Housing Strategy

Lord Faulkner of Worcester Excerpts

Wednesday 24th March 2021 Grand Committee

[The Lord Bishop of Manchester [V]]

My Lords, I thank my most reverend friend the Archbishop of Canterbury for sponsoring this debate. My personal interest and passion in tackling homelessness and creating good homes for the people of our nation go far beyond the interests contained in the official register, to which I draw your Lordships’ attention. Alongside those, as the noble Lord, Lord Best, has indicated, I now chair the board of governors of the Church Commissioners, as deputy to my most reverend friend. I gladly confirm to your Lordships that the board welcomes the report, and indeed I am member of the group set up by the Church charged with overseeing its implementation.

Today we have no Bill to scrutinise, no complex Marshalled List of amendments to work through; what we have is something that runs far deeper, something that should underpin and equip us for such future legislation on the matter of housing as is brought forward to your Lordships’ House to determine. The five values for housing that the Archbishops’ Commission has set before us—sustainable, safe, stable, sociable and satisfying—have been implicit in much of the work I have engaged in over the years. But now we have them encapsulated in a simple and memorable form. Not least, they recognise that a home is far more than walls, roofs, bricks, tiles, glass and mortar. A home is somewhere we can belong.

Some years ago, I was speaking at the official opening of a building that housed several asylum and refugee support services in Birmingham. After those of us numbered among the moderately great and modestly good had all had our say, a young man from one of the charities based in the centre spoke. He said, “For all my time in this country so far, I have been your guest. Today, for the first time, I am the host and you are my guests, and that makes all the difference.” A home is not fully a home until it is a place where we can do what that young man did—offer hospitality and receive guests. That, I believe, is why the concept of home as a sociable place—the fourth of the core values set out in the commission’s report—is so important. I also learned that day in Birmingham that other cultures have much to teach us about the centrality of hospitality to human flourishing.

My most reverend friend referred in his opening speech to his predecessor William Temple. Temple was of course translated to Canterbury from York, having prior to that been Bishop of Manchester. So three of us speaking in Grand Committee today hold offices Temple once held and seek to inhabit that inheritance. Worn out by war and restricted by rationing, the Britain of the 1940s could all too easily have become a divided nation, but Temple and those with whom he worked had a greater vision of a society where all were provided with basics, such as healthcare and education, so that they might have space to flourish.

The mass social housing efforts of the post-war years demolished the slums of our cities, including the house where I was born, in order to replace them with something better. Not everything that was built proved a lasting success—things are rarely that straightforward —but huge progress was made in creating homes that could be lived in with dignity.

In a Britain reeling from 12 months of pandemic, a nation still seeking to redefine itself outside the European Union, we need to recover the boldness of Temple and his generation. We need to make decisions about housing not based on short-term political expediency—whatever might garner a few more votes in a marginal council ward or parliamentary constituency—but on a vision of the good society we wish to bequeath to our grandchildren. Recommendations set out in the commission’s report offer us a road map, if I may use that fashionable term, towards a nation housed for living in the 21st century.

I cannot let this opportunity pass without some reference to one piece of legislation currently before Parliament. It is my privilege to support the Manchester Cladiators group. Its members are leaseholders in high and medium-rise buildings who have been caught up in the aftermath of the dreadful tragedy of Grenfell Tower. The ramifications of that disaster reached much wider than merely to residents of high-rise blocks beset by poor cladding. The deaths at Grenfell have, like the deaths of George Floyd and Sarah Everard, made our society aware of more widespread failings, albeit in this case in our physical rather than our social fabric.

Many buildings formerly considered safe, and homes in them bought on that basis, are now deemed sufficiently at risk as to be unmortgageable. Residents who may need to move for work or family reasons are trapped; some are facing service charges and bills of orders of magnitude higher than in previous years in order to pay for waking watches, insurance or building refurbishment. In many cases the freeholder is little more than a shell mechanism through which leaseholders pay their service charges to the developer who constructed the block. This is a problem too big for anyone other than government to solve, and too urgent for it to be allowed to fester a moment longer. Will the Minister speak with his Treasury colleagues and use his good offices to gain their commitment to attending the next meeting that he and his ministry are due to have with the End Our Cladding Scandal campaign?

Noble Lords will remember, I hope, the famous words written by Lewis Carroll—like me, both a mathematician and an Anglican clergyman:

“‘When I use a word,’ Humpty Dumpty said, in rather a scornful tone, ‘it means just what I choose it to mean—neither more nor less.’ ‘The question is,’ said Alice, ‘whether you can make words mean so many different things.’ ‘The question is,’ said Humpty Dumpty, ‘which is to be master—that’s all.’”


