tackling inequality in housing design quality

Overview

While disadvantaged communities routinely put up with poorly designed housing development, it is not a given.  Through presenting twenty stories which illustrate ten routes to success from across England, this study demonstrates that if the will is there, we can routinely deliver well designed new housing developments in even the most challenging locations.  The economic, social, environmental and health benefits that flow from this will be substantial.

In too many disadvantaged areas, poor quality housing development is the norm.  The private market works less well in such places, with lower land prices leading, proportionally, to lower investment in all aspects of the design and delivery of new homes and neighbourhoods.  This happens to the point where all quality is squeezed out of private and associated affordable housing or housebuilding simply becomes unviable.  Too often it is perpetuated by the disengagement of the public sector from housebuilding and from the governance of design quality.

The stories

But there are exceptions across the country as the twenty stories reported in this research and brought together under the first tab above show.  Across tenure classes, some exhibit extraordinary design, while others are simply better than would normally be expected in their area, given the socio-economic context. 

The routes to success

While each case is in many respects unique, together the stories define ten routes to success, with each illustrating a particular approach to delivering quality in a deprived location.  Following the second tab above, the essence of each route is set out before two downloadable stories are presented that illustrate the approach. 

The lessons

Ultimately, in the sort of flexible and devolved system of housing delivery that characterises England, there can be no single route to achieving high quality, inclusive and sustainable urban development in disadvantaged localities.  Nor can there be a single set of consistent lessons that will apply everywhere.  Nevertheless, by looking across the stories, a range of broadly applicable key lessons became apparent and these are summarised under the third tab above. 

The research

Under the final tab above, the approach taken to the research is briefly outlined. The work revealed definitively that while some locations are more difficult than others to develop, if the will exists, then there are always ways and means of bucking the trend and tackling inequality head on through an investment in design quality.  If high quality housing development can be delivered in some of the most challenging urban environments in the UK (as the twenty stories show), then it can be achieved anywhere. 

So, the next question is, WHAT ARE WE WAITING FOR?

The Stories

At the core of this study were twenty stories of projects that managed to buck the trend of poorly designed housing development in disadvantaged locations.  Instead, they demonstrate that, in all parts of the country, high quality housing development can be delivered if the will is there.  Here the extended case studies are provided in a downloadable form.

Download the Research

1 Rochester Riverside, Rochester

Leveraging public sector landowner influence

2 Port Loop, Birmingham

Building the local market, slowly does it

 

3 Roof gardens, Manchester

Experiments in urban living

 

4 Climate Innovation District, Leeds

Experiments in reducing carbon

 

5 The Rise, Newcastle upon Tyne

Taking and sharing control through a dedicated delivery vehicle

 

6 Cutler’s View, Sheffield

Building and sharing expertise across multiple small sites

 

9 Woodberry Down, Hackney

Cross-subsidy at scale (tackling disadvantage in a high value location)

 

10 Woodhouse Park, Nottingham

Working to enhance a standard product

 

12 Goldsmith Street, Norwich

Remarkably unremarkable financing

 

14 Leicester Waterside, Leicester

Piecing together the opportunity

 

15 St Mary’s Leicester

Placemaking on a flexible frame

 

16 Irwell Riverside, Salford

Trialling Modern Methods of Construction

 

19 Queens Park, Blackpool

Sink estate to urban village

 

The Routes to Success

The twenty case study stories collectively revealed ten routes to success.  By following the tabs in this section, each of the routes is described and links to two stories that encapsulate that route are provided.

Each of the twenty stories is located in the route to success that it best encapsulates, although many could have been located in more than one route.  Routes are not, therefore, mutually exclusive, but instead overlap. By doing so they are likely to further improve the chances of successfully achieving high quality development in an otherwise challenging location. 

The Lessons

As well as the routes to success, reading across the case studies it was possible to identify a wide range of key lessons of relevance to those seeking to deliver high quality housing-led development in disadvantaged areas in the future.  Each of the twenty stories follows a common structure covering: design vision and leadership, proactive planning, the community voice, affording design quality, and the regulatory and delivery journey. The lessons are therefore also structured in this way. 

