ERP program 10,000 refugee homes

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Hans Böckler and Walter Damm laying the foundation stone for the ERP program in Neumünster on March 5, 1950
Hans Böckler at the speech to lay the foundation stone for the ERP program in Neumünster on March 5, 1950

The ERP (special) program 10,000 refugee apartments in Schleswig-Holstein was the first and, in terms of its type and implementation, the largest systematic and uniform housing construction program in West Germany in the immediate post-war period, with planning starting in September 1949. It was already launched two years before the following programs, e.g. the so-called ECA competition started and successfully carried out.

The foundation stone of the special program took place on March 5, 1950 in the settlement (" Böcklersiedlung ") in Neumünster , later named after Hans Böckler , who died on February 16, 1951 . The First German Housing Act, which organized housing subsidies, was only passed a month later in April in Bonn, so that the foundation stone of the first project of the special program was laid on the large construction site in Neumünster as the structural start of systematic social housing subsidies in the Federal Republic of Germany after the Second World War applies. As of December 31, 1951 , almost all (99.7%) of the newly built apartments at 84 locations in 50 towns and cities in Schleswig-Holstein had been occupied.

“At the time, the size and purposefulness of the program seemed like a bang, as it overshadowed everything that had been able to be initiated in the form of planned housing construction not only in Schleswig-Holstein, but also in other countries . . . "

- Ulrich Haake

Prehistory of the special program

Distribution of the apartments built in the ERP special program "10,000 refugee apartments" over Schleswig-Holstein 1950/51

The representation of the ECA (= Economic Cooperation Administration = Administration for Economic Cooperation) in Europe for the ERP (= European Recovery Program = European Reconstruction Program ) initiated by the US Secretary of State George C. Marshall in 1947 , the so-called "Marshall Plan “) Was responsible, in the summer of 1949 asked the various German organizations and associations, including the trade union council in Frankfurt aM , to make suitable suggestions as to how one could help the refugees in Germany using Marshall Plan funds.

Shortly before, Dr. hc Hans Böckler, who later became chairman of the German Trade Union Confederation, used his good contacts with the American trade unions and trade union representatives to sound out the chances of a larger housing project for refugees. In particular, his close contact with Harvey Winfield Brown , a trade union official from the USA, who was appointed by the American High Commissioner in Germany, John J. McCloy , first as an advisor to his “cabinet” and later as Director of the Office for Labor Affairs in the US High Commissioner for Germany was helpful. Brown did not take up his position until September 1949, but Böckler consulted him as early as the summer of 1949, as the first concrete project discussions began in the Ministry of Social Affairs in Kiel in September .

Through this contact, Böckler agreed that a pilot project could be started with massive support from Marshall Plan funds, which should prove whether with central organization, typing and controlled purchasing of materials in a rational way in a large number of buildings and (around 10,000) apartments more cost-effective (Target: approx. 15%) and faster (in a maximum of 2 years) than could otherwise be established for refugees. The American military administration agreed to this if a suitable location could be found, which at the same time ensured that existing or to be created jobs and the new apartments are spatially close to one another.

The choice fell on Schleswig-Holstein, because only there were two essential prerequisites:

1. Because of the large number of refugees and particularly high unemployment in Schleswig-Holstein, but also because the preparations for housing construction were particularly advanced here, the ERP housing construction program was started in Schleswig-Holstein. Schleswig-Holstein was already organized through the Working Group for Contemporary Construction eV (ARGE // eV) in such a way that a systematic typing of buildings and floor plans was created and already carried out and the decisive forces and institutions were already organized through ARGE // eV .

2. The wish of the ECA and the trade unions that the apartments should be built in the immediate vicinity of the workplaces could best be realized in Schleswig-Holstein.

This is how this project was started, which went down in history as the so-called " ERP program ".

Starting position in Germany and rationalization of residential construction

Housing construction had almost completely come to a standstill after the war damage in the first years after the Second World War. Building materials were not available due to the destruction of the production facilities and hardly any transport options. In West Germany and West Berlin around 2.34 million apartments were destroyed, which made up around 22% of the housing stock in 1939. The need for living space to be created was estimated at around 5 million, and from the early 1950s on 6.5 million apartments.

