McCarthy   2013:   582).   With   two   thirds   of   private  renters  in  London  residing  in  their  homes  for  less  than  three  years  (Scanlon  et  al  2014:  15),  the  high  population  churn  associated  with  private  lettings  may  be  more  damaging  still  in  more  deprived  neighbourhoods  (Bailey  et  al  2012:  212).  Higher  turnover  leads  to  lower  attachment  and   it  does   so  primarily  by  undermining   social   cohesion   (ibid:  228).  For  the  same  reason,  great  attention  should  be  given  to  who  the  buyers  of  newly  built  properties  will  be.  It  is  recommended  to  contractually  exclude  buy-­‐to-­‐let  investors  with  no  intention  to  live  in  the  area  to  avoid  above  negative  destabilizing  effects.  Private   renters  may   have   quite   low   purchasing   power   to   support   the   local   economy.  

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Renting  in  the  private  sector  can  make  you  poor  after  having  covered  housing  costs:  In  MP   Karen   Buck’s   North   Westminster   survey   44   per   cent   of   all   private   renters   who  indicated  how  much  of  their  income  they  spend  on  rent  said  that  it  was  50  per  cent  or  more   (Buck   2014:   5).   Note   that   affordability   is   commonly   set   at   a   maximum   of   35  percent  of  total  net  household  income  in  housing  policy  (Shelter  2012:  5).  40  percent  is  the   maximum   level   recommended   by   the   London   Development   Agency   (City   of  Westminster   2010:   12).   Gardiner’s   (2014)   comprehensive   analysis   revealed   that   12  percent  of  private  renters  in  London  spend  more  than  half  their  net  income  on  housing  costs.  Within   the   lowest   income  quintile   the   figure   is   29   percent   for   the  UK  overall   –  likely  to  be  much  higher  in  London  (ibid:  10).      The   Right   to   Buy   and   the   Futures   Plan   in   light   of   Church   Street   property   prices:  identifying  the  ‘rent  gap’    The  rates  of   return   for   investing   in  property   in  Church  Street,  particularly   former   local  authority  homes,  suggest  that  Smith’s  (1979)  “rent-­‐gap”  theory  applies  to  Church  Street.  The  rent  gap  is  “…  the  gap  between  the  actual  capitalized  ground  rent  (land  value)  of  a  plot  of   land  given  its  present  use  and  the  potential  ground  rent  that  might  be  gleaned  under  a  ‘higher  and  better’  use  (Smith  1987:  462).  The  definition  refers  to  the  value  of  land   separate   from   any   structures   or   improvements   built   on   it.   The   value   of   land   is  appropriated   in  economic   transactions  as  ground   rent;  hence   the  notion  of   the  "rent"  gap.   The   rent   gap   is   particularly   marked   in   inner   urban   areas   where   low-­‐income  residents  occupy  prime  commercial  or  residential  space  and  hold  down  land  values,  or  even   prevent   the   existence   of   a   housing   market   because   of   the   predominance   of  publicly   owned   housing   stock   (Lupton   &   Tunstall   2008:   112).   Privatisation   and   re-­‐commodification  of  the  housing  stock  in  these  areas  is  “…one  means  by  which  the  rent  gap  can  be  closed,  wholly  or  partially”  (Smith  1987:  462).  In  Smith’s  view,  the  factors  on  the  production  side  of  urban  space,  the  role  of  capital  and  collective  social  actors  such  as  developers  and  mortgage   finance   institutions,  will  operate   together  on   the  housing  and  land  market  to  bring  undervalued  urban  space  into  use.  This  happens  particularly  at  times  when   capital  markets   view   the   prospect   of   investing   in   urban   space   as   yielding  higher   returns   than   they   would   obtain   in   other   areas   of   investment.   “When   capital  expansion   has   no   new   territory   left   to   explore,   so   it   redevelops,   or   internally   re-­‐differentiates,  urban  space.”  (Zukin  1987:  141).  The  contrast  between  the  disinvested  council  housing  stock  and  the  highly  valued  land  it  sits   on,   creates   enormous   capital   accumulation   potential   –   and   is   described   in   the  literature   as   a   “state-­‐induced   rent   gap”   (Watt   2009b:   235).   Above   processes   are  illuminatingly   captured   by   Watt’s   scissors-­‐metaphor   (2013:   102)   for   state-­‐led  gentrification:  The  first  blade  is  formed  by  rising  land  values  in  London,  particularly  in  an  

