Filling in the Gaps

A Participatory Post Occupancy Evaluation
of Public Housing in Coolaroo West

conclusions:

The concerns by tenants can be seen as stemming from one or more of the following aspects. Put briefly these are the lack of stock variety, the allocation process, housing design standards, "workmanship", materials quality, new stock follow up and ongoing maintenance practices. All of these are based upon principles enshrined in government housing policy.

Allocation

The process of allocating houses is driven by two criteria. The first available house is offered to the next applicant on the waiting list for that house type. Separate waiting lists exist for two, three and four bedroom accommodation. At present one bedroom accommodation is not available in Coolaroo West.

This process assumes that there is a wide variety of housing stock, which is not the case. About 70% of Coolaroo West stock has three bedrooms. Coolaroo West has about ten times more three bedroom than four bedroom houses. This does not reflect tenants' requirements as evidenced by the number of tenants surveyed who felt their needs were not being met. Another factor in this current need was the mismatch of tenants and houses. The HCV does not appear to compile enough information on its stock or its applicants to enable a good match. For example, West homes are quite small compared with other three bedroom stock and should be allocated to smaller families.

Tenants needs vary widely. Some tenants need large amounts of storage or particular combinations and relationships of rooms. The HCV however does not record or collate this type of detail. Given that some houses have, for instance, larger amounts of storage than others and a wide range of room combinations exist, better matching is a possibility.

The Physical Condition of Housing Stock

The physical condition of housing stock is determined by three main criteria:

The original design of the houses, including site design, and whether or not houses complied with plans as approved;
Constructional issues of materials and "workmanship"
Ministry policy and actual practices with regard to new stock follow up and ongoing maintenance.

Housing Design Standards

The design of houses in Coolaroo West occurred in two ways. The then Housing Commission provided house plans created by its architects, to be tendered. More recent practices saw the department calling for tenders for projects based upon designs by builders in line with the housing standards document of the time.

The problems common to houses of both origins are a lack of space, the omission of some features, and a non-compliance with plans. At the design stage, decisions are made to cut corners. This is done by using the minimum floor space, as per standards, and cramming in all the mandatory requirements. This is done with little apparent regard for the relationships of spaces to each other or the need for storage , such as space for a freezer.

Quite often essential items such as poison storage cabinets, bathroom cabinets, kitchen cupboards, fixed shower screens, and pathways were either not included in designs or deleted after designs were approved or were allowed as variations by the Department under the open tendering system.

Other oversights at the design stage have led to problems such as doors fouling each other and doorways arranged and/or sized in ways which prevent furniture being brought into rooms.

Occasionally an attempt to give the "welfare recipient" something "nice" or "different" has led to wasted and unusable space. The "experimental" approach of some designs is totally inappropriate to unconsenting tenants.

Some of the reported structural faults can be seen as stemming from poor design. Slab and wall defects have arisen because the highly unstable nature of Broadmeadows soil was not given adequate consideration. Dampness and moisture penetration have been problematic due to the designers lack of understanding of the behaviour of moisture and condensation. Single skin walls are an invitation to mould and mildew which should have been seen at the design stage and avoided.

Finishing and detailing, which is seen as a major concern for tenants is an area which needs a great deal more attention in design. Wall finishes, paintwork and tiling appear to have been not adequately specified, jointing details were poor so creating gaps for draughts and noise problems. In some houses, exposed pipework also reflects poor design.

Little care can be seen in decisions regarding site design. This is evidenced by tenant's reports of houses oriented towards noise sources, yards overlooked by neighbours, lack of privacy at entry, and poor natural light to interiors. The most deplorable example of siting incompetence can be seen where a house has been sited approximately 3 metres from a high voltage ground based transformer.

Most, if not all of these concerns, could have been avoided with proper consideration at the design stage.

It appears that design standards as set out by the Ministry are either too low, not enforced, or not explicit enough. Further designs are not being properly critiqued and/or that inadequate criteria are being used to critique designs. This is coupled with the seeming inability of the new housing branch to engage in meaningful dialogue with representatives of potential and current residents.

The Department's current forecast relies on the assumption that a house will have a 40 year break even life expectancy. The implication from this is that houses are designed to last a minimum of 40 years. The results of this survey indicate that this is not likely to be the case. These factors together result in poor design of houses, no feedback to new housing branch and little hope for appropriate design in the future. With this type of evidence it is difficult to challenge the community perception that houses are only planned and built to meet quotas, such as in the Commonwealth State Housing Agreement requirement, rather than tenants' needs.

