B 505251 HD 7504 N5 A5 toAR R Ew u vCE IV D T N E x Cm a N GE I[L:-b ROM Library of Colorado Sb 45 4 - RE POR T OF1'TIMF all/6/ 41/ TENEMENT HOUSE COMMITTEE A AS AUTHORIZED BY CHAPTER 479 OF THE LAWS OF 1894. 'rRANSMITTED TO THE LEGISLATURE JANUARY 17, 1893. ALBANY: JAMES B. LYON, STATE PRINTERit 18950 lk * No. 37. IN ASSEMBLY, ______ J 17, 1895. REPORT OF THE TENEMENT HOUSE COMMITTEE OF 1894. To the Senate and Assembly of the State of New York: The tenement-house committee have the honor to submit their report, as authorized and required by the following act: CHAPTER 479 OF THE LAWS OF 1894. AN ACT appointing a committee to examine into the tenement-house question in the city of New York and to report to the next Legislature (Became a law May 4, 1894, with the approval of the Governor. Passed, three-fifths being present.) The People of the State of New York, represented in Senate and Assembly, do enact as follows: Section 1. The Governor shall appoint seven persons, citizens and residents of New York, a committee to be known as the tenement-house committee. Said committee shall meet within 10 days after the passage of this act for organization. It shall elect a chairman and appoint a secretary; it may employ such 4 counsel, assistants and experts from time to time as it may deem necessary. The total expense of -the committee shall not exceed the sums hereinafter appropriated. It may fix the number of commissioners necessary for a quorum, make rules for its government and direction of its work, and fill the vacancies in the committee by death or otherwise. ~ 2. The duties of said committee shall be to make a careful examination into the tenement-houses of the city of New York; their condition as to the construction, healthfulness, safety, rentals and the effect of tenement-house life on the health, education, savings and morals of those who live in such habitations, and all other phases of the so-called tenement-house question in the city that can affect the public welfare. ~ 3. The committee shall have power to subpoena witnesses before it with or without papers by a subpoena signed by the chairman, to administer them oaths and to compel their attendance by attaichment to be issued on the order of the committee and served by any policeman of said city; witnesses shall be paid the fee paid witnesses in courts of record. ~ 4. The members of the committee shall receive no compensation for their services, but the expenses and disbursements incurred by them in the discharge of their duties as said commissioners shall be paid. The commission shall have power to fix the compensation of its counsel and other employes. ~ 5. Said committee shall make a full report to the next Legislature at its opening of its work, with such recommendations as it deems wise to enable the best and highest possible condition for tenement-house life in said city to be attained, and the committee shall cease to exist when such report is made. ~ 6. The sum of ten thousand dollars is hereby appropriated out of any moneys in the treasury not otherwise appropriated for the purpose of carrying out the provisions of this act. The expenses, disbursements, payment of counsel fees and compensation of other employes of the committee shall be made on the approval of the chairman of the committee and the audit of the Comptroller. ~ 7. This act shall take effect Immediately. 5 Under the above act the following were named by the Governor: W. Bapard Cutting, Cyrus Edson, Roger Foster, R. W. Gilder, Solomon Moses, George B. Post and John P. Schuchman. Mr. Cutting being unable to accept the appointment, the Governor appointed in his place W. D'H. Washington. THE WORK OF THE COMMITTEE, The committee held its first meeting on Saturday, May 12, and organized by the election of R. W. Gilder, as chairman, and Edward Marshall, as secretary. The committee did not avail itself of the privilege of appointing permanent outside counsel, the two lawyers in its membership volunteering to act in that capacity. TJ'e committee began at once the collection of existing laws of this State and other States and Territories relating to tenementhouses; sought information as to the experience of other communities; invited, through the public journals, suggestions and information from all interested in their labors, and having special knowledge of the question; and held consultations with individuals in the community conversant with different branches of the subject, including members of the Tenement-house Commission of 1884, whose work had led to such excellent results. The committee also entered into communication with various departments of the city government and with philanthropic societies. It was fortunate in having placed at its disposal, immediately, the unpublished results of the recent tenement-house census of the New York Board of Health. The United States government, through Mr. Carroll D. Wright, of the Bureau of Labor, also rendered assistance by permitting an examination of and extracts from the unpublished reports of certain investigations ordered by Congress into the condition of the so-called "slums" of New York and other cities; and the Department of State, at its request, obtained for the committee fresh information from several foreign cities. Individuals and societies that had made recent investigations likewise placed the results thereof at the service of the committee in the most full and generous manner. 6 At a meeting held on the 5th of June the following permanent committees were constituted: 1 Superintendence of general examination and statistics. 2. Construction as to sanitary condition and safety from fire. 3. Rentals, cost and profits, legal questions. 4. Health, cleanliness of rooms and persons (question of parks, public baths), etc. 5. Education, savings and morals (school accommodations, kindergartens, playgrounds, incomes, crime), etc. 6. Experience afforded by other communities at home and abroad. Later the following committee was also constituted: 7. On public hearings and reports. The committee immediately undertook to ascertain by examinations conducted under the superintendence of its secretary, Mr. Edward Marshall, the worst existing conditions. The committee first examined a number of cellars ordered vacated by the Board of Health. A number of houses unfavorably reported to the committee; at the committee's request, by the said board wcre also examined, and afterward an additional number of the vorst tenements, selected by the agents of the committee. In the course of these three examinations nearly all the tenement-houses in New York were cursorily inspected, and from June to December examinations and re-examinations were continued till 8,441 selected houses had been investigated, occupied by a population of 255,033. Of these, 4,457 houses were thrown out as not coming under a sufficiently inferior classification, leaving 3,984 houses with a population of 121,323 which were surveyed with as much particularity and care as was permitted during the time, and by the means, at the disposal of the committee.* The specific facts discovered as a result of this latter examination are clearly and succinctly set forth in the separate report of the secretary, and it is believed that these facts, with the other information obtained, and herewith reported, will be found amply to sustain the recommendations made by the committee DI nif be noted that the average of population to each house in these two totals I almost identical. 7 with a view to improving the conditions of tenement-house life in the city of New York. Not only were the worst houses of the city examined, and reports made upon them, but a special inquiry was also made into the model tenements of this and adjacent communities, the results of which are given in a separate report by the secretary. The committee prosecuted its inquiries likewise through other agencies. At its request the University Department of Sociology of Columbia College, under the direction of Professor Frainklin If. Giddings, made a special report for the benefit of the committee upon the school attendance, educational opportunities and home life of the children of the more crowded tenement districts of the city. Special inquiries were also made in behalf of the committee into the question of rentals, profits, savings and incomes, concerning which certain data are presented in the supplement; which also contains a report on the sweating system. Inquiries as to fires were made in its behalf by Mr. Simon Brentano, and by agents of the committee. The question of fire-proof construction was newly studied by experts for the benefit of the committee. The areas of house lots and city squares occupied by tenement and other buildings were studied, and maps, diagrams and photographs of some of them were prepared. In addition to the above, five maps showing the density of population of various dates, and more fully the present situation as to density, have been carefully prepared, together with a map displaying existing parks and those about to be constructed, as well as the public school-houses of the city. The same map shows the gradual shifting of the centre of gravity of population. The committee also held a series of public hearings by means of which a vast amount of information was gathered from general students of the subject, from numerous experts, and from other witnesses. In addition to this the members of the committee have made personal inspections, and have individually acquainted then.selves with the conditions for which they were called upon to suggest remedies. 8 The committee herewith presents, in as concise a form as possible, the result of its labors, including its specific recommenda, tions, with reasons therefor, drafts of bills embodying certain essential details, the material portion of the record of its public hearings, and subsidiary reports and information derived from a number of sources, with maps, diagrams and photographs. SPECIAL DIFFICULTIES OWING TO LOCAL CONDITIONS. The local conditions affecting tenement-house life in New York are unique, and render especially difficult the correction of existing evils. The ample waterways which surround the city, while they give it commercial supremacy and favorably affect the health of its inhabitants, at the same time crowd the chief part of its population into extremely narrow limits. At the north there has been no difficulty in the way of bridging, but it was 270 years after the settlement of Manhattan Island before a single lateral bridge was constructed. New York has long been the chief port of entry of the western continent Most of the immigrants coming to North America land at our port, and many of them remain permanently within our borders. Ferries, bridges and rapid transit facilities have not kept pace with the growth of population. In consequence land is held at high prices, rents are rendered comparatively excessive, landlords are driven to pile story upon story upon narrow lots, leaving on each lot an insufficient uncovered area; and, owing partly to the cost of real estate, the authorities neglect to supply the necessary open spapes. Meantime the preference for city life operates here as elsewhere throughout modern civilization; the social pressure increases, and we find, at last, that we have to deal with a community in some respects the most heterogeneous, as it is the most crowded on the face of the earth. I-IMIGRATION. It s Impossible to ascertain from existing data how many immigrants yearly remain in New York. At the office of the United States Commission of Immigration, Ellis Island, New York harbor, there are figures showing the number of immigrants coming to America who give their intended destination as New 9, -.L, 1 0, * York State. Of course, a very large part of these remain in the city; but no figures in the possession of the commissioner show how many take up their residence in New York city for a period of six months or more, in distinction from those who leave Immediately, or soon after, for other points. Total Total Total Immlgre' Immigr'ls immigr's to the arriving destined U. S. at N. Y.. of N. Y. Fiscal year ending June 30, 1891.... 560,319 405,664 169,841 Fiscal year ending June 30, 1892.... 5'9,663 445,987 234,311 Fiscal year ending June 30, 1893.... 439,730 343,422 153,223 Fiscal year ending June 30, 1894.... 285,631 219,046 91,109 It will be seen that 45.85 per cent. of all the immigrants who were landed at this port were destined to the State of New York. But as Acting Commissioner McSweeney states, August 10, 1894: "These figures are, to a certain extent, misleading, in so far that they do not represent the actual number, or anything like it, who remain in New York for the simple reason that * * New York is the distributing point for the whole country, and a large portion of these immigrants giving their destination as New York go there for a short period, and from there are distributed all over the country. We have been endeavoring to secure accurate data on this question, but up to this time have been unable to satisfy ourselves that our figures are correct. If we are to take the figures as given above as an average, and it certainly would be a low average, because the low immigration of last year reduces it greatly, there were landed at this port in the decade between 1880 and 1890 between 1,600,000 and 2,000,00 souls, the latter figure being nearer accurate, who were going to New York. If you will consult the census figurea for the same decade, it will be easily seen that, while these persons have landed in New York, they have not remained there, because the growth of population in the city and State, allowing the natural increase of births over deaths, if augumented by this number, would be very much greater than it now is.a * Commlastoner Senner writes to the committee under the date of December 24, 184: "I am of the opinion thai the statistios prior to the law of March a 1894, are totally unreliable, and based entirely upon guesswork." T 2 10 EXTENT OF THE NEWLY ARRIVED FOREIGN ELEMENT. As to the actual numbers of the population of immediate foreign descent, the figures, though not complete, aire at least much more accurate. The best data at the present moment attainable on this subject are to be found in the United States census for 1890. From the figures as to the percentage of the mother,- the only statistics available,--there has been prepared for this report a map showing in color the various nationalities composing the population. While this classification is in some respects misleading, on the other hand, for the purpose of ascertaining the proportion of the newly-arrived foreign as compared with the older element of the population, it would be misleading to count among the latter the thousands of children lately born in the various so-called foreign quarters of the city, both of whose parents are foreign, the whole family often speaking little besides a foreign tongue, and living a foreign life, surrounded by a multitude of their own people. On June 1, 1890 (the date of the United States census), of the 1,489,627 whites in New York, 636,986 were foreign born; that is, 428-10 per cent. (not counting the nearly 26,000 of African descent born in America). At the same date 762-10 per cent. had foreign-born mothers. Not only, then, is our population straitened for room convenient to its industries; not only is there unprecedented crowding as to areas; but the difficulties of the tenement-house question are augmented by the extraordinary agglomeration of nationalities, the novelty of these people to their surroundings, and the strain of acclimatization. A notable instance of danger arising from this condition alone is found in the experience of the fire department in rescuing from burning tenements the pamic-stricken crowds who cannot understand the orders given. DENSITY OF POPULATION COMPARED WITH OTHER CITIES OF THE WORLD. In order to show at a glance the density of the population of New York, in comparison with that of other cities, tables have been arranged from data furnished by Dr. Roger S. Tracy. While New York, including the thinly-populated annexed districts, ranks 11 sixth among cities, New York below the Harlem has a greater density per acre than any other city in the world, namely, 143.2 per acre. Paris comes next, with a density of 125.2 per acre, and Berlin follows with 113.6. The population of New York in 1894 has been estimated by Dr, Tracy as 1,957,452, a figure which this statistician thinks may be somewhat excessive, as the rate of increase may not have been the usual one, owing to a decrease in the flow of immigration, and some emigration to Europe in consequence of the recent financial depression. According to the estimates based upon the above total, sanitary district A, of the eleventh ward, contained, June 1, 1894, as many as 98S.4 persons to every one of its 32 acres.* The census of 1890 gives 800.47 to this district It may be that these figures are equalled in some parts of the world, but the only information at hand indicates but one district approaching this - a part of Bombay, which had in 1881 a population of 759.66 to the acre in an area of 46.06 acres. It should be noted that the Asiatic density is com. paratively more oppressive, as it is spread over much less floor space, the New York buildings having more stories. The densest small section of Europe seems to be the Josefstadt, of Prague, with its 485.4 to the acre; but New York's tenth ward exceeds this with not less than 626.26 to the acre, and the tenth ward has nearly five times the acreage of the crowded district of P.rague. THE TENEMENT-HOUSE POPULATION. But the committee is especially charged with the duty of inquiring into "the so-called tenement-house question" in all the phases thereof "that can affect the public welfare." A. tenement-house is legally described as follows: "A ' tenement-house' shall be taken to mean and include every house, building, or portion thereof, which is rented, leased, let or hired out, to be occupied, or is occupied, as the house, home or residence of three or more families living independently of one another, and doing their cooking upon the premises, or by more than two families upon a floor so living and cooking, but having a common right in the halls, stairways, yards, water-closets or privies, or some of them." * This district is bounded by Second, Odlumbla, Rivlngton and Clinton streets and Avenue B. 12 The entire population of the tenements in 1S93, according to the board of health census, was 1,332,773 persons, living in 39,138 houses, out of an entire estimated population of 1,891,306. Laws touching upon tenements may, therefore, where there is no exception, directly affect 70.46 of our population. But it is estimated that of the entire tenement-house population, as defined by law, only about four-fifths really belong to the class which is usually designated by that term, the remaining fifth living in what are known as flats, or apartment-houses. The board of health, in its practical enforcement of the law, has not required its obedience in, nor made a regular inspection of, the better class of what the law defines as tenements, and which are included in that onefifth; and in the figures above quoted the most expensive apartment-houses and their inhabitants are not included at all. The population of the city living in what are generally called tenement-houses, rather than apartment-houses, is believed to be eight-fifteenths, or a little over one-half of the total population of New York. OVERCROWDING. It is in what is,commonly known as the tenement-house population that occurs the great density. It is here that large families occupy narrow quarters,--as, for instance, a family of 11 in only two rooms,--and it is among this population that the illegal overcrowding takes place. This latter overcrowding continues to exist even when the pressure from immigration is somewhat reduced; for it represents not only the thriftiness of the lessee of the rooms, but the poverty both of the lodgers and the family which permits its floors to be covered at night by those who are willing to pay a pittance for a place to sleep, among people who speak their own language. The personal observation of the committee and the testimony of numerous witnesses* show that the overcrowding of the population, both as to house and district, hais evil effects of various kinds; keeping children up and out of doors until midnight in the warm weather, because the rooms are almost unendurable; making cleanliness of house and street dificult; filling the air with unwholesome emanations * Se teetmy of Or. Daniel, Mss Woolfolk, Mr. J. B. Reynolds and others. (1) THE- EVOLUTION OF THE "DOUBLE DECKER." MAI a IS The firs of t he The worst of all. First prize (6) po, plan =mes R. house s built for purely tenement purpurposes. No interior light or ventilation. competition o Drawn by Jai Ware. Present type of New York " Double Decker," 4 'As old tbme firtr- COuvertfIinto a The addition of the ciess dwdliwathow. 1mm"t Mmns. rearbuilding. 18 and foul odors of every kind; producing a condition of nervous tension; interfering with the separateness and sacredness of home life; leading to the promiscuous mixing of all ages and sexes in a single room--thus breaking down the barriers of modesty and conducing to the corruption of the young, and occasionally to revolting crimes. THE " DOUBLE-DECKER." The overcrowding of other cities takes place mainly through the herding of human beings in a single room. For example, notwithstanding the great improvement in this respect in Glasgow since 1871, nearly 18 per cent. of the population of that eity in 1891 slept and cooked and lived in a single room for each family. The committee is glad to state that this evil, though it'exists in this city to some extent, is by no means so great here as in the old world. On the other hand, we have an evil here which is peculiarly our own. The "double-decker," so called, is the one hopeless form of tenement-house construction. It began with the old New York dwelling altered over; and gradually a type was produced in some respects better and in some worse than the earlier forms of the narrow tenement. The double-decker can not be well ventilated; it can not be well lighted; it is not safe in case of fire. It is built on a lot 25 feet wide by 100 or less in depth, with apartments for four families in each story. This necessitates the occupation of from 86 to 90 per cent. of the lot's depth. The stairway-well in the center of the house and the necessary walls and partitions reduce the width of the middle rooms (which serve as bedrooms for at least two people each) to nine feet each at the most, and a narrow "light and air" shaft, now legally required in the center of each side wall, still further lessens the floor space of these middle rooms. Direct light is only possible for the rooms at the front and rear. The middle rooms must borrow what light they can from dark hallways, the shallow shafts and the front and rear rooms. Their air must pass through other rooms, or the tiny shafts, and can not but be contaminated before it reaches them. A five-story house of this character contains apartments for 18 or 20 families; a population 14 frequently amounting to 100 people, and sometimes increased by boarders and lodgers to 150 or more. The only thing that bears the slightest similarity to this in Europe is to be found in the old houses surrounding the closes in High street in Edinburgh, which were constructed several centuries ago, when the need of protection from the castle compelled the inhabitants to huddle together upon the hill. There, however, no cases can be found of such narrow rooms and dark and narrow halls as exist in the double-decker on the 25-foot lot in New York to-day. These permit an agglomeration of humanity which exists nowhere else, and which under a less rigorous code of health, a less keen watchfulness on the part of the authorities as to contagion, and firemen of less courage and efficiency, would create a state of affairs absolutely fatal to the public welfare. DANGER FROM FIRE. The tenement-house population of New York, as already explained, is crowded into tall and narrow buildings not of firepioof construction. The only alleviation of the ever-threatening danger from fire is in the system of iron fire-escapes on the outside of the buildings, and the existence of an alert and welltrained fire department. A map prepared by the fire department giving the fires in all parts of the city for a single year shows that the greatest activity of the department is in the most populous tenement-house districts. In the year ending June 30, 1894, there were 2,415 tenement-house fires, involving a loss of $608,78-1--and in that time 15 occupants were killed outright and 72 injured. It is a startling fact that while less than one-third of the buildings in New York are tenement-houses, among them occur annually more than one-half of the fires.* During the half-year or more that this committee has been at work, seven fatal tenement-house fires have taken place; in each of four of these one life was lost; in one two lives, in another three lives, and in still another, seven; making a total of 16 deaths. Each oV these fires has been made a subject of personal examination and inquiry by the committee, and it has besides, examined into other tenement-house fires whieh have occurred during the same period. Se Mr. Brentano's report in supplement THE "1DOUBLE DECKER."9 OrY]PES OV IMNn~NoENT-HOUSEMS IMEF'O]RE 1879. No. L.- Plan of an old No. 2.- Plan of old Now York dwellng-house dwellng tranaformed inost lot 25 by 100I feet. to a tenemeat-honue. fo - t,,l r -L, No. 5.--Type of tene- No. 6.-Typical double ment showing introduc- decker of the old style, tion of light-shaft. covering 90 per oent of lot. No. 3.- TWo buildings on No. 4. -Type of teneone lot 25x100. ment-house without light or ventilation, except in outer rooms. I -93J No. 10.--First prise plan -- model house competition of March, 1879, awarded to James E. Ware, architect. No. 11.-M r. Ware'a modi. fication of his prize plan. 15 In some cases drawings and photographs have been made of the premises, and in all cases the origin of the fire and the conditions affecting its progress have been studied. The investigations by the committee on the subject lead to the conclusion that the laws with regard to the building of tenements should be amended in the direction of further fireproof requirements. Fire Commissioner Robbins, Fire Marshal Mitchell, Chief Bonner, Chief Bresnan, Mr. Brentano and others all testified in favor of this, and gave specific reasons, which will be found in the report of the public hearings. Nothing is more clearly proven than that elevators, light shafts, transoms and windows opening into halls, and wooden staircases,- especially those that lead upward continuously from the cellar or basement, - present all the conditions of rapid combustion. A fire started on any floor of the ordinary tenement in New York passes easily from the room or cellar where it originates and leaps up the stairway, destroying the upper stairs completely, and burning out the bulkhead. On its way it may or may not destroy other apartments than those in which it originated, but at any rate the smoke and heated gas, products of the combustion, penetrate everywhere, and are more apt to destroy life than the flame itself. Meantime, if the occupants do not rush to the staircase and perish there, they flee to the nearly always encumbered firebalconies and the steep iron ladders, from which they are rescued by the swiftly arriving firemen, or else they leap in their fright and are maimed or killed. The evils inflicted by a tenement-house fire should not be computed in mere statistics of death, personal injury, or of property destroyed. Such a fire, even when not reckoned serious, means a panic-- with all the distress suggested by the word, and the unrecorded ills that follow such a calamity. The destruction of property, slight in money value, entails sudden eviction and generally the uninsured loss of all the wordly possessions of the tenant. When it is remembered that the larger part of our population is peculiarly subject to the dibove-described dangers, it becomes evident that not only should there be legislation looking to the future, but that something should be done at once to reduce the number and virulence of tenement-house fires. 16 It is well known that many fires originate in cellars or basements; for this reason certain hazardous occupations in these should be at once prevented or made more safe; and in future construction an unbroken fireproof floor should be required above the very lowest story. This solid floor has sanitary uses as well as value in protection from fire. As one result of the investigation at the fire department, conducted by Mr. Brentano for the committee, it appears that more fires originate on the first floor of tenements than on any other. This fact suggests that greater safety can be secured in some cases by closing existing transoms and windows opening from stores into hallways, and that no particularly dangerous business should be allowed at all in a tenement-house. The chief of the fire department recommends that " the entire structure shall be made fireproof throughout, with the proviso that there shall be no connection between the cellar and the; main halls or stairway, and that there shall be no elevator shaft within the stairhole; that there shall be no transom lights or windows opening into the halls from any apartment." He also makes other stringent recommendations, based upon long experi-' ence, as did Battalion Chief Bresnan.* If the committee has not gone to the full length of the suggestions offered by fire experts, it is because they have not wished to increase too greatly the cost of the narrow tenements. The new provisions are not onerous, in view of the continual reduction in the cost of fireproof material, and they are deemed necessiry to the public safety. FIREPROOF CONSTRUCTIO, In a special annexed report attention is called to the decrease In the cost of fireproof materials, and plans and estimates are attached. These have been carefully made and show that fireproof construction is much less expensive than is popularly supposed. It is to be remembered, furthermore, that the greater permanence of the building, the decreased ratio of repairs with advancing age, and the saving in insurance, are elements that tend to counterbalance the increased cost. * Battalion Chief Bresnan died at the post of duty while this committee was closing its labors. It placed upon record its obligations to him for his continuous and Intelligent services to the committee, voluntary rendered. 17 The committee, nevertheless, as above stated, is far from de manding full fireproof construction in its recommendations concerning tenements on narrow lots. CROWDING OF BUILDINGS UPON CITY BLOCKS. The condition in certain sections of the city caused by the overcrowding of buildings is serious and quite as menacing to health as the overcrowding of inhabitants in the tenement-houses themselves. To determine this fact the tenement-house committee has had a report prepared, under the direction of one of its members, taking a section on the East side comprising an area of 51.43 acres. No special effort was made to single out the worst existing cases, but particular care was taken in the selection of those blocks which were almost entirely devoted to tenement dwellings. The statistics deduced are perhaps as remarkable as any obtained by the committee and accentuate the necessity of a law providing that no discretion should be allowed the building department in granting permits for houses to cover more than 70 per cent. of the area of any inside lot. The law has long limited the area which should be covered, but has permitted exceptions to be made. These exceptions have become the rule, and a block was discovered in which nearly 93 per cent of the total area is covered by buildings; others running from 80 per cent. to 86 per cent. and a total average for 34 blocks showing 78.13 of the area built upon. This greatly reduces the means of ventilation and the breathing space of those living in the rear apartments, particularly in view of the fact that the average number of stories throughout this section is nearly 4 1-2. Taking this as an average height of buildings, the ventilation for at least the first three floors must be most inadequate and the air impure. Moreover, the extra risk, from a fire insurance point of view, in this crowded section is 12 1-2 per centum of the entire area, or, in other words, one house in eight is regarded as of a seriously inflammable character, certainly a most dangerous condition both as to buildings and humanity in such a thickly populated neighborhood. T 8 18 To illustrate this condition, take the block bounded by Essex, Hester, Norfolk and Division streets, as an example. It has a total area of about an acre and a quarter (1.25), an acre and sevenhundredths (1.07) of which is solidly covered with buildings; or in other words in this block little more than one-fifth of an acre is left for the entire breathing space of more than half its population, and it is fair to say that in blocks containing rear tenements, of which this has ten, the worst overcrowded is in the cheaper rear apartments and particularly in the rear houses themselves. This block has an estimated population of 2,302. The narrow and insufficient air space is part of the time necessarily filled up with wet clothing hung out to dry. Some of these rear buildings have but 18 inches of space between them, with windows opening from both buildings, from which garbage and all sorts of refuse are thrown into the intervening space until the air becomes foul with the accumulation of organic matter, which is almost impossible to remove. This further emphasizes the necessity of the elimination of rear tenements and the granting of power to condemn houses of a danger ous character. The condition of the population living in the front tenements of these blocks is not very much better than that of those living in the rear, as there are few streets in this territory which are more than 50 feet in width, and a large part of this small space is taken up as a market for vegetables, fruits, meats and fish, often of inferior quality. An example is also shown in the supplement to this report of a type of building (No. 34 Laight street), which is dangerous for human habitation, the interior spdWe being limited and the apartments being badly situated as to light and ventilation. In this case, as it happens, there are no fire escapes. The house is an unusually large one, extending from street to street, and containing a permanent population of 243, exclusive of boarders and lodgers. Conditions like this suggest the necessity of a more careful building department inspection, not alone of the plans and details of buildings to be erected, but also of existing buildings.* * It should be said that under existing laws, and usages of the building department, the overor owdiug as to space is not so great as n the worst instances cited. But it is believed that the law still allows too large an area to be covered. 19 Maps are appended showing the small open spaces, and the inflammable or hazardous buildings in six of these blocks. There are also photographs showing how narrow are some 'of the spaces or yards between buildings, and also how the already insufficient ventilation is interfered with by the hanging out of washing, all of which demonstrates the necessity of more breathing spaces and parks in such neighborhoods. It may be added that in one block thus mapped, with over 2,000 population, there is not a single bathtub in the entire block. HIGH AND LOW DEATH-RATES IN NEW YORK AS ATTRIBUTED TO RAGE AND NATIONALITY. The most important evidence concerning the "healthfulness" of the tenement-houses in this city is to be found in the statistics which show the proportion of the annual deaths which occur in them to the total number of their inhabitants. In drawing inferences from this as to the effect of the present tenements upon the health of their inhabitants, great care must be observed to give due weight to the peculiar conditions which heighten or alleviate the results of any sanitary defects in the buildings themselves. Reference has been made to the great number of the people who are new to the conditions which surround them here. It frequently happens that the habits of life and customs which are perfectly sanitary in one country are to the last degree insanitary in another. This is particularly the case when members of the human race emigrate to places the climate of which varies considerably from that of the country of their birth. It is difficult for individuals to change their habits of life. Especially is this true when applied to the uneducated classes. These facts must be kept in mind when we consider the high deathrate among our Italian citizens, who form a very considerable part of the population of New York city. Dr. Roger S. Tracy, the deputy register of the Bureau of Vital Statistics of the Board of Health of New York city, points out in the annual report for 1893 that "the death-rate for measles among the Italians is higher than among any other nationality." This is the result of two causes: (1) The insanitary conditions as to 20 filth, overcrowding and lack of ventilation under which the Italian immigrants elect to live; but (2) mainly to the fact that the Italians are affected by the change from the comparatively warm and even climate of Italy to that of New York, which is characterized by sudden and severe changes in temperature. Moreover, the Italians are accustomed to a diet consisting largely of farinaceous foods, which, while adapted to sustain life under the conditions in Italy, is not suitable in the colder winters of this country. Animal foods form but a small part of their diet. Consequently there is a gradual but sure deterioration in stamina among them, owing to insufficient nourishment, which makes them an easy prey to disease. In addition to the direct effect of his native climate on the constitution of the Italian himself is the effect of the climatic conditions on his heredity. His ancestors for generations have been accustomed to a milder climate, and this has resulted in a race which lacks hardihood of constitution and which easily succumbs to climatic changes, causing respiratory diseases. Stated in another way, there is, when climatic conditions are considered, a survival of the fittest; in other words, when a race is exposed to these conditions the weaker die off and the race is continued by those who are stronger. In time, therefore, the race becomes able to stand climatic strains; but when a race is suddenly exposed to these strains, not having been properly formed during previous generations, great mortality follows; and this is the reason why the Italians in this country are found to be so peculiarly susceptible to diseases affecting the respiratory organs. Another factor which tends to promote the spread of contagious diseases among the lower classes of Italians is the dread the latter have of all public officials. This dread extends to representatives of the health department It results in the dangerous concealment of cases of contagious disease. Yet another cause must be given which has its effect upon the death-rate among the Italians. This is due to the character of the dwellings in which they live. These dwellings are, for the most part, old dwelling-houses which have been converted 21 into tenement-houses, and, as explained hereafter, do not afford such wholesome habitations as the tenement-houses built originally for that purpose. We have, then, as causes of the high death-rate among the Italian residents, the overcrowding, the concealment of contagious diseases, improper diet, the change in climatic conditions, and the character of the houses occupied by them. Some of the causes can not be remedied by legislation. Time and education, which will alter some of the habits of the people, can alone effect a decided reduction in their death-rate. The destruction of old houses and changes in the construction of all tenement-houses hereafter built, as recommended in another part of this report, will, however, to some extent, assist in improving the sanitary conditions in regard to their habitations. With an average density of 57.2, i. e., an avera;ge of 57.2 tenants to the house, the highest in the city, the death-rate in the tenth ward is 17.14. This means that, while the tenth ward is first in the list of density of population in its tenement-houses, it ranks twenty-second among the wards in its death-rate, there being but two wards (the third and twenty-fourth) with a lower rate. While other factors may tend slightly to affect this, it is in the main due to the nationality of its population, which is largely composed of Hebrews. These people are a hardy, longlived race, nor is the cause of their wonderful vitality difficult to find. The precepts of their religion afford one of the best sanitary codes in existence, and these precepts are religiously observed. Moreover, the Hebrews are an abstemious race in the use of alcoholic beverages. It is safe to say that since the time of the settlement of Palestine by the Hebrews until a recent period the Hebrew has been the only race on earth which has been guarded to a considerable extent by sanitary laws, and we obtain thus some idea as to the reason why the race has developed such phenomenal strength. The history of the great epidemics during the Middle Ages shows that the inhabitants of Hebrew quarters in towns were singularly exempt from contagion. This was remarkable during 22 the outbreak of the plague in France in the twelfth century, and during the prevalence of the so-called "black death" in England. The low death-rate in the tenth ward was, therefore, to have been expected. The rules of life which orthodox Hebrews so unflinchingly obey, as laid down in the Mosaic law--which seems to be full of the most vexatiously minute regulations-- are designed to maintain health. These rules are applied to the daily life of the individuals as no other sanitary laws can be. Alcoholic liquids at certain times are absolutely forbidden. Food muist be cooked properly, and hence avenues through which the genus of disease may enter are destroyed. Meat must be "kosher," and this means that it must be perfectly healthy. Personal cleanliness at times is strictly compelled, and at least one day in the week the habitation must be thoroughly cleaned. LOCAL' CAUSES AFFECTING THE DEATH-RATE OF NEW YORK. I. House Density of Population. As Is well known, the mere fact that one of our wards has more inhabitants than another does not necessarily mean that the death-rate is higher in the entire ward than in wards where there are fewer inhabitants. In order to ascertain the locality of the most unhealthy districts in the city, and especially to determine the causes which operate to render such districts unhealthy, so many factors have to be taken into consideration that the results of the most careful investigation can only be approximate. These results can be reached only by a cautious sifting of evidence, and by the use of comparison and exclusion. The first well-known cause operating to effect an increase in the death-rate is density of population. A study of the deathrate of New York city as affecting different localities is essential. The statistics used in this connection, unless otherwise stated, in each case are those of the tenement-house census of 1893, taken by the sanitary police of the health department, as a part of their duty in making the semi-annual, inspection of 23 tenement-houses required by law. This census furnishes the number of tenants in tenement-houses of five years of age aan upward and the number under five for every tenement-house in New York city. The total number of tenement-houses, as determined by this census, was 39,128, which were given by street and number. The deaths during the year having been recorded by street and number, the two afforded a ready means of ascertaining the death-rate in any district, ward, block or house desired. The only difficulty which offered itself to prevent the tabulation of results was that, although the population of the front and rear houses was thus obtained separately, the deaths were reported by the attending physician by street number only, and without distinction between Tront and rear houses. It was, therefore, impossible to calculate the death-rates of front and rear houses separately, and in making such a calculation the population of the front and rear houses upon the same lot had to be counted together as the population of one house. The following table shows the average density per acre for the first 22 wards of the city, wards XXIII and XXIV being eliminated for obvious reasons: TABLE A. Wards, Acreage and Population Arranged According to Density. Density per Wards. Acreea. Population. acre. 10...................... 110 68,383 621.66 13......................... 107 43,577 407.26 11......................... 196 77,698 396.41 7......................... 198 65,578 331.20 17......................... 331 103,190 311.75 14......................... 96 25,738 268.10 6......................... 86 20,245 235.40 20......................... 444 80,499 181.30 4......................... 83 14,920 179.75 19......................... 1,480 196,656 132.87 9 &*99 0 0 0 0 0 0 * 0 * 0 * & 0, & 0 822 41s676 129.42 24 Wards 21....................*0... 48........................ 16..................... 22........................ 12....................... 15......................... 12........................ 5. o.. o, o oo.oo...o... o.... 23........................ 2....................... 24........................ ooo~ o ~ o~ oo~ooooooooooooo Demndty per. Acreage. Population, acre. S 411 47,585 115.77 183 20,354 111.22. 349 33,586 96.23. 1,529 140,571 91.93 S 450 39,894 88.65 198 9,892 49.95 S 154 7,565 49.12. 5,504 252,331 45.84 168 6,933 41.26 95 1,548 16.29. 4,267 32,946 7.72 81 175 2.16 S8,050 1,233.153 Average density per acre for the first 22 wards, 103,267, wards 23 and 24 eliminated. (It should be remembered that this is merely the density of the tenement-house population.) In studying the effect on health of the density of the population, it will not do to take the superficial density; i. e., density per acre or number of square miles, shown in Table A, as a basis of comparison, because there is hardly a section in the city entirely composed of tenement-houses. While in any particular locality the tenement-houses themselves may be overcrowded and the area covered by them, if kept separate from the rest of the buildings in the locality, might show a very high density per acre, as a matter of fact there may be so many other buildings, shops or stores, as to reduce the apparent density to a low figure. It is, therefore, better to take for the purpose of comparison the house d nsity; L e., the average number of tenants in each tenement-house, as shown in the following table, which also gives the general death-rate for each ward: Average number of tenants to each house and general deathrate by wards" Tenante to war&L a house. Death-rate 1.00S. O0 00000--* 0.*.00 0 00 Oq0 0 036.0 33.18 2. '000000000600000000 21.9 28.57 3..............................0. 0 0 0 a 0 0 32.2 16.15 49............................. 9 00 0 * 31.5 33.78 50...........*.................. 0 00 00 0 *0 29.1 32.60 66.......*........*a........*..... 0 00 00 0 0 38.8 27.36 7.............................ooo 43.4 22.36 8............................ 24.6 31.98 9.............................. 0 0a 00 0 00 00 27.4 26.56 1.0.............................69*69009 0 57.2 17.14 it1..............................*000000 0 *1 35.3 22.84 12......................32.8 20.69 13......................41.8 23.59 14@.............................0 0 0 00 0 40.5 35.12 15......................27.5 29.32 16.......................30.0 23.02 17.....................37.2 21.64 18.............................. * 0 0 q 0 30.2 29.83 19..............................0 0 0 0 0 0 36.1 20.33 20..............................oos 28.4 24.63 21..............................eoo 32.6 23.96 122.............................. 0 0 00 0 33.9 22.78 123..................................... 9 o o o 22.6 18.39 24.....................................12.7 7M3 The average number of tenants to each house for the entire city was 34, and the general death-rate was 22.75.* An examination of thii8 table clearly shows there is no parallelism between the house density of the population and the death-rate. The greatest density, 57.2, is in the tenth ward, which. also has the lowest death-rate, if we except the third ward, in which there are only 48 tenements altogether, and these mostly isolated and surrounded by buildings of a diffe'rent character, stores and others; and the twenty-fourth8Ele supplement where statlstkes of density are given more I ulWj. 26 ward, which Is entirely suburban. In this latter there are 97 tenements, twice as many as in the third ward, but the twentyfourth covers more than 12 square miles of territory, and should be left entirely out of consideration. The seventh ward, having the next greatest density of population, 43.4, also has a death-rate below the average, while the fourth ward, with house density of 31.5, considerably below the average, has a death-rate of 33.78, 11 points above the general average for the city. II. Race and Nationality. It is evident, therefore, that there are other potent causes besides density of population at work to affect the death-rate of the tenement districts, and the most obvious one (as already noted in reference to extremes of high and low death rates), is race or nationality. It will be observed at once that the wards showing the greatest house density combined with a low deathrate, viz., the tenth and seventh wards, are very largely populated by Russian and Polish Jews. This is, in fact, the Jewish quarter of the city. On the other hand, the wards having the highest death-rate, namely, the fourth and fourteenth, the former with a house density below the average and the latter with one lower than the lowest of the Jewish districts, are largely occupied by Italians, and constitute two of the numerous Italian colonies which are distributed through the city. It is worth a passing notice that in the sixth ward, which is also the seat of an Italian colony -in the notorious "Mulberry Bend," where the house density is high, 38.8, the death-rate is considerably lower than in the other wards just mentioned, vi., 27.36. This is possibly caused by the large percentage of Jews in Bayard and Baxter streets, whose low death-rate in a measure offsets the high death-rate of the Italians. (The United States census of 1890 gives for this ward a population of 3,245 Jews and 9,863 Italians.) But in the first ward we find evidence of yet some other cause than density or nationality. The house density is 36, only slightly above the average, while the deoth-rate is 33.18, higher than in any other ward in the city, excepting the two Italian 27 districts just mentioned. Yet there are hardly any Italians in the ward (only 140, according to the United States census), the population being mostly Irish and German and native, with a sprinkling of Scandinavians This might be called the most distinctively Irish ward in the city, for in 1890 (United States census) more than half the population were born of Irish mothers, while in no other ward excepting the fourth and fifth, did the proportion much exceed one-third; and both of these wards have a large admixture of Italians. In the other wards having the largest admixture of Irish blood, the sixteenth, eighteenth and twenty-first, the death-rates were 23.02, 29.83 and 23.96 respectively, which indicates that the high mortality in the first ward can not be attributed to the Irish population. In the eleventh and seventeenth wards, where the populatio- is more than half German, the death-rates were 22.84 and 21.64 respectively, showing that the high death-rate cannot be attributed to the German population either. We are thus forced to the conclusion that the difference in the death-rates and the excessive death-rate in some.case of the different portions of the city can not be altogether accounted for by differences in house density, or the race or nationality of the inhabitants. III. Character of the Soil and Natural Drainage of the District. But the character of the soil on which the houses have been built should be taken into consideration. Is the mortality found to be enough greater in districts formed by filling in marshy land, or reclaiming portions of the river front to account for that difference? Is the high death-rate due largely to a damp subsoil and bad drainage? This is a difficult factor to eliminate, but some indications can be gathered by a comparison of localities. The tenth ward, with its very low death-rate, was formerly meadow land, and well drained toward the East river. The fQurteenth ward, with the highest death-rate of any ward in the city, was on yet higher ground, with a comparatively dry subsoil, and no made or marshy land. On the other hand, the eleventh Ward, which was once nearly all marshy or made land, has a death-rate of only 22:84, barely above the general death-rate for the entire 28 city. In the fourth ward, which also was formerly almost all marshy or reclaimed land, the death-rate is high, viz., 33.78. IV. Age and Condition of Buildings used as Tenements. It is thus made evident that the high death-rates in certain wards can not be altogether accounted for by house density of the population, by race, by nationality, or by the character of the subsoil and the natural drainage of the districts, and we have to search still farther for some cause of disease affecting simultaneously all of the wards having these high death-rates. This investigation will be much aided by a comparison of the wards, arranged consecutively, according to their death-rates, from maximum to minimum, as in the following table: Ward. Death rate. 14................................................. 35.41 4............................................... 33.78 1............................................... 33.18 5.............................................. 32.60 8................................................. 31.98 18........................................ 29.83 15................................................ 29.32 2.............................................. 28.57 6.............................................. 27.36 9............................................... 26.56 20.............................................24.63 21............................................... 23.96 13.............................................. 23.59 16................................................. 23.02 11............................................... 22.84 22.................................................. 22.78 7................................................. 22.36 17................................................. 21.64 12............................................... 20.69 19............................................... 20.33 23................................................ 18.39 10................................................. 17.14 3............................................... 16.15 24.......................................... 7.30 29 The general tenement-house death-rate of the city, at its maximum possible,* obtained by counting as belonging to the tenement class all the deaths in public institutions not otherwise definitely accounted for, was 25.77 in 1893. The table just given shows that all of the wards having a death-rate higher than this are situated below Fourteenth street, with the single exception of the eighteenth, which extends from Fourteenth to Twentysixth street, east. Moreover, of the remaining 14 wards, only six are situated below Fourteenth street In these six, mostly from special causes, the death-rate is below the average. They are the third, seventh, tenth, eleventh, thirteenth and seventeenth. The third is a business locality, with only a few tenements, and these mostly isolated, numbering only forty-eight in all. The low deathrates of the seventh and tenth wards are largely accounted for by the fact previously mentioned, that they are populated largely by Russian Jews. The eleventh, thirteenth and seventeenth wards are all situated together in the northeastern portion of the district below Fourteenth street, and the low rate must be explained in other ways hereafter. Now, in this list of wards with high death-rates, seven of the ten wards are old, long-settled wards. The wards from one to five were divided off in 1791, and the boundary lines then fixed have not been changed since. Ward six at that date included a portion of what is now ward fourteen, and was reduced to its present limits in 1827. Ward seven, in 1791, included all the rest of Manhattan island, and was reduced to its present boundaries in 1808 by the formation of the eighth, ninth and tenth wards, the eighth at that time including a portion of the present fourteenth, and the ninth and tenth comprising the remainder of the island. In 1825 the eleventh and twelfth wards were formed from portions of the ninth and tenth, the eleventh including the present seventeenth ward, the ninth including the present fifteenth, the tenth including the present thirteenth, and the twelfth comprising the whole of the territory above Fourteenth street. In 1827 the thirteenth ward was made out of the tenth, and the fourteenth out of the eighth and sixth; in 1832 the fifteenth was That is, the lrgest possible number of deaths referable to tenement-housesa-such even as unknown suicides. 30 taken from the ninth, and in 1837 the seventeenth from the eleventh. Thus, in the latter year, the subdivision of territory below Fourteenth street came to an end. These successive divisions and subdivisions undoubtedly represent the efforts of the city authorities to respond to the exigenr cies of an increasing population, and an attentive consideration of the order in which the wards were formed will show that the city grew from the first ward, where the first settlement was made, first toward the East as far as the ",Swamp," then on the North river to another " Swamp," the "< Lispenard Meadows," then, by the draining and filling of the " Collect Pond" and its outlets to the rivers, toward the east and west, up to the canal which made an island of the lower part of the city. Thence the city spread along the East river toward Corlears Hook, when, for some reason, the current became diverted toward the west,. perhaps in consequence of the filling of Canal street It is probable that the fourteenth ward was one of the earliest settled north of Canal street, and that, although numbered so high, the eighth ward was separated from the fourteenth, rather than the contrary; that is, the eighth at first comprised the greater portion of the fourteenth - what is now the fourteenth being probably the most thickly settled part of it-and when the portion west of Broadway became sufficiently populated to require a separation, the older part was called the fourteenth and the younger the eighth. In this part of the city are the oldest buildings. One way in which the lower death-rate of the eleventh, thirteenth and seven. teenth wards may be accounted for is that for a long time they were thinly settled. Although the eleventh ward was separated, as its number indicates, earlier than the fourteenth, it at first included the seventeenth ward, and its population was spread over a vast area, 527 acres, nearly a square mile, as against the 96 acres of the fourteenth. Now, it is a well-known fact that human dwellings, by pro. longed occupation, become so saturated with the bodily emanar tions of those who have lived in them, sick and well, as to be less healthy than newer houses. It has often been proposed to 81 construct hospitals of flimsy and inexpensive material, after the manner of a temporary shelter, and destroy them by fire every few years, to be replaced with new ones. This result of prolonged human occupancy is made worse in this city by the rapidity with which the character of the population in the lower parts of the city has changed, and the fact that houses built as private dwellings are not fitted to serve as tenements, either in respect to light, ventilation, water supply, privacy or facilities for cleanliness. Therefore, a house which has once been a private residence, then a boarding-house, then a tenement, and finally is totally neglected by the owner (who frequently has other pressing interests) on account of the encroachments of business, the probability that it will soon have to be torn down, and the consequent inadvisability of additional expenditure to keep it in repair, becomes a hotbed, or, in more modern parlance, a culture-bed of disease. This is probably the main reason for the persistent high death-rate in the first ward, where the influence of nationality hardly enters -few Italians living there, for oample - but where very few modern tenements have been built, and the only improvement is the occasional destruction of an old dwelling-house to make way for a business structure. The same effect of the higher death-rate in the older houses mnlay be observed, also, in the more recently settled sections of the city. In the twenty-second ward, for instance, the deathrate of the district between Fortieth and Fiftieth streets, west of Tenth Avenue, was 31.58, and between Fiftieth and Fiftyseventh Streets,, west of Tenth Avenue, 29.64; while between the same streets, and between Eighth and Tenth Avenues, the deathrates were 24.60 and 24.26 respectively, the former districts being covered with much older houses than the latter. This was also shown in a report to the health department, Idated January 18, 1890 (see City Record, Februaxy 6, 1890), dealing with the population living in houses containing 40 tenants each and upward, in that portion of the city south of Fourteenth street and west of Broadway. The general deathirate in such houses built before 1880, when the regulations relatling to the plumbing and ventilation of new houses began to be enforced by a special bureau, was 23.06, while the death-rate in 22 similar houses built since January 1, 1880, was 22.42. This lower death-rate may have been due entirely to better light, ventilation and drainage of the newer houses, but, at any rate, it is in line with what has been shown above of old houses as compared with new ones. Another potent cause of these high death-rates in the lower part of the city is the excessive number of rear tenement-houses in these older wards. In the sixth ward, for example, 46.53 per cent. of the population is housed on lots containing both front and rear houses; in the fourteenth ward the proportion is 44.46, and in the fourth 30.31, from which percentage it falls off rapidly to 21.05 in the tenth ward, and 20.90 in the eighth. V. REAR TENEMENTS. The unsanitary character of the rear tenement-houses is too generally admitted to require more than a passing notice. They generally stand almost in contact, at the rear, with the rear houses of the adjoining lots on three sides, so that the unfortunate tenants live virtually in a cage, open only toward the front. They are generally cut off from sunlight by the front houses; this makes the lower floor dark and damp, frequently necessitating artificial light at midday under a cloudless sky. If there happens to be a space a foot wide between two such houses at the rear, it is generally filled with garbage and filth of every description, making the rooms actually worse, in spite of the windows in the rear wall, than in what the English call "backto-back " houses, which are there in course of destruction by the government. Dr. Tatham, of Stalford, England, gives the following tables as illustrating the baneful effect upon the health of the tenants of houses constructed on this plan: General death-rate. Regent Road Sub district...... 