The lessons are briefly summarised below and discussed in greater depth in the research report.  The lessons should be of interest to housing developers (public and private); design, housing, planning, real estate and highways professionals; and both local and national politicians.

Prioritise recurring design quality factors.

Design quality can help to bolster weak housing markets, but this requires a clear vision that professionals and the public can understand and buy into.  Eight common design factors were critical:

  1. Integration into context
  2. A holistic view of place (and the amenities on offer)
  3. A connected urban structure
  4. Optimising density
  5. A quality and green public realm
  6. Visually interesting architecture
  7. Robust materials
  8. Healthy private living space (internal and external).

        Embracing adaptable standardisation.

        Standardisation as an integral part of the design response can help to generate order through repetition while allowing greater construction efficiency.  But standard house types must be capable of meaningful adaption to local needs and context through the use of:

        • Special types at prominent locations
        • High impact components selected for ‘special treatments’
        • Flexible elevational treatments
        • Compensating for bespoke treatments through the density and tenure mix.

        Each requires an in-depth knowledge of costs and value within the design team. 

        Collaborative design leadership.

        Successful projects require strong design leadership.  While one party invariably takes the lead on pushing the design quality agenda, design leadership operates most forcefully when it is collaborative, with all stakeholders invested in the project and playing their part in supporting the vision.  It requires:

        • Excellent team working
        • Political will
        • Aspirational client briefing
        • Ultimately, commissioning good designers.

          A dedicated delivery vehicle.

          Taking on the leadership role in many of the stories were a range of dedicated delivery vehicles initiated by the public sector to deliver a proactive local housing programme.  These ranged from public sector housing companies focussed primarily on the delivery of affordable housing, to public-private partnerships with a wider cross-tenure remit.  These become highly effective and skilled entities that remove the day-to-day pressure of delivery from local government while addressing the multiple complexities of disadvantaged low value areas. 

          Building a culture of quality.

          Creating design exemplars can help to turn around negative perceptions of places and the stories collectively showed that the higher benchmark established by many of the projects was viewed as a first step on the road to establishing a local culture of improvement.  Fundamentally this involves viewing planning as a proactive process encompassing but going well beyond its regulatory function, and notably prioritising the guidance of high quality outcomes at the site-specific scale. 

                A diverse and positive planning role.

                Local planning authorities are rarely in a leadership position when it comes to delivering complex urban projects, but a lot of planning occurs elsewhere and is critical on the road to success.  This includes:

                • Compiling integrated opportunities using proactive CPO powers
                • Embracing housing authorities, their relationships and knowhow
                • The public sector owning their own projects by taking direct responsibility for delivery
                • Setting strategic quality expectations across all public sector plans and strategies.

                  The fundamental importance of site-specific guidance.

                  The production of site-specific guidance, by different actors, represents a fundamental basis for proactive planning to fully articulate public interest design expectations.  Indeed, the absence of site-specific guidance leaves a vacuum which others fill, often with inappropriate design standards or limited design expectations.  Key tools include:

                  • Proactive codes and briefs
                  • Pre-application meetings with planning and highways authorities
                  • Design review
                  • Design competition briefs.

                    Understanding two communities (existing and incoming).

                    The danger is that new housing can displace long established residents and valued but low-value land uses in a wave of gentrification.  Equally, great opportunities often exist in such locations to deliver something better while safeguarding lives and local economies.  For developers (public and private), a critical stage should involve understanding the complexities of the area, hearing from existing residents and neighbouring communities, and understanding the negotiations and compromises that will be required to reconcile those needs with the needs of the wider and incoming population. 

                    Meaningful community engagement.

                    What is the right level of engagement in different localities will be a matter of judgement, but even if there is nobody living on or near a site, there are always people to talk to and value in engaging to enhance outcomes and processes through:

                    • Fundamental engagement where communities are being re-house
                    • Managing expectations
                    • Educating participants about the trade-offs
                    • Allowing time (but not too much)
                    • Engage directly (not through third parties)
                    • Embracing established community voices
                    • Utilising the gold standard of co-design.

                        Involving residents in aftercare.