Housing Construction Standards

The key controls for construction standards are the quality of materials and the application to which they are put, that is "workmanship".

Accountability on the issue of "workmanship" is difficult to ensure due to common sub-contracting practices. The chain of sub-contractors can have many links as one sub-contractor sub-contracts to another. Eventually it seems that no one is responsible for the outcome and no one cares ..... after all "they're only commission houses"! The apparent lack of care on the builders'/contractors' part suggests a moral prejudice coupled with an economic rationalist approach. On the Department's part the monitoring of ongoing construction could obviously be improved.

Supervision of work in progress needs particular attention in the areas of structural work in walls and slabs, joinery, cabinet making and painting.

The incidence of slabs cracking and moving and resulting movement in walls, door frames and windows may have been avoided with better supervision. The process of preparing the foundation, testing the concrete, pouring the slab, limiting the amount of water in the concrete, and curing under correct conditions could be improved. The slab should not be built upon until sufficient strength has been achieved and the slab must be protected until that time. Exposure of some slabs to the elements for several years, in some cases, has coincided with dampness and moisture problems in the same houses today.

Other houses which were constructed rapidly have a high incidence of slabs cracking.

Materials quality and "workmanship" are both of concern as reflected in some difficulties, such as with wall finishes. The ubiquitous "Ministry paint" more closely resembles whitewash in both appearance and performance. It looks chalky and uninteresting and instead of being washable, it washes off. Compounding this problem is the often haphazard and unprofessional method of application.

These two issues come into play in the common instance of acoustic problems. Poor quality materials with inadequate sound absorption and reflection characteristics do not perform satisfactorily. Cracks and gaps resulting from poor jointing techniques and design detailing show "workmanship" to be at fault.

Structural faults can be traced to the use of low quality materials. In particular "green" timber, which is subject to contraction, twisting and warping is an example of this. There are flow on effects throughout the houses which affect doors and windows, walls and ceilings.

In the long term, apparent cost savings on cheaper poorer grade materials and wage savings on supervision can be seen as false economies. The increased costs to the Department in maintenance are in increased proportion to so called savings. The costs to families of dealing with these problems which are endemic to public housing are immense and incalcuable.

Two further areas of Government housing practice impact significantly on the physical condition of housing stock as provided. These are the initial follow up of new stock and the ongoing maintenance program.

Obvious problems which occur early in the life of a house have been noted by residents, however except through ad hoc maintenance requests, no reporting mechanisms to deal with these exist. Defects, which are likely to be the responsibility of the builder, are not seen as such. Kitchen cupboards which fall apart within months of first use are but one example.

In some cases it appears that houses as built have not been checked by the relevant authorities to ensure that they comply with their individual plans as drawn and approved. This has shown up in the omission of rear registers for heaters, built in robes, connecting pathways, and various cupboards.

When looking at the Ministry's ad hoc maintenance program, it must be acknowledged that greater attention to the areas outlined previously such as initial construction and new stock follow up would have eliminated a large proportion of maintenance requests. It is in this context that the situation with ad hoc maintenance must be viewed. Many repairs can be seen as band-aid measures which are unable to address the underlying causes.

A leaking shower base is a classic example where repeated attempts are made to seal leaks with an application of silicone. The repair inevitably fails, and eventually the shower base must be removed and relaid. The cost effectiveness of this sequence of maintenance visits must be considered and procedures rethought. This is not to say that maintenance should not be done, but that in many cases it should not need to be done. Repeated maintenance requests for the same problem also call into question the standards of maintenance work and indicates a lack of follow-up on the part of HCV.

Tenants report that work is sometimes not done in a satisfactory manner, for example a bathroom repaired with tiles that do not match. Once again, tenants feel like they are treated as second-rate citizens. Another frequent issue reported in the survey came under the heading of normal wear and tear. The deterioration of paintwork and carpeting suggest that the Department's current cycle of carpet replacement and repainting is less than adequate. A ten to fifteen year life span for products of current quality is unrealistic.

POLICY

The results of this survey indicate that no particular builder or builders are solely responsible for the poor state of public housing in Coolaroo West. Their actions have been formed by both the stated and implied policies of the housing provider, the present Department Planning and Housing, and the philosophies which underpin them.

