 |
Significant progress on the project did not occur until July 1915, when the Public Works Committee held a series of sessions in Newcastle to hear evidence related to the scheme[4]. Evidence was presented by various parties, including the management of the Government Dockyard, who cited a lack of nearby housing as a reason for labour shortages, with 40 boilermaker positions vacant due to the inadequate housing[5]. John McMeakin, the superintendent of construction at the BHP Steelworks, stated that the housing shortage adversely affected his ability to find workers to build the plant. He also predicted that the shortage would worsen once the plant was online and in production[6]. John Oldham, the town clerk of the municipality of Stockton, who was also a house and land agent, detailed the increased demand and lack of housing stock that the suburb had experienced over the previous years.
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| Dacey Garden Village, Museums of History NSW, https://search.records.nsw.gov.au/permalink/f/1ebnd1l/ADLIB_RNSW113582788 |
Opposition to Cost
Not everyone was in favour of the schemes and it’s proposed costs. James Bellford, a builder said the proposed 4 bedroom homes were too expensive for the workers they were planned for and offered an alternative design which could be built and rented at a cheaper price[7]. Hug Connell, representing the Newcastle District Assembly of the Political Labour League, agreed saying the costs were too high for those who really needed it, not the skilled worker earning 15 shillings a day but the unskilled on earning 9 shillings or less[8]. This was corroborated by workers at the Dockyard such as engineer-fitter, William Quintrill and James Swan, carpenter who said rents of 14 shillings a week for artisan labourers and 7 shillings for general labourers was more realistic[9].
After the hearings, a piece in the Newcastle Morning Herald and Miners’ Advocate (NMH&MA) cautioned that:
“The evidence all goes to show that the houses would be too dear for the mechanics and labourers. Considering the resources of the State, it is not too much to expect that such a scheme should be carried out at a reasonable and practical cost. As it. is, time estimate for the first 200 houses is so high that to make the scheme self-supporting the rent would, have to be beyond the means of the average working man.”[10]
Indeed, it was the recommendation of the Public Works Committee that the scheme not go ahead, based on the evidence presented to it. In October 1915 it made this recommendation to the government, which was accepted and the plan for the Stockton Garden Suburb was rejected[11].
Revival of Scheme
In 1918, the need to provide housing for returning soldiers and war widows became the focus of government attention once again. The State Government contacted groups like the Master Builders Association to discuss plans for garden suburbs for returning soldiers across NSW[12]. Once again, it was the need to supply housing for workers at the State Dockyard and BHP steelworks that lead to the revival of the idea of government sponsored building of cottages at North Stockton[13].
The houses in the proposed Norther Stockton Garden Suburb were to be constructed using slab concrete, unlike the earlier brick houses. The houses were to be modeled on those built in Daceyville, which had three rooms and a kitchen, sleeping verandahs, and space for a garden[14]. In Newcastle, the need to house workmen at the Dockyard (970) and BHP (900) remained a motivating factor, especially since many of these men were new to the area within the last eighteen months[15].
In November 1918 the decision to progress the scheme had been approved and given the title of the Norther Stockton Garden Suburb[16]. The building of the planned 380 houses was split into phases with the first group consisting of 31 houses. In the 17 January 1919 under the Public Works Act, 1912. These houses would be built by the Government and then sold, with the purchasers paying off the cost over a number of years in the form of rent[17].
While the State government moved ahead with the scheme, Stockton Council was not involved with the scheme, indeed it complained publicly on a number of occasions that it had been sidelined by the State government. This resulted in a departmental officer rushing up from Sydney to present plans in person to the Council, which was mollified by what it saw[18]. The plans brought up from Sydney did not include plans of the houses.
By March 1919 preliminary construction on the scheme was well underway, this included the construction of temporary huts on the western side of the main road on the foreshore facing Walsh Island. These huts were temporary accommodation until the permanent homes were constructed. These huts would be sold for removal once they were no longer needed[19].
Layout and Construction Materials
 |
| North Stockton - Newcastle - Proposed Garden Suburb [Stockton subdivision plans] [cartographic material], State Library of NSW |
The tender for the first section of 31 houses was given to Messers. C. Palmer and Sons, of Taree with building commencing on 17 March 1919. It was estimated it would take thirty weeks to construct the first section of houses. The construction of the first section of houses was estimated to take thirty weeks, and six different layouts were used, so that no adjoining houses were identical. Each house would be provided with:
- Front verandah
- Copper,
- Concrete tubs
- Porcelain bath
- Pantry
- Fuel or gas stove
- 2 bedrooms
- Dining room
- Kitchen
- Laundry
The houses were built using interlocking concrete bricks for the construction, cavity external walls, and cement tiles for the roof, with the external walls covered in stucco[20]. The gables were covered in redwood shingles (painted green), the walls finished in white stucco, and the windows in brown. The production of the concrete bricks and roof tiles conducted on site by the contractors[21]. The concrete was a mix of ash, coke breeze and cement[22].