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area   like   Church   Street   so   close   to   the   ‘epicentre’   of   a   very   buoyant   London   housing  market,  boosted  particularly  in  Westminster  by  private  foreign  investors,  including  those  looking  for  a  ‘safe  haven’  for  their  money.  In  previously  social  housing  dominated  areas  like  Church  Street,  the  Right  to  Buy  comes  to  the  aid  of  investors  as  a  tool  to  acquire  and  appropriate  the  formerly  publicly  owned  housing  stock  sitting  on  such  high-­‐value  land.  “The  second  blade  is  constituted  by  the  long-­‐term  running  down  of  council  housing  both  in  terms  of  numbers  and  quality”  (ibid:  102).  With   regards   to   the   numbers:   even   at   a   time  when   councils   are   supposed   to   replace  every  home  lost  through  the  Right  to  Buy,  evidence  suggests  that  in  London  it  actually  takes   1.6   Right   to   Buy   sales   to   fund   each   new   council   home,   meaning   that   it   is   not  possible   to   replace   every   home   lost   (Copley   2014:   3)   Furthermore,   there   is   no  requirement  for  replacement  homes  to  be  the  same  as  those  lost.  This  means  that  e.g.  a  four-­‐bed  social  rented  home  charged  at  40  percent  of  market  rent  can  be  replaced  by  a  single  room  ‘affordable  rent’  property  charged  at  80  percent  of  market  rent  (ibid:  3).  With   regards   to   quality:   the   Decent   Homes   programme   may   have   raised   internal  standards   of   council   homes,   but   externally   capital   investment   is   needed   that   Major  Works  programmes  financed  from  the  Housing  Revenue  Account  would  not  be  able  to  address.  The  council  states  this  quite  explicitly:  “We  acknowledge  that  our  housing  stock  requires   significant   investment   if   we   are   to   keep   up   with   ever   advancing   housing  standards   but   are   faced   with   a   major   shortfall   in   funding   to   deliver   this.”   (City   of  Westminster   2010:   4).   The   council   –   the   ‘state’   at   local   level   -­‐   has   not   only   invested  insufficiently   in   the   existing   housing   stock.  Disinvestment   is   also   evident   in   the   public  realm   and   streetscape.   In   2012   public   realm   and   urban   design   consultants   Publica,  commissioned   by   the   council   summed   up   their   findings   by   stating:   “Overall   the  neighbourhood  fails  to  meet  the  high  standards  that  are  applied  throughout  the  City  of  Westminster.   Materials   are   generally   low   quality   and   poorly   maintained,   with   little  attention  to  detail  and  consistency.  This  increases  the  isolation  of  the  Church  Street  area  from   the   surrounding   neighbourhoods   in  Westminster.”   (2012:   7).  Publica  added   that  poor  quality  and  poorly  maintained  materials  that  would  be  unacceptable  in  most  parts  of  Westminster  are  “common  in  some  estates  and  their  surrounding  streets.”  (ibid:  7).      To  summarise:  the  rates  of  return  for  investing  in  property  in  Church  Street,  particularly  former   local   authority   homes,   suggest   that   the   rent   gap   is   currently   being   closed   by  privatisation-­‐   and   re-­‐commodification  of   the  hitherto  publicly   owned  housing   stock   in  this  area  of  high  land  value.  A  housing  market   is  created  where  it  had  previously  been  subdued   due   to   publicly   owned   housing   stock   having   been   allocated   to   low-­‐income  residents   at   sub-­‐market   rents.   While   much   of   the   land   may   remain   publicly   owned,  neoliberal   housing   market   policy   achieves   its   aim   by   gradually   transferring   hitherto  publicly   owned   housing   stock   into   the   property  market   through   Right   to   Buy.   It   also  