                        Making the public realm and private communal spaces conducive to social interaction encourages neighbourliness and a willingness to be involved in neighbourhood management, with similar impacts delivered by facilitating multi-generational living.  There was an absence of models with community ownership at their heart, but almost all the stories put in place arrangements for the long-term management of developments that gave new residents a key steering role.

                        Understanding and challenging the economic context.

                        Disadvantaged localities constitute a diversity of unique socio-economic and market contexts that need to be understood and responded to through:

                        • Understanding demand and potential by harnessing a design-led collaborative approach
                        • Stemming the race to the bottom
                        • Exploiting place advantages, which almost always exist
                        • Accepting that in deprived areas the answer is not always building more ‘affordable’ homes
                        • Taking a programme-wide approach, allowing the cross-subsidy of some schemes with others.

                          Making the economics stack-up and the risks abate.

                          In disadvantages localities the market, if it exists at all, will be compromised, while costs, given the realities of development in complex urban areas, are likely to be higher.  Overarching the different strategies encompassed in the ten routes to success were a number of common strategies:

                          • Leveraging public sector land ownership to allay risks in challenging locations
                          • Densification strategies on council owned land
                          • Taking advantage of public sector freedoms to borrow to build
                          • Easing cash flow by building for a greater diversity of tenures
                          • De-risking with public funding (often small scale)
                          • Prioritising spend by investing in those things that matter and which last.

                            Making patient investments.

                            In many disadvantaged localities, unaffordability is less of a problem than ‘uninvestability’.  Rather than private equity requiring a short-term return on investment, patient capital is required, either from public or private sources.  Several factors need to be considered:

                            • A regeneration discount applied in the early phases of large projects to be recovered in later phases
                            • Rolling public investment (land, reclamation, transport, housing) to attract private fund
                            • Building the market slowly in depressed areas
                            • Building in quality that can mature and support later phases
                            • Managing risk by designing in a flexible delivery path
                            • Establishing opportunities to review the masterplan to reflect changing circumstances.

                              Challenging planning standards (early).

                              A dividend of using a public-private partnership to deliver new housing in disadvantaged areas is often a smoother development management process.  This can be useful in helping to challenge, as early as possible, inappropriate distances between dwellings and parking standards which undermine the densities required to make projects viable and that are typically set too high for the sorts of urban environments and low car ownership communities that typify disadvantaged localities.  Early input from a design review panel can assist in building a new consensus around more appropriate standards.

                              Challenging highways standards (early).

                              Design / development teams frequently wished to use narrower roads and less parking to facilitate denser development, reduce hard surfaces, and save money, while highway authorities, particularly in non-unitary authorities, were often resistant to departing from their adopted standards.  Highways authorities need to be engaged earlier in the design process to bring them on the journey of more people-centric, less cars-dominated urbanism, with the health and well-being benefits that flow from this providing a lever to encourage a more holistic view of highways responsibilities.  The alternative is to eschew adoption altogether and to retain management responsibility over roads, footpaths and associated trees and landscape, all compensated for by higher densities and more homes.

                              Delivery with integrity and certainty.

                              Circumstances change as do the cost pressures on different parties.  Value engineering is an everyday reality but can be conducted without dumbing down through:

                              • Anticipating cost cutting and pre-empting it
                              • Picking your battles, by identifying areas of no compromise
                              • Repeating viability appraisals to identify scope for redesign
                              • Whole life costing
                              • Removing contractual wriggle-room.

                              Avoiding design and build contracting, bringing design and construction functions inhouse, and more carefully selecting contractors (not only on price) were all utilised to help control standards, as was the use of modular production if enough predictable through-put could be guaranteed.

                              Systematically monitoring delivery.

                              Taking on the leadership role in many of the stories were a range of dedicated delivery vehicles initiated by the public sector to deliver a proactive local housing programme.  These ranged from public sector housing companies focussed primarily on the delivery of affordable housing, to public-private partnerships with a wider cross-tenure remit.  These become highly effective and skilled entities that remove the day-to-day pressure of delivery from local government while addressing the multiple complexities of disadvantaged low value areas. 