In 1949, the “ Working Group of the Ministries of the Federal States of the United Economic Area responsible for Building, Housing and Settlement ” decided on measures to rationalize and reduce prices in housing construction. The experts from the various countries drew up a catalog of requirements that laid down the rationalization concept and typification approach in residential construction: “The implementation of a long-term residential construction program requires planned preparation of the building industry program fundamentals. The success of any housing program depends to a large extent on the diligence of this preparatory work. The key problem in all considerations is the reduction in construction costs through the systematic rationalization of residential construction. . . . The rationalization of housing construction must begin with the standardization of requirements, whereby the standardization of construction elements should be in the foreground. As part of such a standardization, the transition from individual production to mass production is to be promoted, provided that this means that significant reductions can be achieved. . . . "

Schleswig-Holstein with a pioneering role

After the Second World War, Schleswig-Holstein had to take in significantly more refugees and displaced persons than any other West German state in relation to the existing resident population. In 1946, the need for new apartments for the state of Schleswig-Holstein was estimated at around 340,000 apartments. The pre-war stock of 440,000 apartments from 1939 had shrunk to 400,000 due to the destruction of the war. The occupancy density before the war was 3.7 people per apartment; the flow of refugees increased the occupancy density to 6.7 people per apartment. The aim of the country's first residential construction programs was to reduce the occupancy density of the apartments to 3.7 to a maximum of 4 people per apartment by rebuilding and building at least 300,000 new apartments.

In Schleswig-Holstein, the rationalization approach and the idea of ​​typification for residential construction were pursued quickly after the war and very consistently taken up. As early as February 21, 1946 , the Working Group for Contemporary Building eV was founded in Kiel and given a corresponding assignment. Approaches to typify the buildings and constructions were therefore introduced early on. An attempt had to be made to rationalize and accelerate the construction processes and to reduce construction costs with the simplest possible means, simplified planning processes and standardized components and sample floor plans.

The first noteworthy housing construction program is that of 1949, when, with the approval of public funds by the Schleswig-Holstein state government, a large volume of funding was set up for the first time for the construction of 13,863 apartments. However, the decisive year for the development of housing construction was 1950. On April 24, 1950, the first housing construction law of the Federal Government of Germany came into force and thus created the basis for the Schleswig-Holstein law for the promotion of the dwelling of small settlements of March 31, 1950 for housing subsidies. At the same time, the special program (“ERP program”) for the construction of 10,000 apartments for refugees had already started. A total of 19,411 apartments were built in Schleswig-Holstein in 1950 with approval from public funds amounting to around DM 81 million.

Working group productive refugee aid eV

To prepare, organize and control the ERP special program and apply for the necessary funding, another association, the Working Group for Productive Refugee Aid, was founded in Cologne on September 29, 1949 .

Its members were:

In December 1949, the central office of the Working Group for Productive Refugee Aid was set up in order to put the working group's plans for the special program into practice. These included:

  • the central management of the construction program
  • the central planning
  • central purchasing and delivery
  • the central regulation of financing issues
  • the supervision of the buildings
  • Participation in the allocation of apartments
  • General advice and exchange of experience in cooperation with the Arbeitsgemeinschaft für Zeitgenösses Bauen e. V.

Implementation of the ERP special program in Schleswig-Holstein

Distribution of the apartments built in the ERP special program "10,000 refugee apartments" and the apartments built at the same time in the general program of social housing promotion in Schleswig-Holstein 1950/51

The ECA provided 40 million DM for Schleswig-Holstein from ERP funds, which could be claimed primarily at 3% interest and 1% repayment. The Schleswig-Holstein state government supplemented these funds with funds from the state budget, which were spent at 0% interest and 0.5% repayment. The aim of this program was to build around 10,000 apartments that were to be built as economically as possible and realized using all technical and organizational possibilities at an extremely low price.