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provides  a  tool  in  form  of  the  new  developments  created  by  the  Futures  Plan  –  (viewed  by  Smith  (1979)  and  Watt  (2013)  as  ‘state-­‐led  gentrification’)  whereby  ‘finally’  the  value  of  the  land  finds  its  expression  in  property  prices  to  match  –  and  the  rent  gap  is  closed.      What  do  the  findings  entail  for  the  gentrification-­‐debate?    In  a  housing  market  in  which  demand  vastly  outstrips  supply  there  will  always  be  plenty  of  ‘housing  consumers’  to  move  into  areas  made  accessible  to  that  market,  regardless  of  what   particular   tastes   and   preferences   consumers   may   have.   In   the   light   of   limited  supply  and   few  areas  of   inner-­‐London   left   that  have  not  yet  been  gentrified   (Atkinson  2006:   826),   it   is   argued   here   that   the   gentrification   literature   ought   to   pay   renewed  attention  to  the  supply-­‐side  of  housing.  Theories  of  gentrification  have  –  on  the  whole  –  integrated   the  production  or   supply-­‐side  of  potentially   gentrifiable   inner   city  property  and   the   consumption   preferences   of   middle   class   households   seeking   inner-­‐city  locations  (see  Hamnett  1991).  With  such  scarce  housing  supply,  unaffordable  at  median  incomes,  we  may   simply   have   to  depart   from   the  notion   that   gentrifier-­‐   or   consumer  tastes  and  preferences  will  materialise  on  the  demand  side,  but  will  have  to  adapt  to  the  shrinking  supply  of  what  they  may  be  able  to  afford.  Still   a   few   years   ago   gentrification   was   conceptually   linked   to   home   ownership   (see  Butler  2001).  In  the  meantime  Butler  et  al  (2008:  84)  have  realized  that  members  of  the  middle  classes  who  are  not  on  the  highest  incomes  may  be  restricted  to  private  renting  (at   least   in   inner   London)   and   hence   “…are   forced   to   trade   owner-­‐occupation   and  square  metres  for  the  sociability  and  access  of  ‘living  in  the  inner  city’,  albeit  in  housing  where   they   have   no   more   than   six   months   security   of   tenure   and   are   liable   to  permanent   exclusion   from   owner-­‐occupation.”   Homes   on   housing   estates   seemed   an  option  unpalatable  to  most  gentrifiers  until  fairly  recently  (see  Butler  &  Robson  2003:  66,  Watt  2005:  360).  Yet  re-­‐commodified  homes  on  estates  may  be  left  as  the  only  option  they  could  still  afford.  Hence,  rather  than  focusing  on  choice,  it  would  be  more  fruitful  to  elaborate  on  how  consumer  adaptation  mechanisms  are  discursively  framed  and  play  out  socially  and  spatially.    One  certain  effect  of  the  Right  to  Buy  is  to  exclude  households  unable  to  pay  who  could  meet   their   housing   needs   only   through   the   allocation   process   –   and   to   open   up  opportunities  for  households  able  to  pay  to  move  into  the  neighbourhood  (Rowlands  &  Murie  2009:  242).  This  may  be  gentrification  without  displacement  of  existing  residents,  however  it  meets  Marcuse’s  (1985:  206)  definition  of  ”exclusionary  displacement”:  here  the  displacement   is  not  physical,  but  economic   in  that  a  household  very  similar   to  the  former   council   tenant  whose   flat   has  been   sold,  will   be  excluded   from   living  where   it  would  otherwise  have  lived  in  an  area  where  the  housing  stock  has  been  commodified  

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(see   also   Zukin   1987:   136).   In   other   words,   the   process   is   effective   in   displacing   the  characteristics   of   the   existing   population.   Lower-­‐income   populations   are   replaced   by  those  on  higher  ones  by  being  priced  out   -­‐  a  key  marker  of  gentrification.   (Lees  2008:  2457).   In   future,   in  Church  Street   -­‐   as  already  at  present   in   London  overall   -­‐   it  will  be  increasingly   difficult   for   the   low-­‐income   population   to   access   secure,   decent   and  affordable  accommodation.    Some  may   argue   that   the   Futures   Plan   provides   a   rather   ingenious  way   of   funding   a  regeneration   scheme   just   by   capitalising   on   the   land   value   and   rising   property   prices,  making  development  lucrative  for  private  companies  without  having  to  sell  the  land  on  which   these   are   going   to   build.   They  may   add   that   it   comes   at   a   time   when   central  government   funds   for   urban   regeneration   are   simply   not   forthcoming.   Indeed,   as  Whitehead  (2014:  118)  noted:  “Due  to  central  government  policy,  schemes  that  do  go  ahead  are   likely  to  require  much  higher  proportions  of  market  housing,  and  as   long  as  this  government  stays  in  place,  this  position  is  unlikely  to  be  reversed”.    However,   this   study   concludes   in   light   of   above   evidence   and   rent-­‐gap   theory:  Under  conditions   of   advanced   neoliberalism,   conquering   the   last   bastions   of   hitherto   de-­‐commodified   social   housing   stock,   particularly   through   the   privatisation   and   re-­‐commodification   processes   set   in   motion   through   the   Right   to   Buy   juggernaut,   any  urban  regeneration  scheme  that  claims  to  create  or  at  least  preserve  affordable  housing  may   well   become   undermined   and   hence   in   that   respect   be   counterproductive.  Neoliberal  policy  views  housing  exclusively  as  a  commodity  to  be  traded  like  any  other  (see  prominently  Morton  (2012),  the  Prime  Minister’s  housing  advisor),  whereas  at  the  time  most   of   the   housing   stock   in   Church   Street   was   built,   policy  makers   considered  housing   as  meeting   an   existential   need   -­‐   regardless   of   ability   to   pay   for   it.   This   study  argues   that   the  balance  of   the  argument   in   light  of   the  evidence  of  above  mentioned  house  price/income  and  private  rent/income  ratios  has   firmly  swung  behind  the   latter  notion   defying   the   neoliberal   one.   Without   those   who   would   only   be   able   to   afford  social   housing   rents  with   their   incomes   –   be   they   carers   or   cleaners   -­‐   the   city  would  simply   cease   to   function.   The   ‘right   to   the   city’   (Lefebvre   1996)   does   not   depend   on  ability   to  pay.  Especially  with   the  contribution  above  groups  on   low-­‐paid  but  essential  jobs   make,   they   certainly   have   a   ‘right   to   the   city’   –   and   not   just   at   its   margins   or  periphery.        

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