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| Kenneth Craigie & Co., Map of Newcastle and district Sydney, N.S.W: 1936. Web. 9 April 2023 <http://nla.gov.au/nla.obj-299192648> |
In addition to the 358 houses planned for the Norther Stockton Garden Suburb, there were 14 garden plots included in the layout[23]. The suburb also included six shops, a recreation hall, and a literary institute (library). The plan also provided space on the beach foreshore for the construction of bathing sheds. The above map shows more detail of these proposed amenities such as sites for churches and a water tank. It also shows how close the houses were to the Stockton Municipal sanitary depot, which they complained was the source of noxious smells. Ironically, in later years, this same area would be dramatically expanded as a sewerage works.
First Homes Completed
 |
| David Robert Hall, Minister for Local Government T. Humphrey & Co. [Portrait of David Hall] : , 1908. <http://nla.gov.au/nla.obj-146267755> |
The first five completed homes were officially opened on Saturday, 26 July 1919, by Mr. D. R. Hall, Minister for Housing, and Mr. Fitzgerald, Minister for Local Government (an early supporter of the scheme), with three of the homes already sold before the ceremony[25]. Although gas and water utilities were installed, services had not yet been extended to the northern end of Stockton, including the Garden Suburb.
While the houses were described as attractive and well built, there were some criticisms of the site itself – being too far from the main centre of Stockton, it was too exposed to wind and other elements, and it was too close the Stockton Municipal Sewerage works (though plans were soon to move this to another site).
After the official opening of the new houses, Mr. Hall stated that this was his first public act as the Housing Minister, opening the first houses constructed by the Government for sale.[26] The successful handover of the first completed houses was reported in newspapers throughout New South Wales.
However, not all the reporting was positive. The Newcastle Sun was particularly scathing, saying in August 1919 there had “only been 18 applications.” A number of potential reasons were given – cost, lack of transport, lighting and the general condition of the site[27]. The Government countered that the first houses were all sold, with more applications daily for the remaining 31 cottages of the first phase. Construction continued throughout September 1919 to the point where 13 houses were complete, 15 at the frame stage and 3 foundations left to build[28].
 |
| "MAKING A GARDEN SUBURB AT NEWCASTLE." Sydney Mail 10 March 1920: 21. <http://nla.gov.au/nla.news-article159028630> |
In October 1919, the contract for the second group of 29 houses was awarded to Messers. C. Palmer of Newcastle[29]. The second group of houses were built to the north of the first group of houses, with plans also being finalized for the installation of mains gas and water[30]. Lack of utilities were not the only missing element of the suburb, with residents pointing out that the area is now home to 50 children who lack a school within reasonable distance[31]. As the residents settled in, new issues arose such as roads not being looked after or the Post Office being too far away[32], a matter raised several times by the Garden Suburb Progress Association. Mail was only available in the area because two people would collect the mail, transport it to the Garden Suburb and distribute it. The Progress Association agitated for their own Post Office.
 |
| "Workmen's cottages, built by the State at the New Township of Stockton, occupied principally by Walsh Island workmen". "SOME TOPICAL PICTURES FROM NEW SOUTH WALES." The Australasian 18 September 1920: 34. <http://nla.gov.au/nla.news-article140264942> |
A contributor to the Newcastle Sun, writing under the name “Progress,” complained about the lack of roads, footpaths, and trees. However, they did acknowledge that the gardens in the houses were well-maintained and beautified the area. The government, both municipal and state, was blamed for the state of the amenities. The writer suggested that improving these facilities would provide good work for the increasing number of unemployed men[33].
Scheme Discontinued
 |
| This image is taken from the beach side, looking towards the river. The sailing vessels are moored at jetties along the river. The houses shown face Eames Avenue on Block A of the below map. |
 |
| North Stockton - Newcastle - Site Plan of Block B, [Stockton subdivision plans] [cartographic material], State Library of NSW |
 |
| This image is taken from the beach side, looking towards the river. The sailing vessel is moored at Number 17 jetty. The houses shown face Meredith Street on Block A of the above map. |
While the residents of the Garden Suburb were focused on the practical aspects of daily life, such as roads, footpaths, and mail services, the State Government was facing problems of a different nature – poor record keeping. The Auditor-General in 1922 explained that the newly established Housing Board had not issued a balance-sheet in three years (the entirety of its existence). Further, at Stockton a number of occupants hadn’t paid their rent in months and apparently no one had noticed. However, it wasn’t such a straight forward as that – rather continued alterations to the valuations placed properties (on which rent/payments were based) meant that occupants didn’t know how much they should be paying. Another issue was that deposits had been taken for houses which were now unlikely to be built[34].