1. No back-to-back houses.....26.1 S. Average of 18 per cent. of back-to-back houses...... 29.1 8. Average of 50 per cent. backto-back houses....,....., 37. 4 33 The fignires for New York are, if anything, more significant, as shown in the following table: Dextb-rate In houses Death-rate In houses where there are front s&tanding singly on a and rear houses on Wards. lot, the same lot. 1.....................a0 0 00e000 0 03..*..................0 0 00 00a 65......................... 0 0 0 0 7...........*........... o0 o0 0 00 7......................0 40 * 00 0a 98......................... 0 0 0 0 90......................0 00 0 r0 00 14............. 15...................... 16...................... 17......................00 00 00 00 19.....................0 0 0 A 23........... 24 9.9 oo. a e..... o..a..oo 28.57 15.55 31.74 33.04 28.44 21.66 30.68 25.86 17.08 22.93 20.67 22.82 35.74 29.91 22.60 20.76 29.50 20.29 23.72 23.81 22.32 18.31 7.30 22.21 61.97 22.55 38.47 20.49 26.12 28.73 36.91 34.55 17.37 22.47 29.05 27.68 34.34 26.33 27.40 25.76 33.39 23.05 28.81 26.79 31.39 49.38 27.6-6 The most cursory examination shows that the death-rates are veryv high where there are rear tenements, running up to 61.97- an enormous death-rate -in the old first waird, and being 27.66 for the entire city, against 22.21 for the single tenemaents. In a few wards, the death-rate of the front and rear tenements Is less than -that of the single tenements, and one of those wards, the fourteenth, is on~e ot the unhealthiest in the 5 city. In the fifth ward there are only four such lots altogether, too small a number for a fair comparison, and the same thing may be said of the third and twenty-third wards, which have only two each. The death-rate in such houses being so generally higher than in the single houses, it is difficult to explain the fact that it is lower in the sixth, eleventh, fourteenth and fifteenth wards in any other way than by supposing that from those wards a larger number of persons were admitted to the hospitals, without giving their previous residence, than from four wards. The fact that there is a disproportionately large foreign population in these wards strengthens this belief. But in any event these exceptions do not seriously affect the evidence of the table, that the death-rate, as a rule, is greatly raised by the use of rear houses as dwellings. If we take the death-rate of children as a test, the rear tenements show themselves to be veritable slaughter-houses, as shown in the following table, which only covers the lower wards, where such houses are numerous: D Wards. 1........................... 4...................... 5........................ 6....................... 7...................... 8....................... 9........................... ~ eooo ooooooooooooeoooooooo 7 ~~~~~~~~~~~~~ 8 ~~~~~~~~~~~~~ )eath-rate of children under 5 years of age in single tenements. 109.58 105.69 107.99 103.56 61.78 95.58 92.78 57.20 73.12 83.05 129.56 62.04 Death-rate of children under 5 years of age in front and rear tenements on same lot. 204.54 114.68 64.52 99.54 72.58 129.56 130.56 62.58 71.49 100.59 114.12 78.36 10 11 13 14 17 * 0 0 0 0 0 9 ** 00 00.90 * 0 0 0 0 0 0 09 a 0 0 00 0 0 a 00 0 0 o 0 o o* 0 0 * 00 0 0 0 00 0 0 It is unfortunate that it was found impossible to make a direct comparison between the death-rates in rear tenements, by themi selves, and the death-rates in other houses. But the deaths in the city are reported by street and number, and as the front and rear houses on the same lot have the same number, it is 35 evident that the rates could not be calculated separately. In the report of January 28, 1890, already referred to, the general death-rate for lots containing both front and rear houses was 25.05, against 22.42 for other houses of the same class, in the same part of the city. The excessive death-rate in rear houses is not entirely due to the sanitary environment of the tenants. The rooms in such houses are cheaper than others, and are, therefore, occupied by a poorer class of tenants, who suffer more privation of all sorts, and are often physically inferior to start with. Then, too, these houses are mostly old, long built and saturated with filth, the effect of which has already been explained. In addition, the two houses on a lot, as a rule, shelter more people than the single tenements, although the latter, especially the more modern ones, are large houses, with five or six stories The following table will make this clear: Average number of Averae number of to tenants In sngl ants on a lot contaif tenements on ing both front al Wards. lot. rear ouses. 1.....................36.3 68.0 2........................... 21.9.... 3........................... 32.2 66.5 4......................... 34.5 52.6 5............................ 29.1 61.0 6............................. 44.4 67.8 7............................ 44.7 68.5 8............................. 25. 41.7 9............................ 28.7 36.5 10............................ 61.4 91.1 11............................ 37.1 58.4 12............................ 32.8 38.5 13............................. 46.1 55.0 14............................. 43.6 74.3 15............................ 27.8 52.6 16.............................. 32.1 36.0 17........................ 39.6 58.4 18............................. 31.3 44.1 19............................ 86.4 48.7 20.......................... 30.8 42.2 86 Average number of Average number of tentenaats in single ants on a lot containtenements on a ing both front and Wards. lot. rear houses. 21............................ 32.8 57.8 22............................ 35.0 42.7 23............................ 22.6 40.5 24............................ 12.7.. Average for city.......... 34.9 55.5 In this brief analysis, it is found that the following factors appear, in different degrees, to influence the death-rate in different parts of the city, namely: The density of the population, the race or nationality of the inhkbitants, the character of the subsoil, and the facilities for drainage, the age and method of construction of the houses, and the crowding or isolation of the houses themselves. Of these factors, when we are considering the methods of reducing the death-rate, that is, of improving the sanitary condition of the community, race and nationality must be left out of the account. These we can not alter. Provision for drainage, both of subsoil and of the house, is made by existing legislation. Density of the population can be partially remedied by the enforcement of the present laws against overcrowding, by additional park spaces, and by increased means of intercommunication throughout the city's territory. The future tenement-house can be improved by legislation as to sanitary conditions and safety from fire. But the legislation which will most favorably affect the deathrate of New York is such as will do away with the rear tenements, and root out every old, ramshackle, disease-breeding tenement-house in the city. DECREASE IN THE DEATH-RATE OF NEW YORK. By way of encouragement as to further advances in the laws relating to public health it should be noted that the death-rate has been gradually growing less since the organization of the health department in 1866. For several years prior to that 87 it had been so high as to alarm ~he inhabitants of the city. For instance, the annual death-rates for the five years before 1866 were as follows: 1861....................................... 0 85 1862.............................................. 29.75 18G3........................................... 34.95 1864......................................... 34.60 1865......................................... 315.32 Nor were these high rates due entirely to the Civil War, for the rates for the five previous years, when there was no war and no pestilence, were as follows: 1856................................... 32.70 1857................................................ 82.63 1858............................................ 31.6 1859............................................ 30.95 1860.............................................. 30.49 The rates for the ensuing eight years never fell below 28 per 1,000, and the decrease up to the present time has, therefore, been about 25 per cent from 28 and upward when the department was formed to 21 during the year just ended. As the rates for single years vary widely, being affected by transitory causes like the excessive heat of 1872, 1881 and 1892, and epidemics like the influenza, it is better to make a comparison by periods of years, by which these pasing influences are in some degrees eliminated. The death-rates, for instance, by decades, were as follows: 1885-1874. 1875-'882. 1885-1894. Average population......... 893,335 1,202,945 1,685,094 Average annual deaths....... 27,041 31,894 40,557 Average annual death-rate.... 30.27 26.51 24.07 The total deaths for 1894 were 41,174, giving a deathrate of 21.03 upon an estimated population of 1,957,452. The tenement death-rate can not be exactly caloulated, because no tenement-house census was taken during the year. That the figures, however, if they could be obtained, would not vary essentially from those of 1893 is shown by the slight difference 88 between the two years in the proportion of deaths for the year, as shown in the following table: 1898. 1894. Total deaths................... 44,486 41,175 Deaths in tenements.................... 28,373 26,031 Percentage of deaths in tenements on total, 63.78 63.21 If we add all the deaths in institutions to the deaths in tenements, we do not alter the proposition much, e. g.: 1893. 1894. Total deaths............................ 44,486 41,175 Total deaths in institutions and tenements, 39,010 36,021 Per cent. of same on total deaths.......... 87.69 87.50 SANITARY INSPECTION. In searching for the worst conditions in its examinations, the Oommittee soon found that the violations of the sanitary code were frequent in the matter of accumulations in cellars, and general unsanitary conditions, many of which were due mainly to the unclean habits of the tenants. But much of this violation might have been prevented by more frequent inspections by the sanitary inspection force of the board of health. The Committee were met at once by the acknowledgment by the Board of failure, on acount of an insufficient force, to comply with the requirements of the law as to two examinations of tenement-houses a year. Mr. Fulton Cutting, President of the Society for the Improvement of the Condition of the Poor, early presented a communication in behalf of the society containing a number of valuable recommendations, among thsn one looking to a substantial addition to the snitary ianpection force of the board of health on amcount of the greatly increased duties owing to the large increase in the popnlation. Sinilar recommendlations have been made by other competeat aauthoritiea, as well as by the board of health, and the experience of 'the committee leadi it to conclude that oah enhargemen of the force is absolutely necessary in the Interest of the health of the city. Section 588 of the Oonsolidated Act prescribes fthtt the boamd of health "mway appoint and onammssito s io n ~nmber of ' saul 89 tary inspectors' as the hoard nMy deem needful, not exceeding forty, and from time to time prescribe the duties and salaries of each of said inspectors, and the place of their performance (and of all other persons exercising any authority under said board, except as herein specially provided); but twenty of such inspeotors shall be physicians of skill and of practicale experience in said city. The additional sanitary inspectors heretofore duly appointed (and commissioned may be included among the sanitary inspectors mentioned in this section, and may continue to act as such without reappointment. All of the said inspectors shall have such practical knowledge of scientific and sanitary matters as qualify them for the duties of their office. Each of said inspectors shall twice in each week make a written report to said board stating what duties he has performed, and where he has performed them, and also such facts as have come to his knowledge connected with the purposes of this chapter as are by him deemed worthy of the attention of said board, or such as its regulations may require of him; which reports with the other reports herein elsewhere mentioned shall be filed anong the records of the said board." The great advancement of sanitary science along the lines of prevention of communicable disease has, since the enactment of this law, caused the Board to economize in the force devoted to tenement-house inspection proper, in order to increase the number of physicians whose duty it is directly to prevent the spread of communicable diseases by systematic application of preventive measures. In other words, while the needs of the city have greatly increased during the past five or six years, the tenementhouse inspection force has not been increased, though a very great increase of force has been effected in the division of the health department devoted to the prevention of the spread of communicable diseases. The tenement-house inspection force proper consists of twenty sanitary inspectors, including the chief sanitary inspector. These may be claissified ais follows: Eight are educated physicians, 6 are sanitary engineers, 5 are experienced plumbers, and one, the chief inspector, is especially qualified for his position by long service in the health department in the lines of general sanitary work. 40 The division devoted to the prevention of the spread of communicable diseases contains in all, at the preaent time, 41 physicians, 5 of whom are classed as diagnostioians, 29 as vaccinators 25 of these are for temporary duty appointed froin month to month), and 17 as medical inspectors. To some extent, the duties of the latter include a certain amount of tenement-house inspection, but these men are not available for the general purposes of tenement-house inspection work, as are those in the division of the chief sanitary inspector. While the comrmittee deprecates this noninmrease of fenementhouse inspectors proper, the application of the forces at command to prevent contagion has been of public use. Inasmuch as the board could not obtain the necessary funds for the increase of both forces, the direct and immediate prevention of contagious disease may be considered a matter of more pressing importance than the betterment of defective sanitary conditions in tenement-houses, important as the latter is. This latter, meantime, has been notably neglected, and it is the opinion of the committee that an increase of tenement-house inspectors is imperative. The health department, with its present force, is not only unable to comply with the law requiring the semi-annual inspection cf tenement-houses, but it attends with difficulty to the investigation of citizens' coaplaints, and other routine important work connected with tenement-house inspection. The present force'of sanitary police detailed from the police department under the existing law is 45. The organization of this force is 1 sergeant, 1 roundsman, and 43 men. These men are utilized as follows: Seven are detailed to assist in the milk inspection and food inspection service, to prevent adulteration, 2 are used for work in the office of the chief sanitary inspector, the remainder being on tenement-house work. The committee recommends that 15 additional sanitary inspectors be added to the force, and that 5 more sanitary police be detailed from the police department. This would enable the board of health to divide the city into 33 sanitary districts, instead of 18, as at present, and would enable the department to perform fully all the duties devolving upon it under existing laws, without delay or excuse. 41 In relation to the inspection of tenement-houses, the matter of khe detail of sanitary police, in the opinion of the committee, requires consideration. Patrolmen detailed from the police department to this sanitary squad should be especially qualified by reason of past experience to perform the duties devolving upon them. The police of New York are recruited from nearly all the vocations of life; among them are a large number of men who have a certain amount of experience in mechanical pursuits, or who are above the average intelligence, and have received a good common school education. It is believed that an exaaination before the civil service commission, the same to be prescribed by the board of health, should be passed by applicants for the detail before the patrolmen are considered as qualified for the service in the sanitary squad. Other branches of the health department's service are already under the civil service rules. PUBLIC PARKS. The two prime requisites for the healthfulness and good condition of individual tenements are air and light. These are the prime requisites also for neighborhoods. It was once popularly believed that parks were merely pleasure-grounds - civic luxuries-by no means requisite to the health of the community. Gradually as knowledge increased this opinion gave way to that now held, namely, that parks are of high importance among the health-giving conditions of a city; that in fact they are "the city's lungs." No one can become familiar with life in the most crowded districts of New York without the conviction that no greater immediate relief can be afforded the inhabitants than by letting in more air and sunshine by means of playgrounds and small parks, and furnishing thereby, near at hand, places for rest, recreation and exercise for young and old. From the beginning this has been the belief of the committee, and it has taken pains to obtain information as to the present condition of our park system, the reason for the delay in carrying out the obvious intention of previous legislation as to the laying out of parks and playgrounds in the tenement-districts, and to gain advice concerning the proper course to be pursued in order to bring about speedy results. T 6 We append from official sources what is believed to be an exhaustive list of park spaces owned or about to be owned by the city of New York, both within and without the city limits, with their acreage and location; also a map of the same. The committee's special province being a consideration of such open spaces as are peculiarly serviceable for the alleviation of the conditions of tenement-house life, those of less than 100 acres in extent have been placed in a separate list, as fairly within the definition of small parks. It is evident that an emergency exists which must be met by prompt and thorough action. Some means must be found to meet what is both a public necessity and a popular demand. This demand is not only made by that part of the population directly affected, but by the public press, and by all who have studied the problem of tenement-house life in New York. During the public hearings no suggestion more frequently recurred than that in favor of small parks, and of playgrounds for children. Not only was the closing of existing park spaces earnestly deprecated, but witness after witness urged the opening of additional park areas with all possible dispatch. The law passed in 1887, during the mayoralty of Mr. Hewitt and commonly known as the Small PP-ks Act, empowers the board of street opening to select, locate and lay out such public parks as it may, from time to time, determine, south of One Hundred and Fifty-fifth street, and it provides that no more than $1,000,000 shall be expended in any one year, this amount not being cumulative from year to year.* Up to date, the following expenditures have been incurred under the act: Land and Cost of buildings, taking. Total. Mulberry Bend Park.... $1,476,557 $45,498 60 $1,522,055 60 East River Extension Park................ 503,825 18,293 88 522,118 88 St. John's Cemetery Park 5 2)0 3,728 42 (to date) Estimated further cost.. 300 00 524,028 42 Total.....................0............. $2,568,202 90 * *The department of public parks * * * are authorized and empowered * * * to erect and proyide therein for public purposes, for the comfort, health and instruction of the people such and so many buildings as the said department of public parks, with the concurrence of the board of estimate and apportionment, shall determine to be necessary and expedient.-Small Parks Act, 1887. 43 Of the above there has been expended to date only the sum required for the East River Extension Park, $522,118.88, whereas up to January 1, 1895, there might have been expended under the act $8,000,000. The St John's Cemetery Park contains 1.72 acres, the Mulberry Bend Park 2.74 acres and the East River Extension Park 8.6 acres; altogether 13.06 acres. But the work on one only of these has even been begun-- the East River Extension. At Mulberry Bend the delay has been the means of placing the city itself in the unfortunate position of landlord of houses already virtually condemned, and in an extremely bad sanitary condition. But supposing that the above parks were actually completed, what would be the situation of the most crowded part of the city as to breathing places? The area of the city below Fourteenth street is 2,528 acres, or nearly four square miles (3.95). The estimated population of this area on July '1, was 707,520. The park area is 64.654 acres, or but 2.55 per cntt. of the whole area, while the proportion of the park area inside the city limits is a little over 7.5 per cent. of the whole territory. There is an area in this same district which may be outlined as follows: Beginning at the corner of Delancey and Lewis streets and going north on Lewt to Fifth street, along Fifth street to Second avenue, Second avenue to Fourth street, Fourth street to Mercer street, Mercer street to Bleecker street, Bleecker street to Oarmine, Carmine to VariVarica, riok to Houston, Houton to Hudson, Hudson to Canal, Canal to the Bowery, the Bowery to (atharine, Oatharine to Monroe, Monroe to Montgomery, Montgomery to Ridge, Ridge to Delancey and Delancey to Lewisa to the place of beginning. This area contains 711 acres. The district is 750 feet distant from either river, and 500 feet from aly existing, constructing or proposed park. Yet it is the home of about 324,000 people. This is nearly one-sixth of the total estimated population of New York on July 1, 1894; and much more than the number of inhabitants of the entire city of either Cincinnati or San Francisco, as given by the census of 1890. The density for the whole area rises to 476.6 persons per acre. Part of this area has double this density, and as a whole the district is the most crowded in the world. 44 The committee is aware of a sent~iment whichi would lead to hesitancy as to the expenditure of large amounts of money for parks In the lower wards, on the ground, as claimed, that the spread of business -buildings, with addiftional rarpid transit facilities in the future, will before very long remove the congestion in this particular region. Similar considerations have been, put forth by wealthy owners -of old tenement-houses as a reason, and excuse, for the policy of maintaining these tenements in an inferior condition pending the erection of business edifices on their afites. With such considerations this committee is not in sympathy. But even if business does come in and drive out the tenements, the district will be all the healthier and more comfortable with the small parks. In view of the present tendency to high business buildings, such openings will be particularly desirable. A business distrid!t is not devoid of human occupancy after dark, and a region densely occupied during the entire day by human beings should not be left destitute of the good effects of proper and sufficient park facilities. There is no reason in humanity why, meantime, an enormous portion of our population should be permitted, year after year, and generation after generation, to live without these alleviations which the health and comfort of the people require and civilization demands. On being questioned as to his observations abroad concerning the improvements of the people in their private and domestic conditions, Dr. Shaw testified before this conmmittee as follows: 10Undoubtedly the remarkable movement in all the provincial centers, as well as in London, for public parks, open spaces, children's playgrounds, shade trees and grass, wherever these can be made to grow, and facilities in general for fresh air and sunshine, have in the past decade played a very important part in the preservation of the general health. As these large population centers increase, in numbers and area, it is more and more clearly apparent to the leaders in public affairs and In social reform that the health of the people living in the central districts requires the planting of parks and playgrounds as numerously as possible in the neighborhoods of dense population." Not only should additional parks first be placed where at the moment they are most needed, but in character they should be 45 especially adapted to the local conditions. Each of these parks should have a considerable portion of its area--possibly not less than one-half-- finished as a public playground, and one might be almost exclusively dedicated to such purposes.* The committee regards the need of playgrounds for the children of this teeming population so obvious that it does not consider it necessary to repeat here at length arguments in their favor with which the public are already familiar. On this point, also, they respectfully refer to the testimony accompanying this report. They heartily approve, moreover, of the suggestion of Dr Tracyf and of Mr. Riis that whenever possible the schoolhouse and the small park should go together. They believe that also a good and sufficient playground, proportioned to the number of scholars, should be connected with every schoolhouse in the city. The creation 9f new parks in crowded neighborhoods should be so managed wherever possible as to effect an incidental benefit in the complete and prompt destruction of some of the most dangerous and unsanitary houses. As to the question that may be raised concerning the unhousing of population by the destruction of buildings for park purposes, it may be said, first, that whatever harm might come from this is more than offset by the benefits; and further that no more favorable time could be selected than the present, when the pressure from immnigration is somewhat lessened. DOCK PARKS. The committee desires to call attention to the scheme of establishing small parks in connection with some of the city's docks. On this subject a member of the committee has prepared a separate monograph, with specially prepared designs, to accompany this report. The committee is aware that there are considersa tions, especially in the line of danger to commerce from fire, which must be carefully considered before such a plan can be put into operation; and it is not prepared to make any positive recommendation upon the subject. But if it should be found feasible, there is no doubt that it would prove of immense bene*In this direction Boston has made some intereatung experiments. See testhnimony. 46 fit to the people during the summer months. Doubtless many lives are saved annually by the growing.ustom of sending the children of the tenements into the country for periods of a week or more; also, by the numerous excursions provided at private expense through various organizations; and the ferry tickets given out to mothers in order that they may take children away from the hot and overcrowded streets and houses out into the refreshing air of our bays and rivers. The docks are now also, to a certain extent, availed of for a similar purpose; but without proper facilities. The law already permits such occupancy under certain conditions, and it is greatly to be hoped that some safe and feasible arrangement may be made to accomplish the end in view. Such parks would be much less expensive than any of similar size in the heart of the city. THE CENTER OF GRAVITY OF POPULATION. The park map made to accompany this report shows the site of every schoolhouse. The same map also indicates the exact location of the center of gravity of population of Manhattan Island at the times of the census of 1860, 1870, 1880 and 1890. It is interesting to note the movement of this central point. In 1860 it was on the south side of Eighteenth street, midway between Fifth avenue and Broadway. In 1870 it had moved five blocks uptown to the northeast, and was at the northwest corner of Twenty-third street and Fourth avenue. In 1880 it had gone up a distance of seven blocks and was in the middle of Thirtieth street, 85 feet east of Madison avenue. In 1890 it had leaped twenty blocks and touched the east side of Madison avenue, midway between Fiftieth and Fifty-first streets. The principal cause affecting t-he last movement of this mathematical point was the rapid increase of population above Central Park. It is notable that while during this decade the first ward diminished in population, the lower as well as the upper east side increased. PARKS FOR NEIGHBORHOOD NEEDS. This rapid northward march of population is a warning as to the future, and makes clear the necessity of the city's securing proper and sufficient small park spaces in the northern districts, 47 according to some well-considered plan. It should be possible to prevent in the future such a condition of affairs as to park spaces as has long existed in the district below Fourteenth street. The committee is well aware of the liberal provision already made for parks in the northern districts and is sensible of the good taste and liberality that have been displayed in many of our park enterprises; but it believes that the whole matter should be more carefully studied by the proper authorities, and that there should hereafter be less accident, and individual initiative, and more system and science in the selection of park spaces adapted, especially, to what may be called the neighborhood needs of the masses of our people. PUBLIC BATHS. The question of public baths has been made a matter of special study and inquiry by the committee. It has endeavored to ascertain the facilities for bathing in the ordinary tenement-- not a difficult matter, for in a large proportion of the tenementhouses such facilities scarcely exist. Also, it has inquired into the use made of the free muicipal salt water swimming baths maintained during the summer, and of the few well-equipped bathing establishments recently opened through private benevolence, at which a small charge is made. It is evident that the bathing habit is growing among the masses of the people, and it is also evident that the practice stands greatly in need of encouragement by means of increased opportunities. The secretary reports that out of a total population of 255,033 covered by the committee's inspection, only 306 persons have access to bath-rooms in tha houses in which they live. The only way in which the occupants of tenement-houses can bathe is by using a tub of some kind, filled from the faucet in the kitchen or from that in the hall, or with water carried up from the yard. It is apparent that such conditions as these do not encourage the practice of bathing. Nor is this all. The number of rooms occupied by a family in a tenement-house is generally so small that every inch of space is occupied. Even when the occupants are willing to incur the labor of carrying water from the faucet in the hall or from the yard, it is difficult to secure the privacy which is necessary for the bath. Dr. Jane 48 E. Robbins, of the College Settlement, stated in her testimony as follows: "It may as well be distinctly understood that the men and boys living in crowded tenements, as a rule, do not take baths during the winter." Dr. Robbins thought that "the people can be readily taught the necessity of being kept clean." The fifteen free floating baths in the river are extensively.used in spite of their distance from the more crowded tenement districts; and the popularity of the swimming bath should be remembered in considering plans for public baths to be used throughout the year. The average number of baths taken in the floating baths during each bathing season since 18S8 is 2,500,000 of males and 1,500,000 of females. A number of societies, clubs, and other philanthropical agencies, at work in the amelioration of tenement-house life, have provided bathing facilities, generally the admirable so-called rain-bath, for the general public or for their special,constituencies; and the opportunities for bathing afforded by such means are used by a constantly increasing number. At the Raron de Hirsch Trust Fund baths there has been a steady increase in the number of bathers every year since the baths opened, and it is reported that the amoral influence of the baths has already been noticeable in better habits among those who use them." At the People's Baths, conducted by the Society for Improving the Condition of the Poor, an estimate was made at the request of the committee as to the actual number of individuals who bathe in a given year. "After a careful estimate," the superintendent states: "We find that the 80,537 baths given by- the People's Baths last year (1893) represented about 4,000 different people." It is thus evident that though the number of baths taken at various bathing places in the city may be large in the aggregate, the persons who actually bathe are not numerous, and the great majority of the tene ment-house population is not yet reached. Among the conditions favorable to disease, uncleanliness holds high rank. The skin plays a most important part by ridding the body of its waste products. When through any cause the excretory organs of the skin are choked up, extra work is at once thrown on the other excretory organs of the body. It is impossible to increase the labor performed by any organ of 49 the body, without increasing the strain, and when this is done the tendency to disease in that organ is multiplied. In a thoroughly healthy body each organ has its allotted work. But nature has so arranged matters, that these organs are able to do one another's work'to a certain extent. While this may go on for a time without injury, it will, if continued too long, result in disease of the overtaxed organ. The skin needs to be kept clean, if a person is to remain in perfect health. As Dr. Robbins said, in her testimony, "the neglect to bathe and keep clean often changes a small cut into a suppurating sore." From a sanitary point of view, the results to be attained by the use of the bath are threefold: 1. The preservation of health. 2. The prevention of disease. 3. The curing of disease. Cleanliuess is the watchwerd of sanitary science, and the keynote of the modern advice in aseptic surgery. If it apply to the street the yard, the cellar, the house and the environment of men, it most certainly should apply to the individual. The freer use of water by the tenement-house population would aid them very materially in their struggle for existence by assisting the elimination from their systems of the poisons absorbed in the sunless and airless dwellings. That several hundred thousand people in the city have no proper facilities for keeping their bodies clean is a disgrace to the city and to the civilization of the nineteenth century. These facilities have been used and are abundant in many enlightened nations, and tley are being increased in every way possible. The amount of money annually spent in charity in this city amounts to millions, and the question arises whether it be not greater economy to spend more for the preservation of health and the prevention of disease, because less would then be required for the support and care of the sick and 'helpless. The cultivation of the habit of personal cleanliness has a favorable effect,;:lso, upon character; tending to self-respect and decency of life. The necessity for additional baths in New York is brought out in the accompanying testimony, and the satisfactory results of the European experiments are amply attested by Reveral highly competent -witnesses. To some of the foreign baths municipal laundries are attached, but these have not proved T 7 successful in all cases; whereas, according to Dr. Albert Shaw, the municipal baths "are regarded as a great success wherever they have been established." Dr. Shaw testified: "The public baths of Glasgow are six or seven in number, and have cost probably $600,000, or in round figures, $100;000 for each establishment. They contain great swimming tanks for men and women separately, and have every kind and sort of tub, shower and special baths, including Russian and Turkish baths, and Affer very special inducements to school children. * * * A small charge is made, school children in some of the towns not payitg more than half a penny, one American cent, for a bath." Dr. Shaw said that in Great Britain "the aim is to conduct the baths in such a way as to make them nearly or quite self-supporting. Liverpool has a series of large baths like those in Glasgow, and so have Manchester, Birmingham, Sheffield, Leeds and a score of other flourishing provincial towns. I should say that enough money is received from the patrons upon the lverage to meet the cost of operation, but not enough to pay any interest or sinking-funid money upon the investment The Russian and Turkish baths conducted in some of these establishments are sufficiently profitable to assist in lightening the expense of the establishments as a whole. I should say that from. 100,000 to 150,000 people a year on the average patronize each of these large British public baths. A number of them have very recently been established in different parts of Ionaot by the district and parish authorities." The committee believes it would conduce greatly to the pubAc health if New York should follow the example of many of the cities of the Old World and open municipal baths in the crowded districts. It, therefore, favors the building, at the beginning, of at least one fully equipped bathing establishment on the best European models, affording every kind of bath desirable, at moderate charges. *As an evidence of the public interest in this subject, the following law may be cited: CHAPTER 478. An act to ertaUblh free public baths in cities, villages and towns. Approved by the governor May%4, 18~. PaNsd, three-fifths being present. Th People of the tate of New York, represented in Senate and sembly, do enact as follows: Section 1. It shall be lawful for any city, village or town to establish free pblic baths. A ny city, village or town may loan its credit or make appropriations of its fnds for the purpose of estabuhing ftree public baths. Uee. I This act shall take caeot Immediately. 51 EDUCATION. With regard to education, the committee has had the benefit of the services of the University Department of Abciology of Columbia College, under the direction of Professor Franklin IL Giddings, assisted by Mr. John F. Crowell, Fellow in Sociology, and formerly.president of Trinity College, North Carolina. Professor Giddings' report forms part of the supplement, and touches upon the school attendance, educational opportunities and home life of the children of the more crowded districts of the city. An exhaustive study was made of the school population of four typical tenement blocks of different nationalities, Italians, Russian Jews and Bohemians. A special examination was also made by competent persons under Professor Giddings of the condition of certain of our schoolhouses, and Professor Giddings obtained, also, information as to the school accommodations In his report he makes the gratifying statement that "the foreign-born population of this city is not to any great extent forcing children of legal school age into money-earning occupations. On the contrary, this population shows a strong desire to have its children acquire the common rudiaents of education." He adds, and the committee joins in the assertion: "If the city does not provide liberally and wisely for the satisfaction of this desire, the blame for the civic and moral dangers that will threaten our community because of ignorance, vice and poverty must rest on the whole public, not on our foreign-born residents." Especial attention ts called by the committee both to the commendation of "the teaching force " for its "general fidelity," and the criticism of the present order of things in the public schools. Facts are brought out in Professor Giddinge' report as to the darkness and bad sanitation of some of our schoolhouses; also as to the insufficiency of school accommodations; the lack of proper school playgrounds, and of sufficient kindergartens. These statements should meet with the careful attention of the local authorities, as they accord with information which the committee has obtained by other inquiry and by pesonal inspection. 52 RENTAIA. On the subject of rentals, some special inquiries were made besides those which were brought out from witnesses at the public hearings. In some cases it has been found that the rental profit of landlords has been as high as 25 per cent of the amount invested by them, but those houses were old and in bad sanitary condition and in great need of repair. They were constructed before the later laws on the subject were passed and were in many respects not subject to their operation. There are four distinct classes of tenement-houses in the city of New York: (1) The house with but one apartment on a floor. This class includes dwelling-houses which have been remodeled or converted to tenement-house purposes; (2) the house with two apartments on a floor, entered from a common hall running through -the house at the side; (3) the house with three apartments on a floor, two in front and one in the rear, with the hall in the center of the house, between the two front apartments and leading to the rear apartment, and (4) the house with four apartments on a floor, with a hall running through the center of the house. This is the class known as the " double-decker," and usually has two stores or a store and liquor saloon on the ground or basement floor. From such general information as this committee has been able to obtain, it seems that when a tenement-house is properly constructed in accordance with the present laws, kept in good repair and in excellent sanitary condition, one of the first class, namely, the single flathouse, produces a net profit to the owner of about nine per cent. upon the value of the equity; one of the second class, namely, the one with two apartments, such as baths, water-closets, ranges, boilers and stationary washtubs furnished by the landlord in each apartment, realizes a net profit to the owner of about eight per cent. on the value of the equity; a house of the third class realizes to the owner a profit of about nine per cent. on the value of the equity, and one of the fourth class, 10 per cent on the value of the equity. It is the usual custom of almost all tenement-house owners to place a mortgage of about onehialf the value of the premises on the property, at five per cent interest, thus enhancing the 53 value of the rents and profits on what remains-the equity. The old tenement-houses, without any improvements, such as have been mentioned, are the most profitable because they require the least repairs to plumbing, and pay a low water tax. The modern tenement-house, in 'which every apartment is furnished with a bath, closet, range, boiler and washtub, are less remunerative, because of the constant repairs to plumbing and the high water rate. These figures, however, as has been said above, only apply to tenement-houses in which the owners observe all the requirements of the law, and maintain them in good repair and in good sanitary condition. MODEL TENEMENTS AND IMPROVED DWELLINGS FOR THE POOR. No one of this committee's invesiatgations covered a more important field than that which concerned the improved dwellings for the poor, -r model tenements, now existing in or near New York city. Detailed and careful statements describing each separate enterprise of this kind will be found in the supplement. They prove, in general: First.-That good dwellings reduce the death-rate. Second.--That they tend to increase the morality and selfrespect of the people living in them. Third.- That they favorably affect surrounding neighborhoods. FourthT.-That they pay, when properly managed, fair profits to their owners. This last point is one of the most valuable brought out by this investigation. It disproves the supposition existing in some quarters, and discouraging to capital, that improved dwellings can be built and conducted only when the investor is willing to make severe sacrifices for philanthropy's sake. Model tenements do pay. It is proper here to emphasize the fact that the general condition of the tenement districts of New York has constantly improved since in 1864 the Council of Hygiene and Public Health of the Citizens' Association made its important investigation and report It is not possible to say now, as was true 80 years ago, that a "fearfully high death-rate prevails in thia dcty," or that the condition of the tenement-house s s invariably bad. The reports of the secretary of the present committee cover all the notably improper tenement-houses in the city, and many among the remainder are in excellent condition. There are hundreds of landlords in New York who give their buildings constant care; see to it that they are kept in repair, that the requirements of the law and orders of the board of health are complied with, and to them much credit is due, which it is by no means the desire of this committee to withhold. It is also true that in cleanliness and morals the inhabitants of the tenement-houses of New York compare favorably with people in like circumstances in any other city. They respond quickly to improved conditions, and conditions are constantly improving. SAVINGS. On the subject of savings this committee has been unable to obtain any'full information, on account of the fact that most sa: ings banks do not classify their depositors; and that there are uo means of learning what savings are made by the residents of tenement-houses which they either hoard or invest otherwise than by deposits in savings banks. The only banks which furnished statistics throwing light upon the subject were the Citizens' Savings Bank, on the Bowery and Canal street, and the Bowery Savings Bank, on the Bowery and Grand street. An abstract of their reports, together with other information upon the subject, is contained in the sub-report of Mr. A. L. Reynolds furnished to the committee and hereto annexed: MORALS. On the subject of morals, the only conditions which have been brought specifically to the attention of the committee are those resulting from overcrowding, darkness in,the halls, and the recent increase of prostitution in tenement-houses. To remedy the conditions of overcrowding, this committee has recommended an increase in the number of inspectors in the employ of the board of health, in order that the present requirements of the board of health may be enforced; and has suggested that it be made mandatory upon the board of health to require sufficient cubic feet of air to each occupant. 55 On the subject of darkness in the halls, the committee recommends that it should be prevented by the maintenance of a light in the same, as prescribed in the bill annexed to this report, and subsequently described. It seems clear to the committee that during the last 18 months prostitution in tenementhouses has increased to an alarming extent. The reason for this is said to be the closing of houses of ill-fame by the police during that time, the result of which has been to drive their occupants into tenement-houses, where they have continued to practice their trade. This committee has not felt competent to draw any law upon the subject; but it recommends to the Legislature that at least some provision be made to check this evil by the enactment of a law making the crimes of soliciting and the maintenance of houses of prostitution in tenement-houses offenses punishable with more severity than when they are committed elsewhere. THE TENEMENT-HOUSE COMMISSION OF 1884. The only former official inquiry upon this subject in this State was made in pursuance of chapter 448 of the Laws of 1884, which appointed Alexander Shaler, Joseph W. Drexel, S. O. Vanderpoel, Felix Adler, Oswald Ottendorfer, Moreau Morris, Anthony Reichardt, Joseph J. O'Donohue, Abbot Hodgman, Charles F. Wingate and William P. Esterbrook "a commission to investigate and inquire into the character and condition of tenement-houses, lodging-houses and cellars in the city of New York." Subsequently Mr. Ottendorfer resigned from the commission, and Mr. Charles S. Fairchild was elected in his place. The time of the commission to report was extended by the Legislature, and their report was not finally made until February 15, 1885. The following twenty recommendations were made by the committee: (1) "The abolition of all privy vaults in the city limits upon all property contiguous to all streets or avenues where sewers are laid." A law to that effect was passed in chapter 84 of the Laws of 1887, as an amendment to section 53 of the Consolidation Act. (4) " An amendment of section 663 of the Consolidation Act, so as to make the provision that a tenement or lodging-house S 56 should not occupy more than 65 per centum of a city lot apply to tenement or lodging-houses thereafter altered or extended, as well as to those subsequently constructed." This recommendation was enacted int6 law by chlapter 84 of the Laws of 1887, but has been nullified by a proviso that the rule "may be modified in other special cases by a permit from the board of health," which permit, we tare informed, has been usually granted, first by the board of health, and subsequently by" the building department, which has, by a later statute, succeeded to the powers of the board of health in such a case. A similar amndmdment, which they recommended to section t;6;2 of the Consolidation Act, so as to make the laws concerning windows in sleeping-rooms in tenement-houses apply to those slbse qulently "altered" or "extended," was not adopted by the L-gislatire. (3) " That there' shall be adequate water supply for domlestic putrposes on each story that is inhabited or intended to be occupied by any family, either by the Croton pressure or by canks in the upper part of the building." This Iecomimendation was enacted into law by chapter 84 of the Laws of 1887, in an amendment to section 663 of the Consolidation Act. Trinity Church resisted the enforcement of this law, upon the ground that it was unconstitutional, and succeeded in obtaining a ruling to that, effect from the General Term of the Court of Common Pleas for the City and County of New York (Health Department v. Trustees of Trinity Church, 17 N. Y. Supp. 570). In consequence, the board of health has been unable to enforce this statute so far as it applied to tenement-houses built or used for that purpose before the passage of the statute. The board of health has appealed the case to the Court of Appeals; and unless that court differs from the Court of Common Pleas concerning the constitutionality of the act, the force of public opinion will be the only means by which tenement-house owners can be obliged to furnish their tenants with those facilities for cleanliness which, in the opinion of this. commission, as well as of the former one, are needed for the sanitary protection of those who live in the neighborhood of tenement-houses, as well as the inmates of the rooms which suffer from the lack of water.* * Decision reversed, February 26, 1896 See Postscript. 57 In connection with the subject of water in tenement-houses, attention is called to the question of cost as discussed in the testimony of Professor Seligman, and in the secretary's report. (4) "An amendment of section 664 of the Consolidation Act, by making the provision for the maintenance of a janitor or housekeeper apply to tenement-houses in which more than eight families live, instead of, as previously, only to those which were inhabited by more than ten families." This p-rovision was adopted by chapter 84 of the Laws of 1887. (5) " An amendment of section 663 of the Consolidation Act, by providing 'that all cellars of tenement-houses and lodging-houses, where they are located over filled-in ground, or over sandy ground, or ground on which water does lie,' shall be covered with concrete, laid over not less than three inches thick of small broken stone, so as to effectually prevent evaporation or dampness,' in place of the words, 'It shall have the floor of the cellar properly cemented so as to be watertight.'" This provision was partially adopted by an amendment to that section of the Consolidation Act in chapter 84 of the Laws of 1887 so as to provide that the cellar floors of tenement-houses and lodging-houses thus located " shall be covered so as to effectually prevent evaporation or dampness." (6) "That all inner rooms and hallways in tenement-houses erected after or prior to the Laws of 1879, shall have direct light and communication with the external air, by such means as the board of health may direct." This was adopted to some extent in the provision of the amendment to section 663 of the Consolidation Act, in chapter 84 of the Laws of 1887, "every such house erected after May 7, 1887, or converted, shall have the halls on each floor open ddirectly to the external air, with suitable windows, and shall have no room or other obstruction at the end, unless sufficient light or ventilation is otherwise provided for in said halls in a manner approved by the board of health." (7) "An amendment of the statutory definition of a tenementhonse, so that it shall include a house occupied 'by three or four families,' in-stead of, as before, by 'more than three familiet.'" This recomm*lndation was adopted by the aamendment of seo T 8 58 tfon 666 of the Consolidation Act in chapter 84 of the Laws of 1887. (8) " That a law be passed imposing a fine or imprisonment, or both, upon any person convicted of the offense of throwing filth, urine, or foecal matter into any waste-water sink or waste pipe in any house, and the offense of keeping any filth, urine or foecal matter in their apartments, or upon their premises, for such a length of time as to create a nuisance." This recommendation was adopted by the amendment to section G53 of the Consolidated Act, in chapter 84 of the Laws of 1887. (9) "That the board of health be required to make a house-tohouse inspection twice in each year of all tenements and lodginghouses in the city." This ircommendation was adopted by the amendment of seetion 658 of the Consolidation Act in chapter 84 of the Laws of 1887. The force of inspectors in the employ of the board of health has, however, proved insufficient for that purpose, although it has been the practice of the board of health to exempt the better class of apartment-houkes from the semi-annual inspection. (10) "That the sanitary police force be increased from 30, the present number, to 40, whose sole duties shall be the inspection of tenement and lodging-houses." This recommendation was adopted by the amendment of section 296 of the Consolidation Act in chapter 84 of the Laws of 1887, which authorizes the detail of 45 police officers to the use of the board of health for sanitary purposes, but in the opinion of the committee there should be a still further increase of the inspection force, in the manner elsewhere stated. (11) " That the sanitary inspectors, or the sanitary police, shall make a supplemental report upon all orders of the board of health within a specified time, say, four weeks after such orders have been issued, to ascertain whether the orders of the board are still complied with in reference to cellars, lodgipg-houses and over-crowding of tenement-houses." This recommendation was adopted by the amendment of section 658 of the Consolidation Act in chapter 84 of the Laws of 1887, which provides that "whenever the board of health has 59 made any order concerning a tenement or lodging-house, it shall cause a reinspection to be made of the same within six days after it has been informed that the order has been obeyed." (12) "That every person, or owner, having the control of, or interest in, any tenement-house shall file in the health department a notice of his or her name and address, and also a description of the property, by street, number or otherwise, and also the number of apartments in such house, the number of rooms in each apartment, the number of persons occupying each suit of apartments, and the trades or occupations carried on therein, and every person claiming to have an interest in any tenement or lodging-house may file their names and addresses in the health department. "The object of this is: "(a) To secure accurate statistics of tenement-honses. "The commission has found itself greatly hampered by the difficulty of getting accurate tenement-house statistics. "The information which this commission needs should always be in the possession of some department of the city government in an available form. The owner of a tenement-house can easily keep the department informed upon the points noted, with slight expense either to himself or to the department To correct any evil connected with a tenement-house it is necessary to easily and quickly get all the facts concerning such house. "(b) To enable all persons to receive copies of all notices and orders of the board of health affecting tenement-houses which they own, or in which they claim to have an interest." This recommendation was adopted by the amendment to section 657 of the Consolidation Act in chapter 84 of the Laws of 1887, as a substitute for the former law, which provides that "Every tenement or lodging-house shall have legibly posted or painted on the wall or door in the entry, or some public accessible place, the name and address of the owner or owners, and of the agent or agents, or any one having charge of the renting and collecting of the rents for the same." (Laws 1867, chapter 90*, section 9.) The law thus repealed had failed of enforcement on account of the opposition not only of the owners, but also of the 00 inmates of tenement-houses. The latter in many cases destroyed or defaced the notices of ownership placed on the houses in pursuance of the law. As a general rule, owners of tenementhouses in New York city have failed to obey the new law requiring a registration of their names in the health department, and the committee is informed by the board of health that the force at its disposal has been insufficient to enable the board to enforce the statute. It is the opinion of the committee that the enforcement of the statute is of great importance, and they recommend that the board of health see to it in the future that compliance therewith be made. In order to effect this, the committee recommend that the board of estimate and apportionment appropriate to the use of the board of health sufficient funds for the employment of an additional clerk, who shall take charge of the registration books for tenement-houses. The committee has prepared an amendment which it hopes will make the enforcement,of this law more easy in the future. (13) "All notices and orders of the board of health in relation to a tenement or lodging-house shall be served by posting, in some conspicuous place on the house, a copy of the notice or order, each time for doing the thing in relation to which said notice or order was issued. The posting made in accordance with the section shall be sufficient service for all purposes." This recommendation has been adopted by the amendment to section 657 of the Consolidation Act in chapter 84 of the Laws -of 1887. (14) "That a law be passed directing the board of apportionment to set aside sufficient funds to enable the board of health to execute its own orders in case of necessity, the amount to be stated by the board of health in their annual estimates for expenditures." This recommendation does not seem to have been adopted by the Legislature. (15) "That the board of health shall appoint a statistician or registrar, whose duties shall be to prepare the statistics of the board upon special subjects, and make semi-annual reports upon the same to the State Board of Health." 