In housing terms, an “affordable rent” is now defined by Her Majesty’s Government as being one at or below 80% of the market rent for the local area. But if I were looking in the window of an estate agent and saw one house on sale for a million pounds and one next to it for £800,000, that would hardly convince a mortgage lender that I could afford, on a bishop’s stipend, to buy the cheaper one. As several speakers, including the noble Lord, Lord Shipley, and the noble Baroness, Lady Stroud, have reminded us, affordability has to mean what the purchaser can afford. Redefining the word, Humpty Dumpty-like, to mean something entirely other may assert mastery over the language but only at the cost of confusing and damaging serious discourse on Britain’s housing crisis. Please may we have our word back, and some truly affordable homes?

Shortly before lockdown became a word, I was standing one morning in a room high up in the centre of Manchester, speaking with Sir Richard Leese, the leader of the council. Looking out through the windows, we began to count the number of cranes visible. Each one was a symbol of the economic regeneration that had revitalised the city that we both serve, and many of them were building blocks of high-quality apartments.

The number of people living close to the city centre has rocketed so much in recent years that I have had to reverse the practice of my predecessors and buy new city-centre vicarages to house the clergy of the city churches closer to their new parishioners. I welcome the growth in city-centre living, locating people close to where they work, cutting down commuting costs, while helping to support shops and leisure facilities.

Sadly, however, we have also seen something of a trend first spotted in London: blocks are built and apartments are sold, but no one ever moves in. Instead of homes, we are constructing bank vaults in the sky: edifices intended purely to hold value, never people. They have more in common with gold bricks than the bricks that build our homes. While so many of our fellow citizens remain homeless or poorly housed, they are a scandal.

I accept that appropriating them directly to rent out affordably would probably prove too complex to achieve in law, but a stiffer tax regime, radically reducing the incentive to hold much-needed properties empty for long periods, would not only bring more homes into occupation but raise funds from the others—money that could then be redeployed to address our housing crisis. I urge the Minister in this debate to let us know what plans the Government have or will consider, including the taxation of such properties, so that they no longer lie empty in our cities, while, mere yards away, our fellow citizens lie down to sleep in shop doorways each night.

To conclude, today is a day for words, but, like those in the Archbishops’ commission’s report, they must result in action. I thank my most reverend friend for giving us this opportunity to debate these matters, and I pray that his efforts may be richly rewarded.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

I call the noble Lord, Lord Griffiths of Fforestfach. Lord Griffiths? The noble Lord cannot unmute, so we will move on to the noble Baroness, Lady Bakewell of Hardington Mandeville, and hope we can go back to the noble Lord, Lord Griffiths, later.

[Baroness Bakewell of Hardington Mandeville (LD) [V]]

My Lords, it is a pleasure to take part today, and I congratulate the most reverend Primate the Archbishop of Canterbury on securing this debate. I declare my interests as the chair of the National Community Land Trust Network and a vice-president of the LGA. I welcome the report and the introduction given by the most reverend Primate, and I share his desire for good homes that are affordable for all.

My first involvement in campaigning for and against housing started 40 years ago. Newly married, we moved into a new cul-de-sac of 11 houses on the edge of the village. A year later, a woman knocked on the door, asking me to sign a petition against further houses on an orchard in the centre of the village. I asked her if she had similarly campaigned to prevent the building of the house we were living in; she was honest and said yes. I refused to sign her petition.

Later, when I was on the parish council, it was obvious that there was a desperate need for affordable homes, especially bungalows to enable the elderly to downsize. We searched with both the district council and the housing association to no avail. The village is still without these benefits. However, some swanky bungalows are now being built on redundant farmland—not quite what we originally had in mind.

The glebe land in the centre of the village had a village room at one side, a play area with equipment and an area for ball games. The playschool, as it was then, operated three days a week from the church room. The Church Commissioners, having a hard time financially, were looking for areas to develop and cast their eyes on our piece of land. As you might expect, I wrote to the bishop at Wells, and the Church Commissioners subsequently looked elsewhere. This was not a case of “not in my backyard” but of preserving the essential area that belonged to the children and young people. There were seats there for the mums and elderly to sit, chat and watch the children play.

The sense of community exists only when everyone is catered for: young couples starting out, growing families, young people exploring independence, empty nests and the elderly not wanting to move away from lifelong friends. A home is where each of us should be able to relax, shout at the TV, play music, read a book, and share meals and the experiences of the day. I regret that I probably take all this for granted, but it is not so for others. In cities, towns and villages, there are those who have no settled base. Their accommodation is shared, overcrowded, temporary, poorly built or maintained, not on a bus route, or a long way from the school. Children need a secure home in order to flourish. This has been brought into sharp contrast during the pandemic, as children often have to share a computer with their siblings to access education, often all sitting round the kitchen table to do their schoolwork.