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| This diagram shows the names of those who purchased houses in the original Garden Suburb. From 1930 Historical Land Records Viewer map. |
By July 1923, it was clear that no further construction would occur, and the the Minister for Local Government, Mr Fitzpatrick acknowledged there were problem with the scheme and the Government dissolved the Housing Board due to issues including lack of payment for houses[35]. Unoccupied homes were sold, and vacant land was disposed of, including at Stockton where it was claimed that of the 62 completed cottages, only 14 were occupied by July 1924[36]. After changes were made to the State Housing Act, the remaining housing stock was sold via real estate agents, such as Creer and Berkeley. By February 1925, all but six cottages in Stockton had been sold[37].
 |
| "Advertising - Stockton Garden Suburb Freeholds" Newcastle Morning Herald and Miners' Advocate 19 July 1924: 3. Web. 2 Apr 2023 <http://nla.gov.au/nla.news-article137636614> |
In the end only approximately 60 of the planned 300 houses were built, and a number of other planned amenities such as a primary school and shops were never built. However, this was only the first phase of many for public housing in Stockton.
 |
| The areas shaded in blue were built. The areas shaded in red were planned but never built, including the proposed public school next to Corroba Oval. |
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| This image was taken in 1944. It shows that even 20 years after the Garden Suburb was established, it was still very isolated from the rest of Stockton. It also confirms where the houses were built in the development. Historical Imagery, Spatial Services NSW. |
Street Names
The names of the streets that were built were named after doctors from Stockton who served in WW1: Eames, Beeston, and Meredith.
Terms for the Scheme
- North Stockton Garden Suburb
- Stockton Garden Village
Credits
Footnotes
[1] "ANOTHER GARDEN SUBURB," Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 11 October 1913, http://nla.gov.au/nla.news-article137027202.
[2] "WORKMEN'S HOUSES," Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 23 February 1915, http://nla.gov.au/nla.news-article138228113.
[3] "TOWN PLANNING," Daily Herald (Adelaide, SA : 1910 - 1924) (Adelaide, SA), 10 June 1915, http://nla.gov.au/nla.news-article134413688.
[4] "HOMES FOR WORKMEN," Sydney Morning Herald (NSW : 1842 - 1954) (NSW), 23 February 1915, http://nla.gov.au/nla.news-article15537056.
[5] "HOMES FOR WORKMEN.."
[6] "WORKMEN'S HOUSES.."
[7] "STOCKTON MODEL TOWNSHIP," Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 26 July 1915, http://nla.gov.au/nla.news-article137198588.
[8] "STOCKTON MODEL TOWNSHIP.."
[9] "STOCKTON MODEL VILLAGE," Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 09 August 1915, http://nla.gov.au/nla.news-article137197828.
[10] "STOCKTON MODEL VILLAGE.."
[11] "MODEL TOWNSHIP SCHEME DROPPED," Daily Telegraph (Sydney, NSW : 1883 - 1930) (Sydney, NSW), 26 October 1915, http://nla.gov.au/nla.news-article239117773.
[12] "BUILDINGS AND WORKS," Sydney Morning Herald (NSW : 1842 - 1954) (NSW), 27 March 1918, http://nla.gov.au/nla.news-article15765397.
[13] "WALSH ISLAND SHIPS," Daily Telegraph (Sydney, NSW : 1883 - 1930) (Sydney, NSW), 27 August 1918, http://nla.gov.au/nla.news-article239367643.
[14] "WORKMEN'S HOMES," Newcastle Sun (NSW : 1918 - 1954) (NSW), 03 September 1918, http://nla.gov.au/nla.news-article159088751.
[15] "WORKMEN'S HOMES."
[16] "WORKERS'; HOMES - Scheme for Stockton," Newcastle Sun (NSW : 1918 - 1954) (NSW), 27 November 1918, http://nla.gov.au/nla.news-article159369203.
[17] "GARDEN VILLAGE - THE STOCKTON SCHEME - Health Minister Explains," Newcastle Sun (NSW : 1918 - 1954) (NSW), 19 March 1919, http://nla.gov.au/nla.news-article159371646.
[18] "STOCKTON HOUSES - "Look Well On Paper"," Newcastle Sun (NSW : 1918 - 1954) (NSW), 26 February 1919, http://nla.gov.au/nla.news-article159367065.