61 Tils recommendation has been followed by the board of health under authority conferred by the amendment of section 585 of the Consolidation Act in chapter 84 of the Laws of 1887. (16) "That the board of health shall be required to make an annual report of all of its work to the mayor of the city of New York." This recommendation has been adopted by the amendment of section 533 of the Consolidation Act in chapter 84 of the Laws of 1887. (17) "That the mayor and delegates to be selected by the departments of health, public works, bureau of buildings and street-cleaning, be required to meet annually, between the 15th and 30th days of November of each year, for the purpose of recommending such improvements in the laws, or the execution of the laws, a:s may be deemed necessary." This recommendation has been adopted by the amendment of section 533 of the Consolidation Act in chapter 84 of the Laws of 1887. The recommendation of this committee upon that subject will be found among its other specific recommendations. (18) "That the opening of Leonard street through Pell street, as has been recommended in former years, be carried out." This recommendation has been virtually adopted by the location of a park at Mulberry Bend, though the buildings have not yet been removed from the site. (19) "That the city establish free winter baths throughout the tenement-house districts of the city." This recommendation has not been adopted. In the opinion of this committee, the matter of baths is of great importance, and, consequently, this committee unites in a recommendation that bathing establishments, at which a inall charge shall be made, be constructed. The reasons for this are set forth at greater length in another part of this report. (20) " That electric lights be placed in the streets of the tenement-house districts." This recommendation has not been fully carried into effect. In the opinion of this committee, the matter is of great importance, and, consequently, it has united in a second recommendation to the same effeat. 62 LAWS OF OTHER STATES AND COUNTRIES. This committee has made a careful examination of the laws regulating the construction and use of tenement-houses and dwellings for the poor in other States and foreign countries, as well as those in force now and previously in the State of New York. As a result of this investigation, they are firmly of the opinion that the laws of this State are, in this respect, superior to any that prevail elsewhere. The statutes of other States upon the subject are very meagre and in many oases are substantial copies of laws that have been passed here. The only foreign statute which they think it would be wise to follow is a clause in the British Housing of the Working Classes Act, of 1890 (see 53 and 54 Vict, ch. 70, section 21), which provides for the condemnation of unsanitary buildings, upon compensation to the owners, and contains careful provisions to prevent any undue increase in such compensation because of excessive profits due to overcrowding, sanitary defects or lack of repair. Eminent philanthropists and students of social science, who have testified before this committee, have called attention to, and in some cases have recommended the adoption of laws similar to those which prevail in Great Britain and Belgium, by which in Great Britain municipalities are authorized to construct tenement and lodging. houses and let them to their inhabitants, and in Belgium the State, through banks, which it controls, may loan money to artisans for the purpose of constructing their own dwellings. An investigation of this subject by the committee has shown that large amounts of money have been expended for the first purpose in Glasgow and Liverpool. The result is said to be an improvement in the sanitary condition of their inhabitants; but the proof of this is not conclusively established by the statistics. Complaints have been made, on the other hand, by taxpayers and propertyowners, that the result has been to greatly increase the tax. rates and also, to some extent, to discourage improvement in similar buildings constructed by private owners In Liverpool, taxpayeri and property-owners have formed an association which has retained counsel with the object of checking any further expenditures in that direction. This connmibtee is not prepared C3 to recommend either of these measures; nor other measures of a somewhat similar character urged by distinguished sociological scholars and philanthropists. The laws adopted at the recommendation of the commission of 1884 have hitherto failed to accomplish much of the relief which was expected from them. This is due, in the opinion of this committee, largely to two causes: (1) The fact that the board of health has not a sufficient force at its disposal to compel their enforcement; and (2) that subsequent laws, especially chapter 288 of the Laws of 1887, chapter 486 of the Laws of 1890 andr chapter 30 of the Laws of 1891, and chapters 275 and 329 of the Laws of 1892, have given, at first to the board of health and subsequently to the building department, power to dispense with the enforcement of these laws in particular instances; the practical result' being that such dispensation has been given to almost every applicant. These two evils this committee has sought to obviate in the bills which it has prepared and submitted to the Legislature. This committee is not prepared to recommnend many changes in the laws, or any which are radical. Many of the evils of Swhich complaint has been made are the natural result of poverty, and this committee does not feel itself competent to draw a bill which could legislate poverty out of existence. SPECIFIC RECOMMENDATIONS. This committee recommends: 1- DESTRUCTION OF UNSANITARY BUILDINGS. That power be given to the board of health to institute condemnation proceedings for the destruction of buildings which are so unsanitary as to be unfit for human habitation; with provision for reasonable compensation to the owners in case of such destruction. Nothing is more clearly shown in this report than the necessity, in the interests of the public health, of destroying under due process of law the oldest and worst tenement-houses in the city. 64 Under existing laws the board of health is unable to compel the destruction of tenement-houses, which, in their opinion, are so unfit for human habitation that no repairs or renovation can remedy the evils which they cause. Such buildings can not now be thus destroyed unless they amount to a nuisance, in which case the owner receives no compensation. This committee has consequently dnawn a bill providing for the condemnation of such buildings, and for the payment of compensation to the owner thereof in case of their destruction. This bill has been modeled upon a similar statute which has worked satisfactorily in Great Britain. It expressly provides that no comnpensation shall be given on account of any increase in the rental of a building because of its overcrowding or use for illegal purposes; that in case such a building is in a state of defective sanitation, or is not in reasonably good repair, the amount estimated as its value shall be what it would have been worth if put into a sanitary condition and reasonably good repair, after deducting the estimated expense of such improvement; and that in case the building is unfit and not reasonably capable of being made fit for human habitation, the amount of compensation shall not exceed the value of the materials. 2. CONSTRUOTION OF TENEMENT-HOUSES HEREAFTER TO BE BUILT. That the construction of tenement-houses be improved so as to afford more light and air to their inhabitants and safety from fire, and, therefore, Thiat the present law be amended by depriving the board of health and the building department of the power to dispense with the requirements concerning the amount of open space to be left on the lots where they are constructed; and That no tenement or lodging-house subsequently constructed shall occupy more than 70 percentun of an interior city lot; nor more than 90 percentum, of a corer lot; and that, in computing the amount of the lot covered by building, all shafts or courts 65 of less than 25 square feet in area shall be considered as part of the solid building and not as part of the free-air space. Also as to details as follows: a. That no shaft or court hereafter constructed in a tenementhouse, except elevator shafts or staircase wells, shall be covered with a roof, skylight or otherwise. b. That the walls of all shafts or courts hereafter constructed in tenement-houses shall be fireproof.* c. That in all tenement-houses hereafter constructed the first floor over the cellar or basement shall contain no openings into the body of the house and shall be fireproof. d. That in all tenement-houses hereafter constructed, an open area shall be constructed from the level of the sidewalk in front of and extending the full width of the house, which shall contain a staircase to give access to the cellar from the street, with a proviso that these provisions concerning the openings in and access to the cellars and basements.hall not apply to fireproof structures, nor to buildings of more than 25 feet in width, of five stories or less. with no more than one suite of rooms on a floor. e. That dumbwaiters and elevators or lifts in all tenementhouses hereafter constructed which are not fireproof, shall be located on the exterior walls and shall have no opening into the cellar; and shall be separated from the cellar by solid brick walls and from the other stories of the house by fireproof walls The openings to the elevators or lifts in the stories above the cellar to be provided with fireproof doors hung to metal frames; with a proviso that this shall not apply to elevators operated by a conductor stationed within the car, which, however, if they run to the cellar, must be inclosed there with fireproof walls and *This is n fact covered by requirements of the ezxisin bullding laws T 9 66 have their cellar-door fireproof, hung in a metal frame, and selfclosing. f. That in all tenement-houses hereafter constructed all partitions shall be solid; and all staircases fireproof, except staircases in buildings not more than 25 feet wide, which are not more than five stories high and which contain bnt one suite of rooms on a floor. g. That no fanlight or window shall be hereafter placed in the partition or wall between the hall of any tenement-house which is not fireproof and any room in the same. h. That in all tenement-houses hereafter constructed each room must have a separate window opening into the outer air; and i. Each water-closet must have a window opening into the outer air; and the floor of each water-closet must be made waterproof, so that it can be washed or flushed without leaking. A bill embodying all these recommendations has been prepared; and, in the opinion of this committee,--for reasons stated more fully in a previous part of this report, and also in the supplement to the same,- these provisions will greatly decrease the danger from fire, as well as promote the health of the inhabitants of tenement-houses by securing more light and better ventilation, without greatly increasing the cost of construction. The present laws require in all tenement-houses, five stories and more in height, that the first floor shall be fireproof--though It may be pierced by a staircase or otherwise. The committee finds that the laws relating to tenement-houses and lodging-houses in the city of New York prescribe that no tenement-houses or lodging-houses in this city upon an ordinary lot shall occupy more than 65 per centum of the said lot, and in ifie same proportion If the lot be greater or less in slze than 25 x UT 100 feet; but this provision shall not apply to corner lots, and may be modified or changed in special cases as to lodging-houses by the department of buildings. Section 667 of the same law, as amended' by chapter 329 of the Laws of 1892, also prescribes as follows: "The board of health shall have authority, within present provisions of law, to make other regulations than the foregoing in special cases as to the proportion of any lot to be covered by any tenement or lodging house * * * light and ventilation * * *when it shall be satisfied that such regulations will secure equally well the health of the occupants and the public health, provided, however, that in all such cases any modifications made by such regulations, shall be in accordance with the conditions of a permit in writing issued by the said board of health." Your committee finds that under this discretionary power the area of tenements erected on 25-foot lots has been increased from 75 to 80 per cent of the lot. 3. PREVENTION OF FIRE. That further precautions be taken to decrease the danger from fire in tenement-houses already constructed; that for this purpose a law be passed forbidding, after the first day of September, 1895, (a) the storage in any tenement-house of feed, hay or straw; (b) the maintenance after that date of any bakery or place of business in which fat is boiled in any tenement-house more than three stories in height, in which more than two families live on one floor, and which is not fireproof; (c) that after said date all openings into the halls or other parts of tenement-houses from bakeries or places of business in which fat is boiled shall be closed so as to 'prevent the escape of fire and smoke from them into other parts of the house, and (d) that after the same date all transoms and windows opening into halls from any portion of any tenement-house where paint, 68 oil, spirituous liquors or drugs are stored or iept for sale shall be removed and closed up as solidly as the rest of the wall, and all doors leading into any such hall or room from a place thus used in a tenement-house shall be made fireproof. The number of fires in tenement-houses which are started in bakeries and other places of the character described is a fact which deserves attention by the entire community, as well as by the Legislature. The "cruller fire," or fire started by the spilling of fat used in the cooking of crullers, has become a by-word among fire insurance men and other experts. It has been urged upon the committee that where any business whatever is conducted in the basement or first floor of any tenement-house, the wall into the hall should be closed solidly, not only as to transoms and windows, but as to doors also. The committee is not prepared to ask for such a radical measure, but has deemed it important to recommend the regulations herewith presented, in view of the fact that while tenement-houges constitute less than one-third of the buildings in the city, they supply more than onehalf of the fires. A bill has been drawn, which it is believed will not unduly interfere with the transaction of any business of the character mentioned, or with the wants of the community. L HEIGHT OF BASEMENT CEILINGS ABOVE GROUND. That ceilings of all basements occupied as human habitations be at least two feet above the level of the ground adjoining. Such a bill has also been prepared. While in cellars or basements the moisture from rainfall may be confined in a large measure by concrete walls and tight flooring, yet even when these are in place a certain amount will penetrate them. When people live constantly in a moist atmosphere, and especially when they sleep in a place where they are exposed to moisture, there is a tendency among them to certain forms of disease. Ventilation of basements both supplies the fresh air necessary to carry on the proper functions of life, and carries off the moist 69 ure which would otherwise do injury. Experience proves that while the air will renew itself in basements having ceilings one foot above the sidewalk, there is not sufficient volume of it in movement, and every foot added to this height increases the volume of air in movement. The present provision of the law permitting the occupancy of basements the ceilings of which are but one foot above the level of the sidewalk also fails to afford sufficient sunlight to enter the premises. 5. REMOVAL OF WALLPAPER. That no wallpaper shall be used in any tenement or lodging. house subsequently constructed, and that wallpaper now on walls or ceilings of any tenement or lodging-house shall be removed within sixty days after the passage of an act for that purpose; the board of health to have power to make exceptions in certain specified cases. Such a bill has been drawn by the committee, with a provision authorizing the board of health to permit wallpaper to be used in the better class of apartment-houses, or in houses in which not more than one family occupies the same floor, or in apart. ments. which contain more than three rooms. It is the opinion of sanitary experts that wallpaper attracts dirt and germs of disease; that it is hard to clean and to disia feet, and that it harbors vermin. 6. THE LIGHTING OF HALLS. That the owners of houses in which the halls are not sufficiently lighted from without shall be compelled to supply in such halls sufficient artificial light, and that the halls of all tenement-houses upon each floor shall be lighted until 10 o'clock at night The testimony taken and examinations made by this commit. tee have satisfied it that the darkness of the halls of the tena ýaent-houses at nighl and the darkness by day of the halls withput windows in many tenement-houses have promoted the accumulation of filth and of germs of disease; have been a frequent ause of accidents, and have also facilitated immorality and crime. The darkness of halls is also a serious danger in case of gre. For this reason the committee has drawn a bill which provides that in every tenement or lodging-house the owner or lessee shall keep a light burning in the hallway upon each floor from sunset to 10 p. m., and that in every tenement-house in which there is a hallway without a window a light shall also be maintained by the owier or lessee in such hallway between the hours of 8 a. m. and 10 p. m. Laws requiring lights throughout the night ih corridors and on staircases in hotels, boarding and lodging-houses, are in force in Massachusetts; and similar laws exist in other States. In this State laws and local regulations are in force requiring red lights in hotel corridors. 7. OVERCROWDING. That the law be amended so as to make it mandatory upon the board of health to prevent the overcrowding of tenement-houses, so that in case of insufficient ventilation at least 400 cubic feet of air shall be afforded to each adult and 200 to each child under 12 occupying a room in such tenement-houses instead of leaving the same disoretionary with the board of health, as is the case at present, This provision is obviously desirable, and with an Increased force at the disposal of the board, this work can be done more effectively. Such a bill has, therefore, been prepared. & THE USE OF TENEMENT-HOUSES FOR LODGINGHOUSES, STABLES AND FOR STORAGE AND) HANDLING OF RAGS. That the board of health shall not be permitted, under any oircumstances, to allow a tenement-house to be used as a lodgingbouse, stable or for the storage or handling of rags. 71 These uses of a tenement-house are all liable to cause the spread of contagious diseases, and the board of health desires to be relieved of the responsibility attaching to its present authority to make exceptions to the law forbidding such uses of tenement-houses. Accordingly this committee has drafted such an amendment to the existing law upon the subject 9. DISCRETIONARY POWERS OFTHE BOARD OF HEALTH. That the discretionary powers of the board of health in regard to tenements and lodging-houses be restricted so that they shall only apply to cellars and ventilation and permission as to private schools in tenement-houses; and, in certain cases, as to the use of wallpaper in tenement-houses, and only to regulations concerning these which are consistent with the other provisions of the act. It is the opinion of this committee that the amendment to section 667 of the Consolidation Act by chapter 329 of the Laws of 1892 was unwise. Said amendment gave the board of health discretionary power to nullify most'of the provisions of the title of the Consolidation Act in relation to tenement and lodginghouses by dispensing with their execution in certain cases. It seems to this committee that section 667, as originally enacted, gives quite sufficient power in this respect to said board. Section 667, as originally enacted, is as follows: "The board of health shall have authority to make other regulations as to cellars and as to ventilation, consistent with the foregoing, where it shall be satisfied that such regulations will secure equally well the health of the occupants." The amendment is as follows: "The board of health shall have authority, within present provisions of law, to make other regulations than the foregoing in special cases as to the proportion of any lot to be covered by any tenement or lodging-house, as to cellars, supply of water above the first floor in any house and the providing of fixtures therefor, light and ventilation, and the use of building or premises occupied for a tenement-house for a 72 school or stable or for storage of rags, when it shall be satisfied that such regulations will secure equally well the health of the occupants and the public health, provided, however, that in all such cases any modifications made by such regulations shall be in accordance with the conditions of a permit in writing issued by the said board of health." This committee, consequently, advises the amendment of section 667 by the enactment of its original language and has drafted such a bill. The committee, however, suggests, as stated above, the continued power to permit private schools in tenements. 10. THE FILING OF OWNER'S NAMEj. That the present law requiring the owner and every person having control of a tenement or lodging-house to file in the department of health a notice containing his name and address and description of property be amended so as to make the same more easy of enforcement. A bill for this purpose ias also been prepared. And the committee further recommends that the board of estinimte and apportionment appropriate annually to the use of the board of health sufficient funds for the employment of a special clerkl to record and index the notices thus filed. (This subject is fully discussed in that part of this report concerning the recommendations of the commission of 1884.) 11. INCREASE OF THE HEALTH BOARD'S INSPECTION FORCE. That 15 additional sanitary inspectors be added to the force of the health department, and that 5 more sanitary police be detained from the police department to the health department, and that all police officers hereafter detailed from the police department be selected for their peculiar fitness from amongst those who shall pass a civil service examination by 73 the supervisory board of commissioner of the New York munid pal civil service. The larger part of the work of this committee, and especially of the house-to-house examinations by its agents, tends to show the absolute necessity of such an enlargement of the force of inspection of the New York Board of Health, and a law to that end is herewith submitted. It is necessary not only that the law should be obeyed which requires two semi-annual inspections of tenement-houses, but that the inspections should be virtually continuous. 12. SMALL PARKS, WITH PLAYGROUNDS., That within the next three years not less than two small parks, a part of each of which shall be constructed as public playgrounds, shall be laid out and begun in the district east of the Bowery and Catharine street and south of Fourth street, and that the city be authorized to issue its bonds to the amount of $3,000,000 for such purposes. In the part of the city--thus designated as most urgently in need of the benefits of small parks and of playgrounds dwells, as already stated, a population of 324,000 persons. Each point in the circumference of this tract is not less than 500 feet from any existing or proposed park, and 750 feet from either the North or East river. The exact district in which the committee believes the first additional small parks should be constructed has an area of over 400 acres (402.16), with a quarter of a million inhabitants (248,908). In a portion of this latter district (Sanitary District A, Ward 11) the density is double that of the most crowded part of any other city in the civilized world; and over its entire extent the density reaches the extraordinary figure of 619 to the acre. This committee presents a bill compelling the board of street opening and improvement to locate and begin the construction T In 74 of such parks within three years, and the appropriation of $3,000,000 to be raised by bonds for that purpose. The bill permits schoolhouses and municipal bathhouses to be erected on these especial parks Another bill provides that such additional bonds be Issued as may be necessary for the completion of the park at Mulberry Bend, and further provides for expenditures necessary to complete the two other parks already undertaken under the Small Parks Act. The bill does not abridge the right of the city to expend 1,000,000 annually under the Small Parks Act 13. SCHOOL PLAYGROUNDS. That no school building shall be hereafter erected without the same being provided with a good and sufficient playground, or playgrounds, of a size proportionate to the number of scholars in said school; and that as rapidly as possible proper and sufficient open-air playgrounds be attached to the schools now existing. The committee urges in the strongest possible way that playgrounds be provided for the children attending the public schoois. It is well known that to enable children to undergo the physical strain imposed on them while getting their education, exercise is necessary. The various outdoor games involving exercise are all health-giving, as exercise taken in the open air is much more valuable than that taken indoors. The natural instincts of children all tend in the direction of physical amusement; but we can not expect them to get the full benefit of the play-hour by running about in dark basements. These are their only playgrounds in many of our public schools, while in most of the schools, where so much of the time of the children is spent, the facilities for exercise are utterly inadequate. What is needed is at least one large playground attached to each school, and provision for this in future schoolhouses is contained in one of the bills herewith submitted. 75 The following recommendations, with the exception of the final one, are unaccompanied by bills: 14. RAPID TRANSIT' That, as one of the principal means of. prevention of over crowding of houses and districts, rapid transit facilities be pushed forward as vigorously as possible. Through the peculiar geographical shape of Manhattan islandr and the breadth of the waters on two sides of its large triangle, great benefits accrue to the residents from a sanitary standpoint, owing to the abundant fresh air and excellent facilities for drainage through the North and East rivers. But the crowding of population described in various parts of this report, while it can be dealt with favorably by several methods herewith suggested, can, it is believed, be more effectually remedied by a sufficient system of rapid transit than in any other way. 15. MUNICIPAL BATHING ESTABLISHMENTS. That, in addition to the free floating baths, maintained il the summer months, the city should open in the crowded di* tricts fully equipped bathing establishments, on the best Euro pean models, and with moderate charges. The committee ma1ke the above rewmnmaendation in the interests of the public health. Hundreds of thousands of our pop.lation are without sufficient bathing facilities, while it is evident that the bathing habit increases among them in propor tion to the opportunities afforded. The baths now maintained by benevolent organizations at small charges are principally rain baths. The bathing habit abroad has been greatly increased owing to the popularity of the swimming baths, and it is believed that municipal establishments here will be more successful in accomplishing their purposes if swimming baths be included. in their arrangements. 76 16. DRINKING FOUNTAINS AND LAVATORIES. That numerous drinking fountains and sufficient public lavatories be established in the tenement-house districts. The most crowded districts of the city are destitute of such ordinary conveniences; and the same should be promptly provided. In foreign cities, as appeared in. the testimony at the public hearings, lavatories of an elaborate character have been built, with accommodations for which moderate charges are made. 17. ELEOTRIC LIGHTS. That the electric light be extended as rapidly as possible throughout all parts of the tenement-house districts. The committee believes that great good would result from the extension of the electric light system throughout the whole city. It is beyond question that nothing tends so much to prevent crime in the streets as abundance of light. While some portions of the city are fully lighted at night, others exist where sufficient artificial light is not provided; and the criminal records show that the majority of crimes against the peison take place in the latter sections. 18. EXTENSION OF SMOOTH PAVEMENTS. That the system of asphalt pavements be extended as rapidly as possible throughout the streets of the tenement-house disticts of the city. It would seem that this style of pavement is of ali others the easiest to keep clean, owing to its smoothness Traffic through the streets on which tenement-houses are built is not, as a rule, heavy enough to require the more solid pavement of stone. In the latter pavement, while it will stand more heavy 77 trucking than any other, there are small cracks or interstices between the granite blocks, and in these dirt and other matter lodges in such a manner as to prevent the mechanical sweeps from removing them. Most of the material found in street sweepings, especially in tenement districts, is composed of animal and vegetable matter, containing micro-organisms of pathogenic character. Not only can asphalt pavement be thoroughly swept, but, when necessary, as in times of threatened epidemic, it may be washed as clean as the floor of a house. It was stated by a witness before the committee that an objection to the asphalt system had been made on the ground that, owing to the absence of noise when carts or wagons are driven over it, children playing in the street are not warned of the approach of these vehicles, and are, therefore, in danger of being run over. The committee has considered this reasoning carefully, but it finds itself unable to attach any great importance to the objection. This very absence of noise is one of the greatest advantages of the system, especially in the more crowded tenement-house districts. 19. SCHOOLHOUSES AND KINTDERGARTENS. That a thorough inquiry be made as to the condition of the older schoolhouses in New York, and as to the sufficiency of school accommodations in general; and that the number of kindergartens be largely increased in connection with the public school system. From information obtained from the bureau of education at Washington, and from direct correspondence with boards of education throughout the country, the committee learns that in 180 communities of the United States kindergartens are at the present moment maintained either by the State or local authorities, and in 162 communities they form a part of the local public school system. Outside of the normal college, the city of New York sustains but seven kindergartens, with 191 pupils. Eleven cities in the country maintain more kinder 78 gartens than are connected with the public schools of New York. Rochester, in this State, has more than New York, and there are nearly twice as many in Albany, while such cities as Milwaukee, Philadelphia, Boston and St. Louis have each from ever 40 to 84 kindergartens. From every city where the committee has made inquiries comes strong indorsements of the system, and there is a constant increase in the number of kindergartens. There is no city in the country with greater need for public kindergartens than New York, and there are few of the larger cities so poorly supplied with them. 20. PROSTITUTION IN TENEMENT-HOUSES. That a law be passed making the offenses of soliciting and the maintenance of houses of prostitution in tenement-houses punishable with greater severity,than when they are committed elsewhere. The reasons for this recommendation are given in full in the report of the secretary, and in some of the testimony at the public hearings. 21. COMMISSION ON TENEME1NT-HOUSE~ That the present tenement-house board, consisting of certain city officials, be abrogated, and that special commissions, with fall powers of examination and recommendation, be constituted ly the Legislature at intervals of not more than five years. The committee is informed that the board, which was created in pursuance of the recommendation of the tenement-house commission of 1884, has failed to meet regularly; and in fact few recommendations have been made by them; though an inter. eating report was by them issued during Mayor Heweitt's term. The individual ex-officio members of the commission can effectively improve tenement-house conditions simply by doing their duty in executing the existing laws The committee is of the opinion that a permanent commission for the purpose of recoin 79 mending changes in the law, which they have no power to enact, is an anomaly in our jurisprudence; experience has proved its inefficiency; and it is consequently recommended that this law be now repealed; and the committee has prepared a bill to that effect. It suggests, in its place, that another statutbory commission upon the subject be created by the Legislature every five years. There is no civic problem so difficult %r of such vital importance to the health and morals of the people of the city of New York. t. W. GILDER, Chairman. CYRUS EDSON, ROGER FOSTER, SOLOMON MOSES, GEORGE B. POST, JOHN P. SGHUOHMAN, WILLIAM IY.L WASHINGTON, EDWARD MARSHALL, Scretarq. SUPPLEMENT No. I Secretary's Report, Gentlemen.--I have the honor to report the result of the investigation of the tenement-houses of New York city, which I have made at yo'ur direction: A tenement-house, in the eyes of the law, is a building in which three or more families live independently. The health board reports the existence of 39,000 odd tenement-houses in New York city. A certain proportion of these consist of high-class apartment and flat-houses, which at the discretion of the board are omitted from its regular tenement-house examinations and reports, and which do not, properly, come under the jurisdiction of your committee. Thirty thousand odd of the remaining tenement houses were, however, so inspected by your committee's examiners that from them 8,441 were selected as demanding detailed examination because of various imperfections. The object of this examination was to discover the worst conditions and their extent, and from the 8,441 houses inspected, I have selected 3,984 as typifying this. Reports upon these buildings have been, therefore, transmitted to your committee, while 4,457 reports on houses which I have deemed to be in too good a condition to illustrate the worst phases of existing conditions, have been thrown out. The investigation began June 3 and ended December 4. It was carried on by four corps of examiners. The first two corps inspected 2,425 houses reported to your committee by the board of health as being in a persistently unsanitary condition. These were thought to be the worst houses in the city. They were examined with the utmost care. The duties of the first corps were to examine and report separately on the condition of each family in these 2,425 houses and the condition of the apartment in which it lived. This examination covered 15,726 families, concerning which the following details were called for on the inspectors' reports: Date of visit. Street and number. Number and size of rooms in this apartment 11 82 Cleanliness of this apartment. Location and amount of water supply. Is there a bathroom in this apartment? Number of families in this apartment. Number of persons not boarders in this apartment. Number of boarders age and sex. Total number of persons over 16, male and (separate question) female. Total number of persons under 16, male and (separate question) female. Original nationality. Weekly income per family. Rent of this apartment Sanitary defects of this apartment, Defects of lighting and ventilation. Following this a space was left for such additional remarks as the inspector wished to make on points not covered by the questions. The inspector was then instructed to sign his name in full so that responsibility for false reports might be readily placed. This inspection was finished August 10. The greatest care was taken to insure accuracy and I am reasonably certain that no false reports are on record among the papers of this committee. Reinspection of houses selected at hap-hazard was constantly carried on with a view to detection of carelessness or corruption on the part of the inspectors. Thus the committee was safeguarded against both. Simultaneous with the beginning of this inspection, the second corps was set to work on an examination of the construction and sanitary condition of the same houses. Like provisions were made to insure the accuracy and honesty of this corps. The printed questions for this inspection were as follows: Date of visit. Street and number. How many stories in this house? What is its age? What is the material of its construction? What is its general condition as to dilapidation? What is the sanitary condition of its halls as to cleanliness? What is the general condition of its halls as to light (day and night) and ventilation? What is the number and location of its water-closets and school sinks? 88 What is their condition? What business is conducted on the premises, if any, and in what part of the building? What is the size of the yard? What are the conditions as to cleanliness and ventilation of the cellar of this house and what is it used for? What is the floor material of this cellar? How is this cellar ventilated? Is the name of the owner or agent posted anywhere in this building? What is the name of the owner or agent? Is the front door left unlocked at all times? Are the fire-escapes in good order and free from obstructions? Following this came a space for remarks and for the agent's name. This inspection ended somewhat in advance of the inspection of families. While these two inspections were in progress a third was looking into the condition of cellars ordered vacated as living apartments by the board of health. This investigation was chiefly valuable in adding to the committee's general knowledge of tenement-house conditions, but its tabulated results are not of enough importance to warrant their consideration by your body. A gratifying result of the examination was establishment of the fact that the health board's orders had been very generally obeyed. THE ENTIRE CITY INSPEOTED. It at once became evident that there were many dilapidated and unsanitary tenement-houses in New York city, which were not included in the health board list of 2,425 houses. At the direction of your body, I then began an inspection which was calculated to seek out every improper tenement-house in the city of New York. I divided the city up into districts and instructed four experienced inspectors to report the street and number of every house, not already included in the health board's list, which, from a cursory examination, they deemed to be an improper place for human beings to live in, whether from dilapidation or unsanitary construction of the structure, defective plumbing, lack of fire-escapes, unsanitary surroundings or other causes. The result of this labor was the preparation of a list of 6,809 houses, for which a new list of questions was immediately 84 prepared. In the limited time then before the committee, and with the limited means at its disposal, it would have been impossible for it to make as complete an inspection of these houses as had been made of the original 2,425. One corps of inspectors only was detailed for this work and no separate examination was made of families as distinguished from the houses in which they lived. It was the desire of the committee to obtain, by me ans of this examination, complete knowledge of the number and exact cordition of the notably bad tenement-houses only. and the inspectors were instructed to omit reports upon any houses which they found to be in so good a condition that they could not justly be so classed. They were also instructed to deliver to me every night a list of such good houses as they had stricaen from their roll during the day and such reinspection was made of these houses as to satisfy me that the returns made were fair and intelligent. Great care was also exercised in preventing the return of any house as being in a worse condition than that in which our inspectors really found it. The printed questions given to the fourth corps of inspectors covered the following points: Date of visit. Street and number. Stories in house. Age of house. Material of construction. General condition as to construction. Sanitary condition of halls as to cleanliness. Manner of lighting halls day and night. Ventilation of halls. Number and location of water-closets and school sinks. Condition of closets. Business conducted, if any, and where. Sanitary condition of business premises. Size and condition of yard. Cleanliness, condition, etc., of cellar. Floor material of cellar. Manner of ventilating cellar. Name of owner or agent. Is the front door open at all times? Condition of fire escapes, as to construction and obstruction. General condition of apartments as to cleanliness. Number of rooms in each apartment. Location of water supply -yard - halls - apartments. 85 Its relation to the reasonable requirements of the house. Number of apartments in this house. Number oocupied. Population over 16-male; female Population under 16- male; female. Nationality. Average rental. Number of rooms in each apartment without direct light Ventilation of apartments - good - fair - bad. Sanitary defects as to plumbing and drainage. Sanitary surroundings good or bad. (Detail.) The sources of bad odors, if any exist. Any apartment used for immoral purposes. Whether the house was originally built for tenement purposes. A space was left at the bottom of the report for remarks and the inspector was required to sign his name in fulL RANK AND FILE OF THE WORKERS. The committee from the beginning worked under a serious handicap in carrying on these investigations. The task was such a vast one, and the necessity for absolute accuracy so great, that at first it seemed impossible to execute it without the employment of skilled examiners. There did not exist in New York city, however, any large number of men having expert knowledge of such work, so it.became my duty to select men of high intelligence to be trained in the task. The health board gave valuable assistance in this training. The basis of the committee's corps of inspectors was formed by the selection of the best of those who had been employed by the Church Temperance Society (whose investigation had just ended) and to these were added from time to time college men who were willing to work through the summer vacation --and among these were several accomplished sanitationists and engineers - one or two professional men and several very intelligent laymen. Nine women were also employed for a time. The selection was made most carefully and no similar work was ever executed with a higher average of intelligence among the rank and file of its workers. The especial thanks of the committee are due, for faithful and unselfish work, to inspectors J. M. Brody, B. S., C. E.; Henry M. Leverich, Meyer Joffe, B. S., C. E.; Julius Oohen, B. S., C. E.; and George M. Price, M. D. The results of these investigations show: TECESSITY OF REGULAR INSPECTION. 1. The danger which arises from neglect of the semi-annual Inspection of tenement-houses required of the health board by law. Omitting from the technical tenement-houses, such flats and apartment-houses as do not properly come within the province of the semi-annual inspection, it is proper to say that almost no houses which do not contain defects of construction, plumbing or drainage in direct violation of the sanitary or building code can be found. I have, myself, inspected probably 100 of the better class of houses, with the idea of proving this untrue, but I have, as yet, found no house to be perfect in every respect. This being true of practically every tenement-house in New York, and your committee's examinations having shown that 3,984 tenement buildings are in such bad condition as to be practically unfit for human habitation, the vital importance of carrying out regularly and thoroughly the health board's semi-annual inspections is apparent at a glance. The health board, as it is at present supplied with inspectors and sanitary police, has not a sufficient force with which tc accomplish this work. Your committee's recommendation that the health board's inspection staff be increased is, therefore, fully supported by the results of this examination. Not one of the sanitary laws is more important than that calling for a semi-annual inspection of tenementhouses. WHITEWASHING. 2. The law most frequently violated is that requiring a semiannual whitewashing of all halls and apartments of tenementhouse buildings. Whitewash is a purifier and disinfectant and its free use should be exacted by the board of health. MATTING AND CARPETING. 3. The theory that in many of the better class of tenementhouses the presence of matting or cheap carpeting upon the floors of the hallways, while perhaps it adds comewhat to their appearance of comfort is, in reality, a menace to the health of the inmates, is fully confirmed. This matting or carpeting has been found, in many instances, to be soaked with moisture and filled with dirt, and must be a medium for the culture and spread of disease germs. It could not be readily cleaned and indeed no effort is made to clean it. The use of matting or carpet in tenement-house hallways should be prohibited by law. WA~L PAPER. 4. Conclusive proof that the presence of paper on the walls of tenement-houses should be discouraged if not prohibited, has been developed by this investigation. Instances innumerable have been found where wall paper literally black with filth and rotten with age can not be other than a menace to the health and lives of the inmates of the buildings. Torn wall paper also affords convenient lodging places in its loose places for vermin. But more important than these objections is the fact, upon which expert sanitationists agree, that the porous nature of wall paper offers an opportunity for the retention of the germs of contagion, which should not be disregarded. This is often increased by the super-imposition of one layer upon another until the walls are covered by a spongy mass, whose minute crevices and pores offer perfect lodgment to microbes and all manner of dangerous germs. PLUMBING. 5. In a large proportion of the houses reported by the inspectors of your committee as being in improper condition, it has been found that defects exist in the plumbing. At present the inspection of plans for plumbing of new buildings is a part of the duties of the building department, having been transferred thereto from the health department in 1888. In the opinion of miany experts this was a mistake. The inspection of all plumbing plans should, in my opinion, be returned to the board of health. I do not wish to intimate that the building department has been shown to have exercised other than the most scrupulomu and intelligent care in the inspection of plumbing plans. It would seem to your secretary, however, that plumbing, being a sanitary matter, should be placed in charge of that department in which is to be found the more expert sanitary Iknowledge. It must be admitted, however, that some inconvenience would be entailed upon builders were they compelled to file plumbing plans with the health department, while all other plans were filed with the building department. It seems reasonable to believe, however, that this disadvantage might be adjusted. INSPECTION OF BUILDINGS. 6. I would respectfully suggest a more comprehensive inspection of tenements by the building department, or by someone comipetent to report on defective construction and dilapidation to that department. As will be seen in the summary of the 88 committee's inspection, dilapidation often amounting to a dangerous condition exists in a startlingly large number of houses. This should receive careful official attention. PROSTITUTION. 7. The presence of many immoral women in the tenementhouses, where they are thrown in contact with respectable people, and, worse than that, with large numbers of ignorant and innocent children, forms a most deplorable condition. There has been a manifest increase in this condition during the past year or 18 months, and there is no doubt that the influx of prostitutes into actual residence in tenement-houses la due to the police raids, which have closed most of the houses of ill-fame in the tenement-house districts. Under the old order of things, no matter what its evils may have been, the immoral women occupied houses by themselves. At present they form a part of the life of the great tenement-houses, and thus their contaminating influence is felt far more directly by the general public than was formerly the case. The tenements always have had, and probably always will have, their share of immoral women- of a class peculiar to them and separate from the professional prostitutes driven of late into them, from houses of ill-fame. Most of this tenement class consists of women who have been abandoned by their husbands, and who, in order to support themselves and their legitimate children, are driven to depend to some extent upon evil sources of income. Such abandonment is distressingly common among certain foreign nationalities. Probably 50 cases have been brought to your secretary's attention. These women, however, generally work when they can, and turn to prostitution only as a last resource. They are surrounded by none of the glamor of the professional prostitute; do not ordinarily live or dress more elaborately than other inmates of the house in which they live, and are generally regarded with more pity than envy or resentment by their neighbors and their neighbors' children. Thus they are not so especially dangerous to the morals of the house. But an apartment full of such prostitutes as have now been driven into the tenements, where they are surrounded by comparative luxury, and live lives of apparent ease, in the midst of a houseful of adults and children whose frugal, honest living is obtained only by the hardest of work and the most rigid economy, can scarcely be less dangerous to the moral health of the house than an apartment full of cholera-infected persons 0: FIG. 1.- No. 903 Third avenue, front. - No fire escape front or rear. FIG. 2.- No. 903 Third avenue, rear.- No fire escape front or rear. FIG. 3.- Nos. 20-22 Ludlow street.- Obstructed fire eseapes. F FIG 4. Unoccupied area in rear line of block, Canal, Forsyth, Bayard and Chrystie street-. 89 would be to its physical welfare. The suppression or regulation of prostitution is a matter of such great import and complexity that suggestions concerning it as a whole should not be made without such careful research as a commission especially appointed for that purpose might make; yet the condition existing in the tenements to-day is so perilous that it might well be made the subject of immediate action. I would suggest the passage and strict enforcement of a law providing especially severe penalties for the maintenance of places of prostitution in buildings occupied by three or more families, and making it a part of the duties of all inspectors of the health department (as they came in closer contact with the actual life of the tenements than anyone else) to search for and report such cases to the proper authorities. It is proper to explain why the summaries of this inspection do not bear out any general statement of an intux of prostitutes into the tenement-house districts. Less than 100 apartments devoted to purposes of prostitution are reported out of a total of 3.948 houses investigated; but it must be remembnered that the houses of which I have transmitted reports to you are the worst in the city. The prostitute, being comparati-ely prosperous, ra-ely rents an apartment in such a house. H-er field is in the tenement of the middle and best class, and thus the population with which she is thrown in contact is of even greater importance to the conmmunity at large than that occupying the houses with which this inspection directly has to do. FIRE ESCAPES 8. I wish to call particular attention to the result of the committee's investigations of fire escapes. It will be seen that a large number of houses are reported as being entirely without fire escapes, and that another large number of buildings is reported as having an insfilicient number. The latter reports mean that there are apartments in the hoiues which have no direct conmmuication with the iron fire escapes, and that in case olf fire, their imnates would have difficulty in rcaching the means of egress provided. The testimony of clicials of the fire department at the public hearings of your (':lnmmittoe showed that the fi, ll and stairways of nion,-fireproof t(onent nt-houses are generally the parts' of the buildings fir-ct to be rendered dangerolus by flame and smaoke. This Leing the case it seems unwise to force the occupants of any part of a T 12 90 tenement-iouse building to pass through the halls to other apartments before they can gain aoces to the fire escape. I would respectfully suggest that it should be rendered obligatory upon the owners of tenement-houses to provide fire escapes which connect directly with one or more windows of each apartment. It will also be observed that a very large number of tenement-houses are reported as being entirely without fireescape accommodations. The law as it stands at present calls for escapes on each tenement-house wherein three or more families live above the ground floor. This omits from the operation of the Fire-escape Law many buildings which are quite as dangerous to human life as they would be if they were higher and occupied by a greater number of tenants. A building may be occupied by only two families above the ground floor, and yet thosle two families mnay be in danger quite as deplorable as would threaten five families if they occupied the same space. I do not see the logic in omitting to require safeguards, simply because a dangerous habitation is occupied by only two families above the ground floor. Furthermore it should be noted that most of the houses which are occupied by only two families above the ground floor are of ancient construction and often built entirely of wood. Thus the houses which are exempt from the provisions of the Fire-escape Law as it stands at present, are really the most inflammable structures in the city of New York. I would respectfully recommend, therefore, the passage of a law requiring fire-escapes to connect directly with every apartment in every tenement-house in the city of New York and to be, invariably, supplied with ladders. In addition to the fire-escape statistics reported in the regular examinations, a separate study shows 42 violations of the law, leaving 177 families unprotected, out of 146 houses without fire-escapes. The remaining 104 houses, although they do not come under the law as it exists to-day, contain 386 families. This, in a measure, shows how large a number of persons are constantly exposed to the danger of death by fire, because of the lack of a provision such as I have outlined. Among the last statements which Battalion Chief Bresnan made to your committee, was a recommendation of this character. The heads of the fire department, without exception, are in favor of the passage of a law requiring fire-escapes on all tenementhouses. Figures 1 and 2, which accompany this report, give a very good idea of some of the flagrant violations of the law now existing in this city. They show a four-story tenement-house wholly without fire-escapes. Figure 3 shows a case of obstructed fire-escapes. The department of buildings is now 91 pressing 441 cases against owners of tenement-houses not provided with fire-escapes according to law, and during the past year 1,283 cases have been forwarded to its attorney for prosecution. The obstruction of fire escapes offers a problem difficult of solution. It prevails to a serious degree, and the danger resulting from it is great. The fire at 129 Suffolk street, of which I made a special investigation at your direction, resulted in the loss of one life which could easily have been saved had it not been for the presence of washtubs and otlier impediments on the fire escapes. Living in tiny apartments, crowded by both human beings and furniture, it is not surpri-in4m that dwellers in the tenement-house districts are prone to relieve the congestion of their rooms by packing articles, not in actual use, on the convenient iron balconies. They cana not understand and can not be made to understand that they thus endanger their own lives and those of others. At present the only effort made to prevent obstruction of fire escapes is the inspection by the firemen. This must, because of the nature of a firemai's duties and especially because of the necessity for constantly keeping men enough in the stations to handle the apparatus in case of an alarm, be only casual and far from thorough. In,[pection by the police is a dead-letter. Thus it has become not at all an unusual sight to see fire escape balconies not only temporarily clogged by hcusehold furniture and the general superfluities of the house, but to see them rendered permanently useless by the presence of heavy packing cases and other objects too cumbersome to be moved at all in time of hurried danger. I would respectfully recommend that the facilities of the fire department for inspection of fire escapes be increased, and that police patrolmen be required to report on the condition of fire escapes on their respective beats, daily at the station-houses; their reports to be promptly transmitted to the fire department. If this were( done patrolmon should be instructed to visit the yards back of tenements and courts between front and rear tenements, for the purpose of learning the condition of fire escapes not visible from the street. OLD BUIDLINS,. 9. Your report on the death-rate in New York city shows that one of the most important elements which go to make it high is the presence of old and dilapidated lmildings. This inspection showvs that there are many houses in the city in an umsanitarj condition which absolutely unfits them for habitation by 92 huaan beings. Thus your committee's call for a law by which the board of health can take action looking to the final destruction of such structures is abundantly justified. The Building Department at present has power to destroy buildings which are deemed likely to fall,but the health department can only order the vacation of building so infected with contagion or so unsanitary in other ways that they menace not only the lives of their occupants but those of the inhabitants of surrounding buildings. This is a municipal inconsistency. LACK OF VENTILATIVON. 10. The number of buildings now existing which were constructed prior to the passage of the new laws calling for air and light in each apartment and for well-ventilated halls, is to the number of buildings cnastructed under the new law about as 20 to 1. Thus the board of health is confronted by a large number of buildings of which the owners can not be forced to meet the requirements of the present sanitary laws, and which, by reason of their defective construction, are dangerius to life and health. One of the chief sources of this danger is the lack of ventilation to which I have just referred. I would respectfully suggest that additional powere be given to the board of health with a view to securing the proper ventiltion of halls and apartments through the cutting of windows in the walls of the building itself, or through the removal of obstructions, such as walls, fences or other buildings which may exist on adjoining lots. This frequently could not be done without condemnation and reimbursements. Authority to this effect should, therefore, be added to the health board's powero. LIGHT IN HALLWAYS. 11. Reference to the summarized figures of this investigation will show that in many of the houses examined the hallways are improperly lighted. This, according to the testimony of every expert of whom I have knowledge and according to the statements of the committee's own inspectors, is a fruitful source of immorality, ill health and accidents to life and limb. It is the custom in the majority of these houses to burn one gas jet or oil lamp in the hallways from dusk till 10 p. m. Provision is rarely made, however, for the lighting of d.ark hallways during the daytime, although many of the hallways are as dark at noon as they could be at midnight. A special investigation of the accidents which FIG, 5. Showing open area at 84 Laight street. A; FIG. 6. Showing open area at 13 Vestry street (continuous with 34 Laight street). - S. r 0-f us A Co wo Oe 0 we. Ce eo. cr.4 0' Cc 8. I~ a VrI *1 p F(. 