In September 1949 the first meetings with the ECA and the German trade union federation took place in the Ministry of Social Affairs in Kiel. On October 3, 1949, ECA funding was applied for by the Working Group for Productive Refugee Aid. In November and December 1949, on-site visits were made in all cities and municipalities in the state intended for the construction of the apartments to check the requirements. held (number of refugees, job opportunities, property procurement, development, raising of equity, etc.).

In January 1950, the individual building projects and the housing companies acting as builders were determined and the guidelines for implementation and the planned apartment types were announced. In February 1950, the first press conferences on the objectives of the special program were held in Düsseldorf and Kiel (until then, all preparatory work had to be carried out in confidence).

On March 5, 1950, the foundation stone for the first building project (later " Böcklersiedlung ") was laid in Neumünster , in the presence of Hans Böckler, Harvey W. Brown, Dr. Mandellaub (ECA), Federal Building Minister Eberhard Wildermuth and Federal Minister for Displaced Persons, Refugees and War Victims Hans Lukaschek , Schleswig-Holstein's Minister of Social Affairs Walter Damm and other representatives of the Schleswig-Holstein Cabinet . The Federal Ministry for Housing made the basic commitment to provide the requested ECA funds. With 805 apartments, the Böcklersiedlung was the largest single building project in the program.

In March 1950 the orders for the central procurement of components went to the industry. The central orders for windows and doors were given to the carpentry companies and the Federal Ministry for Housing announced the conditions for the ERP loans.

On 2. September 1950, the topping-out ceremony took place in Neumünster.

In June 1951, 87% of the construction program had been completed and 5993 apartments had been occupied. In December 1951, 97.5% of the building program had been completed and 9716 apartments had been occupied. The construction of the special program was completed in January 1952.

A total of 9,746 apartments were created as part of this program. 32% of them in the form of 1- and 2-family houses or duplex houses , 68% of the apartments in multi-storey buildings. 80% of these apartments were realized in different house forms, but with only 6 floor plan types (types A and B for apartment buildings, types C, D, E, H for one and two-family houses) and using only the same components.

51 housing companies were involved as sponsors at 84 project locations in 50 different cities. The costs for these properties were on average 15 to 30% below the usual cost guidelines of the time. The construction costs for an apartment were around 8,500 to 8,700 DM (on average); 171.40 DM (building costs) or 210.10 (total costs) per square meter of living space and 32 to 35 DM (sometimes less than 30 DM) per m³ of converted space.

At the same time, the federal government institutionalized the housing construction programs of the federal government and the building research institutions accompanying the federal states . In 1950, the Federal Minister for Housing formed the Building Research Advisory Board and appointed the state governments, the scientific institutes of the universities and the special building research institutions and bodies of the building industry to be members. Three institutes were appointed by the building research institutions: the Institute for Building Research eV Hanover, the Research Association for Building and Living , Stuttgart and the Working Group for Contemporary Building eV , Kiel.

For the scientific monitoring and evaluation of the ERP program 10,000 refugee apartments, the Federal Minister for Housing commissioned the Working Group for Contemporary Construction eV with a research contract [No. 148 (2404/05)] and a report on the results. This was handed over to the federal government and the public as a building research report by ARGE // eV in 1952.

Building types of the ERP program

Building types and type floor plans

Almost all ERP types had the same building depths in order to enable the same construction parts to be used even with the desired mix of different house shapes. Only 6 house types were used in the 9,746 apartments. The width of the building (building depth) was based on the module dimension as a multiple of 1.25 m. This dimension was the standard for the prefabricated beam lengths of the solid precast ceilings. A typical ERP house with a width of approx. 8.00 m was based on the grid dimension 7.50 m (2 × 3.75 m beam length of the precast ceilings) plus the outer wall thickness. Exceptions were only made for a few projects in the major cities of Kiel and Lübeck (special types "F" and "G" as sub-types of "A" and "B") with grid widths of 8.75 m (for example in Kiel, Esmarchstraße or Lübeck St. Lorenz) because the costs were higher there. (The buildings then usually had a shorter length). The house types were worked out in a preparatory period for the definition of the construction program in a small working group of architects from the Arbeitsgemeinschaft für Zeitgenösses Bauen eV and the structural implementation was directed from the central office in Kiel.

