Decanting

The Daily Telegraph had a classic example of the self-refuting headline last week, "London’s social housing problem nobody dares discuss", in which Sebastian Milbank, who sounds like an Evelyn Waugh character, proceeded to discuss at length the problem of social housing in London. That problem was narrowly defined as "council flats are wasted on poor people" (I paraphrase). The article claims that the capital's economy is constrained not by high housing costs, or too much capital stuck unproductively in property, but by social housing not being on the market: "This massive stock of housing, built on the most valuable land in the country, is permanently off the market. You cannot buy or rent any of it, no matter how hard you work, and waiting lists can stretch over decades." I'm not sure if Seb understands that council tenants do indeed pay rent. Maybe he thinks a council flat is a handout. What irks him is the high number of economically inactive people, but there's also another, sadly predictable dimension to this: "Not only do most of those who live in London’s social housing not work, around half of the lead tenants are foreign born."

After the great success of Right-to-Buy, the Tories want to implement a policy of Obliged-to-Sell. This is a shift from the demand-side to the supply-side, so it chimes with the fans of "abundance" and thereby gains the support of liberals who believe the state should concentrate on infrastructure rather than on welfare. This includes the professional YIMBYs who are prominent on social media, though they prefer to talk about the "misallocation of resources" (i.e. the economically inactive taking up space that could house a thinktank drone) rather than about how many council tenants are migrants or disabled. There is also a tendency to forget that most of the economically inactive are retirees, who are disproportionately represented because they managed to get a tenancy in the 1970s before Right-to-Buy and the de facto moratorium on council house building kicked in during the 1980s. The focus on the inactive also means a lack of attention is paid to council tenants in work. This blindspot reflects that they are disproportionately unionised public sector employees, such as transport and NHS workers, and therefore the ideological enemy.

Over the last 40 years, following the postwar dip caused by decanting to the suburbs, the inner London population grew by over a million¹. This is still lower than the peak in the early 1900s, however that is the result of slum clearance and the reduction in density (i.e. overcrowding in those slums), which nobody is seriously proposing to reverse. Far from being an inhibitor of the economy, the growth in jobs has actually outpaced the growth in homes over the last 20 years. Ironically, this reflects increasing densities (the number of people per home), after a long period of falling densities, and an increasing rate of economic activity across the population. Housing is under stress in London but this is because of high demand and constrained supply, not because of the misallocation of resources to social housing or because of a high percentage of the economically inactive among social housing tenants.

Since Right-to-Buy ran out of steam around the millennium, council housing stock has remained fairly constant in absolute terms, but that means a relative contraction as a share of total stock due to the growth in the private rental sector, which in turn reflects the growth in the total population and in the number of jobs. This can be seen clearly in the chart below. What Mr Milbank is talking about is a fraction of housing stock that is ever less significant to the total. As the chart makes clear, that growth in population has been economically captured by the private rental sector. Home owners will have seen their property prices rise, but this is notional wealth that can only be realised by downsizing or moving out of London, and increasingly these are less favoured options because of the need to provide for children who could not get on the property ladder otherwise. In contrast, rents are current income and they have been rising faster than GDP growth, hence the popularity of Buy-to-Let.

That the growing unaffordability of London property has coincided with the growth of the private rental sector is not mere correlation. Why has the sector grown? Because rents have risen rapidly, so promising greater returns to investors. The growth in rents has proceeded even during the cost-of-living crisis because landlords correctly calculate that tenants will reduce discretionary expenditure, and even expenditure on other necessities, such as food and clothing, before they consider moving to a cheaper tenancy. This makes it very difficult for  young people on entry-level wages to rent, while those who can just about afford it have low disposable incomes which lowers aggregate demand. The real issue in London is not council tenancies "wasting" a resource but high rents in the private sector. 

The flip-side of the proposal that London council properties be put on the market so that they are "allocated" to the more economically productive is the decanting of the less productive elsewhere. This has in fact been happening for years, since well before Boris Johnson, the then Mayor of London, insisted there would be no "Kosovo-style social cleansing" on his watch (there was). There is an army of  service staff who live in the cheaper suburbs and face long commutes to clean offices and wait on tables in Central London, who fifty years ago could have reasonably expected to get a council tenancy. Much the same story can be told of other European cities, such as Paris and Berlin, where gentrification has produced the distinctive "doughnut" of a denuded city centre. London is by no means the worst and its history of large council estates in the heart of the city has meant it remains socially mixed, even if those estates are increasingly neglected (Grenfell Tower) or sold off to private developers (the Heygate Estate).

The solution, pretty obviously, is to build more council houses for the general population instead of treating them as a reservation for the "economically inactive" (a crude misrepresentation as most council tenants are in work). The problem is that local authorities were first constrained from building new housing, and then encouraged to pursue public-private partnerships in which "affordable homes" would be delivered by property developers (they rarely were). Once the remaining constraints on council house building were removed, local authorities then found themselves starved of funding due to central government austerity. The predictable result was even more reliance on the private sector, both in terms of "estate regeneration", with its inevitable decanting out of London, and private landlords charging extortionate rents for people that the local authority had a statutory obligation to house. This latest Telegraph initiative, with its supporting cast of manic YIMBYs, is simply picking over the bones.

1. Charts from Housing in London 2025 and London’s housing stock - London Assembly Research Unit November 2024