[19] "STOCKTON HOUSING SCHEME - Preliminary Operations," Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 05 March 1919, http://nla.gov.au/nla.news-article139655167.
[20] "STOCKTON HOUSING SCHEME.."
[21] "PROPERTY AND BUILDING," Newcastle Sun (NSW : 1918 - 1954) (NSW), 17 March 1919, http://nla.gov.au/nla.news-article159362269.
[22] "HOUSING - Mr. Hall Outlines Policy," Sydney Morning Herald (NSW : 1842 - 1954) (NSW), 28 July 1919, http://nla.gov.au/nla.news-article15854095.
[23] "STOCKTON HOUSING SCHEME.."
[24] "STOCKTON HOUSES - Speeding-up Needed - A "FLEABITE" SCHEME," Newcastle Sun (NSW : 1918 - 1954) (NSW), 14 May 1919, http://nla.gov.au/nla.news-article162561387.
[25] "HOMES AT STOCKTON - TO-MORROW'S CEREMONY," Newcastle Sun (NSW : 1918 - 1954) (NSW), 25 July 1919, http://nla.gov.au/nla.news-article162563804.
[26] "'ON YOUR OWN LAND'," Newcastle Sun (NSW : 1918 - 1954) (NSW), 26 July 1919, http://nla.gov.au/nla.news-article162571672.
[27] "THE STOCKTON PRETENCE," Newcastle Sun (NSW : 1918 - 1954) (NSW), 21 August 1919, http://nla.gov.au/nla.news-article162562189.
[28] "STILL A FLEABITE," Newcastle Sun (NSW : 1918 - 1954) (NSW), 16 September 1919, http://nla.gov.au/nla.news-article162562258.
[29] "Stockton Housing Scheme," Evening News (Sydney, NSW : 1869 - 1931) (Sydney, NSW), 14 October 1919, http://nla.gov.au/nla.news-article116077099.
[30] "STOCKTON HOUSING SCHEME," Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 14 October 1919, http://nla.gov.au/nla.news-article140074682.
[31] "URGENT MATTERS," Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 17 February 1920, http://nla.gov.au/nla.news-article139431799.
[32] "A POSTAL MATTER," Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 27 August 1921, http://nla.gov.au/nla.news-article141073266.
[33] "GARDEN SUBURBS - Areas of Neglect - Way of the Government," Newcastle Sun (NSW : 1918 - 1954) (NSW), 19 June 1922, http://nla.gov.au/nla.news-article163668433.
[34] "RECORDS LOST - State Housing Bungle - Forgotten Cottages," Daily Telegraph (Sydney, NSW : 1883 - 1930) (Sydney, NSW), 28 September 1922, http://nla.gov.au/nla.news-article245782693.
[35] "STATE HOUSING - SCHEME FAILS - Minister's Statement - "GOING OUT OF BUSINESS"," Sydney Morning Herald (NSW : 1842 - 1954) (NSW), 26 July 1923, http://nla.gov.au/nla.news-article16083274.
[36] "LEADERLESS LEGION - Strangled by Red Tape," Smith's Weekly (Sydney, NSW : 1919 - 1950) (Sydney, NSW), 19 July 1924, http://nla.gov.au/nla.news-article234432789.
[37] "SELLING STATE HOUSES," Daily Telegraph (Sydney, NSW : 1883 - 1930) (Sydney, NSW), 27 February 1925, http://nla.gov.au/nla.news-article245272848.
References
"Another Garden Suburb." Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 11 October 1913 1913, 6. http://nla.gov.au/nla.news-article137027202.
"Buildings and Works." Sydney Morning Herald (NSW : 1842 - 1954) (NSW), 27 March 1918 1918, 6. http://nla.gov.au/nla.news-article15765397.
"Garden Suburbs - Areas of Neglect - Way of the Government." Newcastle Sun (NSW : 1918 - 1954) (NSW), 19 June 1922 1922, 5. http://nla.gov.au/nla.news-article163668433.
"Garden Village - the Stockton Scheme - Health Minister Explains." Newcastle Sun (NSW : 1918 - 1954) (NSW), 19 March 1919 1919, 1. http://nla.gov.au/nla.news-article159371646.
"Homes at Stockton - to-Morrow's Ceremony." Newcastle Sun (NSW : 1918 - 1954) (NSW), 25 July 1919 1919, 4. http://nla.gov.au/nla.news-article162563804.
"Homes for Workmen." Sydney Morning Herald (NSW : 1842 - 1954) (NSW), 23 February 1915 1915, 10. http://nla.gov.au/nla.news-article15537056.