                              The Research

                              A comprehensive discussion of the research methodology employed for this study is included elsewhere[1].  Here the key features of the approach are sketched out.
                              Tracking down the stories

                              To be selected, projects had to meet three clearly defined criteria:

                              • They had to be nominated (or otherwise identified) by a party external to the research team as, in their opinion, well-designed
                              • Consist of at least 30 new homes, either as part of a completed development or as a phase in a larger project in which at least one phase had been completed
                              • Be located in England, in a definably disadvantaged area.

                              The extent to which the identified housing was part of a mix of uses, in an urban, suburban or rural context, or exhibited particular tenures was left open.

                               To secure nominations, the networks of Civic Voice, Urban Design Group, Town & Country Planning Association and the Place Alliance were contacted and asked to nominate cases that met the three criteria. The third criterion was evaluated utilising the national Index of Deprivation.  To be included in the study, projects had to be either in a neighbourhood in deciles 1-4 of IoD 2019, or in a local authority in the bottom 25% of authorities nationally (1-80).  In addition, the research team conducted online research to identify potential cases from a variety of awards schemes, revealing ten further potential projects and a longlist of 49 possible schemes.  A final shortlist of twenty projects was identified demonstrating good regional coverage and representing a wide range of urban contexts (and housing types), tenures and densities.

                              Measuring design quality

                              Two measures of design quality were utilised, a site-based audit of external urban design quality and an on-line Healthy homes review.  The project was not seeking ‘excellence’ in design, but instead used a lower bar of ‘notably better than would normally be delivered in its local context’.  In this respect while a constant measure of design quality was applied to all case studies, the success of schemes was seen as a ‘relative’ and therefore shifting bar given that some locations are coming from a very low base and therefore any improvement is worthy of celebration. 

                              The research team visited each site to conduct an on-site audit as a consistent check on the urban design quality of the selected case studies.  The audits followed the same process and design parameters used in A Housing Design Audit for England with sixteen design considerations evaluated on site – community facilities, housing types, public transport, architectural response to the locality, existing and new landscape, character of the development, street legibility, street definition, highway design, car parking, pedestrian and cycle friendly, connectivity within and with surrounding developments, safety and security, public open and play spaces, architectural quality, and storage and bins – and a seventeenth, environmental impact, evaluated using online Energy Performance Certification (EPC) data.  The results confirmed that all the cases were well designed, with the majority classified as ‘very good’ and the remainder as ‘good’.

                               Because the on site design audits largely focussed on external design quality factors, a review was conducted of data relating to the Healthy homes Principles devised by the Town & Country Planning Association.  The principles address built environment related determinants of health and well-being, with internal design factors relating to fire safety, internal space standards, accessibility and adaptability, access to natural light, reductions in carbon emission, water safety, forms of pollution, and thermal comfort, evaluated for the project by drawing on information submitted with planning applications and available online.

                              In general, the evidence on internal design qualities tended to support the external design evaluations, although significant gaps in this source of data means it needed to be treated with some caution.  Because of this the data was interpreted alongside evidence from the stakeholder interviews which examined design quality holistically relating to both external and internal design factors.

                              Interviewing stakeholders

                              As well as the design audits and Healthy homes reviews, information on the schemes was collected through two further channels: a review of secondary online sources and semi-structured interviews with stakeholders who had been involved in the schemes. 

                              The main sources of secondary information were published planning documents accessed through each local authority’s online planning service portal.  This source was supplemented through reference to relevant local plans, supplementary planning documents, local authority online news archives, official project webpages and online news and commentary articles.  The extent of this data varied significantly between cases, as did its reliability with some publications obviously highly promotional in nature while others were strongly polemical.

                              The secondary sources helped to identify potential interviewees leading to 46 in-depth semi-structured interviews with 64 interviewees conducted across a twelve-month period between the summers of 2023 and 2024.  Reflecting an aim to include voices from local authority planning officers, developers (private and social), design team representatives, and, where available, local community organisations.  While every effort was made to reach each of these stakeholders, this was not always possible, and the exact combination of interviewees varied from project to project.  Each interview lasted around one hour and followed a pre-determined although flexible structure designed to take interviewees through design, planning, engagement, development and regulatory processes.

                              [1] Carmona M, Zhu J & Clarke W (2025) Equity in quality: routes and lessons for delivering high quality design in disadvantaged areas, Journal of Urban Design