8, Showing rear line of block, Mulberry, Bayard Mott and Park streets - space, 18 inches. /77 Kr 4 93 iave been cauned by dark hallways has been made by one of the committee's inspectors and the results obtained by this study alone, I think, are sufficient to warrant the recommendation of a law demanding that artificial light should be burned during the daytime in dark tenement-house hallways. It is known that many persons are annually injured by falling down stairways and otherwise suffering accidents for no other reason than that the hallways are improperly lighted. Unfortunately the hospitals of New York keep no record of the first causes of accidents, so I am unable to present a definite statement on this subject. The widow of a man killed by stumbling in a dark hallway testified before your committee. Another reason for the lighting of halls is purely sanitary. The experience of at least one careful student has shown that the admission of light into a dark hallway, which was in a deplorable state of dirt and filth, was sufficient, without further suggestion, to induce the tenants to properly clean the hallway. This instance is described in detail in the report (Supplement No. 2) on Miss Ellen Collins' model houses on Cherry street. Dirt which can not be seen is not likely to be taken heed of. Dirt which is visible is a constant reproach to the tenants, as well as to the landlord of the house, and is unlikely to be long neglected. It may further be stated in this connection that one of the greatest menaces to health in the tenement-house, as it exists to day, is the saturation of the walls, floors and everything else in the neighborhood of hallway sinks with Croton water and slops. It is thus that sinks in tenement-houses become centers of unhealthful influence. In almost every oase this condition can be traced to the lack of light in the hallways. A woman going to the sink to fill her pail with water or to empty into it refuse water, is doubly likely to spill the contents of her pail if the hall be so dark as to for.ce her to wholly or partially feel her way. And the very lack of light, which originally caused this mishap, is certain to aggravate its results. If the hall is dark, having spilled the water or slops, she is unable to see what she has done, and, therefore, does not attempt to remedy it. Light in the hallways would not only in most cases prevent her from wetting the floors of the hallways, but would, in case she did accidentally do so, generally induce her to clean up the mess before she left the hall. It is true also that tenants throw refuse of improper character - such as bedroom water and human excreta--into the sinks of dark hallways more frequently than into sinks in well-lighted hallways. Where darkness makes identification of such an offender improbable, a person inclined 94 to this kind of slovenliness has almost no reason for refraining from carrying out his vile impulse. More than a hundred sinks used for such improper and dangerous purposes were discovered by this examination, and it is generally known to the health board and your committee's examiners that the use of sinks in dark hallways as urinals, is by no means infrequent. These things can not, of course, fail to threaten the health of the house in which they occur. The moral argument calling for light in the hallways of tenement-houses is a strong one. In the heterogeneous population of a large tenement-house it is frequently true that young boys and girls receive first lessons in evil doings in dark hallways which they would entirely escape were their actions, while passing through or pausing in the hallways, open to the view of the other tenants in the house. The impressions of the committee's examiners confirm tholse of such students as Mr. Jacob A. Riis and others on tlhis point. Thus this examination offers the strongest of evidence.in favor of your committee's recommendation that the hallways of all tenement-houses be adequately lighted between the hours of 6 a. m. and 10 p. m. SANITARY POLICE. 12. The selection of sanitary police should be made from men of a high standard of intelligence and honesty. Throughout the lonement-house districts it is the common report that there are among the police inspectors of the health department men who fail to report violations of the sanitary code, because they are in the pay of the landlords. It is unlikely that this condition is as bad as it is said to be, and it is unquestionably true that the health department has taken every possible precaution under the present law to prevent corruption of this kind. It is, nevertheless, a fact that during the course of this inspection I have learned of several cases of attempted bribery, which have been promptly reported to the proper officials, who have taken appropriate action. It should be said in favor of these offenders that they are subject to greater temptation to commit this kind of wrong than men in like positions are in any other city in the world. I make this assertion because of the experience of your committee's own inspectors. In fact my experience with your committee's corps teaches me that probably 100 bribes are offered where one is taken. It seems to have been the result of our political system that the public itself is even more partial to bribe-giving than the paid officials are to bribe-taking. Your committee's inspectors have frequently reported to me 'y cilean apartment............................. 2,956 -B)y fair aprartment................................16,675 Bly dirty apartment........................ e...0-09 23,1601 By very dirty aIpartment...........................10,194 Average number of rooms to each apartment.... 2.83 Average popuilation to each apartment.........3.88 Average population to each room..................... 1.38 Bywater in yard...............90**................5,431 -)v water in hal................31,309 11y water in apartment...................... o...... 16,686 Sufficient water.........................o...... 45,016 Insufficient w ater................................. 8.410) Total number of apartmnenis............ 15,315 Total number of ape-rtments occu~pied........... o...13,788 Total number of apartmentis vacant................. 1,57 Average rental.............................ofo-o $10 08 Totial lowis of rental....o.o....... o.................. $1,5,32 16 Bty dark rooms.. o........................o.... 43,063 P)y good ventilation................................ 4,363 1)y fair ventilation..oo*o..&4,.9.... fo................ 15,203 By bad ventilation.. *0...aa.................6.......30,856) B~y ver~y bad ventilat-ion............................ 3,004 By good surudns..............37,15 B1y bad surroundings.............................. 16,231 Total number of hiouses affected by h)ad odors.... 831 Total Population (bad odlors;).....................o... 27,72 3 Bly houses with fire-esc-apes....................... b 40,906 B1y houise wibout fire-cs, apes............... 12,520 Byv hou-ses with sufficient fire-eseapes.............. 371102. B'y houses with in-%ufficient fire-escapes............. 3,8041 B)y loionses with obstructed fire-esceapes..... 26,860 B~y hou~ses with unob~rncted fire-escapes..... 14,046 BP-y houses with front door open................. 4' 50,357 By houses with front door closed.....................000 3,069 POPULATION BY NATIONALITY. frish...........................................000*0* 16,682 American................. o.......so......6,473 Iu'ts-sian Jew.......................9,041 0 ermyan..........................10,314 To 15 114 Negro............................................ 255 English.......................................... 20 Chinese........................................ 5 H ungarian....................................... 1,910 Italian..........................................7,959 Bohemian........................................ 388 Austrian........................................ 143 Roumanian...................................... 194 Lithuanian...................................... 31 Scotch.......................................... 11 Condensed Summary of Both Investigations. Total number of houses investigated............... 3,984 Total number of apartments investigated............ 33,485 Total number of rooms........................... 86,902 Total population................................. 121,323 Population over 16, male.......................... 36,642 Population over 16, female........................ 35,325 Population under 16, male......................... 25,889 Population under 16, female....................... 23,447 VENTILATION. Houses with hall ventilation, good.................. 64 Houses with hall ventilation, fair.................. (55 Houses with hall ventilation, bad.................. 1,258 Houses with hall ventilation, very bad............ 1,353 Houses without halls........................... 24 Houses with cellar ventilation, good.............. 1,264 Houses with cellar ventilation, bad................ 2,407 Population affected by very badly ventilated halls.. 71,074 LIGHT. Number of apartments containing rooms not reached by direct light.................................. 7,279 Total number of dark rooms...................... 16,756 Population affected.............................. 71,015 Halls lighted at night till 10 p. m................... 1,461 Population affected............................... 84,565 Halls dark all night............................... 1,257 Population affected............................ 26,986 115 WATER-CLOSETS. Located in yard..................................,392 Located in basement.............................. 240 Located in hall................................. 301 Located in apartments.......................... 51 Total number of water-closets and school sinks...... 15,986 Average number to each house..................... 4.01 Average population to each water-closet or school sialk...7.....................................62 Condition, good.................................. 900 Condition, fair................................... 811 Condition, fad................................... 1,177 Condition, very bad............................... 1,090 Population affected by good water-closets........... 22,257 Population affected by fair water-closets............ 23,440 Population affected by bad water-closets............. 37,469 Population affected by very bad water-closets........ 38,157 WATER SUPPLY. In hall......................................... 2,055 In rooms...................................... 1,402 In yard.......................................... 527 Population affected by water in hall................ 68,009 Population affected by water in rooms.............. 43,522 Population affected by water in yard............... 9,792 OLEANLINESS OF APARTMENTS. Population of apartments, very dirty................ 26,805 Population of apartments, dirty.................... 39,854 Population of apartments, clean.................... 54,664 AGE OF HOUSES. Built before the new building law.................. 3,939 Built after the new building law.................... 45 MATERLAL OF CONSTRUCTION. Brick........................................ 3,356 W ood........................................... 316 Brick and wood.................................. 312 CONDITION AS TO DILAPIDATION. Good............................................ 524 Fair............................................ 786 Bad.............................................o 1,544 Very bad........................................ 1,130 116 Population affected, good....................... 17,340 Population affected, fair.......................... 21,257 Population affected, bad.......................... 47,435 Population affected, very bad...................... 35,291 SANITARY CONDITION OF HALLS. W ithout halls....................................... 24 G ood........................................... 1,097 Fair..................................... 241 Bad............................................ 1,407 Without halls, very bad.......................... 1,215 Population affected by halls in very bad sanitary condition...................................... 41,236 FIRE-ESOAPES. Without fire-escapes........................... 1,047 Fire-escapes in bad order or insufficient........... 1,038 Fire-escapes obstructed........................... 1,703 CONDITION OF CELLARS. As to cleanliness, clean.......................... 1,387 As to cleanliness, dirty........................... 988 As to cleanliness, very dirty....................... 1,246 W ithout cellars.................................. 313 As to floor material, earth......................... 2,219 As to floor material, wood......................... 704 As to floor material, stone.......................... 611 As to floor material, brick......................... 28 As to floor material, concrete........................ 75 As to ventilation, draught........................ 1,264 As to ventilation, no draught.................... 2,407 Population affected by clean cellars................ 4,009 Population affected by dirty cellars................ 27,631 Population affected by very dirty cellars............ 33,469 Population affected by cellars with earth floors..... 71,877 Population affected by cellars with wood floors..... 18,841 Population affected by cellars with stone floors.... 17,874 Population affected by cellars with brick floors..... 1,110 Population affected by cellars with concrete floors.. 3,773 Population affected by well ventilated cellars...... 39,291 Population affected by badly ventilated cellars...... 74,184 THE FRONT DOOR. Front door open at all times...................... 2,552 Front door locked or on latch...................... 1,432 117 POPULATION BY NATIONALITES. (C erman ** oes **. 06....96 40. 960.60 996 01 22,9 0 Irish.........................................090 29,201 'American....go....oo*... 0.0.........................11395 English..................0........ 0.......... 0......561 Aiis6600an.......................................1,5110 R u;ssi an......................................... 10,727 Italian......................26,30.6 Chinese.................................436 C..)' ored090.............f.............................2,330 French... *so.....0*Go.0000 *0..0..... 60 342 B)ohemnian....................oo............o.......774 IN ngoarian. 0.......................................993 Danish.o............... 106 &~wis..................................28 IS,1)a n is h.......... 249 S~cotch 6.......................24 Baivarmian.................. 0..........................e3 P-1eIg i a n........................* * 0a 09 6 0.....................7 Swedish..............................0....... o.....254 P"ounianian........................................ 0 e 0 0& a0 00 0 302 Dutch............* 00 0* 0......................... 032 P.0li sh......................... 0 0 0. 00 a000...........a 334 Hebrew.........................................v6 4* o o *o o 12,003 Greek............................oo 44 o6 &a oa o# eo * 228 J apan11ese 0.............o.o........................... 0(' qd ia n. 0.0..............0..0..0....0................12 Norwegian.. o...o.......0..0..o..o...................192 Ara bs........................ 00 00 0 0 6.....................0 18 In dia n s..........*......................e......e.......e I o4 Li th uan i~anseo 9s......................................31 ED)WARD AMARSHTALL, Secretary, January 17, 1895. SUPPLEMENT No. 2. Model Tenements. No part of your committee's investigation has brcught forward more valuable results than that which concerns the various improved dwellings for the poor now existing in New York city and Brooklyn. Much credit should be given to the careful and intelligent effort which Mr. Curtis Brown contributed to this examination. This examination shows, in the main: First. That improved dwellings can be so constructed and managed that they may be rented at prevailing rates and still yield a good profit. Second. That their effect on the health of their tenants is good. Third. That they have an unmistakable tendency to raise the moral tone of their tenants. Fourth. That their influence on neighborhoods, wholly unfavorable in all other features, is elevating. In New York city the principal efforts towards furnishing improved dwellings to the poor, have been made by Ihe Improved Dwellings Association, of which Mr. W. B. Cutting, R. F. Cutting, D. Willis James, S. D. Babcock, Cornelius Vanderbilt, J. W. Pinchot, John Claflin, George Bliss and Dennison Wood, are trustees; by Messrs. R. Fulton Cutting and W. Bayard Cutting, in a separate enterprise; by the New York Tenement-House Building Company and Association, of which Mr. Joseph Drexel, Mr. Oswald Ottendorfer and Dr. Felix Adler, have been and are the animating spirits; by the Chichester estate; by Miss Ellen Collins, and by Mr. Sloan. In Brooklyn Mr. Alfred T. White, now commissioner of public works, has carried out an enterprise which has been an object lesson not only to New York but to the whole country. All but one of these projects is taken up in detail below. 119 THE IMPROVED DWELLINGS ASSOCIATION BUILDINGS. In defining its objects, Mr. W. Bayard Cutting, the association's president, said of this enterprise: "The company was incorporated in order to demonstrate that clean, comfortable and scientifically constructed buildings could be erected for the laboring classes, and rented at rates at least as reasonable as were received for less desirable accommodations elsewhere, while the owners still received a fair profit on their investment. I wish to particularly emphasize that the problem presented was not merely that of constructing scientific tenements, nor simply that of constructing tenements that would pay. Either of them alone was not the problem needing solution. It was the combination of the two that made the experiment valuable." The buildings were designed and erected with the assistance of what was then the most expert existing knowledge. Sir Sidney Waterlow, of London, among others, was called in consultation. By their articles of association, the stockholders in these buildings limited the dividendis to 5 per cent., and these dividends have been promptly earned and paid -2 2 per cent. every six months - since the buildings were opened. No dividend has been paid which has not been conservatively earned, and, as a matter of fact, each year a pleasing surplus has remained after the dividends were paid. The fiscal year 1892-93 paid a dividend to stockhohlders of $14,500 and a surplus of $4,000. The year before the surplus was $5,000. The surplus is generally expended in adding new improvements, such as asphalt roofs, to the buildings. The buildings cover, with the roomy court yard, 16 city lots. This enables a plan of construction to be carried out which gives direct light and air to each room. There are 218 apartments in the buildings; 64 are two-room apartments and rent for from $6.25 to $7.50 a month. The others are made up of from three to four rooms each and rent at rates ranging from $8 to $15. There is but one apartment at the latter price. On the ground story of every building, one two-room tenement is given up to the comfort of the tenants, containing a large bathroom with a cozy parlor and reading-room attached. In the top story of every house, there is a common laundry. Ample provision is made for hanging clothes either on the roof or in the court yards. 120 The conditions on which the premises are let are as follows: "It is distinctly understood that the renting is for one month only. "All rents are payable monthly in advance, at the office of the association, No. 362 East Seventy-second street. This regulation will be most strictly enforced. "Disorderly tenants will be immediately dispossessed. " Tenants will be held responsible for all preventable damage to the apartments they occupy. " In cold weather care must be taken to prevent freezing of the water pipes. "The association does not hold itself responsible for water damage. "All garbage must be burned. Throwing paper, vegetables or other refuse, oyster shells, etc., down the ash-shoots is strictly forbidden. Nothing whatever may be thrown into the waterclosets. "Tenants are required to take weekly turns cleaning closet, flight of stairs and hallway leading to their apartment, which must be swept every day and scrubbed once each week. "Clothes may only be dried in the yard or on the roof. "Carpets may only be shaken or beaten in the yards at convenient times, to be determined by the agent. " Plants must not be watered outside the windows. " The window-shades must be kept in repair by the tenants. "No tenant will be allowed to sublet any portion of the apartment, or take a boarder without the permission of the association. "No animals will be allowed in the apartments or about the premises. " In case of contagious or infectious sickness, notice of the same must be given to the agent as quickly as possible. " In case of fire, notice must be instantly given to the agent or janitor." The architectural features of these buildings are direct light and air in every room, fireproof halls and stairs. Each apartment has a water-closet of its own, and coal lifts and air-shoots are provided. Each kitchen has stationary tub, and good facilities for the drying of clothes are provided. Rentals range from $6.50 to $12 per month. It has been argued by those who hold that model tenements cannot be successfulyy built in New York, that it would be impossible now to buy land in a tenement district at so low a price as that paid by the Improved Dwellings Association. It is true that the price paid by the Improved Dwellings Association for its ground wals less than 50 per cent. of the market 121 value of the land to-day, but it is to be remembered that the buildings themselves have had a large influence in the direction of increasing land values in that neighborhood. Granting that land could not be obtained so cheaply now, the fact that construction has greatly decreased in price offsets the argument to some extent. Besides that, these buildings were not constructed economically and this had its part in increasing the capitalization upon which a dividend of five per cent. has been annually paid. These buildings have done more towards bettering the part of the city in which they are situated than to increase land values. Their moral effect on the neighborhood has been quite as great as their financial effect. To this the records of the police precinct significantly testify. The tenants too, have been greatly elevated in home life and habits by the influence of their surroundings. THE CUTTING FOURTEENTH STREET BUILDING. The buildings which the Messrs. Cutting erected at Fourteenth street and Avenue A, even though they have been a disappointiiinnt to the owners, are still a powerful object lesson to those who maintain that model tenements can not be profitable investilents. The construiction of these buildings was admittedly faulty and wasteful. They were very extravagantly built. The court-yard in the center is unriecessarily big, the halls are unnecessarily wide, and the saving on these two matters would alone have made a material difference in the percentage of the income from the buildings. These are by no means, however, the only points where economy might have been exercised without robbing the tenants of advantages. In addition to this, comes the fact that while the ground story is occupied by eight stores, which it was expected, would bring good rents and thus help the enterprise towards financial success, the neighborhood, has not developed enough different industries to supply them with tenants. Thus, while the building in the main keeps up the a:verage of occupancy, these stores are vacant much of the time and are a heavy drain upon the building's income. Notvwiltstanding all this, however, the building in ordinary years lhas paid a profit of between 3 1-2 va-d 4 per cent. net. It was erected in 1887-8. No money was spared in its design or execution. Halls and stairs are absolutely fireproof, and every room has its window into the open air. A water-closet is provided for each two families, and ash shoots and coal lifts are at hand for the convenience of the tenants. T. 16 122 The moral effect of this building has been definitely elevating. The whole neighborhood has improved in tone since its erection, and no buildings of a notably inferior class have been erected near it. The tenants themselves have gained, its projectors feel sure, both in moral tone and thrift since their entrance into its apartments. A significant indication of this lies in the fact that the tenants are said to be rather more particular about the character of new-comers than is the agent himself. The death-rate of this house is lower than that of the other tenements in the neighborhood, and is lower than that of the whole city. THE RIVERSIDE BUILDINGS. The Riverside buildings in Brooklyn, built and owned by Alfred T. White, form probably the most striking example to be found in this part of the world, of the wholly successful model tenement. A part of the dwellings were erected in 1876-78, and the whole group was completed in 1890. In detail, the property consists of 527 tenement apartments and 31 small brick cottages. Of the 527 tenement apartments, there are 50 consisting of five or six rooms, 307 consisting of four rooms, 167 of three rooms, and three of two rooms. One room of each set is a small scullery. The distinguishing characteristics of these plans are fireproof staircases, sunk into the front of the building and open to the air; all water conveniences separately furnished to each family; buildings only two rooms deep, so that all dwellings have abundance of light and air. They are so larranged) that each group of three families is practically entirely separated from all others in the buildings. The communication of odors, disease or fire from floor to floor is impossible. Every suite has a well arranged sink, wash tub and water-closet. These have In no instance been abused, although the tenants are of the very poorest class. Forty per cent. of them are day laborers, 40 per cent. mechanics, artisans and tradesmen, and 20 per cent. employes about shops, stores and houses. This shows a lower average of proportionate income thian is shown by the model tenements of London. The larger of the buildings incloses an interior park 250 by 150 feet in size, 12 full city lots, containing a prepared playground for children, a lawn, shrubs and a band stand, where music is discoursed once a week throughout the summer at the expense of the company. With a view of encouraging thrift, two plans have been tried - (1) allowing a discount of 10 cents per week from the regular H m 123 weekly rental, if four or more weeks are paid at one time; (2) paying back to the tenants who remain a full year in occupancy and who have violated no rules an annual "dividend" equal on the average to about three weeks' rent. About two-fifths of all secure the weekly rebate and two-thirds the annual "dividend." Taking the two properties together, the gross returns for the year ending May 1lt, were about 12 per cent. of the whole cost. This, after expenses of all kinds, including rebates and dividends, had been deducted, left a little over six per cent. net available for dividends and surplus fund. Thus the venture is a distinctly profitable one, averaging 11-2 per cent. more profit than is paid in New York city by high-class apartments, residence or business property. The frontage is 307 feet on Columbia place, 201 feet on Joralemon street and 238 feet on Furman street, or nearly 800 feet in all. The high-peaked towers, recessed fronts and balconies, broad window-sills and decorated brickwork, make the building most attractive in appearance. The ground includes nearly 24 fullsized city lots, of which the buildings covers less than one-half. The plans have been scientifically studied to give the maximum of health and comfort at the minimum of cost. The first aim has been to secure domestic privacy. Each apartment has its own "front door " opening into a small private hallway, from which all the rooms of the apartments are entered. Partitions and floors are deadened to prevent sound passing between apartments. Each apartment has good closets, a dresser and a hanging wall table. A fuel bin in the cellar belongs to each apartment The scullery in the extension contains for each family separately a water-closet, sink, wash-tray and ashshoot. Every room has a large window on the park or on the street, and each apartment has thorough ventilation from front to rear. The staircase arrangement is similar to that in the " Monroe," described later on. The stairs are fireproof, solidly built from cellar to roof, with slate steps. They are set in a brick recess, as described above, in the front of the buildings, well-lighted, wellaired and absolutely secured from danger in case of fire. The fire department of Brooklyn has pronounced these staircases to be the best possible safeguard against peril or panic. An adequate number of bathrooms, nicely fitted up, are at the service of the tenants, free of charge, at certain hours daily. Lifts for coal, etc., are provided in all the buildings. The following description was printed in, the report of the board of health of Brooklyn: "In all of these buildings 124 the upper stories are reached by staircases open to the front. The stairs are of slate, set in solid brickwork towers. In rising from story to story a half turn is made, and at the top of each flight a slate balcony, protected by an iron railing, is reached. These balconies are about 30 feet long. From each end of each balcony a hallway runs directly back; private halls, admitting to the rooms of each dwelling, lead from this hallway. Thus, every family has its dwelling entirely private and apart from, and with no room opening into another's, while all have direct sunlight. The rooms are provided with closets with hooks and shelves, and the living-room with a dresser. The windows of all the rooms are of unusual size, and extend up close to the ceiling. From the living-room a door leads into the exten sion, a small room seven and one-half by five feet. This contains an ash-shoot door, a sink, a stationary wash-tub, a window aind a water closet with separate outside window. All of these conveniences are furnished to every family entirely apart from all others. The ash-shoots, one foot square, and ventilated at top, discharge into large ash-rooms in rear of cellars, separated from the main cellars by a brick wall, and accessible only by doors in the rear. No ashes or refuse are ever exposed on the sidewnlk or elsewhere. All refuse is burned, and the ashes are loaded directly from ash-vaults into carts, which pass out by a rear gateway. The water supply is ample. The water-closets are all provided with cisterns overhead to insure instant supply of water. The traps are ventilated, and siphoning is prevented by ventpipes carried above the roof. The wash-tubs and sinks are trapped separately from the water-closets. Waste-pipes pass down against the back wall of the extension and out through the rear wall of the cellars into the sewer, avoiding any horizontal drains under the buildings. Every family has a large coal and wood-bin in the cellar, numbered to correspond with its room. "The buildings are all of good red brick, and all windows and outside doors are arched with brick. Floors are of the best yellow pine throughout. The flat gravel roof is used as a clothesdrying ground by the families in 1he upper three stories. For the occupants of the lower stories lines are provided in the yard. The slate staircase, extending from cellar to roof, is not only!bsolutely fireproof, but can not be reached by any fire that may occur in the buildings, forming an unequa;ed fire escape." Provisions has been made in these buildings for eight stores and four small shops in the Columbia place frontage, and for eight stores in the Furman street frontage. Stores rent from $25 upwards per month and shops from $16 upwards. All these stores have plate glass windows of first-class quality and large 125 sie. Each of the stores has a good cellar with convenient access from the street. There are living-rooms in the rear of the stores and shops. Apartments are rented under the following rules: 1. All rents payable weekly in advance, on Saturday or Monday, at the office, 20 Joralemon street, during office hours. 2. Tenants paying four or more weeks in advance at one time will be allowed a deduction of ten cents per week. 3. Tenants not paying in advance will be notified to leave at on ce. 4. No tenant is permitted to underlet any portion of his apartments, or to take in lodgers. 5. Tenants are required to give immediate notice to the agent of any need of repairs and to pay for such as may be due to their own carelessness. G. No nails to be driven in wall or woodwork without agent's consent. 7. In winter keep washrooms warm to prevent freezing of pipes. 8. Halls and balconies to be cleaned daily by the tenants using them. 9. Tenants are strictly prohibited from throwing anything out of the windows, and from obstructing the waste pipes or ash flues. 10. Only ashes to be thrown into ash flues. 11..11 garbage must be burned or carried to the receptacles in the park. 12. No clothes to be hung out of windows or upon balconies. 13. No animals to be kept on the premises. 14. Carpets to be shaken only in the yard. 15. Clothes to be removed from lines so soon as dry. Lines not to be used on Sunday. 16. Plants must be watered only in the rooms. 17. Before washing windows notify tenants below. 18. Children not allowed on the roof, nor to play on the stairs or balconies. 19. Chopping or sawing wood not allowed except in cellars. 20. Disorderly tenants will be expelled at once. 21. The agent is required to enforce all these regulations, and will be immediately discharged if he neglects to do so. Bath tickets may be had from the agent. 126 MODEL TENEMENTS ON CHERRY STREET. Cherry street was in sore need of an object lesson in tenement. house reform until 1887, when the model tenement-houses at Nos 338 to 334 Cherry street, were erected by the Tenement-House Building Company and Association, organized to improve ":e houses of the poor. The president of the company at that time was Mr. Joseph W. Drexel, and the vice-president was Mr. Oswald Ottendorfer, now president. The company's architects, were William Schickel & Co. The lot, 116 by 98 is occupied by a building, divided in the rear by courts into two single and two double houses, leaving room in the yard in the rear 13 feet wide. The centre court between I.Fe two double houses is 13 1-2 feet wide, and the two other courts vary in width from five to nine feet. The following quotations from a pamphlet prepared by the company descrioing the houses, give the peculiar features of their construction: "They are six stories in height, with a basement throughout, and are arranged with courts, varying in width from five feet to 13 1-2 feet, sc that every room opens to the outside and has the advantage of light and air." * * * "The houses contain 108 apartments in two and three-room suites, but so arranged that they can be conveniently divided into suites of four, five or six rooms, to meet the requirements of large or small families." * * * "There are 43 two-room and 61 three-room apartments, and a kindergarten occupies the remaining four apartments. Wide entries running the length of the building with large windows in the rear, opening on the outside, separate the rooms." *x- 0- -x- - *X * -x- *X" *x- *X- x "The floors throughout are constructed in a manner which mranes them practically fireproof and the firslt story halls and all water-closets have iron beams and tile floors. The fire escapes are so arr'anged that an easy passage can be effected from house to house on the outside. The stairways are of iron and slate throughout and the entries are of brick with tiled floors." -* -x- * *- * -- *- * -X- * -x- -x- - "The yards and basements are finished in granolithic and are thoroughly drained and perfectly dry. In the basement separate storage lockers for fuel and provisions are provided for each ttnant." * * * * "The plumbing is of superior order and is arranged so that all piping, fittings and apparatus are exposed to view. Running water is provided on each floor. In one of the houses hot and 127 cold water is supplied in each apartment, and in the other houses hot water is to be obtained in each basement and cold water in each living room." "In the basement are laundries and bathrooms, with neat brick-feced wall and water-tight granolithic floors, for the free use of the occupants. The baths are one of the most popular features of'the apartments. There were originally four bathtubs in the basement, and this number has since been increased to nine. They are free to the tenants at certain specified hours. There is scarcely an occupant who does not use them regularly. The common laundry in the basement is provided with hot and cold water. From the laundry the clothes can be sent up in the elevators and dried on the roof." * * * * "The water-closets are ample, one for each two apartments and are constructed according to the most approved methods. In addition to an outside window, a large ventilating flue has been provided for each water-closet, which insures a continuous circulation of air. The main hall, the kindergarten, and the water-closets are heated with steam from low-pressure boilers, which are also used throughout the year for making hot water for bathrooms, laundries and sinks." A noteworthy feature of the house is the flat roof, paved with brick and enclosed by an iron fence. It makes an excellent playgTound for the children, who are permitted to play there at all hours of the day. On hot summer nights many of the tenants take their mattresses up there and sleep under the sky. Concerts are frequently given there in summer. Thanks to the courts, there is no room in the house without direct light, although some of the roomis opening on the courts are not as light as could be desired and on dark days gas is used all day in the kindergarten. All of the entries are lighted by windows and each stairway is admirably lighted by large windows between the floors. One fact that makes these tenements especially worthy of study is that of late they have come to be occupied largely by Riuisian Hebrews, whose pecularities make difficult problems for landlords. In spite of all efforts to the contrary, most of them take in lodgers, the family generally sleeping in one room, and the lodgers occupying mattressies on the floor of the other room or rooms. The smallest rooms are made to bring to the tenant in this way about $5 a month. Often a family occupying only two rooms will have two or three lodgers, and not infrequently the lodgers sleep on the floors of the room occupied by the family. 128 Another peculiarity of the race is its fondness for oil stoves, to the great detriment of the walls and ceilings of the apartm6nts, which have to be calsomined frequently. A common custom is to move the stove out into the halls and do the cooking there, despite the efforts of the housekeeper to suppress the practice. A majority of the tenant.s are shirtmakers or tailors and much vigilance is required to prevent them from using their apartments as small sweat-shops. An effort is made to limit the number of sewing-machines in an apartment to one, and the tenant is required to keep padding between the feet of the machine and the floor to avoid disturbing those who are underneath. Many of them persist in throwing rubbish and garbage out of the windows, making it unsafe for children to play in the courts. For this reason a gate has been placed across the entrance to the longest court. To the credit of the janitor, however, the courts are kept remarkably clean in the circumstances. It is found difficult, too, to enforce the rules against blotking the fire-escape balconies. Tenants of this class are also extraordinarily quick to take advantage of opportunities to escape payment of rent. Many of them can not speak English. In view of these untoward circumstances, the success of the Tenement-House Building Company has been remarkable. They have established an improvement where it is most needed. Two men are kept busy the most of the time calsomining, and three women are kept well-occupied in cleaning the halls and stairways, which, it is safe to slay are generally in as good condition as in the average high-priced flat. The basement, with its bathrooms, laundries and storage lockers, one or the other of them nearly always in use in the d&aytime, is a model of cleanliness. The walls of the halls are painted and the ceiling papered. This neatness has a certain effect upon the tenants who, in general, grow more cleanly the longer they stay, the apartments taking on more and more the appearaMnce of the halls. The kindergarten, attended daily between 9 and 12 a. im.. by about 50 children, mostly from this house, and also for sewing classes and boys' clubs, has a marked effect upon the tenants: The rules are as follows: 1. The second of each month is the last date by which all rents must be paid. 2. A deposit of $1 must be made with the agent for the use of the keys, and to insure their proper return. The deposit will b6 returned upon the surrender of all the keys. 3. Only quiet, honorable and respectable families are accepted as tenants and tolerated in the house; no tailoring or any other kind of shop-work is allowed in the rooms. 129 4. No nails are to be driven into the walls. Tenants must bear the cost of repair of a-ny damnages arising from their carelessitess, and from the violation of this rule 5. Tenants must (by turn) scrub and clean their hallways and (1uSets. U.. No tenant is permited to sub-let any portion of his apartments nor to take any lodgers, without the agent's consent. 7. Tenants are requested to prevent their children from playing on the stairwiays. 8. All garbage is to be removed to the cellar. The dummn 11113may be used for this purpose. 9. Nothing shall be placed on fire escapes. They shall be kept cleaL of encumbrances. 10. No solid minatter is to be thrown into the waste pipes. 11. No playing upon musical instruments, nor any noise which woutild disturb other tenants is allowed after 10 p. m. 12. Tenants must not loiter about tihe halls and stairways. 13. Tenants are earnestly requested to report to the agent any violation of these rules on the part of any tenant or others. 14. Tenants not conforming strictly to all and each of these iles (as well as to other rules issued from time to tiume by the ou'Rmpany) will not be allowed to remain in the house. 15. Tenllants afre earnestly Prequeisted to report to the ag-cit at once any willful destruction of property, or any susIpicious hairactr-s loitetiltg arollul the Iallwa v or vootf. The abrogation of some of these rules, as noted above, has i'11i ttcedpl 11)1m1 ilt (,c )imIIp by tie tit e of the to 111( a ts. As it is, tenants complain that it is too strict in keeping the children Wit of tie halls. it;my tenants who have left have afterward begged to be allowed to return. Therje are now 25 a.partuments vacant and this has been the average ever since the Ilhard times began a year ago. This is due to the fact that from 15 to 20 per cent. of the population of this district, according to the estimate of real estate agents, owing "roperOty here have moved away, partly owing to the increase of tititfuitur-ing here and partly Ibecause the hard times have driven many of the poorest out of the city into smaller places wNhere li ving is cheaper. Previous to this 1lime these model houses had lests 1hanm this number of apartments vacant. In consequtence all rents are to be reduced from 10 to 15 1er cint. (it thle,st of January. At present the rents range i'rom $10 to $15 a month for thre(e-room a partments, according to localion, a01iid from $6G.50 to $9.50 for two-room apartments. IDifficulties in collection have also conlsed the company to adopt the weekly payment plan instead of monthly payments as h.reT. 17 130 tofore. At Icast 12 tenants are behind in their rents, nearly all of Ithem one monoth. There are 86 families now on the rent-rolls, and the housekeeper estimates the average number of children to a family at three, which gives a total population of 430, exclusive of boarders. The death-rate has averaged between 14 and -1 p lr cent. less than two-thirds of the general death-rate.!Only two fires have occurred in the house and the loss each time was $25. On one of the occasions the escaping smoke was suffticient to cause the tenanis to rush downstairs. It speaks well for the construction of the stairs tlihat no one was hurt. IfI lhsc 1elnewiii 5 w ere lo be built over again it is probable that they would be provided with ash-shoots for each apartment, tIius doing amway with thile custom of the tellants of throwing refuse out of windows instead of currying it downstairs to the ash banrrels, which are placed on the sidewalk at certain hours of the morning. Another pr,-actice of throwing garbage into the streets also would he abolished. It is probable, too, that the kitchen would not again be nmad-e the largest roomi of each suite, as mIost of the tenants have coamplained against this feature. The- wo0v1(ld prefer to have the stove and sink in one of the smaller reoomns and use the larger for a parlor. Some of the bathtubs are copper and some ar-e enameled iron, and it has been found by comparison that for the hard usage of a tenement 1house. tlie iron, whilicel is cheaper.,, is also more diiurable. These model tenement buildings cost $123,215.13, andm the land cost $29,500, 7making tlie total investment $152,215.13. It is ilmpoitant to note in this conmiection that ithe courts and tlihe wide entries of these four houses tsake up the space that omrdinarily would be uIeId for another house alnd( that accooidiag to the ordina-ry s-Ivle of tenemnent-1homise const-rietion the five houses so built would htave cost in 1 lie neighlborhood of $40,000 less than the four houses actually built by this company. Further. the rental caiacity of the building was - reduced by the decision of thle conypany to use it mwholly for (iwelling purposes instead of devoting the gi-ound floor to stores. -Despite hliese facts, tihe gross 8earnings of the comp!any wer e r$11,825.97 in 1889. The maiintem'ance expenses were $2,95.56.,q1 interest on bond and mortgage, $3,52(6.50; taxes, $1,575.60, and water rates, $284.40, inakimg total exj ses of $9,144.21, a( lOn viiig net earnings of $2,181.66 2 5-8 per cent. on the capital stock. The gross earnings form 1890 were $11,191968,m and the inet earnings $3,322.50, which was 4 per cent. on the capilal stock. In 1891 the income Nwas 4 3-4 per cent. It is provided by the by-lnaws of the Tenement-Tlouse wBuilding Company that all dividends be yond 4 per ent. shall be nused as 131 a reserve fuind t'O be apportioned among all persons who shall have been tenants driiing any Jpart of that y~ear in proportion to the rent they have ipaid respectively, and sh'all c-redlit to each person who Shall hiave been a tenant du~iing the threlee mo1_01nths of thle AN-liole vetar the s.-aIre of such reserve fund which mally have been apportioned to hini on the books of the coinpa flay. M188 COLLIN'S TETiNEMENrrs. In May, 1.890Y, Eis llen Collins bought the five-story brick tclIlleflm t building Noss,. 3215, 327 and 329 Water street, at the' southea~sit corner of Roo-sevelt, for $12,)i00, at a parltitionl sale. The h( ise, whicb had been built in.1850, wvoas kDnowNn a;s a haunt1111t, of thieves an( 1pio.ýl itu te.,s and hadl lbeeiL the scene of sevevrt1 bloody fihIits. Trhe ileglulborhwod huad a pecuiliarly evil repul I - lion. The halls, stairs anud intei-ior roolols were almiost4 wholly dark (lav and night, and werc a favotitje hiding itlahce for c-imi ilials w-hen chaised by tihe jwlicc. It used to he Sid tliat if a thief omicle got inlk) the h all waIsNof lii-s buvs iodin. f there was no uise of fui itier effoit to ea~ih cl611i1. The Ihlaste c onI lie i~oonisi was, rwoen aIndveiv dirt v. Th1e, 1lo-os were covei-redl wti tdirt, anid thc, fewcl~osetswere tinsIeakadillthy.TI'he 1*uor store in 11wie ecorner of 1 hehuildingy haId been, tile nes(t of 0.;i0fch cil iiieb ct thie owiner of tile hou's es had cl losd it after anii esýpeciailly' Nil bloody ffTruv aind] hdi irefused i) leae the llce. The rent had dwindledl unt1il that fey h(Ie last 111monli previouls to Mi's-s C'ellinls' owenirVit i) 1had1 bleen $68, of wh1ich1 ione man. tes lessee of a store, pih Tli The sum in arirears wai;s $118. 'ITwe averagze rents collected for sonic Iliume )previol's,101(1d bee-,n albouit $70 a monthl. \!is-s Collinis; htas s, tpent h10,000 in limprovements on this umiimpu sng e-nement-, aind has redupceC d Illme rents. yet Jihe now rceý0Cives $20'34.50 a month from them. 11er receipts from n Ih1istenenment o-ver all expen~ses are 5 1-2 per cent. a y-ear not in1cludingr thle increase in the(, value of the l-and. The chlangre iII the condition of thle tenlants hias been even mare marked thn the-li iiicrea;1se7 in thle recei-pts. Arrests suddelnly dliminished in numlber tlie dirt and Alth in the halls and a~ipartments disappeared; tile emnply alirtmneunis quiickly filled; thle children withdrew from the. streefts to the yard in thie rear, whriere they fouindi a better playgroun11d. Thne tenanti zbegan to regard fthe-ir rooms, ats "hiome." insqteadl of livinig places; the collection of rents becname easier: fho-iting,. wrilch ha-d been the nile, beceame the rare exee.ption, fand thle general condition of financial, moral and physical health amnong Ihe teniants improved. The most csignificafn fact in all tliti trainsAfornmaition was thlat it was accompli~shed wki(thout change in the class of tenlants. 132 Nearly all of those who lived in the place before Miss Collins bought it continued to dwell there. And to-day peddlers, longshoremen and rag-pickers are more numerouis in the house than they were then. With not more than two or three exceptions, no mechanic has lived in the house; and the tenants have been the poorest of the poor, who have had no regular income. Too much emplhasis can not be laid 1ul)on this point, for it makes a most important difference between the two methods of tenementhonse reform, viz.: the building of model new tenements and the redemption of old tenements from lilth and vice. The tendency of the rnew model tenements is to fill with mechanics and workmen who have regular incomes and considerable intelligence and are less in need of attention th thnthose who live from hand to mouth and occupy houses like that taken in charge by Miss Collins, and who could not afford to live in a higher-prie d tenement,:and might feel out of place there, even if they were to gain admission. The most important of the alterations made by Miss Collins in the buildings she had bought was to tear down the rear wall of two (Nos. 327 and 329) of the three houses, which constituted practically one building, cut off a room from each floor and build a new wall twelve feet nearer the front, thus adding a space of twelve feet by forty to the yard in the rear. The corner house, No. 325, extending down Roosevelt street, was not altered in depth, serving to separate the yard from Roosevelt street. A well (about 10 by 12 feet), for light and air, was also cut into the rear of No. 327, by advice of the architect, Mr. H. R. Marshall, and windows from each floor were cut to this well from the walls on all three sides. The effect of these windows affords one of the most interesting and instructive lessons to be found in the whole history of tenement-house improvement. Previous to this alteration, the adjacent halls and entries had been intolerably filthy. Sweepings, rubbish and excretions had been heaped in the corners, under cover of the prevailing darkness, until the place was well nigh impass4able to one whose nosirils were not hardened. The change wrough' t by the flood of light from the new windows was sudden and surprising. The tenants were shamed by the sights revealed, and without waiting to be asked, hurriedly cleaned the halls and entries. The plaster was taken from some of the walls throughout the houses and replaced by a fresh coat; carbolic acid was sprayed on others, and ehloride of lime was used freely. As much light as possible was brought to the interior rooms by windows and transoms, and the landings to the stairways were extended out to the windows in the rear walls, forming a well 1l8 Aigated platform on which sinks were lbuilt and on which the lenants now keep their uwash-tubs aInd do all their Nwashing. There is now but one dark stairway in the ipremiises. The iuiiibter' of water clousets in the yaird was incre-ised, Iuntil ithere was one for each floor of each house; and last, but blr no means least, an intelligent, efficient resident agent was put inll chllarge. When Miss Collins took possession of this building, more than half of the apartments were vacant. fThose who were there were induced to remain, by being invited to move into one house while changes were being made in another, with the promise of having a choice of the renoNvated a)artIents, as soon as tlhey wiere ready. The offer was gladly accepted, as 11no incre-iase was made in rents. Up to this point Miss Collins' enterprise w as on a business basis. The ilp)rovenlents h ad made the apartments so desirable tlihat they filled up at once with tenants, and all lpaid their rent for fear of ejectment frout a place inmuch pleasanter than the average. But in 1884, Miss Collins made a deliberate depart ure into the field of philanthropy. The. old brick building, consisting of three three-story and attic houses adjoining her propertyv on the east, were used as dance halls and dives of lhe lowest sort. The childdren in the Collins tenements felt the contNa1mina tiing infltuence, and, after repeated efforts, Miss Collins suicceeded in leasing the property at a rent of $1,500 the first veamý, and $1,250 thereafter, a hiigher price tlihan she could expect to get back by using the place for respectable purposes, it being a well known fact that hoq.uses u sed for impronper pur1Imoses bring far highter rents than others, the conditions being equal. The first step taken was to tear down the wall dividing the yards in the rear, adding a space of 40 by 50 feet to the commion play-ground. ThIe yard of the leased houses was found to be in frightful condition, and filth a foot deep) was removed from it. The interior of theli houses was almost as had. The cellar was piled deep withv decaying rubbish, and the space above the dance halls was divided into stalls. These partitions were taken out and the floors were cunt into suites of apartm eneIts of three or fouiir rooms. according to the choice of the tenant. The exterior wooden stairs, leading to the second floor, were replaced by stairs of iron frames, and iron frame balconies were erected, and the water supp1))ly was increased. In all $1,500 was spent in improvements on these leased hous i s. In 189) Mitss Collins, desiring to rid the neighborlthod of a particularly disreputdable dram-shop, also leased the house next 134 below those already rented, ptaying $1,200 a year for it without expectation of getting back ]that sum. This place was likewise renovated at ant expenge of about $400, and the yard in the rear wals th rown open to the occupants of the other houses by the removal of the fence. The leased house being much smnaller than those belonging to Miss ollins andl htaving yards of about the same size, the total yard spatce per inhabitant was considerably increased. The total size of the irregularily shaped yard in the rear of the whole 1.1 houses is approximaitely 100x40, with the exception of spa.ce occupied by two large flower beds; the yard is paved with brick and flagging. It is swept daily, and the tenants take considerable pride in keeping it clean. In summer they contribute 50 cents or $1 apiece for flowers, which are cared for by the jaint or. The children are encouraged to play in this yard at all hours of the daytime, and the children of the neighbors are not only pernmitted but encouraged to play theire also, the only condition being good behavior. In winter wi'all skating ponds and slides are mo de. The rents in Miss rCollins' ow-ii houses range from $3.50 a month for Utwo rooms (provided with four windows), on the fifth floor, to $8 a m-onth, which is paid by only one family. The average is about $b.5() a moith. 'T'he suites in the leased houses adjoining are mostly larger and range in price from $2.50 to $13 a month, the average being about $8. In the fourth leased house the prevailing rates are $5.50) and $6. The total yearly income from these houses is $2,814, for those belonging to Miss Collins $1,266 for the first three rented, and $1,100 for the fourth. T'he cost of maintenance averages nearly half the receipts. The following statement for these houses owned by Miss Collins for the year ending on Nay 1, 1,892, tells its own story: Water tax.................................... $109 00 City tax, less rehbate.......................... 8301 20 Wages and rent.40 50.............. 0 50 (as................................... 88 3 84 Calsomining and cleanig............. 102 98 Plumnbers' bills..................... 17 02 Carpenters' bills...,...-............. 117 02 Tinsmith........................................ 8 10 Mason........................................8 25 Ice, $14.80; pump, $5.24...........1.9.....1) 84 Broomns, barrels and gl:iss................... 11 60 Carbolic acid, lime and(l hardwaree............*..... 7 25 Stationery and cases........................... 6 60 Rent lost s *s o o o o~ 06 *0 0 * s e0 0$2 ýj50 (Cellars...................... 1929d65 Repairs, I nch- i-m................ 5 0 0 0 Painting halls and yaud.............. 59 6 7 $1,5189 02 Rtent due. 4 50 Totafl expend-itures for the 3year.. $1,=9 52 Receipts for the 0 goes*.........................8.21 3 0 3 Bala~nce of profit............... 1.2)51 The $2.50 rent lost represented the total loss through -vacancies in all thea apartments. Miss Collinis ismys: "I'bellieve T have not lost more thuan f-150 on vacanicies in aI,)axrtmdnts an1d renDtS unpaid on apartments in. the whlole 14 years since. I bought those houses. Thie reni I on Ilhe stores have been less hazPPY hut thlat is partly bec-au-se of (leionsthat I have tr-ie(I, such as Ihe esta~blisNhme--nt of a I nceh-rooru to circumvent 1 lie all ii reindnts of the-. free June-ilies offcred in the uiei(ghboi'in( aon.Tisw1 niot- a succes~s a~t I lie time, but f still lbel ieve that it (a a he made at. succeAss." An~ol her exjperifllent or I his-sort has been t ihe establishmient of a lodlge-room on, flie ground floor of onle ot t1:e.0Ieas;edI house's, occupying thel)e in-iskes formlerly Nus~ed aus a (,]daleuicehll of the lowvest character. The lodgre-ioom is mse)d (twice a wveek as a, Caltbilet matking scilool for boys of the neig,1bl~iohoo l who Ipay five cent's a week for t1e le-ussons. The Fult-on (Counciil of the Legi~ron of 1lonor alý 1So0 mee(ts tee.MNy-ofthe -emlrsre len-an91ts of MiNss.C'ollinls' hiou;ses..-%. A little office in front- of the lodge-ioom is used as a sort of club-room and re~ading.-room 11by There have be~en no fires that were not put, out bef~ore tHie fire (1el)artmn.eut aj.rrived and the fire scsalues on each bild ing, in accteordance with the law, the fair-ly Nvell lighlted halls aind]thle increatsed number of exits t~o th]e b~alconieis are anasrn cethat the lives oYf the tenants are less endangered by fire than in o1'i(in'aVYtenlemlents.S The de~athi-rate /?in not be gk~en, as. no record h-as been kIept, but the-re have been no epidemic~s in the house, and( the health of thelcienants is in general very grood. The total population of the hiouseonDcme26ws1, conisisting of 120 adul~ts and 65 echildren. The small proportion of children is due to the fact that many of the tenants are elderly people whose children have growni up and nmoved out into homes of their own. The rules of the house are observed uncomplainingly. They are as follows: 1. No intoxication or bad language will be allowed in these buildings. 2. Tenants will be required to nmake good any damage arising from their own carelessness. 3. No tenant will be allowed to keep boarders, or to underlet any portion of their apartments, without a special agreement. 4. Ashes and garbage must be put into barrels provided for that purpose. Tenants must not throw slops in th(e barrel. 5. All wNood miust be broken in the yard. Tenants must not break wood on the window sills, in the romus, or ini theli cellars. (. TenaInts must not throw anything out of the windows, or keep flower-pots, or anythting on the window sills without being properl y secured. 7. The lhalls, stairs and fire escapes must be kept clear of everything. Tenants washing in thie hall-ways are expected to wipe the floor and reimove tubs, etc.,.as soon i as they get -throtugh. 8. Tenants must not use any sink but on tiv' floor they live, and theAy must keep it c(lean. 9. Tenants must, in turn, i)scrub the halls, stairs and waterclosets. This must be donuc. at least once a weeCk. 10. Halls and stairs must be swept every mlorning. To avoid confusion each tenant sweepsl a wholc week at a time, beginning on the day they scrlib. 11. The] open space in the cllars nimust be kept clear of everything. No offensive wood will be allowed in or about the buildings. 