"Housing - Mr. Hall Outlines Policy." Sydney Morning Herald (NSW : 1842 - 1954) (NSW), 28 July 1919 1919, 8. http://nla.gov.au/nla.news-article15854095.
"Leaderless Legion - Strangled by Red Tape." Smith's Weekly (Sydney, NSW : 1919 - 1950) (Sydney, NSW), 19 July 1924 1924, 16. http://nla.gov.au/nla.news-article234432789.
"Model Township Scheme Dropped." Daily Telegraph (Sydney, NSW : 1883 - 1930) (Sydney, NSW), 26 October 1915 1915, 3. http://nla.gov.au/nla.news-article239117773.
"'On Your Own Land'." Newcastle Sun (NSW : 1918 - 1954) (NSW), 26 July 1919 1919, 4. http://nla.gov.au/nla.news-article162571672.
"A Postal Matter." Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 27 August 1921 1921, 10. http://nla.gov.au/nla.news-article141073266.
"Property and Building." Newcastle Sun (NSW : 1918 - 1954) (NSW), 17 March 1919 1919, 2. http://nla.gov.au/nla.news-article159362269.
"Records Lost - State Housing Bungle - Forgotten Cottages." Daily Telegraph (Sydney, NSW : 1883 - 1930) (Sydney, NSW), 28 September 1922 1922, 6. http://nla.gov.au/nla.news-article245782693.
"Selling State Houses." Daily Telegraph (Sydney, NSW : 1883 - 1930) (Sydney, NSW), 27 February 1925 1925, 6. http://nla.gov.au/nla.news-article245272848.
"State Housing - Scheme Fails - Minister's Statement - "Going out of Business"." Sydney Morning Herald (NSW : 1842 - 1954) (NSW), 26 July 1923 1923, 8. http://nla.gov.au/nla.news-article16083274.
"Still a Fleabite." Newcastle Sun (NSW : 1918 - 1954) (NSW), 16 September 1919 1919, 5. http://nla.gov.au/nla.news-article162562258.
"Stockton Houses - "Look Well on Paper"." Newcastle Sun (NSW : 1918 - 1954) (NSW), 26 February 1919 1919, 6. http://nla.gov.au/nla.news-article159367065.
"Stockton Houses - Speeding-up Needed - a "Fleabite" Scheme." Newcastle Sun (NSW : 1918 - 1954) (NSW), 14 May 1919 1919, 4. http://nla.gov.au/nla.news-article162561387.
"Stockton Housing Scheme." Evening News (Sydney, NSW : 1869 - 1931) (Sydney, NSW), 14 October 1919 1919, 5. http://nla.gov.au/nla.news-article116077099.
"Stockton Housing Scheme." Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 14 October 1919 1919, 4. http://nla.gov.au/nla.news-article140074682.
"Stockton Housing Scheme - Preliminary Operations." Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 05 March 1919 1919, 6. http://nla.gov.au/nla.news-article139655167.
"Stockton Model Township." Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 26 July 1915 1915, 4. http://nla.gov.au/nla.news-article137198588.
"Stockton Model Village." Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 09 August 1915 1915, 5. http://nla.gov.au/nla.news-article137197828.
"Stockton Model Village." Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 10 August 1915 1915, 4. http://nla.gov.au/nla.news-article137202844.
"The Stockton Pretence." Newcastle Sun (NSW : 1918 - 1954) (NSW), 21 August 1919 1919, 4. http://nla.gov.au/nla.news-article162562189.
"Town Planning." Daily Herald (Adelaide, SA : 1910 - 1924) (Adelaide, SA), 10 June 1915 1915, 5. http://nla.gov.au/nla.news-article134413688.
"Urgent Matters." Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 17 February 1920 1920, 6. http://nla.gov.au/nla.news-article139431799.
"Walsh Island Ships." Daily Telegraph (Sydney, NSW : 1883 - 1930) (Sydney, NSW), 27 August 1918 1918, 4. http://nla.gov.au/nla.news-article239367643.
"Workers'; Homes - Scheme for Stockton." Newcastle Sun (NSW : 1918 - 1954) (NSW), 27 November 1918 1918, 5. http://nla.gov.au/nla.news-article159369203.
"Workmen's Homes." Newcastle Sun (NSW : 1918 - 1954) (NSW), 03 September 1918 1918, 4. http://nla.gov.au/nla.news-article159088751.
"Workmen's Houses." Newcastle Morning Herald and Miners' Advocate (NSW : 1876 - 1954) (NSW), 23 February 1915 1915, 4. http://nla.gov.au/nla.news-article138228113.
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