The types used had uniform storey heights and (almost) exclusively houses with steeply sloping roofs. In contrast to the houses of the ECA Type II in Lübeck 2 years later, these buildings were even narrower and had an external dimension of 7.99 m. As a rule, the wall constructions consisted of 24 cm thick outer walls made of hollow blocks or perforated bricks. However, local differentiations were also made. 27.5% of the buildings were 3-story or higher, 40.5% were 2½-story. In principle, apart from the apartments on full floors, a converted apartment was planned on each top floor. The ceilings were usually prefabricated ceilings made of hollow concrete bodies. Due to the same building depths and roof slopes, it was possible to organize the serial prefabrication of roof structures. The Brandenbaumer Landstrasse building project in Lübeck with 288 apartments was carried out in the Trautsch design with massive pitched roofs, in which a kind of clock process could be used on 14 identical apartment blocks.

In addition to the typical slim building cubatures of the most frequently used types with the steeply sloping pitched roofs, 4-5-story apartment blocks ("Type F") with flat sloping pent roofs were also built over a mezzanine floor in individual cases (e.g. in Kiel in Esmarchstrasse). The so-called "ERP buildings" are still clearly recognizable today by their slim shape.

According to the ERP special program, experience with the building and floor plan types was incorporated into the design of future housing programs. In the sample floor plans from 1951 and especially from 1952 onwards, the narrow building types with a grid width of 7.50 m were increasingly deviated from, because the furnishing of these narrow structures was very difficult, especially in the extended attic storeys. The recommendation was to aim for structures with a grid width of 8.75 m.

Realized apartments and building types in the ERP special program in Schleswig-Holstein
1,856 apartments Type A (and F) as 2.5-room apartments with kitchen and bathroom, as couples, two to five storeys, each with an average of 42.06 m² of living space (34.2 to 50.10 m²)
3,888 apartments Type B (and G) 2-room apartments with kitchen and bathroom, as a three-in-hand, two- to five-storey, each with 36.7 m² of average living space (33.8 to 38.7 m²)
88 apartments Type c 2-family houses with two separate entrances, 2.5-storey, 2- and 3-room apartments with kitchen and bathroom, each with 50.90 m² of average living space (42.63 to 59.16 m²)
357 apartments Type D Single-family houses with 2.5 rooms, kitchen and bathroom, 1.5-storey, each with 49.07 m² of living space
97 apartments Type E Small settlements with 2.5 rooms, kitchen, utility room (including bathroom) and stable, each with 53.2 m² of living space
2,002 apartments Type H Duplex houses, 2.5-storey, with three apartments with two rooms each, kitchen and bathroom (27.5 to 37.6 m² living space)
1,456 apartments as special types of various sizes
9,746 apartments total

Examples of realized building types

Despite the rigid grid specifications and type floor plans, variants and design derivations were possible in the ERP program. Particularly striking from all type of buildings, the 8-storey skyscraper Kiel housing association in Kiel-Gaarden as Sahlbeton ladders, planned by the "Group of Grindelberg architects" from Hamburg on the basis of ERP-type floor plans, designed as an offshoot of Grindelhochhäuser in Hamburg.

The necessary building materials for all individual building projects in the true sense (masonry and ceiling stones, lime, cement, sand, keel, roof tiles, etc.) were not procured centrally. Only when roof tiles became scarce in the fall of 1950 did the central office intervene. However, all windows (53,450 pieces), doors (56,290 pieces), all ovens, sanitary objects, fittings and other components, etc. were procured centrally for all 84 individual building projects by the central office in Kiel. The roof structures for the (most) steeply sloping roofs, the hollow concrete blocks of the precast ceilings and most of the precast concrete elements were manufactured in (large) series production.