12. The ball doors will be locked every night at 10 o'clock, tenants out af'ter that hour will use a nighllt-key. 18. No leiiant will be allowed to lounge in tlie hall-ways, on the staiirs or about thIe front of these buildings. Miss Collius is thoroughly pleased with the resuilts of her work. The key to success in such worki she says "is the personal supervision of a resident agent, who is intelligent, honorable and efficient, who can apply0 thC owner's ideas to the habits of the tenants, and whose owni mode of life will serve as an object lesson, a minan who is worth his rent and.$30 a month besides. Patient attention is also required on the part of the owner. An outlay of thought pays better than an outlay of money. The tenmants in my house have improved in character and habits in proportion as they came to take that personal 137 ilnterest in a lodlging which chianges it into a hqme. T can see no chainge, however, in the rest of thle shreet, but -there would De if the police would do their duty." After years of patient olbser vlation and thiougght 'Miss Collins has conme to the conclusioni that in the present condition of tenant life, more carn be done for the Pm-oor with a given sunm of money by renovating old ten:ements thjan by building new ones, especially if the new ones are built wvit:l small. yards, -and wNith- wvells for light and air. THE "M1.ONROE."1 The first of the modlern tenemii-et-houses to be built in New York with a view to the hliealth and well-being of the tenants, quiite as much. as isto the pioperty of the landlorad, was thle sixstoryk- illing at the souitheast corner of Monroe andl Corlear sI rt4..nu mbered 314 to 8 20 Monroe street, and known as "The M,,fiarvoe,.' and erected in 1879 by the Abner (1hichlcster estate as a busineiss investment. It can be saii~ to begvin wvithi that the expei-'imen i has been Ca succelzss. Rarely has there beeii a N-kaviicV iii fhe 4(0 a-ipairtments and six stores for a lperio~l lngfer than three weeks from the lime 'Time Monroe" N wa-s readyv for occnpaiay, and thie (1 lemand for a1ccomm111oail.tion hIlas been. in ge im~ral, in ('Nce of ifie supply'. re manager, Mm.%NW. NV.usesas: "If wve hiad beeni willingr to taki e anyone who c"1 ame, thle. h"louse wCamld hiave been fuill ccnifimiallv."1 'I'lThe nebh)-0borh(od, close to the East mirver', wasaat the uie "The AMonroe" wasi b~uilt the headquarter-s of wha;,.t. was kn iown as.; time 1Wl)vo gmn.a evil a~nd desipera,"te a cl-owd of rfin as the city ha0 know-R n. Squailid tenements and saloons were oil all sides,and1 man11:y1 of h11ose whlio presented themselves for admiss;.ion to "The MVouir,ýe"` ` wvoulld have been most undesirable tenants. The locality is iimow compllaratively 'vquiiet aind respectable, and it 15Q assertedI thiat thf e im npirovement has lbeen in some degree to flie iutluiennc of t-he laerge loilvy of quifet, self-res,;4pecting tenants go Ii-l (T'l ed under tile ro-of of this model tenement and the gooxd ordler 2cell hvf I' plre)(served hel Iltere. No arrest have been nade fr'onm the uliihdiflg in the p;Ist four v years. The obviouis advantages of the place haflve IIsua-illy made a threat of ejectment sufficient ot prevent dlisturban ces amiongnr the tenants. ThPle number of tenanfts Onl wh1om di~po~s ~ warrants have been served hias. averaged s-omewvha-t less than flion one a vear. 1t- hans Iilbecn staited thliart stringelnt rules prevailing in wrhat, are krown as the city's mvodlel tenements cause wvorlkingmen to seek poorer accommnodations at the same price fcor the Ralke of the grea-iter freedom. Elxperience at "Thle Moniroe'" is one indication that the statement was niot founded on fact. T. 18 138 'he rules of "The Monroe" are as follows: All rents to be paid weekly in advance, Saturday or Monday evenings between 7 and 10 o'clock, to the agent at his rooms in the buildincg. Tenants desiring at any one time to pay rent for more than a week will be allowed a deduction of ten cents per week on the additional rent so paid. Tenants not paying in advance will be at once notified to leave. Tenants will be required to ml.ake,rgood any danmage arising from their carelessness, and in case of acci(lent to pllLubing, glass, etc., immediate notice must be given to -lthe agent, who will IhaVe 1 ke necessary repatii s made at cost of the tenant. No tenant is permitted to underlet any portion of his apart ments, or to take in lodgers. The attention of tenantis is particularly canlled to the following notices, and they are desired to co-operate with the agent in obsrving and enfocing them for the comfort and health of all. 1. Before washing window'Ns notify tenant of apartments 'etxt below. Plants must be watered within the riooms only. 2. No solid matter shall be thrown into the water pipes. All garbage to be burned fand all ashes to be thrown into the ash fluen s. 8. No dogs shall be kept on the premises. No nails shall be driven inl walls or wood work, except by express permtission of tbe agen t. 4. Ohildren are not allowed on the roo0f. nor to play on the stairs, halls or balconies. 5. Disorderly tenants will not be allowNed to remain. The agent is directed to enforce the above re(gulations and will be liable to be discharged if he negle-cts do do so.() 6. In cold weather keep the wash-rooms warm to prevent accidents to the water pipes. lWater mus19t never be left runnirmg. ThMe 111e rules evidentlly have iot- illterfered (wit]h ihe success of the house, for the average length of tenancy has between two and three years, above the average tenement-houses. Some of _I e present occupants have lived there for 10 years, an( residence in the house is considered so desirable that applicanis look upon admission as a distinction and frequently make unwonted efforts toward personal cleanliness in order to make a good impression on the agent. At present there are 20 Amer-ican, 19 Irish and six German families in the house, besides single men of various nationalities occupying furnished rooms. Previous to the erection of The Monroe, the lot, 125 feet on Monroe street by 100 feet on Corlear street, was occupied by 189 small cheap buildings used for stores and dwellings, concerning which the estate was much troubled with complaints from city official. In consequence the three executors, Messrs. J. S. Schultz, R. M. Stoebeigh and T. F. Thomas, decided to erect a tenement which would be beyond reproach. Plans suggested by the White tenements on Warren street in Brooklyn were prepared by Field & Son, the alluvial soil was fortified with piles. and the building was erected under the close supervision of the executors at a cost of about $33,000. The value of building and land together was estimated at $55,000. The cellar, with concreted floor, is used for coal and wood bins. Part of the cellar is occuptied by a Ryder pumping engine used in forcing the water supply to the top floors, and by the bakery which occupies one of the lstores on the ground floor. It is light, dry and well ventilated. The ground floor is occupied by six stores, each, except the corner store having a tworoom apartment in the rear. The room next to the stairway on Monroe street is used as the manager's office, where rents are paid and books are kept. On the five floors above are 25 two-room apartments and 15 three-room apartments, each, with an exception to be noted hereafter, having a private hall. The walls along the maiin halls arc of brick, and concrete has been laid between the floors. The floors of the wash-rooms are concrete, and the wash-room walls are brick. The feature which forms the most important difference between this house and others of improved designs, notably the Clitting tenem(lents, is the combination of fireproof balconies on each floor, with a firepiroof winding stairway in the middle of the Monroe street front. By this system not only is an ideal fire- escape arrangement provided, but the house is relieved from the presence of an interior staircase well, calculated in case of fire to distribute flames and smoke throoughout tle house, to perform a similar office for infected air in case of contagious disease, or for unpleasant odors from cooking or more dangerous so rces in ordinary circumstances. The stairway is a winding structure of stone steps resting upon masonry and provided with. an iron railing. The walls are circular and of brick, witl niches for gaslight that is kept burning at night till 10 o'clock. During daytime plenty " light reaches the stairway from the large windows at each landing. The heavy brick walls of the stairway shut it off entirely from th apartments, each of which opens upon halls leading to the balconies. These balconies have stone floors and iron railings and posts. They are kept free at all times and easy of access. When once they were. reached from the halls it would be impos 140 sible for flames to cut off escape to the street. Three fire escapes lead from each floor to the yard in the rear, and there are two water tanks on the roof. So great is the confidence of the tenants in the stairway and balconies and in the slow-burning construction of the house, that the occassions when the fire department has been called to the house have created little excitement there. There has never been a fire in the house of sufficient consequence to call for record in the buoks of the company, the damage being less than $100, and the cause being the carelessness of the tenants. Aside from the windows, doors, floors, wainscoting and walls subdividing the apartments, no wood has been used inl the construction of the house. The halls are covered with linoleunt and the walls are lpainted, paint having been found preferable to calsoilinei in the long run. The rooms in the apartments average about 12 by 15) feet in size, and eaclh have one or mnore windows. There is not a dark room in tle house, the structlure beingl' but two rooms deep. Each apartment is provided with a wash-room containing sink and stationary tub, and adjoining the wash-room, on the further side from the kitchen, is a water closet and an ash-chute. The apartments are not provided with gas, although one tenant has had fixtures put in at his own expense. The others use kerosene. Each tenant supl)lies his own stoves. A few of tthe walls are painted, but most of them are papered. The exception to the rule that each tenant has his private hall, is found in 10 of the two-room apartm~ents, arranged in groups of four rooms each about one private hall, in order that they may 1be rented, if so desired, as a single four-roonm apartment. Families of sufficient means to afford four rohmns are rarely found in this neighborhood, hiowever. The three-room apartments on the corner are particularly desirable, and rent for $3.50, $3.40, $3.30, $3.10, $3 a week, according to the floors. Sheathed three-room apartments vary in price from $3 to $2.50. The two-rooma apartments rent from $2 to $1.60, according to location. The double sets of tworoom apartments, which rent singly for $2, bring $3.SO a week when used as four-room apartments. All of the prices are subject to a reduction of 10 cents a week for each week paid in advance. The bakery, using part of the cellar, rents for $33.33 a month. Two of the stores bring $25 a month each, one $15 and the other $12. The system of weekly rent days is found to be good. It has helped materially in collecting the rents. Ordinarily, the tenants are not permitted to get more than two weeks behind, 141 although exceptions are made to the rule L. he case of tenants who are thrown out of work and are known to be economical. At the time the material for this report was gathered -the last week in Decemiber, 1894 -only two tenants were in arrears, each being two weeks behind. The total loss in arrears of rent for 1894, has been alpproximately $35, and, although the exact figures are not available, it is stated that this sum is somewhat in excess of the average of the 14 years in which the house has been under the charge, of the present manager. The reason that the exact sum can not be given is that the manager has frequently been known to make up arrears out of his own pocket, out of sympathy with tenants who had been unfortunate. The annual accounts of The Monroe are not kept separately from the accounts of other properties in a large estate, and exact statements of receipts and expenditures are not available, but the net receipts for the year 1893 are stated to have been $6,000, and the profits in general are said to have averaged more than 7 per cent. on the investment. The total expense for management and care of the house is $20 a week, of which $10 goes to the manager, who spen'ds at least two hours a day there, $10 and lodging paying for the services of the housekeeper, who acts as agent in the,absence of tlie manager. The only item of current expense, due to advantages in the house, not possessed by ordinary tenements, is tle water tax, which amounts to $180 a year. owing to the fact that each apartment is provided with a water closet. The 24 gas burners, for lighting tle stairway and halls and office, and for cooking in the housekeeper's apartments, involve an expense of from $6 to $8 a month for gas. T'Iiere are now 45 families in the house and a suite of 11 furnished rooms is rented to single men. Ordinarily two-room apartments are not let to families having more than two children, or llhite-room apartments to families having more than three children. The average population is estimated to 1)( 225. There have been three deaths during the present year, and( the average death-rate in previous yeara.s as been two per annum. The only fatal accident in this house took place seven years ago, when a child fell from one of the balconies and was killed. The cleanliness of the house has been one cause for the smallness of the death-rate. Each tenant is responsible for a section of I le hallway, being required to sweep it daily and scrub it once a week. It is also required that tire apartments be kept reasonably clean. 'Whenm a tenant leaves, the vacant apartment is thoroughrly cleaned before another family moves in. It has been noticeable that the general decency of the surroundings 142 invariably has a good effect on the habits of newcmners from less orderly houses. The presence of the ash-chutes contributes much to the genercl effect, doing away wiith the litter of ashes and garbage usually seen in tenement halls and living rooms. The ash-chutes are about 12 by 12 inches in size, provided with an iron cover of the same dimensions. The tenants occasionally clog the chutes and it is said if these conveniences were to be built over again the chute would be made larger than the opening into it. The executors, however, have never regretted the extra expense of providing this house with ash-chutes. Mr. James H. Percival, the executor upon whom the management of this portion of the Chichester estate chiefly falls, was asked if he had been pleased with the results of this experiment in tenement-house reform. He responded that he was entirely pleased, looking upon simply as a business investment. He added, however: "A house of this kind built on the most approved principles would be certain to be a complete failure in the hands of an agent of only ordinary ability who would sit in his office uptown and expect to man1age the house at long distance. Until we secured the services o ofur present maInger, Mr. H ilse, who lhas had charge of the house for 14 years, the results were not satisfactory. The work not only requires a man of extraordinary tact. force and energy. but (,ne who will spend part of every day on the premises. and will take as much personal interest in the conduct of the business as if he were one of the owners." FRIENDLY RENT COLLECTION. Under the general heading of m odel tenements, it is proper to refer to some of the methods other than construction which have been effective in raising the nmoral and sanitary tone of certain parts of New York tenement districts. An experiment of much interest concerned the dwellings at 3(; and 38 Cherry street. lThere were sixteen distinct houses here running in from Cherry street and known as "Double and Single alley." Mr. R. Fulton Cutting in an interview tells what was done with these houses and their tenants, as follows: "Just before the passage, in 1880. of the latest amendments to the Tenement-House Act. In investigating certain instances of disregard of law, I was shown these buildings by Mr. Jacob A. Riis, as notable examples of flagrant dereliction. Tihe dwellings were all Mr. Riis had pictulred them, being filthy and out of repair, while the air smuelled as if it had been imprisoned in the alley since the days of the cholera. The banisters were all broken and rickety, the stairs dangerous and a receptacle for all sorts of rubbish. The shutters had long since been consumed for 143 fire wood, but they really sneeed superfluous, as the sun rarely penetrated the Windlows, und the tena.nts looked as if they neither wa\s~hedl or~ changed their gtarntents and did not need shelter from observation. In sonie of the rooms asas and rubbish were simply hteapedl in a coiimer until the accuinnilation encroachied seriOusly uponi the floor space, when a portion wvas removed and the jnm1tc11(ice continued. G-arbage was thrown carelessly into the a Ileyvs. &ý NNan-ur'tall the firiouciald returns were not consi8dera-ible, and so evil hafid become the reputati,)n of the locality thfat out of 128 teneiiieiil 5 ounlY v 6: were occilJpied. and tlie collect ion of rents fioun. these was no easy ta.sk. Yet fthe ownlers -were h-no eans if;(ifrellft to Ilie 'onditition of tlie }ope l 'tandv t:i their tenants. 'The piopjerty ii s.-If belo-ngred to ain estate, the heirs of wh-Iich w.ere resKid' in ( hiciago. They were quite ready to take any inea-surets t hat seeme11("d hopeful lo restore the ciha~racter of the locolilv. and(] had oil several occaisions e, xpe-nd(1ed1 large suims in r('4ir adnd imnprovements. Thleir agrenit, who had charge of the himil(ling-s fm-orin the timie of ftheir erection, W'l,118yb no m.1eans an mikindly or wrasping l.),fsom. lbult sinipily a bu'sine.Iss m11'on1Who had not- timie to o.1c(huoinmt hilm'self With the Jpersonoli 'V of lhis' tenants, or to Meet tflhm in any war exceplt as a rent- collector. As his visi ts to thle property were Only Inm e in the) Ilflatter capacitty, lie waIls no,1t wehi-.onme. Altogeilher, from ever' r point of view, coinTIPu11cm-ia'llv or fi umunnit a ion, thei property was an titter failmre, hut theC OW'vue8rs1 ho1d no ailterii(native except to jiuisume their original 10olicy y w-it1 refer-ence to its uon".:g1em ent. "ThMree geumlltcrin iiitem-eý(to in the lioiino of the workUing classes. (recgnTizin in this u nusuallyv large owne)(rship of teneintcntts a. T"emlir~r (ppomtimnitv' for lplrperr m1-iageune1nt.. secured them by lease fi om the ownvi-ors, paying the la1t-ter th-le actuail -noiiOunl tof net incoiime (lem-ived fr'm- ithm. durhingthe proeceling rear'U. The le SN'sees immedlia1tely placed in chalirge o f the buildings a lad%- who hadonher own respom mcsniliit begu wl jithi a single htouse to puirsule thle Principle's of teneCm en t-h Ioulse umfln-lf(eienlt origina0tedb hri Miss Octavia Iill. iM. in London. Mrs. E. F.M the nIew agernt, was a woman of fine phi!ysiquie:Ind dau-intles courage. an9d at Ilie, same tinime wise and sympa]: imtic. n,in ornee in onie of the - vacacnmt tevnementsiiic, she-, spent every ' Vday fromn tlhe ear-l %iormiinn- until late in tlich afternoni in the alleys vsisItiigr lie temnanfts a-ind nr-khifr thewir nrcquiint ol~nce. - She at once Tput in for-ce cert-flan u-id_ rubcs 4 Vi hiv+'iene, and (heceny,. and won her way;lV to flteilr accptance by te tenants with extraordinary celerity. In a few month she hiadl inspired among them a rcrsperc for hier aut-bority t hat no ma:n coi-ld halve won in ais many years. 'She soon canine to be regrardedI as sometliingy more thaan a 144 mere rent collector; for while she insisted upon the weekly paynien s her kindliness and wisdom induced rather than compelled olbdience. Yet there w'as no element of clarif y or panllmcrizing assoriated, with her management. She did not give alms. nor did she l)Crlinit, after reasonable consideration, the occupancy of tenemecints by those whr7lo did not pay their rent. "Tlhe clharacter of the property and] its t-enants becgan to ir1mpiove with the inception of her ilin~afrni.nt. The repaiirs ind improvemients which h Iad bleen made to the buildings, witli the new lease were neithi{'(-r disfiguired nor (iesdr~yed. The lpractice of tfaking nighlt boarders, whNdichl hiad been one of the rrre.Nftest evils of the old inma.nagemnent. was p:omiiptlv abolished. The lall ant] staircase -were regniarly clyeanetid and kýept clean by thleý tenants, and the grarbagre and ashie'-s were praely(1 separated and placed in receptacles prepared for thbem. The poliee speedAily recognizedi the changoe of arftairs, and Gothamn Court ceased t0 appear as of old times uon the records of the Oaký street station. Even th-le "H1Touse of Pflazes," as the mlost viciously tenfantedi, dwvellingr in the row-N wa,-s familiarly called, became (uite a resqpectall house. Tn finme the property gaine-d a goo01 rep-ntaftioN tenaints flocked in, and the rent-roll began to psnme some iuiry)prtance. "At the expira tion of Tlie lease, Mr. Miles before that hiaving remnove---d froom New Yorký, and her p1)0cc ha 7vingr been ccupied efficiently by Miss 1)0w. the owners of the p~roperty were so grlatified by the, success of the uindlertal*~king that the T Ihemslielve-s scurd4 theI -lieservicfies of M_,NfissT)ow- asq their ageynt. SheI, to0o. a"fter a whiile left to take a nlore irnpc-rtant situation, andI her p)la1e Was filled by a suicces s"or w\h onm. she her seOlf sougg ested. Mrs. he'lleoler. who remnainedl thle agent until the expiration of thlea1c.Ise oal thle first of Mafly lat d. "The commnerial imnporltance of the entexrl)rise is best inhiicated by t-lie fodlowlinn g fi gu -es: "Wh')en thle pro-pert ' y was first leased, the anmount palidi t1he owners wans $3,240 per year. 8inee it has been managed upcn the principles above dsceribehd, it has lbrouoghft ihiem an averagcCre of about.$;,)0() per annurm.n rlhcyear ending January 1, 1892, showed a net return of $5,6i50, this, of course, exclusive of thie,agrent's salary, whiclh is chargred as before to the( -x.operating exunSP. Caifitializcd at 5 per cent., tlis increase for the year 189*2 of $.$2,410 is equwaiv.-flent to the handsome sum of $4q8,200. whichl is tIhe actual value added to the property by the systemll of ma) naugciem1ent intfod ieed by tie ge rntlemlien who originallyv l "418easd i t. "It is wortihy of remnarký thait theire is no rack-rentingr of tenementis in these buildings, the average rent leing probably lower 145 than can be found in any similar tenements in New York, the two-roomn apartments, into which the buildings are divided, renting for not more than $4.50 per month. One further feature of the enterprise must be noted, and that is that the general cleanliness of the property and the improvement in the habits of the tenants have produced a most beneficial effect upon their health. I believe there has been hardly a single year since 1880 in which the death-rate in Gotha,mn Court has not been less than the average of the entire city, and that in a section where the rate is particularly high." EDWARD MARSHALL T 19 SUPPLEMENT No.. Report on School Attendance, Educational Opportunities and Home Life of Children. December 26, 1894. R CHARD WVATSON GILDER, Chairman Tenernent-lHouse Committee: Dear Sir.- I have the honor to submit herewith a report upon the school attendance, educational opportunities and home life of the children of the more crowded tenement districts of this city, the investigation of these subjects having been intrusted, by the colnmmittee, to the University DIepartment of Sociology of Columbia College, under my direction. The commlittee desired information on the following points, namely: 1. -To what extent are the tenwment-house children of legal school age, and especially those of foreign nationality, actually attending school? 2. To what extent are these children forced by their parents into money-earning occupations? 3. What extent are they kept at home or allowed to wander the streets? 4. Are the school accommodations adequate; are the school lbuildings fit for their purpose, especially in respect of light and ventilation; and are the methods of instruction commendable? 5. Is there need especially of additional kindergarten provision for small children? (;. Has the department of education devised any adequate means of keeping track of the school population of this city, enfIorcing the compulsory education laws and preventing truancy? 7. In general what are the conditions of child life and nurture in the tenement-house districts? In the brief lime allowed for this investigation only a superlicial and worthless inquiry could have been made if we had attempted to extend it over the whole city. It was decided, therefore, to make a study as nearly as possible exhaustive of the school population of four typical tenement blocks, containing at least 1,000 families. In the selection of these blocks regard was 147 had to the following conditions: They should be solidly built up with teneinent-houses, unbroken or little broken by business structures. They should be in different parts of the city. The population of each block should be as homogeneous as possible. Accordingly, the following flocks were chosen: Two blocks on M ott and Mfulberry streets, between Prinoe and Spring streets, occupied by Ilalia ns; a block.bounded by Hester, Allen, Canal and Eldridge streets, occuipied by Russian Jews; a block bounded by Seventy-thirdl street, Avenue A, Seventy-second street and First avenue, occupied by Bohemians. A schedule of questions was prepared which called for information as to the natio-nality and occupation of the head of the fa~mily; the name, sex a nd age of each chlild; wheiher the child wals at school, and if so, where;* whether at pork, and if so, wlheure and what at; wheiher at home or idle. Twenty-four university students, all of them matuire men, with experience as teachers or as visitors, among Ihe poor, in charity, mission or unimversity settleme emt-work, were selected to makle the entimeration. As the whole vaNlue of a statistical investi ation dlepen(ds, on tlihe intelligence wilh wAhich, the fundamenta~l wvorký of asking t-lie queslions is condlucted. it is proper to say that the conclusions herewith prestented are entitled to the eollufit(lc lc-e tha.1t is duile to the w',-ork of mne uwho were pcenliarly -well qualified to get exactly the information desired. The delailed suipervision of the enumeration was entrusted to AMr. Tohmn F. erowell, fellowv in sociology~v, and formierly president of TWini 1v College. No'rth earolina, to wThose intelligence and fidelity I am under the greatest obligations. The facts obtained by the enumerators were tabulated in the staflislicadl laboratory of thee university, uinder the direction of Professorl Mao- mitlin who last year tafibulated the police censuls of the unemployed. Professor 'Mayo-Smith's report of results is as follows: REPORT ON SCHOOL ATTENDANCE AND EMPLOYMENT OF CHILDREN. The legal school age is from 8 to 13, both inclusive; but a further classifleation was made of children 3 to 5, and of childrIen 6) and 7, many of whom are at school, or in kindergartens. Thie reports of the parents in regard to children at school were verified by comnparison with the school rolls. For the children at wor1k, inquiry wa~s made as to the kind of work; the nationality and occupations of the parents was also determined. The facts in regard to school attendance are given in the following tables: 4 Thla refers to both public and private schoola. 148 BLOCK No. t-BOUNDED BY PRINCE, ELIZABETH, SPRING AND MOTT STREETS. Principally Italians. Total number of families returned................... Families without children, or with children 21 and over.. Families with children under 21...................... 355 92 263 * MALES. Under 8 to 5 6 and 7 Under 8 to 18 14 yesrs Total. MALB. 8 years. years. years. 8 years. years, and over. At school............ 25 29 54 97 10 161 At work......................... 6 50 56 At home......... 73 40.... 113 2 7 122 Total males... 73 65 29 167 105 67 339 FEMALES. At school............ 19 85 54 76 9 139 At work......................... 9 43 52 At home......... 83 50 5 138 6 21 165 Total females. 83 69 40 192 91 73 356 Total both sexes. 156 134 69 359 196 140 695 Out of 196 children of legal school age, only 23 are reported to be at work or at home. There is a larger number under 8 also attending school* 149 BLOCK No. 2.- BOUNDED BY MOTT, SPRING, MULBERRY AND PRINCE STREETS. Principally Italians. Total number of families returned...................... 67 Families without children, or with children above 21..... 61 Families with children under 21....................... 306 MALES Under 3 to 5 6 and 7 Under 8 to 13 14 years Total.. 3 years. years. years. 8 years. years. andover. At school........... 25 38 63 93 23 179 At work...................... 5 75 80 At home......... 82 46 2 130 8 7 145 Total males... 82 71 40 193 106 105 404 FEMALES. At school............ 40 48 88 95 7 190 At work............................. 59 59 At home......... 87 43 5 135 14 18 167 Total females. 87 83 53 223 109 84 416 Total both sexes. 169 154 93 416 215 189 820 Out of 215 children of work or at home, school age, only 27 are reported as at 150 B3LOCK No. 31- BOUTNDED BY ALLEN, ('KNAT, RESTER AND ELDRIDGE STREETSK Principally Russian, 'Total number of families returned.................. 9900 Faminiir without children, or with children 21 years and over.................... Families with children under 21..9660969990..........0 268 33 235 MALES. Under 3 to 5 6 and 7 Under 8 to 13 14 years Tow. 8 years. years. years. 8 years. years. and over. At school..........1 33 34 113 18 165 At work..........................2 79 81 Athome......72 703 19 164 7 7 178 Total males.. 72 74 52 1918 122 104 424 FEMALES. At school.........3 35 38 97 18 153 At work.................... 3 85 88 At home......64 53 14 131 3 17 151 Total females. 64 66 49 169 103 120 392 Tot~al both sexes. 136 130 101 367 225 224 816 Out of 225 children of school age, only 15 are reported at work or at home. 151 BLOCK No. 4.-BOUNDED BY SEVENTY-THIRD STREET, FIRST AVENUE, AVENUE A AND SEVENTY-SECOND STREET. Principally Bohemians. Total number of families returned..................... 662 Families without children, or with children 21 years and over............................................. 131 Families with children under 21.................... 531 MALES. Under 3 to 5 6 and 7 Under 8 to 13 14 years Toal. S 3 years. years. years. 8 years. years. and over. At school........ 9 60 69 169 17 255 At work............ 1 101 10 At home.........165 126 28 319 6 11i 336 Total males... FEMALE 3. At school........ At work........ At home........ Total females. Total both sexes. 165 135 88 388 176 129 693.... 13 65 78 164 11 - 253........... 3 105 108 145 117 20 282 11 37 330 145 130 85 360 178 153 691 310 265 173 748 354 282 1,384 Out of 354 children of school age, only 21 are reported at work or at home. 152 TOTAL FOR FOUR BLOCKS& Total number of families returned.................. 1,652 Families without children, or with children 21 years or age and over..................................... 317 Families with children under 21 years................ 1,335 MALES. Under 8 to 5 6 and 7 Under 8 to 13 14years Total 8 years. years. years. 8 years. years. and over. At school............ 60 160 220 472 68 760 At work......................... 14 305 319 At home...3..... 392 285 49 726 23 32 781 Total males... 392 345 209 946 509 405 1,860 FEMALES. At school........ At work........ At home........ Total females..... 75 183 258 432 45 735................ 15 292 307 379 263 44 686 34 93 813 379 338 227 944 481 430 1,855 Total both sexes. 771 683 436 11,890 990 835 3,715 It will be observed that of 990 children of legal school age only 14 males and 15 females are reported to be at work, or 29 in all. Besides these there were 23 males and 34 females at home, on account of sickness, poverty or of alleged inability to get into school. That is to say, only 86 children out of 990 of school age are not at school. This is less than 10 per cent. Besides these, out of 944 children below the school age, 478, or almost exactly one-half, were at school. In order to guard against possible representation that children of school age were 14 years old, the exact number of children returned as 14 years of age was ascertained to be 151. This seems to be about the right proportion in 3.715 children. In regard to the children at work, we find a total of 626 children at work, by far the larger number of the age of 14 or over. The following table will show some of the principal occupations in which children; that is, persons under the age of 21, are at work: 153 TABLE. Occupation of U/idkren. BL~OCK. OCCUPATION. 1- - Total. Cigar and cigarette makers: Females......... I 1 5 27 3 73 Total.......00........f0 0 e9 00 2 100 Cloakmakers, tailors, etc.: Males...................00 Fiemales........... Total*..... Messengers, office boys, peddlers, bootblacks, musicians, etc.: Males... soof-........000 Females...................0 Total.... 0000900...0. Trades and mechanical occupations: Females............... Total................ *0 0 a0 Factory bands: Males................. Females 00.. 0.a@... Total........00........ Stores - general: Mfales'...................00 0 00 09 Females.................000 7 30 37 14 1 15 6 42 48 25 25 29 49 78 16 17 1 18 19.8 8 33 77 110 43 139 182 63 2 65 6 12 7 22 47 2 10 3~ 20 35 11 9 1 6 43 13 19~ 20 26 78 11 13 16 15 55 4 8 10 10 32 Total.............0.0* * 0 a 0 I*1 15 211 26 25 1 87 T 20 154 The following table shows, by nationality of the parents, whether the children are at school, at work, or at home, by agm: NATIONALITY AND CONDITION OF CHILDREN. AT SCHooL. a 000 00 - sob woo coo l~ OD a rr AT WORK. AT Houz. 46 1a> 1.4, S00 V-i 0 00 ao 0 aD I I I 1 1 _ 1------~-I I I I 1 I I Italian: Block Block Block Block 1 2 3 4 Total.00.0 97 138 235 64 2 66 Russian: Block Block Block Block 141 158 299 176 3 180 12 23 35 32 32 15 5 20 0 0 S~~ 65 85 150 2 137 139 222 231 453 263 3 266 8 17 25 10 10 21 22 43 18 18 Tot al. 581 679 1,260 3 705 8 716 1 2 3 0 0~~ Total. Bohemian: Block 1. Block 2. Block 3 Block 4. Total. Irisb: Block Block Block Block 1 2 3 4 0 0 0 0 9 0 0 0 0 0 0~I~ 3 3 106 236 18....00 5 170 441 16 28 1,022 108 236 18....- -5 170 444 16 28 1,025 4 12 5...13 6 1 6 4'7 8 29 3.... 36 17 1 1 95 3 12 4.. 10 112 7 48 15 5312........59 35 2 14 190 5 13 11...........7 8 44 3 8 1.2........2 15 1 30 1 0 0 0 0 00 0 0 0 0 00 0 0 0 0 5.6~~~~ 5 13.......&...........24 1 2 45 14 34 2....... 9 62 1 3 125 Total American: Block 1 *oosoo Block 2 00* Block 3 006*66 Block 4 **goo Total 000000 05 t ~ -~ 8 to 13 c~ ~ years. 0 14years andover. lUnder I ____ _________ I 8 years.j ___I _______T years. j c~3 - - 14 years -4 ~ Iand over. ~4C~n I> 8years. 8 ____13 x 'W4 0* INA cx to 0" 00 46. CI A In the following table some of the principal occupations represented by the heads of the families are taken out and the condition of the children, whether at school, at work or at home, is given. The other occupations were so scattering that it was found useless to tabulate them. TABLE. Occupation of Head of Family and Condition of Children. AT SCHOOL. AT Wonx AT HOME. TOt&L Under 8 to 18 14 years Under 8 to 18 14 years Under 8 to 18 14 years 8 years. years. andover 8 years. years. and over. 8 years. years. and over. Cloakmakers, tailors, etc.: Block 1...........o..*.......... Block 2...0.00s...........e............ Block 0 a........................... Block 4....0000....................... Total,. *.................. 0"0 Cigar and cigarette makers: Block 2....................... Block 3........................... Block 4............................*:::O C7% ob 'I 13 27 11 58 13 21 69 28 131 2 7 20 4 1~~ 1 14 15 49 15 31 33 121 44 1 2 2 3 1 8 3 75 92 2b8 102.1.[. 1 6 93 229 5 15 557.... 2 2 4 1.....................4 4..........~ 13 43 1 62 141 10.... 1 111 246 9 14 594 66 144 12.... 1 118 253 9 14 617 Total.............. 6000 ease** Osseo* 157 0. co f ~co ho co ck- 0 t -col 1"4W "M4 r4 P4 0 1cqm 01lol Go 00toc to * - 0 I4m 0 -00 0 Q '0 k- fl -Z.P4"In"00"C ocq ~a C9 cqcaq co ul.) -4 r4 It- cl cq ~00coC m' 0 q toCVcD (M ~ & I- '-4 &fq toC01 t 00t- m 0 NCq to ALOJ IRV '0 "44C m O 4 4 0~4 alC 1.1 00 00 0 * cq CN r-4 * * 0C C4 M Oq k- ' * 0) 44'1-' 00 o"4000 0 00o- m CN 00 Cq05 P- 4 O -C40 00 N IVPV1. t 00CCI"4cr.) CCC0 OD"4CCCC 00 COC ItO F-" *~C ~0C )4 O CCIDC (M t-J 16M t- k-Ol 0) eq c0 OD0"4 0 "4 1-1 oo "4"r4 mC C-0 0.4C O4 4) '+1 0 E 00 10,4 0 H 00 P-.4 E-4 *0 04 co 0 0 02 0~ 0)o A 444 - 158 CONDITIONS OF LITFE The general' conditions of life surrounding the children above enumerated are indicated in the following brief special reports and memoranda, submitted by individual enumerators: A. I found the following conditions: Closed street door, one case out of ten. Lot with three houses, one out of six. One frame house, rear, out of ten visited. Rooms mostly well lighted, though the rear rooms were lighted through the front ones. Bare floors the rule. In the poorer houses were Italians with only occasional families of other nationality; in the better ones the other nationalities predominated, with a sprinkling of Italians. Children generally speak good English. Marriage among Italians early; shown (1) by young mothers; (2) by cases of two boys, ages 18 and 19, respectively, already married, and one girl of 18 just about to be married. Occasional light-haired, light-eyed, pure Italians. Several cases of old persons living idle and in comfortable quart ers. M.any out of work, some for many months. One Italian had his naturalization paper framed, on the wall; had a large family, most of them at school; no young children at work. It was hard to get the definite address of children's working places, rather from ignorance than desire to conceal. Not many children seen on the streets or around the houses during schools hours; those at home were mostly girls, helping about the house. B. The Italians, as a rule, T found to be dirty and regardless of sanitary laws. In many cases the floors of their rooms were strewn with garbage, and in one instance the hallway also was in this condition. Neatness in an Italian room was an exception Their personal appearance and also that of their children is slovenly. They are good-natured and happy and do not seem to be deceitful. They are very curious, however, and easily excited. (In one house I found a woman who treated her chil dren cruelly --using a leather " cat-orf-ninie-tails" upon them. This was an exception - I think as a general thing they treat their children kindly.) 159 I found many families where the wife must have been married at a very early age. Often the wife takes in sewing. I seldom found the husband in the room (except at dinner). Once, however, I interrupted a friendly game of poker. As a class they seeni to be ignorant- very rarely even the older pJople speaik any English - or even write their own name. I should say that the Italiang who occul)y the rear tenements were a grade lower ihan those who live in the street teneminent, but ti1hose who live by " rang-picking " are the lowest of all; their quarters aire usually in thlie cellar or basement. The few Irish families I visited I found to be cleaner and in better circeimntlances generally than Ilie Italians. Several times I found an old couiple who were living on their "income." I found no Iriish iin thel rear tenemtents. Thley wece not so goodnatfuredl as the Italians. As a rule, the halls of the tenemnents were clean, but not always well lighited. In evNery case I found thIe front door unlocked. Mr. Riis says that a ' locked front door " is a sure sitrn of respectabilit*y. D)uring stchool hours I found few children on the street who were old enough to go to school. Several times( I tried to get same of the smnall boys to act as interpreters instead of going to school, but I was successful only once. Twice I was called back to correct a child's age, the mother wishing me to put down 16 years instead of 15, which she first gave Imnc. 0. Having never had an opportunity of coming into personal contact with Itali'ans, my etlimate of them was sucnh ars is current in northern New England; I expected to find them among the lowest anf d uItost s11sp)iciouis of our population. Their conditilon, as a whole, I found better than I expected; and they were much readier to give information, and less suspiciou than either The GCxermans or Tri-h who w ere in the district. They seem to me a much better (lass of people th.an the Canadians found in manufcfiiuring places: in' Maine. From 203-217 nearly all were Italians. Of these. I believe, only one famiuily had 1been lcere more than 10 yearis. This one con sisted of a man, wnrife andl oine child. The wom&-rn said thlat both her husband and herself had been born in America. She seeroed very intelligent and pJrogres.ive. At the time I called she was engaged in making macaroni. In nearly all of the main rooms in No. 217, the people were engaiged in tmaking clothes. The ground floor was occupied by a s Iloon. 160 VWith one or two exceptions the rooms were tidy and not very dirty. The people were very willing to answer the questions. Few of the children were found at home, and of the 30 or more families visited, only two men were seen. I went from 12 to 4 p. m. on Saturday. Almost all families contained children at school, and only five or six aged people were seen. E. I visited a total of 03 families, located on Spring, Elizabeth and Mulberry streets. Only one house was in very bad condition; most of them were in fair condition. Children from 5 to 13 were usually reported in school. Those above that age were seldom so reported, but very often Italian children 3 and 4 years of age were reported in school. I judge from results obtained in visiting several schools, and from questioning the children in the streets; that a large number of those reported in school either did not attend school or were very irregular in their attendance. The families visited usually had but two rooms each, unless two families lived together. Rooms were dirty and poorly fiuni)shed, but there were several exceptions to this rule; occasionally there would be a room unusually well furnished and neatly kept. A considerable number of the families visited had no children. Quite often the head of the family was out of work, and lhad been so for a long time. It was not uncommon to find that a family had rented the use of their rooms during the day to other Italians, w whwere making men's clothes, the family in the meantime using the same rooms for their household duties. In some cases the children who attended school on school days helped the remainder of the family on Saturday in making artificial flowers, or like work. Good treatment and ready responses to my questions were nearly always rendered. F. I have been working chiefly among Bohemians, on the block between Seventy-second and Seventy-third streets, and between First avenue and Avenue A. Though I have found only one house which was in a very bad condition, I think that the majority of the houses, especially in Seventy-third street, could be better. Some houses in Seventysecond street and on First avenue are good. The families occupy 161 three or four rooms; large enough, provided the family is not too numerous. The dirty and disordered condition of the rooms, found im many cases, I explain either by the misery of the people or by the fact that the mother of the family works throughout the day in a factory and can not, of course, fulfill all her household duties. But in other places everything is clean and neat. The majority of the Bohemian people are working in cigar factories. Many boys and girls are working in cigar factories, as their parents do. The fact already mentioned, that even the mothers of the families are working in cigar factories, is worth noticing, because it can hardly be found to such an extent among other nationalities. There can be no doubt that the influence is bad and dem-oralizing for the family. The household is not properly cared for; the children have no real family life, if they have no grandmother, some other old woman takes care of them. It is not uncommon to find a husband cleaning the rooms, cooking, washing dishes, minding children, etc., while his wife is working in a factory. The worst thing I have seen during my visitations, was the so-called "cigar-house work." There are certain houses, belonging to the proprietors of cigar f, ctories, in which the inhabitants instead of going to the factory, do their cigar work at home. I can not describe the condition of the people making the cigars in the same room in which they live, cook and eat their meals and sleep. Yet they have to pay for three small dirty rooms $11 or $12 monthly. I found several cases, where the heads of the families and other adult members were unemployed, others again, who earn $3 to $5 a week, and I found only a very few, who.'aid that they have work enough and earn enough. Some expressed even their fear that their condition will be harder this winter than it was last winter, if they do not get work very soon. Generally the Bohemians send their children to school very diligently. I have found several cases, where the children did not go to school, because they could not find room there. The parents denounced the fact, that there are not schools enough in the overcrowded tenement districts. T 21 162 SCHOOLS AND SCHOOL BUILDINGS. The investigation of schools and school buildings was put in charge of Mr. Crowell with particular instructions to ascertain whether the severe condemnation by Mr. Jacob A. Riis, recently published, was borne out by the facts. Mr. Crowell reports as follows: December 21, 1894. Prof. F. H. GIDDINGS, Columbia College, New York, IV. Y.: Dear Sir.- In response to your request to have an inquiry made into the conditions of public school buildings, with particular reference to ventilation, light and sanitary conditions, including also the matter of crowding, I beg to submit for your consideration the within reports made by Messrs. Ufford, Course and Hall, of the Department of Sociology, after consultation with me as to the method and lines of inquiry to be followed uniformly in the inquiry. My ovwn observations tend to confirm the charges made by Mr. Riis in their main features. While the general fidelity of the teaching force is to be commended, the whole order of things strikes one as being in the control of a grossly incompetent set of outside officials, at whose mercy the system is cramped and tortured into a low degree of educational efficiency. Yours cordially, JOHN FRANKLIN OROWELL. S0HOOL REPORT. A. C. Hall. 1. How many scholars will building accommodate? (New) No. 72 Christrie street school................... 2,200 No. 42, Allen street school.......................... 1,444 No. 75, Norfolk street school........................ 1,120 ----- --- 2. Daily average attendance: New Christie street school about 96 per cent. on Friday, the worst day of week. No. 42, Allen street school, 1,401 on Friday. No. 75, Norfolk street school, about 1,100 3. Number on waiting list: New Christie street school, 300 to 400, primary departmeat. 163 No. 42, Allen street school, 441 refused admittance,* and about 200 more dismissed. No. 75, Norfolk street school, about 100. 4. Playgrounds: New Christie street school, large indoor basements and smaller outdoor yards. No. 42, Allen street school, dark basement; small yard. No. 75, Norfolk street school, dark basement; small yard. 5. Light and ventilation (school-rooms): New Christie street school, most excellent. No. 42, Allen street school, one-fourth the rooms distinctly bad. No. 75, Norfolk street school, one-fourth the rooms distinctly bad. PLAYGROUNDS. New Christie Street School. The children are sent down in comparatively small squads and each has about seven minutes' play (total time, 15 minutes). A. fruit seller's stand allowed in basement playroom., No. 42, Allen street school. The water-closets in boys' yard were in very bad order. The flushing apparatus did not work well. An accumulation of filth in several closets. No paper provided in holders which were supplied. Bad smelling place. The primary grade children had about 10 minutes for play; upper grade, none. No. 75, Norfolk street school. The girls' basement playroom small, but well lighted. All girls have to pass into the school from playroom through open passage exposed to rain, snow and cold. Passage has narrow roof, but no sides. The boys' basement is very dark. Teacher said, during drill, she could not distinguish one boy from another. * Number turned away or dismissed on account of introduction of new desks, during September, October, November and half of December: 198 girls and 248 boys refused admission; about 800 more dismissed on account of desks. 164 LIGHT AND VENTILATION. New Christie school. Large windows in all rooms, with transoms for ventilation (if necessary), and Japanese blinds to regulate sunlight. Fresh air is continually forced through the building, drawn in through six large flues opening on street (all sides of building), automatic arrangements. Very good. No. 42, Allen street school. The annex, containing many school-rooms, has no gas. Many of the rooms are most imperfectly lighted. Our visit was upon a very bright day, between 10 and 11 a. m., yet in some of the rooms there was but little moire than early twilight. Room 4, first floor, annex, was particularly dismal. It has several windows, but all close to brick walls. Little beside oral work can be done in this room, and for writing, etc., two classes use the room opposite - taking turns in the dark room. A number of the other school-rooms in annex and in new building were very dark and ill-ventilated,also. Gas has always to be used on dark days (main building) and the gas jets are high up and few in number. Ventilation is entirely by open windows and doors, creating, often, bad draughts, unless bad air is chosen instead. Some of the teachers' voices were affected. No. 75, Norfolk street school. Much the same condition of school-rooms as in No. 42, but some gas-jets in all the rooms. No. 3, fifth grade, but one window - dim light (on very bright day), in rear of room particull11 bi-lyi bad. Nc.4, sixth grade, was equally bad. No. 5, fourth grade, was in same condition. In another room the single (?) window was close up to elevator track. This window had to be kept partly open for ventilation; imagine the noise, etc. Ventilation in all rooms by opening windows - foul air noticeable in some. Both in No. 42 and 75 were rooms separaited by thin partitions only. In No. 42, Allen street school, there were but 37 Ohristians, out of 1,401 scholars, the rest being mostly Jews. All were being taught a Christmas carol, with allusion to the Trinity. Of scholars in attendance, 239 boys and 255 girls lived nearer other schools. 165 The per cent. of absence is exceedingly small, less than 2 per cent. a month. Ohildren absent for a few days forfeit their seats to others. In the Norfolk street school, out of total list of 1,120 children, not more than 20 were absent each day. Classes very large for a single teacher to manage. Children were coming in every da.y to apply for admission. The parents say, "Anything to keep them off the street," and seem to think not at all of probable injury to eyesight in dark school-rooms. The schools of this tenth ward are apparently under the thumb of a politician. Improvements easily made, he will not have attended to. EAST SIDE. 1. How many scholars will building accomodate? Grammar school No. 70, Seventy-fifth street, between Second and Third avenues, grammar, 1,080; primary, 1,400. Grammar school No. 76, Sixty-seventh street and Lexington avenue, grammar, 800; primary, 1,200. Grammar school No. 82, Seventieth street and First avenue, primary, 1,140. 2. Daily average attendance. Grammar school No. 70, grammar, 840; primary, 1,350. Grammar school No. 76, primary, 934; on registry, 1,030. Grammar school No. 82, primary, 1,120, on a rainy day. 3. Number on waiting list. Grammar school No. 70, grammar, 28; primary, large number. Grammar school No. 76, no waiting list; plenty of room. Grammar school No. 82, primary, 300. 4. Playgrounds. Grammar school No. 70, large dark basement and small yard. Grammar school No. 76, sunny basement, etc. Grammar school No. 82, basement, etq. 5. Light and ventilation. Gnammar school No. 70. Grammar school-rooms well lighted with an exception; two primary school-rooms in basement; gas a11 the time. Grammar school No. 76. Rooms all well lighted and ventilated. Grammar school No. 82. Almost all the rooms well lighted and ventilated. 166 Primary department, grammar school No. 70. The main hall where principal, Miss Hall, sat, was divided by small screens (about four feet high) into five class spaces. About 40 to 50 small girls or boys in each class. Central class had almost no light. Teaching must be very difficult with five teachers talking in the same room. The two basement rooms were- utterly unfit for school purposes (though not as bad as some in tenth ward). Still on a bright sunny morning the gas was well lighted in one room and there was but twilight in the other. Ceilings low; all ventilation in this school by lowering windows. The scholars east of Third avenue are crowded 75 children to a teacher in primary departments and many children refused admission every month. Several new schools have been erected during recent years without relieving the pressure. A new school (about Eightieth street) will be opened in a few weeks, but Miss Hall (principal of primary department, grammar school No. 70, Seventy-fifth street), thinks she will not be relieved of more than 50 children and perhaps not those. (See page 164, Light and Ventilation.) Children from street come in and fill all places vacated. On the other hand, schools between Sixtieth and Seventieth streets, just west of Third avenue, have room to spare and are in good condition. East side parents refuse to send their children to these schools because cable tracks have to be crossed; the schools are inconvenient, so far as returning home for lunch or dinner at noon, and also parents feel their children are not stylish enough to be admitted to these schools. I am assured by the principal of primary department, grammar school No. 76 (Lexington avenue and Sixty-seventh street), that any clean child will be admitted there, as also will dirty new arrivals, after being sent home to be scrubbed. But the fact remains that east side people will not send their children west of Third avenue, if they can help it, and will apply time and again at the nearest schools, threatening principals with appeals to "board of health" (fact) if the child is referred to another school. The different nationalities select different schools. You find colonies of school children - Bohemians, Germans, etc., much as you find colonies of families in different parts of New York city. There seem to be enough schools on the east side to meet present demands if only the children were divided proportionately among the schools. However, this deduction is based upon only three schools visited and information given by teachers as to six other schools. 167 SCHOOL REPORT BY F. M. CORSE. The following named schools have been visited by me, and I submit herewith the following brief report: "Old Christie," on Christie street, "Essex Market." Hester and Allen, 42. Hester and Christie. In the first three named schools the ven!ilation is obtained through the windows, subjecting the children and teachers in cold weather to dangerous draughts; and many of the rooms on the first and second floors of these buildings are dependent on artificial light, especially in cloudy weather. This last objection would not be made if the light in the rooms wais evenly distributed, and the pupils could see the blackboard from all parts of the room. But the fact that so much of the instruction is given from the blackboards renders ample light necessary. In many of the rooms at Hester and Allen, 42, the pupils can not see to read ordinary print at midday, and these rooms are not provided with artificial light. The sanitation about this building was in a very bad condition. There was in none of the schools any evidence of crowding the rooms beyond the legal regulations, but the seating capacity of the first three schools was very imperfect. In some instances three and four pupils are seated at one desk and on one bench, crowded together as closely as they could sit. In all the schools there was a large "waiting" list, which showed that a large number of children in the vicinity of these schools were unable to attend any school. The Hester and Allen, 42, alone had turned away 441 children since the begining of the nresent school year. While in the new school building, Hester and Christie, No. 7, there is ample Ifght and space for those attending; one grave abuse is conspicuous, namely, the assigning to many of the teachers from 60 to 75 children as a constant charge. The grave external defects of the schools, however, do not strike one so forcibly, as the splendid organization of the teaching force, the earnest attention given to the instruction of those children, and the successful attempt on the part of the teachers to use the facilities at hand to the best possible advantage. "Old Christie" and "Essex Market," were visited December 14th, and Hester and Allen, 42, and Hester and Christie, No. 7. were visited December 17th. (Signed.) F. M. CORSE. December 20, 1894. 168 REPORT OF VISITS TO SCHOOLS NOS. 7, 42 AND 75, BY W. S. UFFORD. Number 7. Number 7 is situated on Christie street, corneg of Hester. There are three departments - boys' grammar, girls' grammar and primary. The enrollment of the school is in round numbers, 2,400. The building is new and attractive. The grammar grades possess ample accommodations. The primary department is obliged to occupy several rooms belonging to the grammar department - rooms which will soon be needed by that department. The primary department is also compelled to utilize what is known as the Essex Market school. Notwithstanding this expansion, applicants for admission are continually turned away for lack of accommodation. Want of space is seen, too, in the size of the classes in the primary grades, many of them reaching the limit set by the hcard, viz., 75. Regard for the individuality of the pupil as well as close personal relation between teacher and scholar are thus sacrificed. This is the more to be regretted since the vast majority of the pupils are of foreign parentage. The teachers are the one strong Americanizing and civilizing force in the lives of the scholars. Both light and ventilation are good. Lack of proper playground facilities is seen in the fact that there is practically no yard space, and the children must be sent In divisions to the basement for their recess. A playground might have been furnished upon the roof, except for the balancing of economy against fresh air and sunlight. Number 42. School number 42 is situated on Allen street, near Hester. The class-rooms, especially in the primary. department, are filled to overflowing. The school records show that 441 appli cants for admission have been refused since September. Five children are frequerftly obliged to sit on benches intended only for four. In one room the door could be but partially opened because of the desk crowded against it. There are no proper wardrobe accommodations and the scholars are obliged to hang their coats and hats about the *alls of the rooms. Often these garments are "skied " in order to make a place for the desks which hug the walls on three sides Even this arrangement seems preferable to the wardrobe accommodations which are so cramped that on wet days masses of clothing must be left steaming with dampness. The eagerness of the scholars to acquire is in marked contrast to the willingness of the city fathers to give, KChe books 169 of the school show that in the primary department out of 29 classes there were 13 which had an average attendance of 100 per cent. for the month of November, 1893. A recent visit to the classes showed in many cases 100 per cent in attendance. The trains of the Second Avenue Elevated Railroad pass the front of the building, interrupting instruction and darkening the windows with steom and smoke. Yet on account of the close proximity of other buildings at the sides and rear of the schoolhouse, the front rooms are by no means the poorest. It is found necessary to change class-roolms in one instance in order to do "slate work." Artificial light is required in many of the rooms on cl)udy days. Where gas is not furnished, oral teaching is the only method which can be employed on such days. In one of the halls hangs a large clock; on stormy days the time can not be read 20 feet away. Ventilation is directly from open windows or through adjoining class-rooms. The window space is entirely inadequate for air as well as light. One teacher, who was speaking with difficulty, was asked if the poor ventilation did not affect her voice? "Yes, indeed," she said, "I have been troubled ever since I came into this room; I was always well before that" Whenever gas is used the air is, of course, more quickly vitiated. The playground in the basement is small and dingy. On the boys' side, the closet accommodations were anything but wholesome; the odors were bad and some of the bowls were poorly flushed. Number 75. Number 75 is situated on Norfolk street, near HTester. The school building is of recent date. In the primary department there are 1,100 children enrolled. There are at least 100 children on the waiting list. The pressure is so great that scholars who are absent a week are liable to lose their places in the school. On cloudy and stormy days, it is found necessary to use gas. But in the primary department, at least, no gas is allowed lefore 11 o'clock in the morning, because it has been found that if used earlier, the air of the room becomes intolerable before the hour of dismissal. The playground is in the basement So dark is it that, except on the brightest days, children can not be seen across it by the teacher in charge. W. S. UFFORD, 26 Delancy Street T 22 170 SCHOOL ACCOMMODATIONS IN GENERAL. When the foregoing investigations were completed, no time remained for a special examination of the general conduct of public education in this city. At my request, however, the following report is submitted by Mr. James A. Scrymner, who has obtained from official sources the data for his judgment that the present provision for the children of school age is even less adequate than the public, already aware of the overcrowding in many school buildings, has supposed. 