It is clear that the state housing bureaucracy advocates the Australian norm of home ownership, and sees its role as providing "welfare housing". "Welfare housing" is characterized by its emphasis on short term accommodation, a "needs" rather than "rights" approach, the anonymous client, and a misguided understanding of housing economies.

Public housing is presented by governments as a short term option in crisis circumstances. This has some flow-on effect for housing conditions. The bulk of "planned" maintenance a house receives during its lifetime will occur between tenancies. Some cyclical maintenance occurs, however the infrequency of this (e.g. ten-fifteen years between internal painting) illustrates a reliance on the former. The fact that the Department does rely on vacant maintenance indicates that they expect houses to become vacant regularly enough to allow proper maintenance.

The Department is also dependent on the turn over of public housing for other reasons. It views the rental of its stock as a stepping stone to home ownership. Ever increasing waiting lists drive this tenure-changing treadmill.

Not only does the Department of Housing and Construction see home ownership as "normal", it sees public tenants as "in need". In reality public tenants are citizens using a public service, similar to people using public roads and public transport. The rental of public housing is a legitimate form of ongoing tenure. Tenants pay for this service directly through rents (as train travellers pay fares) and indirectly through taxes (as road users pay for roads).

The Department's short term mentality is perhaps a reflection of Victorian society in general. This highlights DPH's perceptions of themselves as reacting to "charity cases" in crisis situations, who will take what they are given and be grateful, who will find their feet before moving on, and up into home ownership.

Short term relief housing allows tenants only limited roles in their inter-action with the housing provider. There is a distinct lack of any mechanism which validates value, incorporates and acts upon the perceptions of tenants. The system of housing tenants allows little choice! The department in fact helps to create "welfare cases", the old saying "beggars can't be choosers" describes the way in which this occurs. Through a process of limiting choices and disempowerment "welfare housing" helps to create poverty. The relationship between the tenant and the landlord is in this case one in which the uninformed deserving poor are subordinate to the benevolent housing expert.

The power relations inherent in this system prevent policy decisions being made on a partnership model where both parties have equal power and an acknowledged role in the process.

The Department's belief that public housing rental tenure is short term has implications for construction standards, the assumption that vacant maintenance will occur frequently leads new housing planners to encourage a production line approach without the necessary commitment to quality control. This emphasis on quantity to the detriment of quality enshrines a false economy and a service delivery approach. This approach sees its services as provided to a house rather than a tenant. The provision of services to houses effectively hides the different requirements of individual households. Under this model the Department sees itself primarily as a housing stock manager ignoring its role in the lives of tenants.

The unstated, implied policy of public housing as short term relief or "welfare" housing is fundamentally implicated in many of the problems with the condition of this housing today.

Conversely the provision of public housing can, given society's demand, the politician's will, the Department's action and tenants' participation, result in satisfactory outcomes for all concerned.

reccommendations

Specific

On the Department of Planning and Housing's Allocation policy and practice it is recommended:

that the DPH expand the record of stock to include detailed information on the condition of houses, their room sizes and layouts and any other salient features.
that the DPH update its application forms to allow tenants to indicate their preferred options on for instance room sizes and layout.
that the DPH revise all necessary procedures to allow better matching of tenants and housing.
that the DPH move away from the practice of designing for an anonymous client to allow the input from the design stage of tenants who will reside in particular houses.

On the Department of Planning and Housing's Stock Management's policy and practice, it is recommended that:
With regard to the construction of new housing:

That DPH in conjunction with tenant groups and housing organisations, develop a Statement of Purposes and and Implementation Plan which detail its commitment to constructing quality housing for all Victorians in line with the Victorian State Government's "Smarter Housing, Better Living" policy.
That DPH when purchasing land for new developments, acquire lots which are able to accommodate various sizes and types of housing.
That there be a greater variety of stock in terms of number of bedrooms, arrangement of houses on sites, internal room layout and other specific factors.
To accommodate the needs of younger and older people, singles or couples, high priority be given to the building of one bedroom and two bedroom units and houses on smaller lots.
That procedures be developed to more thoroughly monitor new construction standards in conjunction with tenants to ensure initial problems are picked up in the defects liability period.
That DPH investigate and implement strategies which allow tenants to be fully involved in the design processes for individual houses, streetscapes, neighbourhoods and suburbs as tenants so desire.
That DPH in conjunction with relevant tenant and community groups investigate the housing needs of different cultural groups with a view to establishing policy to meet these needs.
That all new housing be subject to post occupancy evaluation after twelve months of occupancy and again after five years with further investigations ten yearly.
That in design of block layout and house siting, attention be given to orientation of windows to maximize appropriate solar gain and minimize energy use for heating and lighting.
That all new work is adequately overseen to ensure highest standards of work and that houses comply with improved plans.
That whatever steps that are necessary be taken to improve the quality of materials used in construction of public housing.
That the practice of including unusual design features or "gimmicks" be discontinued, except in circumstances where such features are a requirement of the future tenant.
That DHP in conjunction with tenant groups and housing organisations overhaul tender processes, with the findings and recommendations of this report in mind.
That plans submitted by builders in response to tenders be checked more thoroughly to preclude poor design practices, such as lack of ventilation to toilets etc including site design issues.
That specifications for all paintwork be upgraded to ensure that all surfaces are washable.
That consultation be carried out with tenant groups and residents to assess the best method of implementing a landscaping program and that such a program be carried out with regard to existing housing.

With regard to existing stock:

That given the intractable problems of moisture and condensation in single skin houses concrete houses, that these houses be demolished and residents be assisted to re-locate.
Where such houses are demolished tenants be given the option of involvement in design of new houses on the same blocks.
That proper records of all maintenance be compiled and consulted with the aim of eliminating recurring problems for example, shower base leaks.
That all maintenance work be completed at the same or a higher standard of finish and that the practice of patching with non-uniform materials be discontinued.
That the frequency of cyclical maintenance be reviewed and set to an appropriate time frame eg 5 years for internal paints.
That Department of Planning and Housing fund post occupancy evaluation be conducted on a ten yearly cycle by tenants' groups.
That all existing housing be immediately brought up to the standards outlined in the current design standards document where it applies.
That specifications for all paintwork be upgraded to ensure that all surfaces are washable.
That consultation be carried out with tenants' groups and residents to assess the best method of implementing a landscaping program and such a program be carried out.

General

That the principle of maximization of choice in housing for public tenants be enshrined in all policy.
That it be recognised that the option of public housing (rental tenure) is a right for all Victorian citizens.
That through processes of community- managed participatory consultation such as this project, strategies be developed to change the percep- tions and realities of public housing to the benefit of the community.
That DPH increase funding available to community based groups for research projects, with adequate levels of funding to ensure completion of projects.
That more realistic time lines for the completion of such projects be negotiated.
That the relevant housing authorities from neighbourhood to statewide receive adequate funding. This represents one method of approaching the previous aim.
That all DPH stock, which due to poor design or construction, uses higher than average amounts of energy in relation to comparable houses, or as determined by energy audit, should receive an `energy rebate' as a deduction to rent payable.

BIBLIOGRAPHY

Coolaroo West Tenants Group, Annual Report 1989 Coolaroo West Vic 1989 Community House, Coolaroo West

CWTG, Security? Whats Stopping Them, Coolaroo West, Vic, November 1989

Co-ordination Committee CWDCC, Coolaroo West Development and Transport Research Project 1990, Coolaroo West, Vic, September 1990

Heidelberg Tenants Association, Is It What It's Cracked Up To Be?, West Heidelberg, Vic 1984

Heidelberg Public Tenants Ass Inc Annual Report 1988-89 West Heidelberg, Vic, 1989

Ministry of Housing & Construction (MOHC), Design Evaluation for Housing (Vols.1,2&3) MOHC, Melbourne, May 1987

MOHC, Tender Information Document, Design & Construction MOHC, Melbourne, Vic, 1989

MOHC, Letting List Coolaroo, MOHC, Melbourne, Vic, 1989

MOHC, Analysis of Stock Types and Numbers in Coolaroo West, MOHC, Melb, Vic 1988

North West Suburbs Regional Advisory Council, People in the North West, NWSRAC, Glenroy, Vic, 1990

Public Tenants Union, The Heat Report, Public Tenants Union Melbourne

Stecker, Soni, I Wanna Go Home, North West Regional Housing Council, Brunswick, Vic, 1991

Wadsworth, Yoland, Do it Yourself Social Research, VCSSMFCO, Melb, Vic 1984