Sources and literature

  • Astrid Holz, Dietmar Walberg, et al: Settlements from the 1950s - modernization or demolition? Methodology for making decisions about demolition, modernization or new construction in settlements from the 1950s. Final report. Federal Office for Building and Regional Planning -BBR-, Bonn (sponsor); Working group for contemporary building e. V., Kiel (executive body); Construction Research Report No. 56; Kiel 2006. ISBN 978-3-8167-7481-5
  • Ulrich Haake; Ministry of Labor, Social Affairs and Displaced Persons of the State of Schleswig-Holstein (Ed.): “10 Years of Housing Construction in Schleswig-Holstein 1946 - 1956”, Kiel 1956
  • Brintzinger, Dr. Ottobert: "From the beginnings of housing policy", in: "50 Years of the Working Group for Contemporary Building eV Kiel" :, Kiel 1996
  • Wandersleb, Hermann; Schoszberger, Hans: "New housing - new ways of housing construction as a result of the ECA tender"; Ravensburg, 1952
  • Kimmel, Elke; (Federal Agency for Civic Education, ed.): "Basic features of the Marshall Plan - The Marshall Plan in Practice"; Bonn, 2005
  • Working group for contemporary building eV (ed.): Bulletin No. 40: Building cost reduction through standardization and typification: ERP experiences, Kiel 1953.
  • Reinhold Nimptsch: “Productive refugee aid from the trade unions: New organizational methods for the construction of 10,000 apartments”; Cologne 1950
  • Working group for contemporary building e. V. (Ed.): Johannes Scharre / Ulrich Haake: "The construction of 10,000 refugee apartments in Schleswig-Holstein (ERP special program 1950) - results, methods, experiences and conclusions", / Arbeitsgemeinschaft für Produktktiv refugeeshilfe e. V .; (Research report on behalf of the Federal Ministry for Housing No. 148 (2404/05)); Building research report of the working group for contemporary building e. V. No. 2, Kiel 1952
  • Working group for contemporary building e. V. (Ed.): Haake, Ulrich: “Reduction of building costs through standardization and typing - ERP experiences”; Bulletin No. 40, Kiel 1953