37 WALL ST., NEW YORK, Dec. 18, 1894. Professor GIDDTNGS, Columbia College: Dear Sir.--I inclose for your consideration a comparative statement, based on the total population of the cities of Chicago and New York. I select years when the official census shows the population of the two cities to be very nearly the same. Population. New York (1888)........................ 1,588,472 Chicago (1894)............................. 1,567,727 5 to, inclusi 357, 357,1 6 Vt e. Per cent. 65 22.51 02 22.77 658,646 93,036 565,610 Total under 21 years........................................... Less ages 17, 18, 19 and 20..................................... Leaving 16 years and under............................. Less 3 years and under............................... 161,437 Less 4 veats old..................................... 47.071.-..- 208,508 Five to 16 inclusive.................................... 357,102 New York's total population, 1888............................ 1,588,472 Chicago's school census, April, 894, gives: Total population.......................................... School age under 14......................................... Under 4 years........................................... To ascertain Chicago's school population between 6 and 16 years inclusive (which is now the basis of the State of New York) estimate, by taking the total number under 21 years, viz....... Deducting from this those of the ages of 17, 18, 19, 20.......... Leaves 16 years and under........................... From this should be taken those: Three years and under.......................... 161,487 Four years old (estimated)................ 47,071 1,567,737 488,534 361,417 658,646 93,036 565,610 2.08 558 Leaving 5 to 16 years, inclusive............................ 357,052 Therefore, if Chicago's school population on the New York basis, 5 to 16, inclusive, is 357,052 on a total population of 1,567,727, New York's schcol population must be 455,000, if New York's total population in 1894 was 2,000,000. 171 I also inclose for your information the printed letter of the president of the board of edu;cation to his honor, the mayor of the city of New York, dated September 30, 1890, and direct your attention to pages 6 and 7. My letter marked 2, points out what I believe to be errors, of which you can easily trace particulars on pages 6 and 7. "Referring to the printed letter of the President of the Board of Education, dated September 30, 1890, addressed to his honor, Mayor Grant,* relative to public school accommodations, I find on inquiry of Colonel Balch, auditor of the board of education, that the estimated school population given on page six, for the year 1890, at 271,000 is incorrect. He estimates the school population between the ages of 5 and 14, 352,574. " On page 7 it is stated that the 'apparent deficiency in school accommodation' is 102,000 sittings; but it will be noted that this is based on the reported school population of 271,000. If the school population be 352,574, the deficiency would be 165,830 instead of 102,000. "Paragraph 4, page 7, reads as follows: 'Taking into consideration the estimated attendance in the corporate, parochial and private schools, the children under 8 years, whose parents dbo not wish them to attend school and the children legally at work, the deficiency in school accommodations is believed to be about 10,000 sittings.' " I do not believe that any one who has examined the figures can honestly come to the conclusion that the deficiency of sittings is but 10,000. The school age being from 5 to 14, I question the propriety of deducting the (hildren under 8 years of age, whose parents do not wish them to attend school and the children legally at work; were there school accommodations for them many of these would no doubt be at school. If all the children of school age (5 to 15, inclusive) demanded their rights the above figures show the real deficiency in school accommodations would be 105,830 instead of 10,000 sittings, as stated, after deducting the 60,000 estimated in other schools. "In further evidence of the above estimate I beg to state that the statistics examined show that in 11 years (1880-1891) the population of the city of New York has increased 46 per cent., whilst the school enrollment has only increased 7.83, and school expenditures have increased 23 per cent. "It is stated by those in the present school management that many of the children are recounted at several schools. It must also be true that owing to the large shifting population of New York city the enrollment is likewise increased. A special committee of seven was appointed by the board of education to recommend changes in the school system of New York city. This committee visited other cities and made their report last November; it contains many valuable recommendations, but it is noticeable that the report does not contain a single word relative to increased school accommodations, ventilation or sanitary conditions, notwithstanding the frauds discovered in the construction of the new school buildings during the year 1891. Apparently there is some influence at work which prevents these notorious facts being made public as they should be. I learn that the president of the board of education has recently called for a report asking for information on these matters, consequently, I advise that no action be taken by our committee until it is seen whether or no the president of the board of education will make known the facts when obtained by him. "6The estimated growth of the school population (5 to 15, inclusive) for the year 1891 is 13,406. It will be be noted only about 7,000 sittings were add(d during the year." I also give you the following statement respecting the number of sittings in the public schools, September, 1890, and the annual additions thereto, including 1894. I also give you the * The letter above referred to is a public document published by the board of education. 172 estimated school population five and 15 years, inclusive, January 1, 1890, and the annual increase, including 1894. I believe these figures to be substantially correct. They were prepared by the late Colonel Balch, auditor of the board of education. Respecting the number of sittings, I can state that I have a letter from him saying that these were supplied by the superintendent of buildings, and he believed them to be absolutely oorrect. SITTINGS IN ALL SOHOOLS. September, 1890................................... 186,744 Added, 1891....................................... 6,804 Added, 1892...................................... 6,822 Added, 1893....................................... 7,224 Added, 1894...................................... 12,240 Total sittings................................ 219,834 Total School population, 5 and 15, inclusive.......... 383,032 Increase from previous years....................... 12,952 Increase, 1891................................ 13,406 Increase, 1892..................................... 13,986 Increase, 1893..................................... 14,310 Increase, 1894..................................... 14,887 452,573 You will observe on page 6, of the printed letter of the president of the board of education, dated September 30, 1890, it is estimated that there are 60,000 in all, in the colleges, parish and other schools than public schools, say 22 per cent. of the total estimated population of 5 and 14 years, 271,000. From the estimated population of 1894, 452,573, I shall, the~efore, deduct 22 per cent, say 99,566, to ascertain the number in colleges and schools other than public schools These deducted leave 353,007 to be alccommodated in the public schools, with but 219,834 sittings, thus showing a deficiency of 133,173 sittings. Of course, there are very many children of school age engaged in various occupations, which, in the natrre of things, prevent their attending school. No doubt many would be at school if they could be properly provided for. You will observe these calculations are based on the school age of 5 and 15 years, inclusive. The Compulsory School Law, 173 which goes into effect January 1st iext, compels all children of 8 and 16, inclusive, to attend school. These figtres prove that it will be impossible for them to do so for want of accommodation. Yours very truly, (Signed.) JAMES A. SCRYMSER. GENERAL CONCLUSIONS. Having studied carefully the foregoing reports and commnnications and in many important particulars personally verified them, I am prepared to submit the following general conclusions and recommendations: The foreign-born population of this city is not, to any great extent, forcing children of legal school age into money-earning occupations. On the contrary, this population shows a strong desire to have its children acquire the common rudiments of education. If the city does not provide liberally and wisely for the satisfaction of this desire, the blame for the civic and moral dangers that will threaten our community because of ignorance, vice and poverty, must rest on the whole public, not on our foreign-born residents. The provision of school accommodations has been made with a stupid disregard of plan, of the distribution of population, of the public welfare, and of enlightened opinion, that stamps the educational administration of this city as ignorant and incompetent. When an educator of the experience and sobriety of mind of President Crowell is obliged to write, "While the general fidelity of the teaching force is to be commended, the whole order of things strikes one as being in the control of a grossly incompetent set of outside officials, at whose mercy the system is cramped and tortured into a low degree of educational efficiency," the condemnation is severe. I am satisfied that it is just. The very large number of children under the legal school age of 8 years in proportion to the number 8 to 14, shows the imperative need of kindergarten accommodations. In this matter New York is behind nearly every enlightened community in the United States. The statutes of this commonwealth should provide for a school census in every town and city, and for a complete, accurate, scientific registration of births, according to the methods most approved by statistical experts. Without these, compulsory education laws are a ridiculous farce. Without these, there is absolutely no means of knowing what the exact educational 174 needs of the population are; there is no way of enf orcing penalties against truancy. Moreover, to require parents who may desire to put their children at work to make oath tha~t the children are of a certain age, is not a means of ascertaining ages; it is only a means of cultivating the habit of perjury. Parents should be required to produce the attested birth certificates of all children not in school. The foreign-born have such cettificates, and we should require them, after a determined future date, of the native-born also. It would be a simple matter, and no hardship to parents. Bespefotfully, FRANKLIN H. GIDDINGS, SUPPLEMENT No. 4. Report on Public Parks. NEW YORK, December 1, 1894. R. W. GILDER, Esq., Chairman of the Tenement-IHouse Committee: Dear Sir.-I herewith submit to the committee a statement showing: 1. What parks exist in this city, and what are in process of construction. 2. The methods whereby parks came into existence, and the delays under the present system. 3. A statement as to the Small Parks Act, with suggestions as to possible legislation. L WHAT PARKS EXIST AND WHAT ARE IN PROCESS OF CONSTRUCTION. I subjoin, obtained from official sources, what I believe to be a very exhaustive list of park spaces owned or about to be owned by the city of New York, both within and without the city limits, with their acreage and location. As the interest of the committee is particularly fixed upon these small park spaces which are peculiarly serviceable in the alleviation of life in the tenement districts of the city, I have placed in a separate list, as fairly coming within the definition of small parks, those of less than 100 acres in extent: PARK SPACES OF 100 ACRES AND OVER OWNED BY THE CITY. Name. Location. Acrea. Bronx.................................. 661.60 Central, Fifty-ninth to One Hundred and Tenth street, Fifth to Eighth avenue.................. 839.92 Crotona...................................... 141.65 Pelham Bay, in Westchester county on southwesterly shore of Pelham creek.................... 1,756 176 Name. Location. Acres, Riverside, Seventy-second to One Hundred and Twenty-third street, Riverside drive to Hudson river...................................... 177.8 Van Cortlandt................................. 1,132.35 - Total..................................... 4,709.32 PARK SPACES OF LESS THAN 100 ACRES OWNED BY THE CITY. Name. Location. Acres. Abingdon square, Greenwich avenue and Twelfth street........................................202 Bronx and Pelham parkway, joining Bronx and Pelham parks................................... 95. Battery, State street, Whitehall street, Battery place and New York harbor................... 21.190 Boston road and One Hundred and Sixty-seventh street........................................16 Beach street, Beach street and West Broadway....031 Boston Road and One Hundred and Sixty-fourth sevet..................................,..0G Bowling Green, Broadway and Whitehall street.....517 Boulevard and Sixty-third street................314 Boulevard and Sixty-sixth street...................069 Bryant, Fifth and Sixth avenues, Fortieth to Fortysecond streets................................ 4.775 Boulvevard and Seventieth street...................002 ganal stiect, Canal and West streets...............318 Corlears' Hook, Corlears, Jackson, Cherry streets and East river............................... 8.3 Christopher, Grove and Christopher streets.........139 Cedar park, Sedgwick avenue, Mott avenue, Juliet street and Gerard avenue..................... 17.47 City Hall, Broadway, Chambers and Mail streets and Park row............................... 8.239 Claremont, One Hundred and Seventy-second street and Third avenue......................... 38.05 Cooper Union, Fourth and Third avenues, Sixth and Seventh streets................................229 Crotona parkway, joining Orotona and Bronx parks. 12. Duane street and West Broadway................108 East river, Eighty-fourth to Eighty-ninth streets, Avenue B to East river.................... 12.540 I~ 0 4: 0. 12 z 0 J 4: 1 -z t~J U 0~ 0 ~ 0 0 0. 0 0 C,) "'JO 1\~ 0 0 0 (2 P 0 @ft 9 Qh @ e ~ 0 0 8 a z -4ý A 45 a 1R I? I V '1 PARK. L HO ASA, 0 STT.S G)~ STNCOLSA, (4)S cp;1114ý.5e #ý(A 6 H 114 16 TOM AV, 't- 42 A V. 66b Ko. sr. FULT FULTON AV. W "*TOM ROAD C= serw pKiAbeirl4v <3, 447T" ST- PRAM 1#4 AV, 4, %t64T ST &*Wraid ROAD S46ST".6T. wr. MARY'S PARK. C T~ c~j~D c -V- -- - - zA ArD Y 01VN-D. A Map of' The Cityof New York o7 oShowing the Publ ic Parks No7 Existing,Constructing and Proposed; The Public Schools; The Centers of Gravity of the Population inti.86o,I8?vo,I8ol~i89o. Made uriderthe directioni of TheTeuement Houase Committee of t.8 44. BroI~e21lines ashow Propoped Prirca Hatchitig how, thxose CQtstructCIX 0D ave Givammar SchooLs; (0 =XCnrc u 0Showsw Center of Gravily of Fbpulatjon on AManhattan Island. of IL x Ai "P i T I, I I $Jill~ ~~ I ' 1 \Wtl Iri~i~ i _ ___ ___ i: a I ~- 1111~1 r r _ I ~ GRABS PLOT.. 3dwo ~5~4~d~~p~ A --f - cr In -r -r. -C~ -r - -,Rift G)R~in fWT. _ _~ ___ -- 54404 - A -N --r-~ ~~ I II IC~--~ I ____ ~~_~ _,,,, __--...,nl----- -------rrr- -I'TT;~-~I-~iX~ - ~''...~~L~-~--il~i~~i;~~ ~r-~--- ~---- - ------~--~~~r~~---~ --r~ ~r~~ ~-~~~rr~--~;--rl -~~~-~ --.~ ~ '~"~~~~-~~'~. - - -,. I - - No. 2. Floor Plan of Pier Park, 0 LA (m~ r m *15 I ''~~'1~ \\ lllliý 0 I f: 4t o f, ko) dhY oil) f B ---; rcr' I ~Sr~ I I II i I,i liiF~I' lk* 1 Irr '~C~L1(L Ll~s/, L~Cli~,'ftf itto V j 1(1~H czý Cl 0////ý 4C/ PF I =a ---.A L L - EW st - -- ---- ---- _I I -eý - Designed by W. d"H Wasbington. No 3. Side Elevation I I ~ - __..IUJLI A AL AL d ~ -1 1 I il -I O3 o o ~ t c o c/ Ys1 sicI [I ~--I 1- ' 1 - I -- I --- ~ _I_ __ ~~ Dedlgned by W. d'H. Washtngton. No. 4. Side Elevation of Pier Park in Winter, Enclos~ed in Removable Si 'lit low.ll dC)(' ffil 4 iiiii~rfill rli Illil rnfill I P Name. Location. Acres. Fulton avenue and One Hundred and Sixty-seventh street....................................,...20 Fordham, intersection Third, Washington and One Hundred and Eighty-eighth street.............0416 Fou-rth avenue parks, Fourth avenue from Fiftyseventh to Ninety-second street...............563 "Fulton avenue, betw"een One Hundred and Sixtyninth and One Hundred and Seventieth streets.,.90 (Irand street, Grand stheet and East Broadway....63 Higih Bridge, west end of Hligh Bridge..........23.38 'In tn ý n rý Jock spn Square, Thirteent-h street and Eighth avenue.......................................227 Je:Inette, Coonties slip..........................87 Munlberry Bend park, Boayard, Baxter and Mulberry streets..................................... 2.74 Manhitattan square, Central park and Columbus aveni.............................................. 19.051 Mosholn parkway, joining VaIn Cortland and Br onx p)arks....................................... 80. Mfadison square, Twenty-third, TwNrenty-sixth, adison and Fif h avenues........................ 6.04 Mafnhattan and One THundred and Fourteenth StrCet......................................0018 MIorning(ide. Columbus and Moruin gside avenues, One Hundred and Tenth mand One Hundred and Twienty-th i rd streets.....................0. 31.238 Mount Morris. One Hundred and TrNwentiith, One Hundred and Tw-enty-fourth streets, Madison and AMoint Morris aveie:....................... 20.174 Public square, intersection Fulton, Franklin avenues and One Hundred and Sixty-seventh street..2 I'Publie square., intersection Washiugton nmd Brolk avenues and one Hunndred and Sixty-third street,.05 1-2 Paradise, Five Points.......................0 6.114 Park avenue, Thirty-fourth to Portieth streets.. 1.168 St. Mary's, One Hundred. and Forty-third and One -Hundred and Forty-ninth streets and St. Ann's a11(d1 Robbins avenues......................... 28.701-2 St. Nicholas avenue and One Hundred and Fiftieth street..................................240 St. Nicholas avenue and One Hundred and Twentyihird street................................072 St. Nicholas avenue and One Hundred and Thirty. seventh street......................... *....038 T 23 178 Name. Location. Acre. Stuyvesant, Second avenue, Fifteenth to Seventeeth street........................................ 4.229 Tompkins, Avenues A a'nd B, Seventh to Tenth streets...................................... 10.508 Union square, Fourteenth to Seventeenth streets, Broadway to Fourth avenue................... 3.483 Triangle, Sixty-ninth street and Tenth avenue...... 004 Triangle, One lHundred and Foi-rteenth street, between Eighth and Ninth avenues.............0416 1-2 Triangle, One Hundred and Thirty-seventh street, between Eighth and Ninth avenues............033 Rutgers, Rutgers slip......................45 1 2 Washington square, Washington place, University place, Fourth street, Maedougal street......... 8.115 Sixt' avenue, Thirty-second to Thirty-fifth streets...186 Two small parks in East Forty-second street...... 25 1-2 Total acreage of park spaces of less than 100 acres................... 464.50358 Total acreage of park spaces of 100 acres and over.................................... 4,709.32 5,173.82358 The park spaces not yet the full property of the city, but authorized either by the Legislature or by the board of street opening and improvement hereinafter mentioned, are as follows: ADDITIONAL PARK SPACES AUTHORIZED. Name. Location. St. J(hn's Cemetery Park, Hudson, Clarkson and Leroy streets......................... Colonial Park, One Hundred and Forty-fifth to One -Hundred and Fifty-fifth streets, between Bradhurst and Edgecomb avenncs................ St. Nicholas Park, St. Nicholas avenue, One Hundred and Thirtieth. One Hundred and Thirtysixth, One Hunlred and Thirty-eighth and One Hundred and Forty-first, Tenth and Convent avenues................................ Fort Washington Park, Boulevard and Hudson! river, from 1,200 feet south of Fort Washington Depot road, to 2,000 feet south thereof........ Acres, 1.72 11.75 12. 179 Name. Location. Riverside Park extension...................... East River Park, One Hundred and Eleventh to One Hundred and Fourteenth streets, from First aveinue to the bulkhead line, East river (i. e., discretionary within said limits).............. Washington Bridge Park, at west or Manhattan ibland end of bridge, between Tenth avenue and the Harlem river, speedway, public grounds and Bogardus property, north of Washington bridge at One Hundred and Eighty-first street....... Washington Pridge Park, at east or Twentyfourth ward end of bridge, between Sedgwick and Undercliff avenues, Harlem river and prop Acre, 46.5 17. erty of A. H. Green.......................... 8. Total................................... 137.22 II. THE METHODS WHEREBY PARKS COME INTO EXTITENCE, AND THE DELAYS UNDER THE PRESENT SYSTEM. It is only through the Legislature, acting within constitutional restrictions, that private property is converted into public park spaces. There are two ways in which that legislative power is exercised in this city at present: 1. By the direct action of the Legislature, by special statute, designating the land that shall be taken. 2. By similar action on the part of a board to which the Legislature has delegated for this purpose its powers of eminent domain. This board is known as the "Board of Street Opening and Improvement." It was authorized by the charter of 1873 (chapter 335), and consists of the mayor, comptroller, commissioner of public works, president of the department of public parks, and the president of the board of aldermen. During the last 20 years this right of eminent domain has,ben from time to time curtailed, extended, shifted and partilioned among various city boards and departments, with the result that much confusion, and not infrequently an almost irreconcilible conflict of authority has been caused. The present situation, however, is as stated. When, through either of the agencies mentioned, the land to be taken for a park space has been determind, the title thereto must still be vested in the city. In the special statutes alluded to, it is usually provided that this shall take place upon the 180 confirmation by the court of the report of the commissioners hereinafter referred to; but the board of street opening may, by a formal declaration, vest such title, where there are no buildings upon the land, upon the date of filing of oath by said commissioners, and, where there are buildings thereon, upon a date not less than six months from the date of such filing. In either case the bus:ness is completed by a board of comm*a U '.,ne s who by the State Constitution must be not less than three in number, and appointed by a court of record, and are by statute three in number, and appointed by the Supreme Court), who proceed to ascertain in whom the title to the. various parcels of land involved lies, and to determine what awards shall be paid the private owner for the property taken, or what assessient he shall pay for the benefits accruing to such property of his as remains untaken adjoining or in the neighborhood of the proposed improvement. The owner is heard by the board through attorney, and presents testimony upon these points; and he may object to the commissioner's decision upon any one of them. Upon his objection, if unheeded by the commissioners, the court may direct a re-examination of the subjectmatter, by either the same or a new commission, which it appoints. Objections may be raised in like manner to this, with a possible new resubmission by the court, as before, and so on from time to time until a report is at last submitted, v hihi the court will confirm. Then, in any event, the city owns the land against all persons. Often in the course of the proceedings questions arise which are carried to the appellate courts, and the vesting of title waits upon their decision. Such a question for instance, arose in the case of the St. John's Cemetery park, the Trinity corporation, owner of the land, contending that the board of street opening had no power to take a burying ground for park purposec - a question finally decided adversely to the corporation. The procedure of these commissions has been in some instances characterized as very slow - even culpably so - and while some part of that criticism has been, perhaps, unjustly extended from particularly commissions which have deserved it, to the whole system, it is undoubtedly true that there have been, particularly in the past, and still are, to some extent, features productive of delay. Thus more or less of delay is inseparable from the character and composition of the commission, which is made up in each case for the particular proceeding of men engaged in mercantile or professional occupations, to the requirements of which the commission's work is often forced to take a secondary place, so that the commission's meetings proceed seldom continuously, but 181 as a rule, very much after the manner of a reference in an action or special proceeding, whose progress is, in the legal profession, proverbially slow. Again, a fruitful source of delay was, until the passage of a late statute, to be found in the fact that the compensation of the commissioners was computed upon a system which made it in imny cases ridiculously inadequate, and led them to postpone thle performance of their duties in that respect, to other more lucrative engagements. This has been very properly changed by the statute alluded to, which give the commissioners a compensation which, though small, is certain, and has to a great extent done away with this cause of delay. Perhaps, chief among the constant elements of delay is the fact that the commission is obliged, in order to commence its work at all, to wait upon the officials of another department to provide it with completed maps, which are indispensable for the perfor-mance of its duties. Thus, these commissions have to wait in the case of park spaces upon the department of public parks, in some other cases upon thle department of public works, and in still others upon the commissioner of street improvements of the twenty-third and twenty-fourth wards; but always upon some outside power, already charged with the duties of construction and maintenance over a considerable area. 'But it will, I think, be impossible to give to the work of these commissions the full measure of expedition which is attainable in many less delicate governmental operations. If it were practicable to make their inquiries continuous and not intermittent, a great deal of time might be saved, but the ascertainment and adjustment of land titles and values mulst always be a deliberate and cautious process, for, apart from its evident importance in a pecuniary sense, it is hedged and straitened by constitutional restrictions, which can not be overstepped. III. THE SMALL PARKS ACT, ETO. It appears to me, however, that tle principal desire of the committee is to correct, not so much the delays in proceedings once. begun, as the practical failure of existing authorities to exercise their powers at all for the creation of the necessary park spaces in the crowded tenement quarters of the city. All the power necessary for that end is, as you are aware, conferred upon the board of street opening, by chapter 320 of the Laws of 1887 (commonly known as the Smlall Parks Act, passe! May 13, 1887), which empowers that board to select, locate, and lay out such public parks as it may from time to time determine, in the city of New York, south of One Hundred and Fifty-fifth 182 street; and which authorizes the expenditure of $1,000,000 a year to carry out its purposes. In the seven years which have elapsed title has been acquired under the provisions of this act to only three pieces of park property, to wit: The St. John's Cemetery park, 1.72 acres; the Mulberry Bend park, 2.74 acres; and the East River Extension park, 8.6 acres; a total of 13.06 acres; and on none of these Eas the work of construction even begun, except to some extent upon the East River Extension. It will be observed that the board above mentioned, vested with the sole authority to acquire title to park spaces in this city, is composed of five ex-officio members, the heads of probably the most important departments of the city government, and as such charged with duties which fully engross their time. It is, in my opinion, useless, and perhaps unreasonable, to expect from a board thus constituted, the time and attention necessary for the devising and initiation of a scheme for the betterment of the tenement districts by the creation of park spaces, and the taking of land for public baths, lavatories, urinals, playgrounds about schoolhouses, etc.,As matter of fact, the work of the board is (perhaps justly) considered by its members as a thing to be postponed or hurried through in the intervals of their main official business; and practically from start to finish, it devolves, alike in suggestion and performance, upon a bureau newly created in the office of the counsel to the corporation by chapter 158 of the Laws of 1893, and known as the bureau of street opening. I think that the construction and maintenance of parks is best left where it now resides, in the department of public parks. I do, however, think that the present need of the city for some park spaces in the tenement districts, and for the establishment of the public conveniences above indicated, as will improve the condition of the population at large, can be best, and perhaps only, effected by the establishment of a special temporary commission, given all the power with regard to the selecting, locating and acquisition of land for these purposes, possessed by the present board. I believe that an independent commission, which can concentrate its attention upon the task proposed, unhamper d by otler official work, is indlispensable to prom)pt, horough and intelligent performance of the necessary labor. Part of the commission might, as officers of the city government, be memtbers ex-officio. As an alternative the mayor might be empowered by act to appoint a commission to locate the park spaces and other improvements contemplated. Their decision might either be final as to locality and nature of improvements, or be subject to the ratification of the Legislature, by act based 183 upon their recommendations to be reported to the Legislature. This suggestion is in the line of the act appointing the commissioners to locate the parks in the annexed district. I have been asked whether, as another alternative, th1i work of location might be done in the first instance by an unofficial advisory committee or board of private citizens to be designated by the mayor--its conclusions and recommendations to be laid before the existing official agencies for action. I have no doubt of the mayor's power to designate such a committee; and as I have heretofore said to you, can readily conceive of its performing the highest class of work in the direction indicated. Of course, its function would be simply that of advisement to the officials at present charged with such duty. Yours very truly, A. D. PARKER. SUPPLEMENT NO. 5. Pier Parks or Promenades. To the New York Tenenment--House Commission, MR. R. W. GILDER, CUairman: Gentlemen.- The entire report of the tenement-house committee and the conditions that have been found to exist as to overcrowding accentuate in the mcst forcible manner the necessity of more and larger breathing facilities for our geographically overcrowded population. The feasibility of dock parks has long been discussed, but so far as the writer's knowledge goes no design has as yet been offered with detailed plans for an attractive structure for this purpose. The city of New York on our water front owns 123 piers outright and 29 more in conmmon with private individuals. Of these, 33 on the North river are shedded and 44 are unshedded, while on the East river 32 are unshedded and 8 are shedded. As the cily is already short of dock facilities, it would probably be inexpedient to set aside to the exclusion of wharf purposes any of these piers, as these facilities are inadequate to the large and growing commerce of the city; while the loss of revenue to the city would be an item of considerable moment. The above plan is suggested as a combination for business purposes as well as public use. The possibility of utilizing these spaces at a very small proportion of the cost of creating a park, where the realty would have to be acquired and damages for existing buildings and improvements satisfied, is worthy of consideration. The commercial value or revenue to the city woiuld be slightly, if at all, affected by an elevated structure, as per lplnn submittl here. with. While the suggestion embodied herein will probably meet with opposition in some direction from the fact that it may be said that such a structure would endanger from fire the pier and its contents, as well as shipping lying alongside, yet it would appear that there would be little real objection, especially in the case of unshedded piers, to the erection of a struoture such as is called for in the accompanying sketch. This 185 would not in any way interfere with the renting of the piera Such a park or promenade would in all probability be in charge of a park policeman, and such regulations could easily be made is to guard against tire, either by prohibiting smoking or. by reasonable regulations in regard thereto. The dock department has already taken a step in this direction by opening all its uileased piers to the public, and has put small sheds on the ends for the protection of the people from sun and weather. If the piers are not damaged or endangered by allowing the public on them in this manner, a structure elevated twenty or twentyfive feet would certainly be very much less dangerous and objeclionable. These small sheds, however, fall far short of the requiremienis of the people, as there should be something attractive about a park or any public resort, and there is certainly little that is inviting about the end of a long dock, which is used for freight, teaming, etc. Where there is no separation Let--een the commerce and pleaslures of the people it is hardly to be expected lhat such resorts would be extensively patronized, although I am advised that these piers have proved a. great boon in several sections of the city. The objection to the structures suggested on the ground of the danger from fire, etc., would seem to meet an excellent refutation in Pier 1, on the North river, where the iron steamboats make their landings, and from whichl thousands cf people emlbark and debark annually. The top of this pier 's iued as a prorimenade, and a charge is made for the use of the same. This pier has been in use for this purpose for years, and tlIe loweir 1art is one of the busiest shipping piers in the city for valuable freight of all kinds. As to the question of decreasing the revenue of the city or dock department by the creation of such structures in specified localities, it should be understood that it would be necessary to have them only at intervals, and the expense of construction would be very much less tlhan would be entailed by the creation of a park in the city. The accompanying sketch provides for iron columns, steel beams, terra-cotta Ilooriing covered by concrete and asphalt, etc., which we show in detail in the specification, which would make it both water and lireproof. On such a foundation could be placed fountains, grass plots, flowers, plants, playgro'nds for children, and, in fact, every attractive feature whicl would be possible in a small park on terra firma. Apparently such parks would be peculiarly benoficial and attractive to our tenement-house population, especially on the very hot days of summer, and to those who are unable to take an outing on a steamer or otherwise in order to get a bit of fresh air. T 24 186 They would be a boon to mothers and their babies and to children, and in the spring and fall, and, in fact, at all times when promenades or parks are used. That is to say, except for three or four months of the coldest weather, such breathing spaces would undoubtedly be largely availed of, and a dozen such structures could probably be created for little more than the cost of a park covering a single block in the city. It is not intended, however, to suggest these parks as a substitute for parks proper, but rather as a supplement thereto, as it would be almost impossible to provide too much room in our crowded seetions for the expansion of the population. Herewith will be found a view in perspective of the proposed pier park, the side elevation and the ground plan. These designs could, of course, be carried out either elaborately or plainly; and at much or little cost. W. D'H. WASHINGTON. DEPSRIPTION OF PROPOSED PIER PARK. The structure is to be built of steel and iron, one story in height, resting on the existing dock and foundation. The width of this building is 75 feet; the length, 544 feet; height, 25 feet in the clear. The roof, or deck, is flat. and is constructed with eight inch terra-cotta fireproof arches, fitted in between steel I beams, placed about six feet apart, and held together by wrought-iron ties, in the same manner as a lireproof floor. These beams are supported upon lattice steel trusses, which span the entire width of the building. The trusses are placed 1Pi feet apart and rest on hollow cast-iron or wrought-steel columns, the whole being tied together by I beams rivited to the tops of columns and girders, and securely braced by cast-iron arches, or steel angles, bent to the required shapes. The spandrils of the arches are filled in with ornamental cast or wrought-iron open work, as shown on the side elevation. Above the arches is a cast-iron cornice, which extends entirely around the building, with gutters, to carry off the surface water from the roof or deck. Six pavilions, two at each end, and two in the middle, are constructed to afford protection to the women and children in case of storms, and from the rays of the sun. Within these pavilions are the stairways, which afford access from the street to the park. These stairs are supported upon steel strings, and have cast iron risers and newels, slate treads, wire netting for railings, with polished wood hand-rails. 187 The roofs of pavilions are of galvanized iron, corrugated, and the ornamental towers and turrets and cornices are also of galvanized iron. The roofs are supported on light steel trusses, which rest on hollow cast-iron columns, or steel posts, all firmly riveted and bolted together. The entire park is fenced in with iron wire netting, not less than three feet six inches in height, firmly secured to cast-iron newels and columns of the pavilions. The roof, or deck, is finished on top of the arches with a good layer of Portland cement concrete, over which is put down a finishing coat of asphaltum, to make water-tight, so graded that the surface water will run into the gutters; from which it is discharged throughl galvanized iron leaders into the river. Suitable curbs are set where shown on the ground plan, of sufficient height to receive fertilized earth to grow plants and trees, as may be directed. Two fountains are to be placed in the park as shown. The same to be of cast-iron. These fountains to be supplied with the necessary water supply and waste-pipes, etc. One toilet-room to be constructed for ladies and one for men; approached from one of the upper landings of the stairs. On the plan the portions colored green indicates where the ground is to be filled in, sodded and trees and plants grown. The portion colored light-yellow, shows the walks and playgrounds for the children. Suitable seats to be provided as the demand may require. All the iron-work is to have one coat of red lead paint and two coats white-lead and linseed oil. Roofs painted red; other iron-work light-yellow. If desired, the pavillions could be inclosed with glass, and heated and would serve as a winter garden or solarium. The floor of the park is designed to support 150 pounds per square foot, in addition to the weight of the materials. Trusses which support fountains and garden spots proportioned to safely carry all loads. SUPPLEMENT No. 6. Report on Existing Baths in New York. To the Chairman of the Tenement-House Committee: The city of New York itself maintains floating baths, which are largely used in spite of their distance fromn the tenement districts. They are only open during four months of the year. In winter time, when bathing is even more necessary to the preservation of health than in s;ummer, these baths can not be used at all. The following letter was written to the committee by Comlmissioner M. T. Daly, of the Department of Public Works: "In answer to your inquiries regarding this city's flo:ating baths, I present the following: The first two baths were built and opened in 1870, and the latter additions are: in 1876, four baths; 1879, two balhs; 1882, one bath; 1883, four baths; 1888, two b:iths; total number in use since 1888, 15 baths. Average cost of each bath complete, $9,500. Annual cost of maintenance, for repairs and supplies, storage, lighting, etc., $18,000; for salaries of keepers, attendants:and watchmen, $30,000. Average bathing season, from June 10th to October 1st. Average number of bothers (number of baths taken or given) for each bathing season since 1888, males, 2,500,000; females, 1,500,000. "To th e above add, by enclosure, a general description of the baths, which has been prepared as a. reply to the hundreds of requestis for information from all parts of the coluntry." "DESCRIPTION OF NEW YORK'S FREE FLOATING BATTIS." "There are 15 free floating baths, berthed at convenient locations from the Battery to One H-undred and Thirty-fourth street on the North river and from Market slip on the East river. The baths are usually open from the middle of June to October 1st. They are open daily from 5 a. m. to 9 p. m., except Sundays, when they are closed at noon. Mondays, Wednesdays and Fridays are set apart for women and children, the remainder of the week being for males. The average number of persons using the baths annually is over 3,750,000. There is absolutely no charge for admission to the baths. All bathers are required to furnish themselves with bathing dresses (excepting children), and to 189 avoii infection no towels or other toilet articles can be hired at the baths. Two male attendants are in charge of each bathi on the days set apart for males, and two females attendants on the other days. There is also a male guard at. each bath oC women's day, a policeman to keep order, and a keeper on eecth bath at night. Each bath has an average of 63 dressing rooms, a reception and retiring room, and is lighted by gas. The baths have a supply of ice water, and are thoroughly swept, scoured and washed down nightly. At the end of each bathing season, the baths are thoroughly repaired and cleaned." Through private philanthropy, two bath houses, of improved construction have, within the last few years, been provided for the working classes, and placed in the midst of populous tenementl-house districts. Another bathl similar in character has be(,c located in the basement of thi D)emilt dispensary. and within a short time the Riverside association and the Cathedral mission have put rain baths in their basements for the use of Ihe public. These baths all charge a small fee for adm)ission, and are not, therefore, literally free, but the price is so low as not to be prohibitory to even the poorest class of people. They are the only public baths that can be utilized by the poor people of this city at a minimum fee, and, together with the 15 free floating baths used only in the summer, they constitute the available public washing places for the poor. Baths in the cheap barber shops are to be had from 15 to 25 cents each. The bath-rooms and the tubs are not, as a rule, clean, and some of them are filthy. They are only used by men, and the price -s above the means of the poor man, even if they were clean. They are not extensively patronized for these reasons. The rain baths, as the new baths are called, are constructed on a simple principle, which affords a proper cleaning of the body with warm water and soap, and also furnishes the best sanitary safeguards that have yet been devised in baths against disease. The first rain bath in this city was introduced in the New York Juvenile Asylum, by Dr. Simon Baruch, who Bad made a special study of the bathing system of Europe, and who, by his indefatigable energy, has brought a cheap, practical and efficient bathing system into use. The original tub in the asylum was a plunge bath. This was cut down to diminish its height and to save *le expense of a new floor. Above it were placed 68 sprinklers, near the ceilings and 28 inches apart. The temperature of the water in the pipes leading to the sprinklers is regulated by the admixture of steam. The children enter the tub in groups, when the warm water is turned on. They apply the soap and scrub the outicle well with their hada, while the warm 190 water falls on them, and washing them clean passes immediately out of the tub as fast as it reaches the bottom. Two hundred and eighty children are washed in this way every hour, while mnder the old system of the plunge bath, only 80 children could be bathed in the same space of time. Ten minutes are allotted to each group in the water. The quantity of water as measured, is, by this method, only one-eighth of that formerly used. The principle of the rain bath is that of the shower bath in private houses, but in the latter cold and hot water are mingled together, while in the former the cold water is heated by steam. The advantages of the system as stated by Mr. Carpenter, the superintendent of the asylum, are as follows: First. It requires but a minute or two to prepare for bathing. Second. The children bathe and rinse in clean water. Third. A larger number can bathe in successive compianies. Fourth. It requires only one-fifth or one-tenth part as much water as the plunge bath. Dr. Baruch sought to do away entirely with the old-fashioned tub, as he knew the difficulty of keeping one of them in proper sanitary condition, when large numbers were using it. The new method he describes in these words: "Being thoroughly soaped, the bather stands upon an inclined asphalt floor, under a large rose, from which a coarse spray is descending with some force. Both hands being free, as in the tub, he may rapidly rid himself of all accumulation of suds or dirt, which the descending stream will wash away, flowing from him to the inclined floor and thence into the gutter." Although modified in different ways, the essential principle is similar in the live new baths that have been recently built in this city for the poor. The People's Baths at No. 9, Center lMarket place were opened to the public August 17, 1891. The building, which was erected under the auspices of the New York Association for Improving the Condition of the Poor, is a two-story structure of brick and iron, and is used exclusively for bathing purposes. It is located in the midst of a populous tenementhouse district. There is one general entrance. On the first floor are the waiting-rooms, one of which is for men and the other for women, with the office between them. Here a cake of soap and a crash towel are handed to each l1ather. The bath-room is a high, spacious apartment, with a large skylight in the roof, which furnishes an abundance of light and air. A corridor on each side leads from the waiting-rooms to the bathing compartments, each of which is divided into a dtressing-room and a bathroom proper. There are eight spray baths 191 for males, and seven spray baUths for fema-les on this floor, with ihri-ee, tub baths located in the rear. TwoM0 of the latter are used byN- mothers with young children, aind the other is for males. 'I'he driessingt--rooins are entered thriougo-h screen doors hiaving lock(s on them. Each is three feet six incihes byi four feet in size, lind contains a seat and clothes hiooks. A curtain, sliding on a bar, forums a movable partition between the apartments. The iPliI-reooL is three feet six inches in 'idtlh, by four feet in length, made of sheet iron, covered with enamiel paint. 'I'There is a seat on onie side. A douclie, circular in formu, is Placed abovN~e, oult of the reaclh of the bathier. The waiter fr-om1 it I'Als at a-n angle so ais ut to weit time head, unless it is desired, and is uinder conri-ol of t-lie bather. The floor is of cemitent and slopes dowN-n to the draiiii. The water is carried 1byN its own monitoenti tint and the inclination of thle floor into the waste.-pipe. A wire screen covrers tlie tops of all tie baths, so as to secure per-fect seclu-sion. There are two toilet-rooms for w~omen, and in the corridor there is a large mirror and combs for their use. hi. the co-rr-idor on the men's side is lik'Ce-wise a mirror and combs, and they have one tolet-rooni. The haouctment t has in friont tthe laundriy, with all tile mlodern apitliances. In tile center is the engine-roomni, with the engine, and a boiler of such ctapacity as to heat the wblole building wNith srpilulIs steam. Steam1111 is employed to hieat the water for ihe batlis. The su)pply of water, whichi is abundant, is taken from an artesian w-vell beneath the buildiing and from the Croton pipes. "Ventilating miachilnery of the niost improved pattell) is placed her-e. There are seven sl sqay baths for males, whilch are exactly simfilar to those on the floor above. A lllirror ar.(*.' combs can he fouind in the corr-idor. rrllere are two toilets. All tife roonms in the basement are well ventila-ted by fans andl are lighited with gas. TrilC best sanitary and engineeringi skill Ilas been emp~loyed in the construction of the buiilding and its machinery. The sexes are entirely separated from nthe itune of entering until leaving the lrelnlises. Tilte fee for a bath is li\ve cents, a small child with its miotbhe-r beingcr admitted free. T]fhie lime allowed such bathers is 20 minute_--s. The towels ar-e waslhed in Ilhe laundry and are tho-roughly disinfccted by hieat, whichi insuires their sanitary condition and the lprotcclion of others from disease. The baths are open every d.ay in -tile yeaT'. The hours of adnmission are from the 1st of April io October Ist, 6s a. m. to 19 p. m.. and from October 1st to April 1st, 8 a. in. to 8 p. in. On Sundays, the hours are frjonm 6:30 a. in. to 9 a. in. A comnpetenti matron hass charcrge of Ille women, an experienced muan of the men, and a policemian 192 has been detailed to be in attendance and to preserve order. Aniiiy- who have ins.npected this imodel bathhouse have prononcedl it matchless, both in construction and management. All parts of the building are kept as neat and clean as human hands can maake them, thius instilling the moral idea of cleanliness into the minds of the bathers throtugh the force of example. The yearly increase has averaged a:Iboiiut 10,000 biathers, and the experience at this institution has been that the people appreciate the bathli, showing this by their constant attendance. The bathers who, a year ago, took a bath once weekly, now take it twice each 'week. VWorkinemen and women, and those persons who have no facilities for bathing at horne, furnish the majority Nof those ha lr-s. TIc ' al ihs arc used largely by men who foirmerly went to the bath-tubs in the harhber slops, and the chahoge was 1)-oulghit about by the great I er faciliies for cleanliness in the People's Bathis. 'Ihe resull s heire have shliown the people can be educated in cleanliness, if the opportunity be afforded. It is the desire of the aswoialtion to build a larger building. o1 n ) recAisely vthe same plans. and under a similar management, as soon as funds are provided. Date of opening hbathhouse, Augupst 17, 1891 Cost of bathhouse, exclusive of value of lot.......$27,025 58 Cost of operation for one year at 5 cents each for b:iths, beyond receipts from batfhers............ 1,840 7( Total number of bathers from (late of opening to March 31, 1894- two years and seven imonthis: Men.......................................... 120,780 Women.....................................19,847 (Children.................................. 15,710 Children, free................................... 7,829 16b4,1 6 G Greatest nnnmber bathed in any one month....... 13,095 Greatest; number bathed in any one day......... 1,038 Average number bathed p er month for the whole period................................... 5,295 Av erage number nbathed per day for the whole period....................................... 172 Average number bathed Iper dav in tHie winiter Iounths...........0.................... 140 193 Superintendent Taylor wrote to the committee in answer to an inquiry, as follows: "After a careful estimate, we find that the 80,537 baths given by the Peoples' Baths last year (1893), represent about 4,000 different persons." The liaron de Hirsch Trust Fund Baths are situated in an apartment-house at the southwest corner of Market and Henry stiets. They occupy the basement and first floor, and were opened to the public in January, 1892. The entrance for men is from Market street, and that for women from Henry street. In front, on the first floor, are the waiting-rooms, divided by a partition, one being for men and the other for women. The office occupies a part of the waiting-room for men. Separate corridoors lead to the baths of the men and women. On the Henry street side are located seven spray baths for women, one tub bath for children, two toilets and a washing sink. On the opposite side there are four spray baths for men. There is a dressingroom for each bather entered from the corridor by a screen door This room is 4 1-2 feet by 4 1-2 feet in size, and contains a stool, a looking-glass, a shelf and clothes hooks, with a spring lock on the door. The bathroom is separated from the dressing-room by a half partition, and is 4 1-2 feet by 4 feet in size. It is made of corrugated, galvanized iron, open at the top, and is covered with enamel paint. The floor is made of cement, and is about six inches below that of the dressing-room. A douche is placed above out of the reach of the bather, which delivers the water at an angle so as to keep the head dry if this be desired. The( w:vater flows from the bathroom floor as fast as it is delivered by the douche. There are two pipes, one containing hot and the other cold water, and each bather regulates the temperature and the amount of the water by means of valves under his control. When the valves are fixed the hands of the bather are free. There is a wooden seat under each douche, raised about Iwelve inches above the cement floor, and so placed as to be under the douche. In the basement, which is exclusively for males, there are 14 spray baths, one toilet, one washing sink and the engine-room. The waiting-room is connected with the basement by a stairway. The baths are exactly similar to those on il, first floor. The ronoms and bathrooms are well ventilarted and lighted with gas. A matron attends to the women, and an experienced man looks after the men. The time allowed to each bather is 20 minutes, which is ample. A Turkish towel and a cake of soap are allotted to each bather. The hours of admission in winter are from 8 a. m. to 9 p. m., except on Saturday, when the baths are open from sunset to 10 p m., and on T 25 194 Jewish holidays, when they are closed. In summer they are open from 6 a. m., to 11 p. m., with the exceptions above mentioned. The fee for admission is five cents for adults, and three cents for children. The pupils of the Baron de Hirsch free schools and the Baron de hirsch trade schools are admitted free. The towels are washed at an ordinary steam laundry outside the premises. 'Jhere has been a steady increase of about 12,000 bathers every year since the baths were opened, and the moral influence of the baths has already been noticeable in better habits among those who use them. The bathers prefer the rain bath to all others, it being not only efficient as a bath, but also because there is no possibility in it of contracting contagious and infectious diseases. The fear of conuagious disease a ong the masses is very great, amounting almost to a superstition, and that they understand some of the conditions under which diseases may be contracted is shown in their avoidance of the bath-tubs and towels of the poorer class of barber shops. If the people be taught what to avoid and how to live, the law of self interest will make anything popular among them that is shown to be efficient in adding to their health, comfort and working capacity. SUMMARY. Dat- of opening Laths corner of Henry and Market streets, January 1, 1892. Cost of plant for baths (about)...................... $10,000) Cost of rental of premises per year.................. 1,500 Cost of operation for one year at five cents and three cents each beyond receipts from bathers (including rent for the year 1893) about..................... 2,300 Total number of bathers from date of opening to October 1. 1894, (two years, hine months)............ 140,5)7 M en.............................................. 109,095 W omen......................................... 31,502 Children................................. (No record kept) Free......... Pupils of our English schools and trade schools. Greatest number in any one month, July, 1894....... 9,235 Greatest number in any one day, September 30, 1894.. 712 Average number bathed per month for the whole period. 4,261 Average number bathed per d:ay for tihe whole period.. 142 Average number bathed per day in the winter months.. 97 The Demilt Dispensary is located on the northwest corner of Twenty-third street and Second avenue. It has six rain-baths and one tub-bath, opened to the public August 24, 1891, and all on the basement floor. In front is the waiting-room, then the office, and back of the office the baths. The rooms are lighted 195 by gas, well ventilated and heated by steam. The bather enters the corridor from the waiting-rooms and passes along it to a screen door opening into the dressing-room, which is four and on.-half feet by three feet two inches in dimensions, and separatid by a half partition from the bath proper. The latter is four feet by three feet five inches in size, with a depressed ironbasin eight inches deep forming the floor. The sides of the bath are marble. Above is the douche, out of reach of the bather, and set at an angle so as to deliver the water on the neck, shoulders and body. Each bath compartment is lighted with gas and well ventilated, and each has all the conveniences for comfort;is well as perfect privacy. When the bather is ready he touches the electric button and the operator at the valve board turns on the water at the desired temperature, which is regulated by a thermometer directly in front of him. When the bather has finished his bath he gives the signal by again pressing the button, and the water is shut off. The size of the waste pipes is such that the water does not flow away as rapidly as it is delivered by the douche, and there is a sufficient quantity left in the basin to cover the feet of the bather. The bath-tub is used for children and invalids, and is placed several inches above the level of the floor, so that mothers with children and the attendants of invalids can easily reach them while bathing them. It has a wide, rolling, enamelled rim. In all the baths hot and cold water mixed are used. A towel and a cake of soap are furnished to each bather. The time allotted to each bather is not over 20 minutes. The baths are open daily from 9 a. m. to 9 p. m., excepting Sundays and holidays, when I hey close at 12 noon. Tuesday and Friday afternoons and evenings are set apart for females, and the remaining time is for males. The fee for admission during the first year was 10 cents, but on the 1st of August, 1892, it was reduced to five cents, to make the baths more popular. If the bather be unable to pay the fee a free ticket is given him. It will be observed that the operator at the valve board has control of the water and not the bather. The towels are not washed on the premises, but by a woman at her home. There has been a yearly increase of about 75 per cent. in the nulnber of bathers since the baths were opened, and a marked increase was noted after the price was reduced. They are patronized by a good, working class of people, and are very popular. Many come for a bath two or three times a week, others come four, but the majority but once. They say the baths make them feel stronger, and better able to work. The baths have already proved a means of inculcating better habits in the bathers, who prefer the rain-bath because it is clean and free from the contagi n of disease. The capacity of these baths is not 196 equal to the demand during the summer months, and on Saturday and Sunday mornings, and it is the intention of the trustees of the dispensary to increase the bathing facilities as soon as practicable. Cost of bath at Demilt dispensary (about)......... Tothl number of baths from October 1, 1891, to Octoher 1, 1894............................ Average per month............................. Average per day............................. Men, since November 1, 1892..................... Women, since November 1, 1892................. Greatest number any day......................... Greatest number any month...................... Persons bathing from October 1, 1891, to October 1, 1892...................................... Persons bathing from October 1, 1892, to October 1, 1893..................................... Persons bathing from October 1, 1893, to October 1, 1894........................................ ESTIMATED EXPENSES OF BATHS. Salaries from October 1, 1891, to October 1, 1894 ($300 per year).............................. Coal (per year $125)............................ Gas, October, 1891, to October, 1892.. $85 00 Gas, October, 1892, to October, 1893.. 150 00 Gas, October, 1893, to October, 1894.. 135 00 $3,000 23,893 664 22 11,431 1,980 204 1,894 3,031 7,939 12,923 23,893 $900 00 375 00 370 00 Laundry, October 1, 1891, to October 1, 1892......................... Laundry, October 1, 1892, to October 1, 1893....................... Laundry, October 1, 1893, to October 1, 1894...................... $55 15 73 61 101 33 Soa ToRep 2-30 09 ip, per year, $60.............................. 180 00 vels, per year $12............................. 36 00 )airs per year, $75........................... 225 00 Estimated expenditures.................. $2,316 09 Correct receipts............................ 1,275 65 Excess of expenditures...................... $1,040 44 197 Demilt Dispensary - Bath Report. August 20th to September 16, 1893 and 1894. Total DAY. Date. Males. Females. receipts. receipts. 1893. Monday............... August 21 14...... $1 20 Tuesday............. August 22 10 13 1 15 Wednesday............ August 23 18...... 90 Thursday............. August 24 15...... 75 Friday................ August 25 7 18 1 25 Saturday............... August 26 169...... 8 45 Sunday.............. August 27 66...... 3 30 Monday............... August 28 35...... 1 75 Tuesday............. August 29 6 5 55 Wednesday........... August 30 24...... 1 20 Thursday............. August. 31 22...... 1 10 Friday................ September 1 6 9 75 Saturday.............. September 2 60...... 3 00 Sunday................ September 3 20...... 1 00 Monday.............. September 4 7...... 35 Tuesday.............. September 5 4 8 60 Wednesday............ September 6 38...... 1 90 Thursday............ September 7 16...... 80 Friday............... September 8 5 11 80 Saturday............. September 9 66...... 3 30 Sunday................ September 10 26..... 1 30 Monday............... September 11 10...... 50 Tuesday............... September 12 5 3 40 Wednesday............ September 13 20...... 1 00 Thursday.............. September 14 17...... 85 Friday................ September 15 4 4 40 Saturday............... September 16 60...... 3 00 Sunday................ September 17 20...... 1 00 Total........................... 0 71 $42 55 Total males and females.. 851 -- 198 Demilt Dispensary - Bath Report - (Contznued). __ Female. reeotal Irece - pts. DAY. Monday........... Tuesday........... Wednesday......... Thursday............ Friday............... Saturday............. *0 0 Sundiy..........**o* Monday............. Tuesday............. Wednesday..... o..0669 Thursday..........*goo Friday............... Saturday.............se Sunday..............0 Monday.....P........ Tut sdiy............. Wednesday....ease*..00 Thursday............ Frid ay............000 Saturday...... Sunday.......... Monday..........,00.0. Tuesday............... Wednesday...se........ Thursday............0 Friday............... Saturday.............0 Sunday............~~~ Date. 1894. Auguist 20 August 21 August 22 August 23 August 24 August 25 August 20 August 27 August 28 August 29 August 30 August 31 September 1 September 2 September 3 September 4 September 5 September 6 September 7 September 8 September 9 September 10 September 11 September 12 September 13 September 14 September 15 September 16 Ma!es. 3,7 8 35 45 13 163 83 36 4 30 35 3 126 52 6 5 54 42 4 88 85 78 '7 33 35 7 122 80 1,316 10 31. 28 3 1 14 167 $1 85 90 1 75 2 25 2 20 8 15 4 15 1 80 1 60 1 50 1 75 1 50 6 30 2 60 30 1 00 2 70 2 10 1 75 4 40 4 25 3 90 1 05 1 65 1 75 90 6 10 4 00 $74 15 Total........01...so...0......* &ý Total males and females.. 1,483 Increase, males.............................536 Increase, females....0*.*......g..................96 Total................s..................632or31.60. LIRAY ~~ Li 199 The Riverside association at 259 West Sixty-ninth street, is established for the benefit of the working classes, and is nonsectarian in character. An annual subscription of $5 is necessary for membership. It has a free library. On June 1, 1894, its baths were opened to the public, but since September, 1 893, they have been available to the members. They are located in a large dry basement of the association building, which is 25x95 feet in dimension, and is well lighted and ventilated. The floor is concrete throughout. On one side in fornt are a closet, four spray baths, four urinals and four marble wash-bowls, with hot and cold water, a mirror being placed above the bowls; while the engines and boilers for heating the building and the baths are on the opposite side. The private dressing-room of each bath is entered through a wooden door. It is four feet by four feet in size, with walls of wood, and contains a gas burner covered with wire, two clothes hooks, a mirror and a shelf with a brush and comb. The door is provided with a secure lock. The bathroom proper, four feet by four feet, is separated from_ the dressing-room by a canvas partition, which slides on an iron bar. The floor is a cement basin, six inches deep. The sides are of slate. A wire netting that extends to the ceiling above is placed between the baths at the top. A strong metal douche, circular in form, is above the head of the bather, but not out of his reach. The water is delivered at an angle, so that the head can be kept dry. There is one valve which is under the control of the bather. It governs the cold water only, and with it the bather can regulate the temperature by changing the proportion of hot and cold water. The towels are washed on the premises and thoroughly disinfected by hot water. The hot water used is supplied by a small boiler. Two towels and a cake of soap are furnished to each bather on entering the bath. The hours of admission are from 10 a. m. to 1 p. m. on week days, for females, and for males, 2 p. m. to 8 p. m. on week days, and Sunday from 7 to 11 a. m. The fee is five cents for each bather, but to the members of the various clubs of the association it is one cent. The success of these four baths has been such that the trustees of the association have determined to add as soon as possible nine new rain baths of improved pattern. The experience of the past year shows the greatest appreciation of the benefits conferred and an increase of personal cleanliness among the patrons. There is a greater desire on the part of the working classes to avail themselves of the baths and their sanitary character has made them very popular. 200 The secretary thus writes in regard to them: "You will underst nd that the baths were incidental to the other work of the association. It is only from the experience of the success of the few baths that has led the trustees to expend an additional $S,~)O to enlarge and improve the bathing facilities. "It is expected thnt the future operations of the baths will show that by utilising the basements of large buildings which are designated for no special purpose (providing the remainder of the building is used), the owners thereof, by placing baths in such basements, charging a fee of five cents a bath will realize a profit sufficient to pay janitors' wages and interest on plant. This we expect to do in future. "Total number of bathers from date of opening to date of closing for alterations- a period of one year-nearly 6,000; greatest number in a month, 686, in July, 1894; greatest number in a day, 86; average number of bathers per month for the whole period, 500; average number of bathers per day for the whole period, 16. "Average number bathed per day for the winter months I can not give. For the month of January, 1894, alone, the average per day was 15. I think I can safely guess at 10 as the average per day for the three winter months." The Cathedral Mission baths at 130 Stanton street are in the basement of the mission. They were opened in July, 1892. There is one general entrance from Stanton street. A separate club-room in the basement is used as a waiting-room for each sex. There are four (spray and pool baths) for women, and one spray and one tub bath for men. In all six baths. A clean, coarse crash towel and a coae of soap are furnished to each bather before entering the bath. Close to the waiting-room for women are the dressing-rooms, which are entered through wooden doors with secure locks on them. Each dressing-room is four feet by three and a half feet in size and contains a seat, clothes hooks, a gas jet and a looking glass. It has a concrete floor. A rubber curtain sliding on a wooden bar forms a movable partition between the apartments. The bath-room is four feet by four feet in dimensions. Its walls are of galvanized iron and reach nearly to the ceiling. Its bottom is a concrete basin eight inches deep, with an orifice for the waste pipe into which fits a hollow metallic plug eight inches in length. The basin when filled forms a pool of water about seven inches deep. The pool is used by mothers with small children, and is found very convenient for bathing the latter. It is also utilized by adults. There is a seat on the right hand side, and sitting upon this, a mother can easily scrub her children. As many as three children can be 201 bathed at once. A heavy metallic douche is placed above out of the reach of the bathers, and delivers the water perpendicularly. The excessive water after the basin is filled passes away through the hollow tube. There are two valves which are under the control of the bather and regulate the supply of hot and cold water. The baths are well ventilated, but this part of the basement has not good natural light. In a large room, about 25 feet distant from the male waiting-room, is a spray bath for men. It consists of a douche similar to that already described, a concrete floor, and a waste pipe. It is open at the sides and it has no pool. In the same room with the spray bath is the tub bath, located on one side. It is likewise not inclosed at the sides by either partitions or curtains. It is similar in construction to the tub baths of other establishments. The dressing-rooms of both these baths is the remainder of the large room not occupied bv them. The time allowed to each bather is 20 minutes. A comlpetent matron attends to the women, and an experienced man to the men. The hours of admission are from 2 p. m. to 6 'p. m., and from 7 p. m. to 10 p. in. every week day for both males lnd females. On Sundays the baths are closed. They are open to the members of the congregation during the whole year, but for the public they are open only from June 1st to October 1st. The fee for admission is five cents for each person excepting the members of the congregation and women sent by the nurses of St. John's Guild, who are bathed free. Hot water-is employed in tlis estaiblishment instead of steam. The towels are washed on the premises, and are disinfected by boiling water. There are separate apartments with toilets, urinals, mirrors, washhowls, brushes and combs for each sex. These two baths are well ventilated and lighted by sunlight. Mr. Richardson, the sexton, who has charge of the baths, states that in the last 22 months about 7,500 baths have been taken, and there is no d.nibt of the beneficial results of their use both physically and morally. The patrons are the members of the congregation and the people of the neighborhood. The latter consist largely of Russian and Polish Jews, who take on an average two baths weekly during the months that they are open for them, and the former average a bath a week during the whole year. The bathers like the rainbaith for two reasons, its cleanliness and the facility with which it can be taken without loss of time. It is necessary to increase the number of baths of the mission as soon as possible, for the supply is not equal to the demand. Two baths will be adided immediately, as the money which has been derived mostly from the fees of the bathers of the six baths over their running expenses is at present available for that purpose. If a nominal rent of T 26 202 $25 a month were paid the baths would just about pay their expenses, so that the profit from them ts in reality an accumulation of the free rent. As they are only open to the public during four months in the year they show the best financial results of any of the baths that have been considered. It will be noticed that the pool bath, a most useful means of bathing for children, is here used as an aidjunct to the spray bath. Date of opening of bath-house, July, 1892. Cost of plant for baths, $900; cost of rentals of premises per year, no rent; cost of operation for one year at five cents each, beyond receipts for bathers (including rent for 1894), receipts paid expenses. Total number of bathers from date of opening to January 1, 1895, 7,500, for 22 months from February 6, 1893: Men, 2,100; women and children, 5,400; free, only a few, no account taken; greatest number in any one month, 1,450; greatest number in any one day, 133; average number bathed per month for whole period, 340; average number bathed per day for whole period, 11; average number bathed per month in the winter montlv, 37. Mr. Williams, of Brooklyn, the well known drop forger, has had a rain bath built in his factory for his employes. He states, since its introduction, the expense of the bath has been returned to him in the increased amount of work that has been done by his employes. The advantages of the rain bath are many, and have been fully described by Dr. Baruch, the introducer of this precise form or bath in America. In substance they are as follows: First. The outlay for tubs and their wear and tear is saved. If durable tubs are used, they are very expensive. Second. Time, labor and expense are involved in filling the tubs and taking proper care of them. These are avoided in the rain bath, it being automatic, needing no special care easily kept in repair, and the rose being out of reach of the bather. Third. The time for a rain bath is less than that for a tub bath. The force of the water hastens the removal of the waste matter on the skin, and as no dirty water comes in contact with the bather, the cleaning is more effiecient. Fourth. The space for a rain bath is about half that required for a tub bath, and the amount of water used is about one-half. Fifth. There is absolutely no dianger of communicating disease. Even if the attendant be careless, not a particle of contagious matter can be left behind, for the water will immediately carry it into the sewer. 203 Sixth. The rain bath is not relaxing like the tub bath, but, on the contrary, is invigorating. If it be followed by a cold shower, this effect will be more pronounced. Seventh. Its privacy commends itself to women, girls and elderly people. The rain bath cleans the body by warm or hot water and soap, and the temperature of the water can be regulated to suit the taste of the bather. It can be,taken with benefit during the whole year, and the cost of a bathing suit is dispensed with. The swimming bath is simply a tonic, and does not thoroughly clean the body. The bather wears a bathing suft and does not use soap. It can be taken only a few months in the year. When properly taken under intelligent supervision, and the water is pure, sea bathing is most useful, but as a means of cleansing the skin it can not be compared to the rain bath. The sewage of New York city empties into the East and North rivers, and it is doubtful if the water used at the free floating baths is fit to bathe in. A sanitary inspector of the New York Associ'ttion for Improving the Condition of the Poor examined the water of one of these baths three years ago and found it contaminated with sewage. It was his opinion that it was situated too near the mouth.of a large sewer. If rain baths were located in the populous tenement-house districts, and were open to the people evory day and night during the whole year, so that they could be utilized conveniently and quickly, there is no doubt they would become popular. The results already attained with them in this city conclusively prove this, and the popularity of the baths in Germany and Vienna have led to their introduction into schools, factories and barracks. T. M. B. CROSS, M. D. New York, December, 1894. SUPPLEMENT NO. 7. Reports on Rentals and Savings. 1. RENTALS. To the -Chairman of the Tenement-House Committee: Sir.- There are four distinct types of tenement-houses in the city of New York. (1) The house with but one apartment on a floor, which includes dwelling-houses that have been remodelled or converted to tenement-house purposes; (2) the house with two apartments on a floor, entered from a common hall running through the house at the side; (3) the house with three apartments on a floor, two in front and one in the rear, with the hall in the center of the house, between the two front apartments, and leading to the rear apartment; and (4) the house with four apartments on a floor, with a hall running through the center of the house. This is the class known as the "double decker," and usually has two stores or a store and liquor saloon on the ground or basement floor. Judging from general information, a tenement-house of the first-class, namely, the single-flat house, when properly constructed, in accordance with the law, kept in good repair and in excellent sanitary condition, produces a net profit to the owner of about 9 per cent. upon the value of the equity; one of the second class, namely, the one with two apartments on a floor and with no improvements, such as baths, water-closets, etc., in each apartment, realizes a net profit to the owner of about 8 per cent. on the value of the equity; a house of the third class, namely, the three-flat house, realizes to the owner a profit of about 9 per cent. on the equity; and one of the fourth class, the "double decker," about 10 per cent. on the equity. It is the usual custom. of almost all tenement-house owners to place a mortgage of about one-half the value of the premises on the property, at 5 per cent. interest, thus enhancing the value of the rents and profits on the equity. The old tenement-houses, without any improvements, are the most profitable, because they require the least repairs to plumbing and pay a low water tax. The modern tenement-houses, in which every apartment is furnished with a bath, water-closet, etc., are less remunerative, because of the 205 constant repairs to plumbing and the high water rate. These figures, however, only apply to tenement-houses in which the owners observe all the requirements of the law and maintain them in good repair and in good condition. A number of houses of the different types, in different seotions of the city, have been examined by an architect and appraiser and the cost of buildings and land carefully estimated, where the value could not be obtained in any other way. The results of this investigation show net profits to the owner ranging from 8 to 15 per cent. It is probable, however, that the estimates on the valuations are below the market values of the premises, which would lower the percentage of profit to some extent. The " double decker" is the most objectionable of the different types, usually affording the poorest accommodations to the tenant and the greatest profit to the landlord, or lessee; and the report of a house on Essex street is given, which is typical of the class. The premises consist of a plot of ground with a front. age of 24 feet 10 incll:h and a total depth of 50 feet. Upon this ground is a six-story building, occupying the entire width of the lot and 45 feet of its depth, leaving a yard 5 feet by 24 feet 10 inlies in the rear. In this yard are five privies, two cesspools for surface drainage and slops, and an old-fashioned pump, pres';iiiably for drawing drinking water from a cistern or well. The first or ground floor of the building is divided into two stores, each with two -maller rooms at the back, and a central hall extending through the middle the entire depth of the building and opening upon the back yard. Stairways lead to the floors above. The stairs pass up through a central hall to the roof, the upper flight being covered by a bulkhead, with a door at the top which opens upon the roof. A part of the roof surface is inclosed by a fence and provided with posts for stretching clothes lines across. Each story above the ground floor is divided into four apartments of two rooms, a living room about 11 feet by 12 feet, which serves as kitchen, dining-room, parlor, etc., and a bedroom about 8 feet by 9 feet. The living room in front receives light through a window which opens on the street and the rear apartments from a window which opens on the back yard. The bedrooms are dark, dingy and foul, receive no fresh air and get only borrowed light from small windows in the hall partitions and from the living room indirectly. There are no modern improvements' except a sink in each hall supplied with cold water. There are fire escapes, both in the front and rear, with the regulation " ladders" 206 The upper halls are lighted by a skylight in the bulkhead and transom windows on the doors to the apartments. The halls are dirty and a most unsavory smell pervades the entire building. The owner of this property leases the entire building to one person for $2,000 per year, and pays the taxes and insurance. The lessee makes all necessary repairs, pays the water tax, gas bills for lighting ihe halls at night, janitor's fees and the expense of ckllecting the rents. The apartments rent on an average for $8 per month. If fully occupied, the entire building would bring an income of $251 per month or $3,012 per year. The owner's expenses are about $180 per year for taxes and $25 per year for insurance, or a total of $205 yearly, leaving him a net income of $1,795. The lessee's expenses are as follows: Three per cent for the cost of collecting rents, $90.36 per year; janitor's fees, $96 per year; water taxes, $35 per year; gas for lighting halls, $1 per year; repairs, $50 per year; vacancies and defaults, $222 per year; leaving a net profit to the lessee of $500. These figures give the actual receipts and expenditures for Ihe year 1893. In ordinary times, when business is good, the loss by vacancies and defaults in payment of rents would be much less. The ori.inal co4t of the building, according to an itemized estimate, did not exceed $9,000. The land is worth about $7,000, making a lotal cost value of $16,000 for the first cost of the property. The present building covers about 90 per cent of the entire area of the lot. If it should be destroyed, the property would not be as valuable as it is at the present time, because it could not be built with the same number of apartments on account of the present laws, which permit but 65 per cent. of the lot to be covered by the building and which has been practically increased to 80 per cent. by the discretionary powers of the board of health, and the regulations as to air and light shafts. The city assessors appraise the property at $10,000. Others estimate its value at from $20,000 to $25,000. The owner offers to sell it for $26,000. From the above items, we find that the original investment of $16,000 brings a gross return of 18.8 per cent., or a net return of 15.6 per cent., on the investment. Two years ago the two stores on the ground floor rented for $10 less each than at the present time. Judging from this, the property increases in value rather than deteriorates, and so, no allowance is made for deterioration. A detailed statement of the condition of the tenants of this house, as showing the relation between the earnings of the tenants and the profits of the landlord, is given: 207 FRONT APARTMENTS. First story above stores, right.- Occupant, Polish Jew; family, himself, wife and four children; occupation, baster; wages received, $12 per week for seven months of the year; rent, $8 per month; clothing, $75 per year; savings, nothing'. First story above store, left.- Occupant, Polish Jew; family, himself, wife and one child; occupation, tailor; wages received, $1 per week; time lost for want of employment, refused; rent, $7 per month; savings, nothing. Second story, right.- Occupant, Polish Jew; family, himself, wife and five children; occupation, painter; wages received, $1 per day4 time lost for want of employment, three days per week; rent, $9 per month; amount spent for clothing, $50 per year; savings, nothing. Second story, left.-Occupant, probably Hebrew; family, wife and two children; occupation, basters (both husband and wife); wages received, $4 to $5 weeldy, each; no time lost for want of employment; rent, $8 per month; savings, refused. Third story, right.- Occupant, Polish Jew; family, himself, wife and six children; occupation, expressman; wages received, about $8 per week; rent, $9 per month; clothing, $100 per year; savings, nothing. Third story, left.- Occupant, Russian Jew; family, himself, wife and two children; occupation, laborer; wages received, $1 per day; time lost for want of employment, two days per week; rent, $8.50 per month; savings, nothing. Fourth story, right- Occupant, Hebrew; family, himself and wife; occupation, helper; wages received, $7 per week; rent, $7 per month; amount of savings, unknown. Fourth story, left.- Occupant, Hebrew, widow; family, herself and one boy; occupation, men's neckties; wages received, $4 per week; rent, $7 per month; savings, unknown. REAR APARTMENTS. First story above store, right.- Occupant, Polish Jew; family, husband, wife and four children; (ccupation, baster; wages received, $12 per week, for seven months of the year; rent, $8 per month; clothing, $75 per year; savings, nothing. First story above store, left.- Occupant, Polish Jew; family, husband, wife and one child; occupation, tailor; wages received, $4 per week; rent, $8 per month; savings, nothing. Second story, right.-Occupant, Hebrew, widow; family, herself and four children (all work); wages, $18 per week; rent, $7 per month; savings, nothing. 208 Second story, left.--Occupant, Polish Jew; family, husband, wife, two children and two lodgers; occupation, unknown (probably clothing); wages received, unknown; amount received from lodgers, refused; rent, $8 per month; time lost for want of emplgQyment, three days per week; savings, unknown. Third story, right.- Occupant, nationality unknown; family, husband, wife and two sons; occupation, janitor; wages received, $5 per week; rent, $7 per month; savings, nothing. Third story, left.- Occupant, Hebrew; family, husband, wife and three sons; occupation, unknown; wages received, unknown; rent, $7 per month; savings, unknown. Fourth story, rio:ht.-Occupant, Hebrew; family, husband -nd wife; occupation, tailor; wages received, $4 to $6 per w-eek; rent, $7 per month; savings, unknown. The fourth story, left, is vacant, and the entire fifth story is also vacant. The report states that it is extremely difficult to get at facts concernino the condition of the tenants, and it is not certain that they tell the truth in regard to themselves. "One thing seems clear, they are poverly stricken and miserable, and no doubt find difFculty in securing remuneraiive enough employment to earn sufficient for food and clothing." A statement ha.s been received from a landlord, who has dealt in this class of property exclusively, giving in detail the rentals and profits of a four-story double house with two stores, situated in the twenty-irst ward east of Second avenue, which were as fllows: "The house is of the usual size, 25 feet by 75 feet, situated on a lot 100 feet 5 inches deep. The cost of the property was $15,000, on which a mortgage of $10,000 at 5 per cent. was placed. The rent of the two stores amounted to $55 per monlh, and of the apartments, $38, $36 and $34, for the second, third and fourth floors, respectively, making a total income of $163 per month, or $1,956 per year. The total disbursements-taxes, $142; Croton water, $36; insurance, $10: gas. $18; housekeeper, $96; repairs, $105; loss of rent, $81; and interest on mortrgage,,.500-amounted to $988, leaving a net income of $9fC8, or over 19 per cent. profit on an investment of $5,000. He says, however, that "from the above filg~res it should not be inferred that every tenement-house owner is making 19 per cent. on his investment. This) same house in the hands of another (German) owner did not yield any such revenue. The average income of east side tenements, when well managed, is not more than 10 per cent net on the equity." A five-story " double-decker," of a better class, on East Tenth street, gave a gross return on the investment of 11.6 per cent. 209 There are in this building two apartments of three rooms each in the front basement, and four apartments of three rooms each, comprising a living room, kitchen and bedroom, on each floor above. The total valuation of the property is estimated at $34,421, and the amount received from rentals is $4,008. A six story "double-decker," on Rutgers place, gave a net return of 8.8 per cent. on the investment. Th?s building las two stores in the basement and five in the first story, and the five upper stories are arranged to accommodate 20 families.. The estimated value of the premises is $54,423, and the gross rentals received amount to $5,564 per year. The total expenses, including repairs, gas for lighting halls, water tax, taxes on the property, and janitor's rent, are $773, leaving a net return of $4,791. A five-story building, on West Thirty-eighth street, gave a net return of 10.53 per cent. This building has three apartmnents of four rooms each on a floor. The estimated value of the premises is $36,145.40. The gross rentals received amount to $4,260, and the total expenses amount to $452, leaving a net return of $3,808. The last three houses are examples of the better class of tenements, provided with all conveniences and kept in good sanitary condition, the apartments renting from $15 to $20 per month. The results are interesting, as showing the relative returns on this class of property and the worst class of tenement property, which yields an excessive profit where no conveniences are provided and the sanitary laws are not complied with. Among the very worst class of tenements reported to the committee by the health department were those owned by certain individuals, estates and corporations and held in an inferior and unsanitary condition with thle object of disposing of them at an advanced price wlen property in that neighborlood rises in value. This is particularly true of leasehold property in certain localities. The uncertainty of renewal keep.4 a lessee from naking repairs, and the premises are allowed to run down until they are unfit for human habitation. The practice leads to the deterioration of tenement-house property in those localities, and affords inferior hiouing to those who are not. able or not willing to pay the high rentals in better localities. The result of the inspection by the committee of the first group of houses (2,425) showed that the average monthly rental of aipartments, having an average of 2.4 rooms. and an average of 3.7 persons to each apartment, was $9.91, and the average weekly income of all the occupants 4;9.04. In other words, the T 27 210 occupanfs are expending one-fourth of their total income in rent. Miss Woolfolk, who personally investigated 600 families under the direction of the College Settlemient Association, stays: "I found, in my investigations, that among these 600 families, 27 per cent. of the earnings were expended in rent, and that for one room the average rent was $4.24; for two rooms, $8.08; for three rooms, $10.75; for four rooms, $14.46; and for five rooms, $19.66. Of the 600 families which I have investigated, more than two-thirds were living in one and two rooms; this two-thirds included 21 cases of families living in one room. In the tworoom apartments there was one dark bedroom, a room which usua.lly has no external ventilation, and could be used for no purpose except a bedroom, so that the term two rooms does not indicate the space that is ordinarily meant by the expression. I found one case of 11 people in two rooms; it was in a rear tenement on the ground floor. I went into the tenement at night, and the rooms were very close and uncomfortable. I asked the woman who was there why she did not open the windows. She told me thlat the windows would not open. I found, upon investigation, that the windows had fastenings that were out of order, and so they had been nailed up at the top, in order to keep them closed, and the only way they could be opened was at the bottom. It was a cold night, and so the people could not sit in the room with the window open at the bottom. I went into the bedroom and looked at the window there. About a foot from the x indow there was a brick wall, extending up to the second floor, the wall of some building from the other street that had been built in. So these 11 people had no opportunity for ventilation whatever. I have found in almost every case, when you go in from the street, the hlall is almost black. In some cases you can not see at all, and only know that some one is approaching from the sound of footstepls; after you have been in the halls for some tihme. they seem very dull and gloomy, but you can see to detect a!erson approaching; but they are too dark to be properly cleaned and cared for. The tenants, in going to the sinks in the halls, have great difficulty in caring for them, and in avoiding spilling the water on the floor. We find many cases where the floors are wet from water being spilled and not cleaned up, and it is partially due to the fact that the halls are so dark. The more recent tenemuents, those constructed within the last 15 years, are provided with airshafts. In the ordinary tenement the airshaft is literally a well, extending from the cellar to the roof, and the windows of the kitchen of these houses and the bedroonms open into it. These tenements are divided into apartments of three rooms each, one room opening into the street or 211 on the court from the rear apartment and the kitchen and the bedrooms opening into the airshaft. One airshaft lies between two adjoining houses, and the windows of the two open into it. One of the great evils of tenement-house life is the publicity, and the airshaft adds to this, not only increasing the intercourse between the rooms, but between the two adjacent houses. The bad air from one room is poured out into the airshaft, to be taken into the other rooms; there is no opportunity for it to pass out, and so this foul air is simply circulated from one apartment to the other, from the bedrooms and the kitchens of the two different houses." (See testimony, November 23.) The United States census report of the slum districts in New York, on two different seclions of the city, is as follows: First. Starting froni the northeast corner of Center and Worth, along the east side of Center to Leonard, along the south side of Leonard to Baxter, along the east side of Baxter to Canal, along the north side of Canal to Center, along the west side of Center to Hester, along the south side of Hester to Mulberry, along ithe east side of Mulberry to Spring, along the south side of Spring to Elizabeth, along the west side of Elizabeth to Canal, along the south side of Canal to Bowery, along the west side of the Bowery to Worth, and along the north side of Worth to Center. Second. Starting from the northeast corner of Broadway and Broome, along Broadway to East Houston, along tlhe south side of H-ouston to Elizabeth, along trhe west side of Elizabeth to Prince, along the north side of Prince to Marion, along the west side of Marion to Spring, along tile north side of Spring to (I'rosb, along the west side of Crosby to Broonme, and along the north side of Broome to Broadway. Tihe total population on April 1, 1893, was 28,1)98. consisting of 5,912 families. The average size of families was 4.90 and the preponderating families, five persons. Of the total population, 12.434 were reported as wage-earners-2,261 earning under $5 per week: 4,810, between $5 and $10; 3,305, $10 and over; and 2,058 not r(epoted. These 5,!12 families occupied 5,582 tenements, having a total of 15,442 rooms. Thel greatest number of tenements to a house was 29; the percentage of families living in one room 5.62; in two rooms, 44.55; and tile average number of persons to a room, 2.14. Only 138 families (1,888 persons) were living in apartments have bathrooms. The sanitary condition of the tenements inside was as follows: (1.) As to light and air, 43, excellent; 2,708, good; 1.848, fair; and 1,034, bad. (2.) As to ventilation, 54, excellent; 2,,373, good; 1,843. fair; and 1,3(3, bad. (3.) As to cleanliness, 201, excellent; 2,001, good; 1,974, fair; and 1,457, bad. Of 27,927 212 persons reported, the average number of cubic feet of air space in sleeping apartments was 412 per person. Six thousand five hundred and seventy-six persons occupied sleeping apartments with no outside window; 10,784, sleeping apartments with one outside window; and 9,560, sleeping apartments with two outside windows. For these accommodations, 84 persons were paying weekly rent under $1; 2,036, from $1 to $2; 1,775, from $2 to $3; 994, from $3 to $4; 182, from $4 to $5; 97, from $5 to $6; 57, from $6 to $7; 10, from $7 to $8; 7, froml $9 to $10; 28, $10 and over; and 304 not specified. The average weekly rentals of 69.77 per cent of the total 5,582 tenements was between $2 and $3 per week. Mr. Graham has furnished to the committee the results of a recent investigation of that section of the city lying between iousten street and East Fifth street on the north, Essex street on the east, Hester and Canal streets on the south, and Broadway and Bowery on the west. This section was chosen because there was there a concentration of three distinct nationalities. He found that the fifteen blocks on the north were inhabited mainly by Germans, the 42 blocks on the south almost entirely by Russian and Polish Jews; and the remainihg blocks by Italians. The population of the whole section consisted of 94,015 persons, of whomi 16,391 occupied the German section; 49,359, the Jewish section; and 28.266, the Italian section. Of a total number of 19,191 families living in the whole section, 13,911 occupied tenements of two or three rooms; 3,459 of four rooms, while only 626 occupied houses. The average monthly rental paid by families occupying five rooms was $21.39; for four rooms, $15.38; for three rooms, $11.12; for two rooms, $7.86; and for one room, $5.04. (See Test. November 23d.) In the class of tenement-houses located in this section "there are usually four or more families on a floor; the halls and staircases are narrow and dimly lighted, and the bedrooms are dark closets, ventilated from an interior well. Add to this the fact that 12,244 lodgers, usually males, form part of the families of this area, and it is not difficult to understand how serious a menace it is to the purity of family life, or the decent training of children. We select a typical block from each of the Jewish and Italian quarters. By reference to the map it will be observed that block 40, lying between Delancy and Broome, Allen and Eldridge streets, contains 37 front and one rear tenements with a total population of 1,844, or 48.5 to each tenement. In the Italian quarter in Mott and Spring streets we have the following returns: Tenement of 213 three rooms; rent, $11 per month; husband, wife, four daughters (eldest 18), two sons, and eight male lodgers; total, 16. Tenement of two rooms; rent, $8 per month; widow, son and nine male lodgers. Tenement of three rooms; rent, $9 per month; husband, wife, one daughter (age 18), two sons; married lodger, wife, three daughters (14 and 16), one son and four young men lodgers; total, 15 persons. In families like the above, unskilled laborers earning low and uncertain wages state that they can not pay the high rentals without lodgers, and that it is one of the conditions of their being able to keep a roof over their heads." (Social Statistics of a City Parish, by Robert Graham, pp. 40-41.) As it requires 1,200 cubic feet of fresh air every hour to each adult for good health, and, in many cases, apartments, with a total capacity of not over 2,500 cubic feet, accommodate 10 and 15 people, with no opportunity for a supply of fresh air, it is difficult to understand how intelligence or a semblance of health can be found in such quarters. A comparison between the rentals of tenement-houses in New York and those of European cities, shows that the rents here are nearly, if not more than double, the prices paid in many of the European cities for equal accommodations. The committee have received from the United States Consuls, at London, Liverpool, Glasgow, Berlin and Brussels, through the State SDepartment of the United States, full reports on the housings of the working classes in those cities.* In London, a number of private corporations have erected model dwellings for the working classes, affording superior accommodations at a slight increase in price over the other tenements in the same localities. The Peabody Trust has provided for the artisan and laboring poor 5,070 separate dwellings, consisting of 11,273 rooms, with accommodations of bathrooms, laundries and wash-houses. The number of persons accommodated on December 31, 1893, was 19,937; an average of 3.9 per dwelling. The average weekly earnings of the head of each family amounted to $5.90. The average rent of each dwelling was $1.19 per week, and of each room 54 cents. The (Guinness Trust owns 1,875 tenements, containing 3,705 rooms, acco(mmdating 3,245 persons. The average weekly rent of a tenement is 99 cents for an average of two rooms to each ten einent. In Liverpool, the corporation has erected on expropriated unsanitary property, what are called "four-roomed" cottages, * Since this report was prepared, a report from the consul-general at Paris has been received' too late for use. 214 which rent from $1.38 to $1.50, the average rental being about $1.45 per week. The courthouses which these dwellings replace let from 38 cents to 88 cents per week, and front houses from $1 to $1.25. In the city of Birmingham, the corporation, under the Artisans' Dwellings Act purchased 43 acres of land at a cost of $8.285,000. "On a portion of the land thus aceired and formerly occupied by a blhck of back to back tenements, the corporation built 22 workmen's cottages of five rooms each. They cost $20,000, were equipped with the best sanitary appliances, and were rented at $5.28 per month, without loss to the city. After adding 25 per cent. for rates and taxes, it will be seen that the rental is not half what would be paid for similar accommodation in New York." (Social Statistics of a City Parish, by Robert Graham, p. 43.), In Glasgow, 24.7 per cent. of the total population live in houses of one apartment, 44.7 per cent. in houses of two apartments, and 16 per cent. in houses of three apartments. The size of tjie average house is 2.3 rooms, each occupied by 2.04 persons. The average rental is $56.69 per year for the whole city. The report of the consul at Brussels on the subject of rentals contains a report on the habitations of workingmnen made to the committee of patronage in 1890. There were at that time 4.601 workirgmen's dwellings, accommodating 19,284 families. The number of families occupying an entire house was 491; 3 rooms, 1,371; 2 rooms, 8,058; 1 room, 6,978; attic room, 2,168; cellar, 200. The average monthly rental for one room was $2.25; and the average daily income 60 cents. The report of the consiul-general at Berlin would seem to show that the condition of a certain part of the working classes there is worse than in any other foreign city from which a report has been received. The tendency has been to construct high-priced apartment h1ouses for the accommodation of people in good circumstances, while the housing of the working classes has received no attention. The rental for cheap lodgings has increased, in consequence, while wages and salaries have fallen. "An average laborer or small official with wife and child should have from 1,575 to 1,750 marks* annual income, to occupy the smallest quarters, reckoning his rent at one-fifth his income. The average daily wage of an adult is only 2.40 marks, which at 300 working days, a very favorable conjunction, gives but 720 marks annually. Now the rent of one room and kitchen in the houseback, where air is poor and often foul, is reckoned, average, from 230 to 270 marks. Rent of an apartment with one two-window *Amark is equal to 0.,8818 215 room, one one-window room and kitchen, 315 to 350 marks. Rent of an apartment with one two-window front room, one one-window back room, corridor and kitchen, averages 450 marks. A workman, wife and child must, therefore, spend about 315 to 350 marks annually on his rent alone, or nearly one-half of what he makes as an average wage-earner. Hence it is neces.ary that wife and children must work to help pay the family's way, and any small floor, bed or sofa space that can be squeezed out is let to more or less permanent tenants for the night." From these reports, it will be seen that while rents are ronsiderably lower abroad than here, yet the the ratio of rentals to inomne is nearly the same; and the amount remaining for living expenses is much greater here, owing to larger incomes 2. SAVINGS. The results to be obtained from an examination in regard to the savings of the working classes, it must be stated at the outset, are far from accurate or satisfactory. The natural objection to giving information of this character has made it impossible to include the question of savings in the house to house inspection carried on by the committee in the investigation of tenements and their occupants, and nothing in the way of statistics can be given. When the miserable and apparently poverty-stricken condition of the tenemnent classes in certain localities is cou. sidered, it is difficult to understand how there can be any sur-.plus over the daily expenses in the majority of cases. The annual report of the Banking Department on the condition of the 25 savings banks in the city of New York shows that on the 1st day of July, 1894, there was $344,248,314.92 due depositors on 817,685 open accounts, or an average of $421.04 for each account. During the year ending June 30, 1894, there were 137,550 accounts opened, and 145,811 accounts closed, a falling off of 8,261 depoisitors for the year. The total deposits received during the year amounted to $84,252,090.06), and the total amoint withdrawn $99,392,220.40, being an excess in withdrawals over deposits of $15,140,130.34, or, taking the total number of accounts during the year as 825,946, an average decrease to each account of $18.33. The excess in withdrawals over deposits during this lime was undoubtedly caused by the financial depression of the country, which has fallen most severely on the wage-earning classes. The annual report of the Citizens' Savings Bank, Bowery and Canal street, for the year 1893, shows that from 49,574 deposits the sum of $3,856,527.52, including interest credited, averaging 216 $77.79 to each deposit, was received. During the same period of time, there was withdrawn the sum of $5,088,162.61, averaging $90.71 to each withdrawal. At the end of the year there was held by the trustees, fo:r 29,116 depositors, the sum of $10,568,421.32, averaging $362.97 to each depositor. The number of accounts opened during the year with new depositors was 6,518, the greater number of which was with the wage-earning classes. Of this number, 998 were Americanls, and the rest foreigners-2,250 Russians, 823 Germans, 900 Austrlians, 70ii Po.es, 139 Irish, 87 Italians, and 610 miscellaneous. Of the new deposits, 3,996 were in sums not exceeding $5; 8,846, between $5 and $10; 10,434, between $10 and $20; 6,933, between $20 and $30; 2,081, between $30 and $40; 3,993, between $40 and $Z0; and 1,296, between $50 and $60. Tlhe Bowery Bank, at Bowery and Grand street, has prepared for the committee a classification of new depositors residing east of Bowery and south of Fourteenth street, for the months of October, 1893, and October, 1894. During October, 1894, there were 445 new accounts opened, aggregating $59,007, or an average of $132.60 to each depositor. Of these new depositors, 189 were reported as having no occupation. During October, 1893, there were 260 new accounts opened, aggregating $47,394, or an average of $181.51 to each depositor. Sixty-three depositors were reported as having no occupation. In most cases where no occupation was given, thel depositors were married women. These statements include all depositors, and the average is increased to some extent by the deposits of shopkeepers and business men, but the majority were made by wage earners. It is also plrobable that some of these new deposits were transferred fi-om one bank to anotlher. A new agency for savings, under the name of the Penny Provident Fund, lias established stations in different parts of the city, where small savings may be deposited and which, in many cases, have served as a nucleus from which accounts have been opened with the different savings institutions of the city. The expenses of the society are mlaintained entirely by subscription, but as the sgb-stalions are located in the quarters of charitable organizations or where there is no charge made for conducting them, tlhe expenses of 1te society are small. The annual rport for the year ending January 31, 1894, shows that there were 231 stations, at which net deposits amounting to $17,542.87 had been received from 30,991 depositors. On December 31, 1894, there were 293 stations established in the city, at which $31,555.66 had been received from 43.000 depositors. The fund was created mainly for children, but it has been found that adults are avasiling them 217 solves of the privileges of the society. "There is on exhibition at flte central office of the fund a frame contai-ning eight stanip cards, which represent the joint savings of a mother, father and six children. The aminount thus saved is $63. It was saved in less than six months, and deposited in a savings bank. This family had never saved a cent before." In addition to the savings deposited in this country, large amounts are sent abroaad annually, by persons who have emigrated from. European towns, but it has been impossible to get definite information in this particular. It is said, however, that certain localiiies of continental Europe derive their support almost enlirelv from money sent thliem by former residents who have emigrated to America. Tlhroulghi the efforts of the Charify Organization Society, a new pawnshop, under the nuame of tihe Provident Loan Society, has been organized. with a iview of providing the working classes with loans on persoal Lproperty at a comparatitively low rate of interest, and an opportunity of redemption by installment payinments. The society began business on May 21, 1894, with a ca.pif.al of $100,000, and after six minonths of active oIperation, has issued a special report, and call for inclucase of funds to meet the growing demands upon its calpital. From May 31, 1894, to Novemlber 30, 1894, the society had loaned $195,0410.50 on 12,286 pledg s. The total amount repaid was $65,307, on 4,494 pledges, leaving onutstanding, November 30. $129,73350, on 7792 pledges. "The average amount of loan ha.s been $15.87, and the average amount of loan redeemed $14.5', leaving the average amount of loan outstanding $16.65. The intereist ra.te has been reduced by the socielty to 1 iper cent. per month,.and no additional chiarges have been made for tickets or for storing goods, or for wrapping or hanging them up, as is customIary with other pawnshops. On a. cnapitnl of $2)501000, the society estilmates a net profit of $22,50() yearly, which would enable the payiment of 6 per cent. interest on the capital, and leave a surplus of $7,500 to be applied as a reserve fund to provide for losses. 'Ilhe report slates that it is difficult t( give exact information as to the occupation and rac, of the pledgors. "Tlhere were a great m11any laborers, mechanics, small storekeepers, etc.,'aund since the society moved in its new quarters, with a special women's enirance; the number of woumen customers has greatly increased. Many of the society's customers, perflaps the majority, were Hebrews from the lower East'Side below Houston street and east of the lhowei'." Miss W oolfolk, as the result of her investigation of 600 families on the East side, testified as follows before the com T 28 218 mitfee: " Among the English speaking people-under this head I include Americans, English and Irish--the average amount that could be expended per day for the food of an individual was 11.9 cents; for clothing, 3.3 cents. Among the Jews---Russian, Polish, Hungarian and German Jews, inclusive-the average daily amount expended.for food per individual was 9 cents; for clothing, 3 cents. Among the Italians, 11 cents for food; 3.6 cents for clothing. Among the Germans, 10 cents for food; and 3.3 cents for clothing. The Italians and English speaking people seemed to have the largest amount to expend. Among the Italians this does not indicate an increase in wages. For nearly all the Italians I investigated were living under a certain co-operative plan of housekeeping, several families living together, paying their rent and purchasing their supplies in common. In this way they were able to have a larger amount of food and ampler quarters-usually three rooms for a smaller expenditure of money by the individual family.- (Testimony, November 23d.) This would be an average of 13.8 cents per individual expended for food and cloIthing. Applying these figures to the results obtained by the committee from the inspection of a plarti(cular group of houses, showing an average family of 3.7 persons, with an average income of $9.04 per week, and expending $9.91 per month for rent, it woild leave a surpllus as savings amounling to $168.50 per year for each family, above the expenditures for rent. food and clothing. It is extremely doubtful, however, if any families under these conditions actually save such an amoun10t. In connection with the foregoing, the annual reports of the numerous charitable societies throughout the city are interesting as showing the number of persons who not only do not save but are not able to provide the necessaries of life and are the objects of charitable relief. The annual report of the New York Association for Improving the Condition of the Poor, for the year 1894, shows that 18,230 cases were relieved by an outlay of $66,659.98, and 5,627 applications worthy of relief were referred to other sources of relief. During the year that lias just passed, it is probable that many cases of distress were relieved which would not have required assistance had it not been for the hard times. During the year ending September 30, 1892, this association relieved 8,589 families, consisting of 38,227 persons, by an outlay of $14,923.77. In other words, the number of cases relieved during the past year is more thian double those relieved in 1891-1892, and the amounts distributed more than four times as much. The annual report of the 219 Charity Organization Society of the City of New York for the year ending January 9, 1894, shows total disbursements by the society amounting to $43,103.01. The relief granted by the United Hebrew Charities during the same year amounted to $177,513.89, including all expenses, and a total of 55,309 1persons were assisted in various ways by the organization during the year. In addition to these, there are numerous other secular institutions and private benefactions so that it is impossible to give an estimate of the total amount expended from the various sources in this way. ADELBERT L REYNOLDS. December 31, 1894. SUPPLEMENT No. 8, Tenement-House Fires. AN INQUIRY INTO THE NUMBER OF TENEMENT-HOUSE FIRES; THE DEATHS AND INJURIES RESULTING FROM THE SAME TO OCCUPANTS AND THE PERCENTAGE OF FIRES OCCURRING IN TENEMENTS CONTRASTED WITH THE TOTAL NUMBER OF FIRES WHICO HAVE OCCURRED IN THE CITY OF NEW YORK FOR THE YEARS 1884 TO 1894, INCLUSIVE. The subjoined totals showing the number of tenementhouse fires which have taken place in this city for a period of 11 years, to wit, from January 1, 1894, to December 31, 1894, have been carefully abstracted, under my direction., fromu the records of the New York tire deparument. They contain the following facts: (1.) That 177 people who were occupants of these houses have either been killed or fatally injured as a result of tenementhouse fires. (2.) Five hundred and twenty-three occupants of these houses have been injured in consequence of fires. (3.) Six hundred and twenty-five occupants have been rescued from tires by firemen. In regard to rescues of life as recorded by the department, no record is made except when it involves the element of personal risk to the firemen undertaking the rescue. As a matter of fact rescues are constantly being made by the members of the fire department, not coming within the scope of its official cognizance, and indeed were it not for the exercise of the correct and instantaneous judgment, skill and constant vigilance of the members and officers of the department, the casualties and fatalities resulting from tenementhouse fires would make an appalling list. As it is, the number of lives sacrificed in this manner are due to causes which have been brought out in the expert testimony of those experienced and familiar with the causes of tenement-house fires and the character of these fires. 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W -N Evmoi rarolO r~ TII tlmi %%&%Ai?%,,o, fW IHll ~( < I l 10^ r-Y ^ 0 ^ [From the Annual Report of the O 4 0 0 0 0 O O O 0 COIL~r'L~W CP v0 P O 0 O 0 0 O O A a KK 00 0 o 00 0 0 d O O O e, 0 0 0 06 o vo o P 00 o 0 O 03 cr.p 0V ý U.tr - - cpLc -o 0 0 o 0 0 a 000 0 o o o B~o~b0 C* 0 0 o 0 tk o 00 oc 0 0 0 0000 O ci 0 0 0O 0 %0 O 090 0O 0 0 0 0 0 00 0 0 cl 0 0 O 0o % 0 "' w.. O O O 9 0 0 0o qo O 0 0 0 00 00 cp go 09" 00 o O O o O O0 O 0 O 0 00 a 6 0 OCIO 41 O 0 O 00 % 00 c P, OT 0 J 0 0 O ~*r* i e( ~~ 0, O a 0 O o 8 t~lr JiqAt [From the Annual Report of the New Yr 'yFr ~prmn 221 striiefral conditions of these buildings. These structural defects and omiiiissions are smuch as to invite the alinmost instaneous spread of fire imnmediately upon its outbreak from any cause. The actual origin, frequency and character of fires themselves, I at tribute ehiefly to sociological con0(itions under which sulch a large proportion of our population live, and indeed broadly I consider fires in tenement-houses equally a problem in sociology as Imuiich as I do a matter relating to the art and practice of fire extinguishitent. The frequency and variety of causes of fire in teneiments is an inevitable condition, lollowimg upon a large population of not tle highliest order of intelligence densely crowdedinto habitations of the prevailing type of tenement structure. Trf ~ records of the fires occurring in this city for 11 ycaris past aggregate a total of 35,818. Of these 19,0359 or 53.18 per cent. originated in tenement-houses. From an enumeration of all classes of structures in the city in 1890, and a calculation of flue buildings comuipleted since, it appeaIrs there are 126,000 buildings, of which 39,138, or 31.06 per cent. are tenement-houses. 1llus, 53 per cent. of tIhe duty performted by the fire department in the matter of fire extinguishmenct is devoted to tenementhouses, whereas these houses constitute only 31 per cent. of the total inuumber of buildings at risk. Seventy per cent. of the entire protection extended by the department to I-the lives -and security of pcople froni fire in this coummmnity is given to the population living in tenemenwt-houses,. this being the percentage of population who live in tenements. The fact that the inherent defects in the conlitions of tenementhouiise construction and life demand so much of the strength. of the ddepartment, exposes certain districts in the city to the,hazard( of a serious fire which can imenace the safety of a large area, becnuse the fire cominpanies assigned to a particular station 111may be albsent from quarters at a tenement fire, and the fire coumpanies left in quarters to respond will have to come froinm m ore distant points. Tlihese are techImical considera tions wI hich can not be detailed lhere, but which can be cited to illustrate tlihat the tenements- demnand an undue propo1rtionl of fire,protection atflorided and maintained by our authorities, and in exteinding this protection it is liable to permit an incipient fire in more dangerous neighborhoods and structuiires and the contents of thie same to gainf such headway, as to conistitute a great danger. It is true that the saving of life in the official work of the department is recognized as overshadowiing t-lie claimns of any property which is threatened with destruction, buiit the fundanmental conditioils which permit of such frequent tenement-house fires need correetion so that the safety of any considerable portion of the city may not be so often menaced from the causes herein pointed out. 222 The specific recommendations essential to the improved conditions of tenement-houses, having in view the minimum danger from fire and the safety of the occupants in such an event, can be briefly summarized: First. The complete separation of the cellar from any other floors, by fireproof construction, prohibiting any interior communication between the cellar and up stairs. Second. The wall between any store and hallway in a tenement-house to have no doorway or other communication between such store and hallway, except the same be fireproof and selfclosing. Third. Fireproof stairways. Fourth. No closet for storage or other purposes to be permitted underneath any flight of stairs. Fifih. Ample fire escapes, of proper construction, in the tront and rear, leading to the roof, as well as to the street. Sixth. Every tenement having separate or party wall to be required to erect independent fire escapes. Seventh. Hallways to afford ample natural or artificial light at all hours, day or night. SIMON BRENTANO. New York, January 15, 1895. FIRES IN TENEMENTS. This table comprises the total under each head for 11 years, from January 1, 1884, to December 31, 1894. Total of fires in tenement-houses.................... 