Good housing, as the commission’s report Coming Home sets outs, should be

“sustainable, safe, stable, sociable, and satisfying”.

It is essential that all new housing should have minimal impact on the environment and be good to look at. Finding land that is available, in the right place and affordable is often the stumbling block. The Church has land. Developers and housing associations are looking for land. However, the best solutions come from the communities themselves, recognising the need for housing and working with others to make this happen. Forming a community land trust—a CLT—is one way of ensuring this happens. Like-minded residents come together to plan what their community needs, engaging in consultation with residents, and the national network is on hand to assist with providing advice and support. These homes can be of mixed tenure, and some CLTs run local post offices and shops—all vital for communities.

The most reverend Primates’ report features two CLTs: Keswick CLT and London CLT—two very different areas of the country. In both cases, local churches were there at the start. In Keswick’s case, they built on church land. There is obviously a lot of potential for this to roll out across the country. Being able to develop on church land, and with churches themselves as active partners in their communities, has been key in setting up the CLTs.

Decent, truly affordable housing is not a single political party issue; it stretches across all parties and none. A long-term, 20-year, deliverable housing strategy—not here today and gone tomorrow—will provide healthy communities, whether in the inner cities, market towns or deep rural areas on the edge of the moors.

The challenges for churches, of all denominations, is land. I was pleased to see that the Church Commissioners, the United Reform Church and the Methodists have all endorsed the report—all have land. In the case of the Church of England, the various diocese will need to know who to talk to if they want to support a new CLT. I sincerely hope that all diocese will embrace the challenge. How do they go about it? How do they bring a community’s project forward? The NCLT has a network of enabler hubs. I welcome the appointment of Bishop Guli Francis-Dehqani as the new bishop for housing. This is a huge step forward and gives a point of contact for those wanting to support affordable housing in their area. I welcome the move to allow the disposal of land for the charitable purpose of providing homes for the wider community at less than full market value. This is absolutely key.

The NCLT enabler hubs were supported by the Community Housing Fund from 2018 to 2020. This was a huge success and the driving force behind the increase in the total number of community-led homes in the pipeline from 5,800 homes to over 23,000 homes. However, that funding ended in March 2020 and there is no provision for a continuation in the Community Housing Fund money announced for this coming year. The research shows that, in order to be truly successful, community-led homes need four to five years of funding to become self-sustaining, not one or two years. The Government have achieved a great success and then pulled the rug out from under their feet.

Some of you may ask what is so special about a community land trust. The short answer is that communities themselves are in charge and the affordability element is enshrined in perpetuity—yes, in perpetuity. Currently, housing associations and local authorities may build affordable homes, but nothing like the 100,000 needed every year, and these homes are subject to the right to buy. While I respect the wish of tenants to buy their own homes, the current system does nothing to solve permanently the problem of affordability.

Affordability is key. I live in a village of some 300 inhabitants; we have a shop, a pub and a church, but the preschool has closed and there are no buses. There were local authority houses in years gone by, but all have been sold under the right to buy. Prices have risen exponentially. Young families have no chance of securing a home here. This is typical of thousands of rural villages. They are rapidly becoming middle class ghettos, where only the middle-aged and the middle classes can afford to live. But a mixed age range is needed to secure thriving communities, especially the chatter of young children.

There are a large number of homeless people in our community. One of them has been sleeping in our church on an annual basis. My noble friend Lord Shipley raised the Vagrancy Act. The vast majority of the homeless do not choose this way of life and the provision of overnight hostels is essential. Anything has to be better than a shop doorway.

I welcome this report and wish the most reverend Primates the Archbishop of Canterbury and the Archbishop of York, along with the right reverend Prelates the Bishop of Manchester and the Bishop of Newcastle, every success with its implementation. If there is anything I can do to assist, I am happy to do it, including waving a supportive banner as delegates go into the General Synod later this year. Hopefully, this will not be needed. I look forward to the Minister’s response, which I sincerely hope will be positive on helping to provide good, affordable homes for all.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

I will call the noble Lord, Lord Griffiths of Fforestfach, again, in the hope that he is now on the call. Lord Griffiths? No? We shall go to the noble Baroness, Lady Ritchie of Downpatrick.

[Baroness Ritchie of Downpatrick (Non-Afl) [V]]

My Lords, I would like to take this opportunity to congratulate the most reverend Primate the Archbishop of Canterbury and the Church of England’s commission on producing such a seminal report and policy document on the need for a long-term housing strategy for England. I also commend the most reverend Primate for securing this debate on this important and timely issue, particularly given the pandemic situation, which has pointed up the fragility of human relationships and our interdependence on one another and our communities.

This housing report is set very much in social justice terms. I agree with the most reverend Primate the Archbishop of Canterbury that the central tenet or thesis of the document is the need for good, affordable housing for all and to help people, particularly in the post-Covid scenario. Therefore, I look forward to the Minister’s response to this debate.