Individual evidence

  1. Ulrich Haake; Ministry of Labor, Social Affairs and Displaced Persons of the State of Schleswig-Holstein (Ed.): “10 Years of Housing in Schleswig-Holstein 1946 - 1956”, Kiel 1956; P. 17
  2. Working group for contemporary building eV (Ed.): Johannes Scharre, Ulrich Haake: "The construction of 10,000 refugee apartments in Schleswig-Holstein (ERP special program 1950) - result, method, experiences and conclusions", / Working group for productive refugee aid eV; (Research report on behalf of the Federal Ministry for Housing No. 148 (2404/05)); Building research report of the Working Group for Contemporary Building eV No. 2, Kiel 1952, p. 10
  3. Brintzinger, Dr. Ottobert: "From the beginnings of housing policy", in: "50 Years of the Working Group for Contemporary Building eV Kiel" :, Kiel 1996; P. 41ff
  4. Reinhold Nimptsch: “Productive refugee aid from the trade unions: New organizational methods for the construction of 10,000 apartments”; Cologne 1950; P. 38 ff
  5. Working group for contemporary building e. V. (Ed.): “Sample floor plans for housing construction”; Bulletin No. 10; Kiel, March 1949
  6. ^ Working group for contemporary building eV (ed.): Series of publications Building in Schleswig-Holstein, Issue 9: "Basics for Housing"; Kiel, January 1949
  7. Working group for productive refugee aid e. V., Re: Application for approval of a loan from ERP counterpart funds for the purpose of involving refugees in the regular work process in the state of Schleswig-Holstein; Cologne-Braunsfeld, October 3, 1949 and Appendix 1 to the loan application: “Productive refugee aid for Schleswig-Holstein”; Subject: "Proof of the housing needs of the refugees who can be brought into the work process productively in 1950."
  8. ^ Rabeler, Gerhard: "Reconstruction and expansion of West German cities 1945-1960 in the field of tension between reform idea and reality", in: Series of publications of the German National Committee for Monument Protection, Volume 39, Bonn, 1997
  9. Working group of the ministries responsible for building, housing and settlement in the federal states of the united economic area (ed.): “Measures for rationalization and price reduction in housing”, Frankfurt am Main 1949
  10. Statistisches Landesamt Schleswig-Holstein (Ed.): "Refugees in Schleswig-Holstein as a result of World War II as reflected in official statistics, Kiel 1974
  11. Haake, Ulrich; Ministry of Labor, Social Affairs and Displaced Persons of the State of Schleswig-Holstein (Ed.): "A review of 10 years of housing construction", in: "10 years of housing construction in Schleswig-Holstein 1946 - 1956", Kiel 1956; P. 7 ff
  12. Working group for contemporary building e. V. (Ed.): “What we want”; Bulletin No. 1, Kiel January 1948
  13. ^ [4] Brintzinger, Dr. Ottobert: "Foundation and general development", in: "50 years of the working group for contemporary building eV Kiel" :, Kiel 1996; P. 25 ff
  14. Working group for contemporary building eV (Ed.): "Situation of the building industry" (1949–1951) Bulletin: Issues No. 12, No. 14, No. 20, No. 22, No. 24, No. 30, No. 44; Construction activity in Schleswig-Holstein (1953–1958) Bulletin: Issues No. 47, No. 50, No. 57, No. 61; Issue 67; Kiel, 1949–1959
  15. Working group for productive refugee aid e. V., Re: Application for approval of a loan from ERP counterpart funds for the purpose of involving refugees in the regular work process in the state of Schleswig-Holstein; Cologne-Braunsfeld, October 3, 1949
  16. Duplex houses were buildings (often similar to a row house) that were erected as a single horse with at least two or three apartments each. The structure was 1½-storey (with an extended attic) or 2 to 2½-storey (with an extended attic). In the initial conception, the buildings were designed in such a way that the apartments could be merged if the housing shortage subsided. The amalgamation should work, for example, to form larger apartments, including and distributing the rooms in the attic without conversion. A complete conversion of the building into a single-family house should also be possible. Duplex floor plans were also intended in multi-storey buildings for horizontal apartment consolidation.
  17. Working group for contemporary building eV (ed.): Bulletin No. 40: Building cost reduction through standardization and typification: ERP experiences, Kiel 1953.
  18. Brintzinger, Dr. Ottobert: "Building research and building practice", in: "50 Years Working Group for Contemporary Building eV Kiel", Kiel 1996; P. 43 ff
  19. ^ * Working group for contemporary building eV (ed.): Bulletin No. 15: "Montagebauweise Trautsch", Kiel 1949
  20. Working group for contemporary building eV (Ed.): Bulletin No. 25: "Thoughts for type development for the housing program 1951", Kiel 1950
  21. Working group for contemporary building eV (ed.): Building in Schleswig-Holstein, issue no. 17: "Apartment types for the priority program 1952", Kiel 1951; see. also: “Building in Schleswig-Holstein, Issue 20: Further floor plan examples for residential construction”, Kiel 1952
  22. Working group for contemporary building e. V. (Eds.): Johannes Scharre / Ulrich Haake: "The construction of 10,000 refugee apartments in Schleswig-Holstein (ERP special program 1950) - results, methods, experiences and conclusions", / Arbeitsgemeinschaft für Produktiv refugeeshilfe e. V .; (Research report on behalf of the Federal Ministry for Housing No. 148 (2404/05)); Building research report of the working group for contemporary building e. V. No. 2, Kiel 1952; s. 16
  23. Johannes Scharre: "Central Procurement", in: Working group for contemporary building e. V. (Eds.): Johannes Scharre / Ulrich Haake: "The construction of 10,000 refugee apartments in Schleswig-Holstein (ERP special program 1950) - results, methods, experiences and conclusions", / Arbeitsgemeinschaft für Produktiv refugeeshilfe e. V .; (Research report on behalf of the Federal Ministry for Housing No. 148 (2404/05)); Building research report of the working group for contemporary building e. V. No. 2, Kiel 1952; P. 79 ff
  24. Working group for contemporary building e. V. (Ed.): Haake, Ulrich: “Reduction of building costs through standardization and typing - ERP experiences”; Bulletin No. 40, Kiel 1953