Access to suitable housing, whether in the social or private sphere, is a fundamental human right. Coming from Northern Ireland, I can cast my mind back to the civil rights movement there in the late 1960s, where access to housing was a major issue and was caught up in sectarian constitutional politics. One of the slogans of that campaign was “A house based on need and not on creed”. It is interesting to note that the Northern Ireland Housing Executive was formed out of that campaign in the early 1970s. It established an allocation system for social, or public authority, houses based on the principle of need. In fact, the housing associations allocate houses according to where people appear on the Housing Executive’s list. That principle has lasted to this very day. There is absolutely no doubt that housing provision and housing allocation should be based on need.

Access to suitable housing is particularly important during the pandemic and post-pandemic phases. People have to feel safe and secure. As we consider those from the BAME communities, many of whom feel marginalised and isolated, it is important that they have secure shelter within thriving, healthy communities with plenty of open space for recreation.

Therefore, this report from the most reverend Primates the Archbishops of Canterbury and York is very timely. It estimates that so many people are living in overcrowded, unaffordable or unsuitable homes. Responding to these issues, it makes a number of recommendations, all of which I support, aimed at those involved in the housing sector, including the Government. The report sets out a number of recommendations to address the issues, based on five core values: sustainable, safe, stable, sociable and satisfying for all. They should be central to any housing strategy or policy.

The report’s recommendations include actions for the Church of England, the Government and others involved in the housing sector. It recommends that the Church of England commits to using its land assets to promote truly affordable homes and calls on the Government to produce a 20-year housing strategy backed by an increase in public capital investment and a phased reduction in the price of land. It argues that, in the short term, the Government should review the social security system as it fails to provide adequate housing support for a large number of low-income households. I have argued for some time in your Lordships’ House for the need for a root and branch review of the social security system to focus on the income needs of individuals, which will obviously become more acute as a result of the pandemic.

Other recommendations aimed at a variety of those involved in the housing sector include ensuring longer-term security of tenure, introducing an explicit duty of care on landlords, improving the quality of temporary accommodation, and removing unsafe cladding from all buildings. I note the Government have stated that they welcome the leadership of the Church of England and that taking action to tackle our growing housing emergency and looking at how church land can be used to fight homelessness is welcome.

I have some questions for the Minister. What positive, concrete steps will the Government take, working with all sectors within the affordable and social housing regime, to increase the supply of houses and ensure that planning policy and strategy involve the healthy development of communities with recreational space? Will the Government bring forward a composite housing strategy encompassing homelessness, the affordable and social housing sectors, overcrowding, increasing the supply of houses, the rights of renters, unsafe cladding, energy efficiency of homes, and fuel poverty? What legislative provisions will be introduced to address standards in the private rented sector, houses in multiple occupation, and overcrowding to protect the health and well-being of occupants?

What further measures will the Government bring forward to ensure that all houses, apartments and flats in the public and private rented sectors are safe from fires and that all external cladding will be removed and replaced with fire-resistant materials to avoid another Grenfell, with such unwarranted loss of life? Will a comprehensive scheme to deal with external cladding issues be developed?

I have some experience in the housing field as a former Minister with responsibility for the provision of social housing in the mid-2000s in Northern Ireland. We did some significant work with the noble Lord, Lord Best, and the noble Baroness, Lady Ford. We concentrated on increasing the supply of housing, implementing funding models to bring in private finance for the provision of housing, working with the corporate banking sector and housing associations to increase the supply of housing, using government land for the construction of houses, thereby reducing the cost of housing units, and deploying the use of developer contributions. All this added the distinct multiplier effect that housing construction has on the economy and job creation. There was also a concentration on the redevelopment of housing and green open spaces in inner-city Belfast. Parts of these areas had been subject to sectarian violence. The houses were derelict and in urgent need of repair. Another aspect of housing renewal was the use of former military sites for housing provision. All this provided regeneration and added to the supply of housing.

I therefore think that there may be similarities to what we did in the Church of England’s report, which is focused on social justice, fairness, equality and accessibility in housing provision and recreational spaces, chiming with the fact that homes and communities should be created to be sustainable, safe, stable, sociable and satisfying for all.

In commending the work of the most reverend Primates, I wish them well in their endeavours in the housing field, and I hope that the Minister pays attention to the contents of the report and works with the Church of England and others in the housing field to implement many of the recommendations. I look forward to the Minister’s answers to the questions that I have asked today.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

My Lords, I have been asked to try calling the noble Lord, Lord Griffiths of Fforestfach, for a third time. Is Lord Griffiths of Fforestfach there and able to take part? I am afraid we are getting silence. I call the right reverend Prelate the Bishop of Newcastle.