19,059 Occupants killed................................... 177 Occupants injured................................. 523 Occupants rescued................................ 625 Firemen killed.................................... 3 Firemen injured................................... 453 Number of fires originating in cellar................. 1,910 Number of fires originating in basement.............. 1,451 Number of fires originating in first floor.............. 4.520 Number of fires originating in second floor........... 3,747 Number of fires originating in third floor............. 3'77 Number of fires originating in fourth floor............. 2.136 Number of fires originating in fifth floor............. 1,148 Number of fires originating in sixth floor............. 164 Number of fires originating in attic.................. 46 Number of fires originating on roof.................. 282 Number of fires originating in chimney............ 69 Number of fires originating in awning fires.......... 209 SUPPLEMENT No. 9. Reports on Three Typical Tenement-House Fires FIRE AT No. 12 SUFFOLK STREET. Architect's Report. This structure is an old-fashioned five-story tenement, with a frontage of 25 feet and a depth of about 70 feet. The yard in the rear is 25 x 30. The ground floor was occupied before the tire as stores; one a liquor saloon where the fire originated, and the other a butter and egg market. Between the stores is a long dark passage three feet four inches wide, leading to lhe tl)h staircase hall in the middle. This passage extends to the rear of the building where a door opens to the yard in which a school sink is located. This school sink occupies about 50 square feet of the yard space. Fronm this dark hall in the first story run wooden stairways two feet eight inches wide to the upper stories; on each floor are apartments for four families, each apartment consisting of a "living room," 11 feet 9 inches by 15 feet 3 inches, lighted by two windows in the outside walls, a bedroom S feet 3 inches by 8 feet 9 inches, lighted by a window 2 feet 6 inches wide and 3 feet 6 iniches higho, placed in the hall partition, as near as possible to the ceiling, and a kitchen 6 feet by 11 feet 9 inches between the other rooms. The kitchen receives only borrowed light from a window 5 feet by 5 feet, placed in the partition dividing it from the living room, and by a glazed door which receives liglht from the hall. The entrance door from hall is in this room. Only one of the three rooms receives direct air a1nd light from the outside; the bedroom and kitchen being dependent upon borrowed light are absolutely void of any means of obtaining fresh air. The air is vitiated by lamps and oil stoves used for cooking purposes. The upper halls are lighted by a skylight in the bulkhead on the roof above the stairway hall, and by small headlights over the hall doors. An old dumb-waiter shaft, 2 feet 4 inches * by 2 feet 6 inches extends to the top and communicates with tlie hall of each story, the opening being closed by a wooden -door. This elevator shaft had not been in use as a dumb-waiter 224 for a long time, but was utilized by the tenants as a place to stow tutb, ash cans and all sorts of rubbish. The elevator shaft was built of wooden studs, lathed and plastered on the outside and ceiled on the inside with tongued and grooved boards- virtually a tinder box which drew the flames directly to the upper stories. The floor beams are light, 3 inches by 8 inches, placed 1C( inches from centers, with a single floor on top and lathed and plastered ceilings below. The supporting as well as all minor partitions are hollow, being built of 3 inches by 4 inches studding, lathed and plastered both sides. The stairs were entirely of wood, supported on 3 inches by 6 inches carriages and ceiled on the so;fits with tongued and grooved boards. The halls were also wainscoted with tongued and grooved stuff very inflammable. The ceiling of top'story was suspended from the roof-beams, leaving, an air-space above, which increased the draughts. The brickwork of the building is rough. It was, laid it lime mortar of medium quality. The mortar used in plastering the walls and ceilings is comrposed chiefly of sand, and peels off at the slightest occasion. There are three fire escapes; one in Suffolk street, 2 feet G inches by 12 feet, with ladders, in the usual way; one in rear, 2 feet 6 inches by 6 feet, with ladders, for the a parftien ts over the butter and egg store, and one 2 feet 6 inches by 12 feet, without ladders, to be utilized by the inmates of the apatLtments over the saloon and for one suite of apartments in the adjoining house. The basement of the building was used for coal-bins and ice for the saloon. No damage was done by the fire there. The only plumbing in the building is a sink in each kitchen supplied with cold water. It seems certain that the fire started in two places simultaneously - in the front and in the rear of the saloon - and spread with great rapidity into the hall and up the dumb-waiter shaft. The appearance of the furniture in the various apartments shows that the inmates had barely time to escape with their lives. The greatest damage was done by the fire in the top stories, the furniture in the lower apartments in many cases being merely blackened by smoke. William Rutz, a bright boy of 13, who lives with his parents in one of the rear apartments of the third story, says: "Our family consists of my father, Peter Rutz, 38 years of age, and my mother, Elizabeth Rutz, about the same age; myself and brother, Peter, nine years old, whc was slightly injured on the leg; brother Charlie, eight years old; Eddie, four years 129 SurrotKn T. Longitudinal Section of 129 Suffolk Street, where Child was Suffocated. ii~ 225 old; my sister Lizzie and the baby, and my little cousin, Lizzie Jaerger, four years old, who was lost in the fire. "Many blame father because he did not save my cousin, Lizzie. lHe tried hard to get her, but the fire got so quick, he couldn't get in there, and the flames came out of the windows so much that no one could get on thle fire-escapes after a few minutes. I don't know how we all got out." The fact of the flames spreading so rapidly from the saloon has given grounds for belief that there was an explosion of gas. In the bedroom of the apartments over the saloon is a door which reveals a passage through the brick wall to the adjoining house-for what purpose is not apparent. Inspector's Report. Five-story double tenement, brick, containing 18 apartments and two stores. One apartment was vacant at the time of the fire. The 17 families in the house at the time of the fire, with boarders, consisted of 107 persons. Of these there were 54 adults and 53 children under 14. There were at least 12 lodgers. Persons 14 years and over are reckoned as adults. Morally the house was excellent. The inhabitants were hard-working people. The character of the saloon was not bad, though the houses keeper charges that gambling was indulged in late at night. FIRE ESCAPES. The house was fitted with fire escapes both front and rear, Those on the front extended so as to take in one window of each tenement and were provided with a fixed ladder that led from the top story to the first story, whence a movable ladder could be lowered to the sidewalk. The uppermost fire escape balcony did not connect with the roof. In the rear were two sets of fire escapes. One of these was built outside of one window for the north rear tenements and led to the back yard by means of a movable iron ladder drawn up when not in use. This ladder was in its usual position at the time of the fire and was not used, though the lower fire escape was crowded with men, women and chii. dren who reatched the back yard by jumping into feather-beds thrown out by some of the tenants. This series of escapes did not connect with the roof. The other fire escape was without ladders, but communicated with the next house. T 29 226 The fire raged chiefly in the south portion of the building so The north tenants were not cut off by the flaPes. The fire broke out on the ground floor, and if the tenants in the south apartments had passed by the fire escapes to the ground in order to escape they would have had to pass directly through the flames, which blazed through lower windows. These escapes extended to the adjoining house and were not provided with connecting ladders. The floor of each fire escape balcony of this series was made of wooden slats. These slats were burned away on the second and third stories, leaving the escapes useless. In the front the fire escapes were free from obstructions. In the day-time the bedding was generally aired on them. On the north rear fire escapes a few articles, such as cast-off mattresses, small cooking utensils and one or two small boxes were stored. The double escape was badly obstructed. In two cases, notably on the third floor, fleeing tenants had to climb over wash-tubs in order to reach the adjoining building. Escape was at first prevented, too, because the neighboring tenants resented the intrusion, not understanding the seriousness of the occasion. FTTRNTTTTUE. At the time of the investigation the furniture in most of the inements had been removed. Many of the tenants wer, desperately poor and had little furniture outside of the pawnshop. The few pieces on hand were crowded into the front or living room. Here is the inventory of one tenement, second floor, front south: Bureau, sewing machine (tailor's) four feet long, dining-table, square (four feet), lounge, cot-bed, four chairs, two mattresses, two pillows. In the kitchen a cook stove, table, oil stove, two chairs, one box. In the bedroom one bed, three-fourths size, with two mattresses. Another inventory is as follows: Second floor, front, north.-lPier glass, reaching to ceiling; bureau, dining table (four feet square), two lounges, one cradle, one bed, three-fourths size; 2 mattresses, wire spring (cot), eight ch;iirs (one baby chair), lace curtains. In the kitchen a cook stove, two tables, 4 by 3 and 4 by 2, oil stove, three chairs. In the bedroom one bed, three-fourths size, one small trunk, portable bathtub (tin), wash boiler, two washboards and clothing on walls and in closet& 227 RENTS. The rents were as follows per month: Saloon....................................... 35 Milk store........................................... 27 First floor, two at $12, and two at $11............... 46 Second floor, two $11.50, and two at $10.50............. 44 Third floor, two at $10.50, and two at $10................ 41 Fourth floor, two at $9.50, and two at $9.............. 37 Total per month.................................. $230 Total per year........................................$2,760 One or two of the tenants were in arrears one month. PROGRESS OF FIRE. The fire broke out in the saloon. Tenants are unanimous in saying they were awakened by an cxplosion. The fire spread to the rest of the house by means of a door in the front hall and by a small window from the room just back of the saloon. This window opens into the middle of the hall leading from the street. It is directly under the stairs leading to the second floor. An unused dumbwaiter is nearly opposite this window. The dumibwaiter was roofed in at the top and in it tile tenants stored washtlubs and other articles used but occasionally. This shaft was tlioroughly burned, especially on the three upper floors, and d(l(btless helped to conduct the fire to the upper stories. Next to the saloon an:d the living and sleeping rooms back of it, the aiTartments on the top floor suffered most. Thle stairs leading to the roof were burned enlirely away, and that part of the roof directly over the stairs, called the "bulkhead," fell in. The ceiling directly under the roof in three apartm.ents was badly burned. Wi!h the exception of the ground and top floors the apartments. in the north of the building were damaged more by w;lter than by fire, though the latter ate its way into the inner d(rk rooms adjoining the stairs and halls. These rooms were ventilated by small windows opening into the halls. Only one person was seriously injured by the fire, and that person was the little girl, named Lizzie Jaeger, who lived with tlhe family of the namle of Rutz, in the south rear apartment of the third story. Conflicting statements are made concerning the reason of the failure to rescue her; but the generally accepted theory is that Peter Rutz, the head of the family, somewhat naturally devoted his attention to the saving of his wife and his 228 own children, and because of the delay caused by climbing over obstructions on the fire escape, and overcoming the senselessresistance offered by the tenants of the next building, was unable to start to return after Lizzie until the fire had gained such headway that the way was closed to him by the flames. The little girl was burned to death in the bed at the rear of the room whose windows opened on the fire escape, and was doubtless stupified by smoke before the flames reached her. Indeed, it is doubtful if she did not drift from natural sleep into the unconsciousness caused by the smoke, thus escaping knowledge of pain or suffering completely. The attitude in which her body was found in the bed indicates that she made no attempt whatever to escape. FIRE AT No. 38 GOERCK STREET. Architect's Report. The scene of the fire at 38 Goerck street, where Rachel Fessen lost her life, is a five-story brick building of comparatively recent construction. It is 25 feet wide and 60 feet deep. The first floor is occupied by a butcher's shop and grocery store. On the floors above the first story are apartments for four families on each floor. The front apartments contain three rooms, while those in the rear have two. The front and rear apartments are connected by a door. The living rooms in each suite receive direct light through windows in the outside walls. The kitchen in the front apartment receives borrowed light from a window 3 feet 4 inches by 3 feet 10 inches in the living-room partition, and direct light from a 1 foot 8 inches by 5 foot casement window opening into the light shaft near the middle of the building. The small bedroom of the front apartment receives direct light from the light shaft through a 2 feet 6 inches by 3 feet 6 inch window, and additional borrowed light from the staircase hall through a window of the same dimensions. T!hese hall windows are placed as far up from the floor as possible and covered with a steel-wire netting to keep out sneak thieves. The kitchens of the rear apartments are lighted by a 1 foot S inches by 5 feet casement window in the light s-haft, and borrowed iilfht from the staircase hall through a 2 feet 6 inches by 3 feet 6-inches window. There is no dumb-waiter or shaft in the building. The plumbing in the building consists of a sink supplied with cold water only, and one water-closet on each floor, for the use of the entire four families. -Theseoare accessible from the halls. The materials used in the construction of this building are of good quality and the work is substantially executed. 229 The floor beams are 3 feet by 10 feet, placed, about 15 inches on centres, and are of safe dimensions. The entire work is superior in many respects to tha-t in many buildings of this class. There is a fire escape in the rear 3 feet by 12 feet 6 inches, and one in front 2 feet 6 inches by 10 feet 5 incles. Each is accessible from the different apartments. All are properly equipped with ladders. The stairs are sulrstantially constructed and are well supported on timber carriages. A stairway from the hall in the top story leads to the roof, and is lighted by a window in the window in the bulkhead. The stair-case hall in the first story is wainscoted four feet high. In the other stories a chair rail protects the plaster walls. The basement is used for coal-bins and lockers. The yard in the rear of the building is 14 feet by 25 feet. The fire originated in the rear apartments of the third story occupied by Jacob Klein, and was caused by the upsetting of an oil-stove by his wife, who was cooking with one 'hand while tending a child wth thle olier. It is said that the woman in her friglht grabbed the blazing oil-stove and threw it into the hallway, where the strong draught from below fanned thle flames and soon drove them through the entire upper p:art of the building. The tenants in thle first three stories escaped by the stairways to tlie street. In one of the upper apartments.a birthday party was in progress. The guests, with the other tenants of the upper floors rushed to lthe roof for reluge, when they found thait escape by the stairways to the street was cut off for all tihose above the floor on which ihe fire started. It is said that they could.ot have passed to the ground by means of tlie fire escapes in the rear because of the iiames, but it is certain that if they had niade their way to the front apartments they could have climbed out on the front fire escapes and have descended to the ground in safety. At no time did the fire protrude from the windows in front. Even after it had been extinguished there were no smoke marks on the front walls. Panic stricken, however, they went to the roof. The building is considerably tal'(er than those on either side so tney were not able to escape to adjoining buildings. A painter's scaffold hung in front of the building, and many of the refugees from the flames succeeded in lowering themselves to it. It hung about seven feet below the overhanging cornice. From this scaffold they were with difficulty lowered to the street by the firemen. The girl who lost her life tried to jump from the roof to the scaffold, but missed her aim, and fell to the sidewalk below. 230 TENEMENT HOUSE AT 38 GOERCK STREET. Inspector's Report. Five-story brick, containing 16 tenements, with two stores and living apartments on ground floor. Total population at time of fire, 55. Adults, 24; children, 16 and under, 31. No boarders in the house. Vacant tenements, six. One family occupied store and one tenement Only two of the front tenements were occupied. POPULATION IN DETAIL. South store (grocery), Jacob Newman and wife, 8 children; the oldest, a girl of 16; next, a boy of 14, and the youngest, boy, 8 months. North story (butcher), Jacob Hulzer, Philip Rand and wife, child, a girl of nine. Hulzer has recently bought the store of Rand. Rand is to move this week. Hulzer's family not yet arrived. Second floor, front south, Jacob Newman, as above. North vacant. Second floor, rear, south, B. Baldinger n if and wife, and five children; oldest girl, 11; youngest boy, eight months. Rear, north, Isaac Green and wife, and one child, a boy of one year. Third floor, front, south, empty; north front empty. Rear, south, Louis Klein and wife, and four children; the oldest, a girl of nine, and youngest, a boy of two; also, boys of six and four. Rear, north, Kramer and wife, and two children, boy of three and boy one year old. Fourth floor, front, south, empty; front, north, empty. Rear, south, Max Spitz and wife, and one child, a boy, one year old. Rear, north, Lsaac Haberman and wife, and three children; the oldest a girl of 11; the youngest, two years old. Fifth floor, front, south, vacant. Front, north, Isaac Polinski and wife, and one child a boy of three years. Rear, south, Joseph Beckman and wife, and one child, a girl, 14 months. Rear, north, Adolph Kitzler, wife and five children; the oldest, a girl of 13; youngest, a boy of one year. RENTS AS FOLLOWS: Store, south.................................... $211 00 Store, north.................................... 21 00 Second floor, front, two tenants, at $11............. 22 00 Second floor, rear, two tenants, at 8*................ 16 00 231 Third floor, front, two tenants, at $10............ $20 00 Third floor, rear, two tenants, at $7.50.............. 15 00 Fourth floor, front, two tenants, at $10............ 20 00 Fourth floor, rear, two tenants, at $7.............. 14 00 Fifth floor, front, two tenants, at $9.50........... 10 00 Fifth floor, rear, two tenants, at $6.50............ 13 00 Monthly rental......................... $181 00 Yearly rental.................................... $2,172 00 The population of the house was made up chiefly of Polish and Russian Jews. The majority of the men were tailors; one is employed in a Brooklyn sugar refinery, one in a briar pipe manufactory. Three of the tenants carried insurance on their furniture; one of these was Louis Klein, in whose apartment the file started. The rear tenements on the three ulpper floors were practically burned out. The front ten-ements were damaged chiefly by water. The north front tenement o0n the top floor was damaged but little. The woodwork of the heill and rear rooms is badly charred. The stairs leading to the top floor are partly burned away. Those leading to the roof are entirely gone. The bulkhead did not fall in, though it is badly burned. FIRE ESCAPES. Fire escapes are at both the front and tear. Those in front take in two windows, one of each tenement, and lead to the gruund by ladders. They do not connect with ro.f. T'fie fire escapes in the rear take in all four windows and also lead to the ground but do not connect with the roof. If the families above the floor where the fire started had attempted to escape by means of the rear fire escape it may be questioned if they could have done so without being burned. Caught on the top rear escape with the flames below them, their predicanent would have been lamentable. In a panic everybody rushe-d to the roof, ignoring the fire escapes at the front, and were lowered by means of a painter's scaffold which happened to be on the front of the building. 232 SENDING IN THE ALARM. A delay of from five to 10 minutes occurred before an alarm was sent in. As near as can be learned the alarm was rung!n by somebody not living in the house. A card tacked to the front hall or street door on the inside told where the nearest alarm box was located, and how to ring it. But none of the tenants, not even the housekeeper or any of his family, knew even after the fire where the nearest or, in fact, where any fire alarm box was situated. The day being warm the front hall door was open, the card consequently being hidden from sight. RAPIDITY OF THE FIRE. During the short time in which the fire raged it gained terrific headway, as may be seen in the charred, and in some ca.ses, wholly burned interior. The windows in Mrs. Klein's apartment where the fire started from an overturned oil stove were open wide from the top. When she rushed cut with her child she left the door of her tenement wide open. The tenants of that floor instead of following Mrs. Klein to the street by means of the stairs made for the roof and undoubtedly left the door leading to the roof open, also the doors of their own deserted apartments. This latter fact is evident because the vacant tenements in front, the doors of which were closed and in most eases locked, were scarcely burned at all. Though the fire reached the airshaft on the south it made little or no headway in that direction. Its course followed the stairs leading to the roof. LOCATION OF WATER-SINKS AND CLOSETS. Water was drawn from a sink in the hall on each floor. This sink is about midway in the hall and one sink was used by four families. There are no sinks in any of the tenements except the two on the ground floor in the rear of the stores. The water-closets are located at tlhe rear end of the hall m each floor except the first. The families in the two ground tenements depend on one closet in the yard. Tenants took turns in keeping halls, stairs and closets clean, in periods of a week at a time. THE ROOF AS A PLACE OF REFUGE. Tenants were accustomed to dry their clothes on the roof, and in hot weather the inhabitants of the two upper floors were accustomed to spend the greater part of the night on the roof, some going so far in the hottest nights as to sleep there. ~3~s~ fO Plan Showing Origin of Fatal Fire at No. 215 Madison Street. '19 Movw0912V '7 / 'I Cross Section Showing the Course of a Fire Starting in the basement of the "Double Decker" at No. 215 -Madio tet lutaigt of Continuous Stairway Wells, and the Necessity for Plentiful Escapes from the UpperSois te Danger It was somewhat natural, therefore, that the panic-stricken population of the upper floors should flee in that familiar direction- the opposite one from which the smoke and heat was coming - rather than trust themselves to the uncertain and strange fire escapes. Then, too, the smoke was rolling up through the rear fire escapes, and the danger below seemed great HOW THE FIRE STARTED. Mrs. Klein describes the origin of the fire as follows: "We were all down on the sidewalk during the afternoon. I went upstairs with my 2-year-old boy to get supper. I set him on the cooking table and lighted the oil stove. Just then the boy leaned over. I thought he was going to faU. As I jumped to catch him, a knife in my hand knocked over the oil stove, which \was on top of the cooking stove. "I saw the oil running out, and it took fire at once. I grabbed my boy by the arm and rushed out into the halls with him, calling 'fire' at the same time." Mrs. Klein says she left the boy at the head of the stairs and went back to put out the fire. When she reached the door the sofa near the door was in flames, and the whole floor seemed to be on fire. Scattered around the room were five wood chairs, besides the rocker in the southeast corner. In the bedroom was a three-quarter bed, piled high with mattresses, which were spread on the floor in the living room or kitchen at night. The baby's crib was also in this room, together with one trunk and most of the best clothes of the household. MADISON STREET TENEMENT-HOUSE FIRE. This building is what is called a modern six-story "doubledecker," on the "dumb-bell plan," built on an ordinary city lot, 25 x 100. In the basement are two apartments in front, of four rooms each, with a long corridor three feet wide and 43 feet long leading to the staircase hall in the middle, where are located the dumb-waiter and water-closets, with coal-bins, pump-closet and heater-room for furnace, which heats the halls. In the ulpper stories there are two apartments of four rooms each in front, and two apartments of three rooms each in the rear, with a stairway leading to the roof, and a bulkhead over the upper flight, in the usual way. The fire originated in the kitchen of the left, front basement apartment, and was caused by upsetting an oil stove, which, T 30 234 perhaps, may have exploded. The fire went out through the kitchen door and headlight into the corridor, and found its way into the staircase hall and dumb-waiter shaft, and immediately grew into a tornado of flames and spread through the upper apartments and hall, burning off the bulkhead and making wreck of all inflammable materials in its way. The course of the flames is indicated by the arrows on the plans and section. The child was smothered in the kitchen where the fire started. NOTER. The doors to nearly all the apartments in the upper stories in the vicinity of the halls were charred and blackened, and so intense was the heat from the flames which poured out the hall windows into the easterly light shaft, that the window sills and lintels were cracked in some cases. The rapidity with which fire spreads in this " new style of apartments," with its numerous light shafts, dumb-waiter shafts and halls, leads one to pause and consider whether we are really improving the old order of things or not. It is true we secure light and better ventilation, but at what risks! The writer has seen, within two days, two examples of the old-style tenement, without light shafts or dumb-waiter, wlhere fire originated in the basement and burned out the entire contents of each, w'ithout damaging the upper floors a SUPPLEMENT No. o1. Fireproof Construction. To the.Members of the Tenement-House Commission: Gentlemen.-I beg leave to hand to you, herewith, a number of plans and estimates made by the well-known architect, Mr. David" W. King, under the supervision of the writer, showing the cost of fire-proof construction of tenement-houses. The mass of testimony adduced at the public hearings of the tenement-house committee has demonstrated very forcibly the danger from fire and the large fatality attending fires in tenement-houses, and points in the most emphatic manner to thegreat advantage to be gained from fireproof construction in such buildings. To this end we have had careful estimates prepared by Mr. David W. King, embracing the entire question of fireproof construction and its possibilities, a summary of which will be found; in the accompanying papers. These figures have been prepared from specifications carefully drawn, and from bids made under the contract adopted by thee American Institute of Architects and the Western Instilute of Architects, which is the contract usually used for such purposes. Thle result is.very gratifying and encouraging, showing clearly that it is as cheap, if not cheaper, in the end to co(nstruct a fire-proof building, than one of the ordinary structures with wooden interiors of the present type. Five plans were selected from thlse on file at the department of buildings, as representing five average types of tenements located in various sections of the city, two on the east side and three on the west side, and the value of the land duly appraised by two well-known appraisers, one of whom was Mr. Charles Griffin. We have adopted the ordinary forum of fireproofing with steel1 beams, filled in with terra-cotta, fiat arches laid in cement. We have had these plans inspected by an engineer connected with the department of buildings in order to be certain that they comply with all requirements of said department, and he pronounces theni thoroughly satisfactory. The cost of fireproofing materials has been reduced in the last 10 years 35 per cent, while 236 -steel beams have superseded iron at half its former cost, thus 'bringing the cost of such construction to a very low figure, and it seems improbable that these materials will increase in cost to any greater degree than will lumber or materials used in the average construction now in vogue in tenement-houses. The cost of erecting a fireproof building, taking the five plans used will average but little more than 10 per cent. over that of a building with wooden beams, lath and plaster, ceilings and walls, -deducting this necessary increase for fireproof construction for the first floor as now required by law. In considering this increase of 10 per cent. of the cost of a tenement building, it should be remembered that the cost of the lot is in many cases -as much as that of the building, thus reducing the increased percentage of cost on the entire investment to only five per cent. Taking the five tenements which we have selected as repre-sentatives of their claiss, we find that the advantnage of such a structure to the investor is so apparent that it would appear to more than counterbalance the slightly increased cost of construction; for with the fireproof building, we have a permanent and durable house which will laist for years with a minimum of repairs. It is safe to assume that such a building would more than return the interest on the increased cost, in the saving of insurance, repairs and improvements. The advantages are many to the tenants, such as safety from fire, freedom from verImin and insects, and the slight opportunities for the spread of contlgion and the acclumulation of filth, which is so easily harbored in the cracks or absorbed in the woodwork of an ordinary building. The solid partitions between the apartments would add materially to their privacy and prevent the transmission of -sound from one apartment to another. Such advantages would no doubt be likely to have the effect of keeping such apartments more constantly filled with desirable tenants, and at the -same rental the gross income from the house would be thus increased (by a decrease of defaults and vacancies) to the advantage of the landlord on account of its attractiveness to tenants. We have had a number of bids for special fireproof constructions, some of which have not been more than 3 per cent. In excess of the cost of the average wooden building, and we have had an offer from a very reliable firm of builders to construct a fireproof tenement using our plans and bidding on standard fireproof construction for 8 per cent. more than the cost of the wooden building. While the committee has not deemed it wise to adopt or recommend any plan for special fireproof construction without further investigation, it seems highly probable that it will yet be possible to erect a steel frame building at about 237 the same cost as a wooden one. There is no reason why the tenement of the future should not be thus constructed to the mutual advantage of the owner, occupant and the public welfare. All the bids, forms of contracts, specifications, bills of material, etc., from which these estimates were made, covering several hundred pages, and much too voluminous for publication in full,. ari on file with the committee. Since preparing this report, the writer has submitted its substance to one of the largest tenement-house owners in New York, who tlihoroughlly agrees with all said herein, and says that he would always pay 10 per cent. more for a fireproof tenementhouse, or would willingly invest this additional sum to secure this class of building. He spoke from his own experience of the fact that dry rot frequently exists in beams, necessitating very large expenditures for repairs and new floors, sometimes before the building hias arrived at any great age. Several other real estate men who are familiar with, or handle large amounts of tenement-house property, were also consulted, and all agreed that these suggestions were of the most valuable character, and that if the cost would only be so far increased as above stated, the owner would in every case find it to his actual financial advantage to put up such a building. 'While these estimates may be considered rather low by persons unfamiliar with tenement property, still we believe that under actual competition for buildings of this class, even better prices may be obtained. It is fair to presume that if fireproof tenements come into vogue, after a little more experience in handling materials and in making plans for such structures, the cost of the buildings will certainly come within the figures mentioned. The undersigned believes that fireproof construction will usher in a class of tenements that will do more to reduce the deathrate thain any recommendation possible, or any regulation in the power of the health department. RespDc (fully, W. D'II. WASHINGTON. 238 REPORT OF THE COMPARATIVE COST OF ORDINARY AND FIREPROOF CONSTRUCTION IN TENEMENTS. Illustrated by Five Examples of Houses Erected in Diferent Parts of New York city. Complete specifications have been written and careful calculations made of the most economical distribution of the iron beams required to support the floors and partitions in each building--- and detailed estimates of different branches of the work have been prepared and appraisements of the ground in each case have been obtained from qualified men in that particular respect. The cost of each building is estimated as a non-fireproof structure as a basis, and the increase for partial fireproofing and a complete fireproof building, have been obtained. The system of fireproofing which has been estimated upon, is the one most commonly used in good work, viz.: steel beams, filled in with terra-cotta; flat arches, leveled with concrete, and threeinch porous terra-cotta partition blocks laid in cement molrtar. The finished floors are nailed to wood strips, bedded in the leveling cement. The stairs have rolled-steel carriages, cast-iron risers and slate treads, neat wrought-iron ballusters and rails and wooden hand-rails. PRICES OF MAITERIALS. The density of steel is about 2 per cent. heavier than iron, and is 25 per cent. stronger. The price of iron set in 1884 was four cents per pound. The price a:t the present time is two cents per pound set. The price of labor does not vary much. General building materials are from 15 to 20 per cent. less than in 1884. Fireproofing materials are 35 per cent. less than in 1884, and 25 per cent. less than in 1889. In reference to the method of steel skeleton construction, it is well worth the attention of leading architects and engineers. From the fact that it has been used successfully in large office buildings, is sufficient proof that it can be used on a smaller scale quite as safely, and with economy. The advantages to be gained by the increased width of rooms in narrow city lots and the possibility of constructing fireproof tenements within a reasonable limit of increase of expense, above the old method, 239 should be encourged. It needs no arguments to show that tene. iments should be vermin-proof as far as possible. This can only be secured by fireproof construction. I hav e ma.de no allowance for reduction in the rates of insurance, which, of course, would bring the estimates a fraction lower. By way of suggestions for improvements in the plans of tenements, I should favor in the case of "double-deckers" or tenements of that class - that they should not be composed of niore th T 11hree rooms; anid thflat the front and rear parts of such buildings 1s should be separated as much as possible so as to s(cure a very large open light shaft or court, in which fireproof stairs could be placed, connected by fireproof open balconies,.as has already been suggested before the sessions of the committee. The water-closets should be made fire and vermin-proof, and placed, if possible, outside the living rooms. There should be no plumibing fixtures in the living apartments, except a sinkl supplied wiithi cold walter, with t raps -anI pipes exposed to view. The inclosed or boxed-in plumbing workT% in tenements, is an abomination; and only a receptacle for filth. ()One case is knownmm to the wvriter, where a family of Polish Jew-s had dressed their poultry in their living rooms and tlirvw the entrails into the little closet which inclosed the sink, where it lay festering in mid-ssummer. The strangest part of this case is, that the family, without exception, living in such a fetid atmnoslphere seemed pverfectly healthy. Bathing facilities should be provided for eachl tnene nt-house of six families or more, in the basement of the building, with separate compartments for men and women. There should be a plunge tank for the children, and other facilities for adults. A cast-iron bath-tub or tank painted would undoubktedly be the most appropriate, as it is clheap, and would st.and rough usage. I believe that the question of instruction is one iniportant factor which should not be hidden from sight. These people should be tmaught how to live and keep clean. DAVID W. KINfG, 240 COMPARATIVE COST OF TENEMENTS. Plan No. 472. This building is the middle house of a group of three tenements located at Nos. 246-248 and 250 West Thirty-eighth street, New York, on a plot of ground 75 feet by 98 feet 9 inches. The dinensions of the middle lot, No. 248, being 25 feet by 98 feet 9 inches. This building is five stories in height above the basement, and comprises three apartments of four rooms each on every floor, giving accommodations for 15 families, and janitor's apartments in the basement. The basement is 8 feet; the first, second, third, fourth and fifth stories are 10 feet high in the clear. The front of the building to the top of the second story window sill course is faced with limestone rockfaced. Above the second-story window-sill course the building is faced with pressed brick trimmed with fine cut stone. Cornice of galvanized iron. The rear and side walls are of hard brick. Rear windows have rubbed blue stone sills and 'lintels. Wall above roof coped with terra-cotta. The first floor and basement stairs are fireproof. The remaining floors and partitions throughout are of wood construction - nonfireproof. The inside wall and ceilings are hardfinished on two coats of mortar and wood lath. Inside finishl of the usual description in this class of buildings. The cost of the nonfireproof building, according to estimates received, is $17,812.07. For a partial fireproof building, with first floor, and stairs to basement, $18,361.69 - making an increase of $549.62, or.03 + per cent. For an entirely fireproof building, the cost would be $20,242.19, or a total increase of $2,530.12, which is.142+ per cent. in excess of cost of a nonfireproof building of this description. The building occupies 1,963 square feet of ground, and for a nonfireproof building, the cost would be $9.07 - per.square foot. For partial fireproof building the cost per square foot ix $9.35+. And for an entirely fireproof building the cost would be $10.41 per square foot. .rorSr-ories I,rts stI Vý 331 0 TYPE OF TENEMENT-HOUSE WITH THREE FAMILIES ON EACH FLOOR. 241 RENTS RECEIVED. Per year. Basement, one apartment, for janitor..................... First story, two apartments, front, $25 a month...... $600 First story, one apartment, rear, $23 a month...... 276 Second story, one apartment, rear, $25 a month..... 300 Second story, two apartments, front, $25 a month.... 600 Third story, one apartment, rear, $24 a month...... 288 Third story, two apartments, front, $24 a month..... 576 Fourth story, two apartments, front, $23 a month.... 552 Fourth story, one apartment, rear, $23 a month...... 276 Fifth story, one apartment, rear, $22 a month....... 264 Fifth story, two apartments, front, $22 a month..... 528 Total.........f............................ $4,260 DISBURSEMENTS. Repair........................................ $161 W ater tax....................................... 30 Gas for lighting halls, per year.................. 21 Heating halls, per year............................ 40 Taxes (about)................................... 200 Total....................................... $452 Vacancies at the present time, two. Defaults in payment of rents, unknown. The valuation of the lot, according to Chariles Griffin's appraisement, is $18,333.33. If the building is constructed nonfireproof, the total amount of the investment would be $17,812.07 + the price of lot, $18,333.33; total, $36,145.40. The gross return of the investment in each case is $4,260, which, for the nonfireproof building would be.1174 per cent. For the partial fireproof building, we have $17,812.07; the cost of the nonfireproof building, to which we add cost of fireproofing first floor and basement stairs, which in this case is $549.62, which, added to the cost of nonfireproof building, gives us $18,361.69; to this add the price of lot, $18,333.33, gives a total of $36,695.02; the, total amount of the investment in this case, which yields a gross return of.116+ per cent., nearly. If the building is entirely fireproof, we add the total increase to cost, $2,530.12, to the cost of nonfireproof building, and we have a total of $20,342.19; which, added to the cost of the ground, gives $38,674.52, a grolss return of.11+ per cent. T 31 242 According to H. Hafker's estimate, this building can be erected entirely fireproof for $19,237.03, or a.t a total increase of $1,424.96. Cutter estimates that this building can e minade entirely fireproof according to his systent for the sum of $18,346(.43, or at a total incrqease of $1,424.96. The estimates of the nonfireproof building in this case are exceedingly low, being less than the sunt naIneld in the application filed in the building department. This might easily be accounted for, as rock or other expensive foundation work may have been necessarily included. DAVID W. KING, Architect. Plan No. 5. Old style nonfireproof lbuilding: This building is a good example of a " double-decker of the "dumb-bell " plan, situated on a lot with a frontage of 25 feet and a depth of 96 feet, located on the north side of East Tenth street, New York, Ilhe premiises being known as street iinumbcr 231 East Tenth street. This building is five stories in height, with two apartments of thliree roomis each in the front- baseillen!, and lockers in the rear for coal and( wood and general storage for the tenants. Above the basement, there are four alpartlnenls of 1hree rooms each; minaking in all acconuinodations for 22 fainilies. These apartments comprise a living-roonm marked 1L on theo sketch Iplan, kitchen marked K, bbedroonm B, etc., with staircase hall, water-closets, duimb-waiter and vent shafts midway between the suites of apartmients.I The stairs extend to the roof, and the upper halls are lighted lby a window or skylight ii the bulkhead. The height of the stories are as follow-s, basement eitght feet, first story 10 feet 6 incheA, second, third, fourth i and fifthli stories 9 feet 6 inches, all in the clear. Thlle front of the building is of pressed brick, with stone. and terra-cotta triumings and a galvinized iron cornice. The foundations, re-ar and side walls, and backing of front walls, are of hard brick. Floors, partl-itions, roof timbers and sheathe covering of wood, of usualm dimensions; the roof tinned. The inside ceilings and side walls of all finished apartments, halls and closets are hardfinished on two coats of brown mortar and wood lath. The )plumnbing fixtures consist of water-closets-, laundry tubs, sinks and gas fixtures: dumb-waiter, and the usual fire escaipes front an(d rear being also included. The inside finish, mantels, etc., are cheap and coninon like all buildings of its chlss. The front area and stairs to basement, sidewalk and coal cover and chute may be briefly said to complete the list of items required to finish the building in the customary manner for such work. VIhta r Stor'es No. 5.- TYPE OF TENEMENT-HOUSE WITH FOUR FAMILIES ON EACH FLOOR. POPULAR PLAN, AT 281 EAST TENTH STREET, NEW YORK. rF I 243 From estimates recently made this building can be erected for $18,421. if (the first floor and basement stairs are made of fireproof, the increase would be $455, making a total of $18,876, thus increasing tlie cost of the building.0247-1- per cent. If the building is made entirely fireproof, the increase in cost would be $2,498.8(. This amount added to $18,421, the original cost of the nonfireproof building, would make a total of $20,919.86, which would be an increase of.135 + per cent. RENTS RECEIVED. The rents received from this apartment-house are as follows: Per year.;Bsement, one apartment for janitor....................... Basement, one apartment, front, at $12 per month... $144 00 First story, two apartments, front, $16.50............ 3396 00 First story, two apartments, rear, $15.50............ 372 00 Second story, two apartments, front, $17........... 408 00 Second story, two apartments, rear, $16............. 384 00 Third story, two apartments, front, $16.50........... 396 00 Third story, two apartments, rear, $15.50............ 372 00 Foulthl story, two apartments, front, $16.50......... 396 00 Fourth story, two apartments, rear, $15.50.......... 372 00 Fifth story, two apartments, front, $16.50........... 3)96 00 Fifth story, two apartments, rear, $15.50.....7..... 372 00 Total..................................... $4,008 00 This building appears to be very popular as it is reported that the apartments are almost always fully occupied, consequently the vacancies and defaults are little or nothing. The disbursements are not known. The valuation of the ground, according to the appraisement of Charles Griffin, is $16.000. The amount of the investment under the first conditions would include the cost of the nonfireproof building, $18,421, to which would be added the cost of the ground, $16,000, making a total of $34,421. The sum received from rentals is $4.008, which is equivalent to.116 per cent. gross, on the investment. In the case of making the first floor and basement stairs fireproof, the amount of the investment would include the cost of the ground, $16,000, to which would be added the cost of the nonfireproof building, $18,421, and the partial fireproof increase $455, making a total of $34,876. Since the amount 244 received for rentals are the same in each ease, viz., $4,008, we have a gross return of.149 - per cent. on the investment. For an entirely fireproof building, we would have the cost of the ground $16,000, same as before, to which we add the cost of building, $18,421, and the entire fireproofing increase $2,498.86, making a total investment of $36,919.86. The rentals received, being the same, we would have a gross return of.1085+ per cent. on the investment. This building occupies about 1,872 square feet of ground-- consequently the nonfireproof building would cost $9.84 per square foot The partial fireproof building would cost $10.08 per square foot, and an entirely fireproof building would cost $11.12 per square foot. H. Hafker, of the firm of Hafker & Hollwedell, states that they can reduce the cost of tenement fireproof construction throughout to.08 per cent. in advance of the ordinary method of construction. These men have built a large number of tenements in different parts of New York and are thoroughly familiar with this class of work. Manly N. Cutter presents a method of fireproof construction, using for the side walls a steel skeleton frame filled in with hollow pottery of about the same color of hard brick laid up in mortar in the same manner. For the iioor he uses eight-inch steel beams filled in with porous terra-cotta arches leveled with concrete. Similar to the first system estimated upon. Instead of the finished wooden floor universally used in all construction of this class, he proposes to use porous terra-cotta slabs set in cement, which lie estimates at one cent per square foot laid, which gives him a large margin for reducing the cost in this one item. Again, he constructs his side walls only eight inches thick, which saves in quantity of brick measurements, as well as increasing the width of the room which is an item worthy of note in the construction of narrow houses. The roof covering is also of terra-cotta, laid in asphaltic cement. He also uses terra-cotta in the place of stone trimmings and galvanized iron cornices and agrees to finish said buildings for $18,943 thoroughly fireproof throughout. This sum increases the cost above the ordinary wood construction exactly $522.97, or a percentage of about.02839+ increase. Safely, we may say the increase will be from three to four per cent. This last-named gentleman submits an itemized estimate, and claims to have the indorsement of J. B. & J. M. Cornell and others, in favor of his system of fireproof construction. DAVID W. KING, Architect. 4 - A 17 0' *,&r- /-& r I / fn,,,,~ I I / I V W Suggestions for an Improved Plan of a Tenement House, with a Fire-proof Detached Stairwaty, Connectd b p 17 e )& to J4- A-l, 14041 / ^ f/b."k/C^ ached Stairway, Connected by Open Balconies to Main Wings of Building. Four Families on Each Floor. 7"a,& o#P lUr St4ovisg If.Y. JJIs" 11s3 TYPE OF TENEMENT-HOUSE WITH STORES BELOW AND FOUR FAMILIES ON EACHT FLOORa CORNER LOT. 215 Plan No. 1136. This building is situated on a lot 25 feet by 95 feet 10 inches at No. 27 Rutgers place, on the corner of Clinton street, New York. A basement extends under the entire building, with vault lights under the sidewalk. There are two stories in the basement, and five in the first story, with apartments for 20 families in the five upper stories. The basement is 8 feet; the first, or store floor, 12 feet, and each of the upper stories, 9 feet 2 inches in height, all in the clear. The front on Rutgers place, and the side on Clinton street, are faced with pressed brick and trimmed with stone. The cornices of galvanized iron; roof, tinned. As the building now stands, the first floor and basement stairs are fireCroof. This building, if erected in the ordinary way, would cost $28,422.95. With the fiist floor and basement stairs fireproof, it would cost $29,223.10. The increase of cost of the partial fireproof buildings being $800.15, or about.0028 per cent. If made fireproof throughout, the increase in cost would be $3,544.73, about.124 per cent, making the totals, $29,223.10, for partial, and in complete fireproof buildings, $31,967.68. The value of the lot according to Charles Griffin, is $26,000. The total amount of the investment, if of nonfireproof const'luction, would be $54,423, nearly. If partial fireproof cons!ruction is used, it would be $55,223.10. If an entirely fireproof building is erected, the entire investment would be $57,967.63. The gross returns on the investment without making any ded.uctions for expenses, would be for a nonfireproof building,.102 - per cent;. For a partial fireproof building, about ten (10) per cent. For a complete fireproof building,.0951 - per cent. RENTS RECEIVED. P r.rear. Basement, two stores, per month, each $20........ $480 00 First story, three stores, per month, each $28....... 708 00 First story, two stores, per month, each $24.......... 576 00 Second story, two apartments, rear, each $14...... 236 00 Second story, two apartments, front, each $14.50... 348 00 Third story, two apartments, front, each $18.50.... 444 JO Third story, two apartments, rear, each $18........ 432 00 Fourth story, two apartments, rear, each $17...... 408 00 Fourth story, two apartments, front, each $17.50... 420 00 216 Fifth story, two apartments front, each $16.50..... $396 00 Fifth story, two apartments, rear, each $16.......... 384 ) Sixth story, two apartments, rear, each $15........ 360 00 Sixth story, two apartments, front, each $15.50...... 372 00 Total...................................... $5,564 J According to Hafkeis estimate the complete fireproof building would cost $30,697. 'lTe Cutter method would give a total of $29,275.63. The area of ground covered by the building is about 1,915 square feet; ccusequently a nonfireprcof building of this description would cost $14.84 per square foot. Partial fireproof building would cost $15.26 per square foot. If entirely fireproof it would cost $16.68 per square foot. The disbursements for expenses are as follows: Repairs.......................................... $225 00 Gas for lighting halls............................ 30 t) W ater taxes..................................... 50 00 Taxes on property............................... 300( 00 Janitor's rent.................................. 168 )0 Total....................................... $773 00 Vacancies and defaults not known. DAVID W. KING, Arc titecf. Plan No. 397. Is an apartment-house for eight families, consisting of five rooms, without bathroom. It is located at No. 607 East One Hundred and Fifty-second street. 100 feet east of Cortland avenue. Dimensions of lot are 25 feet by 100 feet. A basement extends under the entire structure, with no living apartments below the first story. The building is four stories in height above the basement, arranged for two families on each floor. The basement is 7 feet in height, the first story, 10 feet 6 inches. The second, third, fourth and fifth stories, are each 9 feet in the clear. The front is of brick with carved and molded window caps; pediment over front entrance, steps, etc.; galvanized iron cornice; tin roof. The dumb-waiter and vent shafts are made fireproof with steel angle irons, filled in with terra-cotta blocks. T:4 K Ttr Flor$ It 6t, W 04.;BIT# T', rot sor TYPE OF TENEMENT-HOUSE WITH TWO FAMILIES ON EACH FLOOR. 217 The floors and partitions ab-ove the b:1stemnent are of wood, constructed in the;riaj-N vt; floor beaus, 3 inches by 10 inc-hes; fstudding, 3 inchtes by 4 incies; phlic-ed 16 inches froni (enters, eXCelpt roof, which is spaced '24) inches from centers~; ceilings and Partitions are lathed with w Nood lath. Side wvalls and ceiling's are huardfinishied on twvo coats of brown mo()rtar. Insidle finish similar to buildings of this cl~ass, cheaip and coimmnon. Fire escapes, in 1he rear; bulkhead in roof fire-proof. Froin a st~atement in the applicat-ioti tiled in the- building department, March 80, 1892), the building cod,, $10,000. From a ctual estinitates recelNved.1lba sed on the dlep)artment (1ra1wing, ad s~-if1ieainswitten for same, this building can be ielllcted for.$492. If the first floor and basement stairs are made firepiroof, thlis, buildling ou vild cost4 $153,4386.2'2'. The total ilicrea11se for.- partijal firep)roofing being.$472, or ain increase -A f.0315 +-V per cent abpove theI(' (.OSt of the nonlif1(1 1100)4bilil(linng. If entirely fireproof, the buildling ou vild cost $17'10.5.12 -1ot~il this Ibeingr (an inctrease of $b,2.1 40.90 ablove the ecos._t of the nonfireproof buildling, or about.143 + pcr cent. RF1NT8 Tl4'E( VED. Per year. First stor~y, two ap~artmients, at.$11.50 per month... $2 76 00 8Sec-oiid story, N iwoapatmntat $13 per 1monit I.... "81-2 00 7, lI -.(I st oryI two ap)artiments-, (at-$*1.2d pvi'014imit...... 288SS 00 Four11th11storyr two ap~artmnents, a.t.$'1 I per mnont Ii. C..26(44)0 Total......................$1lý'l40 00 T) 181 1 VTRS EAMIE NT"S. Janitor's, fe-es (vent of one)11c apatmment").........$1288 00 Water tax-s.........................5 004 Gas for lighlting hall11S.............................21)1 00 ColforJheating halls1.1...........................3(1 0 00 Il1is................. 0.................. 100 (0t Taxes (,about)....... 0000 0....0.....................180 )00 Total...................................... 00 00 00 0 0 * 0 $ 49410 0 The value of the lot according to Charles Griffin is $4,000, and the to~tal inve~stuent f Por non fireproof building would be $1-4,964.'22!1, with the coAs of lot added, ox a total of $18,964.22.W 248 With first floor and basement stairs fireproof, the total investment would be $14,964.22 plus cost of fireproofing, which is $472 plus the cost of the ground, viz., $4,000, making a total of $19,436.22. For complete fireproof building, it would be $14,964.22 plus $2,140.90 plus $4,000, which gives a total of $21,105.12, for the investment. The gross returns from the investment are $1,140. The percentage of returns on the investment for a nonfireproof building would be.0601-, nearly. For a partial fireproof building.0586 -. And for an entirely fireproof building, it would be.054 -, nearly. According to H. Hafler's estimate, the complete fireproof building would cost $16,161.35. Manly H. Cutter will erect such a building for $15.413.14. This building occupies 1,581 square feet of the lot, consequently a nonfireproof building of that area would cost $9.46 per square foot. For a partial fireproof building, the cost would be $9.76 per square foot. For an entire fire fireproof building, the cost per square foot would be $10.89. From the results obtained in this case, it is evident that the returns are but a very smnall proportion above the disbursements. The style of the building and its arrangenments is one whichi cannot be commended in any manner. DAVID W. KING, Architect. Plan No. 477. In a dwelling for five families and janitor's apartments, six rooms and bath, situated on the south side of One Hundred and Thirtieth street, eighty feet west of Eighth avenue. The lot is 20 feet front and 73 feet five inches deep. The building is five stories in height, with independent walls, coped with bluestone; flat roofed tinned. The front is faced with Longmeadow red sandstone in basement and first story, Milwaukee brick above the second story string course. The basement is eight feet six inches in the clear; the first story (ten feet) 10 feet three inches; the second, third, fourth and fifth.4tories nine feet six inches respectively. The side and rear walls are built of North River bricks, laid in cement mortar. The stairway from first floor to the batsement, dumb-waiter, shaft and door and the first-story floor are fireproof in accordance with the Building Laws of the city of New York. The upper floors I If I *~'~ I It II I I J4~ "m 0 Pt&100r ov?I bl, NO- q 7 Trstsrr I TYPE OF TENEMENT-HOUSE WITH ONE 'FAMILY ON EACH FLOOR, 249 -re constructed in the ordinary way with three by ten-inch wooden beams, placed 16 inches from center; partitions of three by four inches, studding 16 inches from centers, and all lathed wi ll wooden lath. Fire escape in the rear. The cost of this building, as filed in the building department, is $15,000; dated April 2, 1893. From actual estimates received, the building to-day would cost $13,516.78. For partial fireproof construction the cost would be $13,757.08, or an increase of $240.30, or.0177 per cent. For an entirely fireproof building the cost would be $15,174.53, being a total increase of $1,427.75, or.105 -L per cent One apartment in basement for janitor. Per year. First story, one apartment, $25 per month.......... $300 00 Second story, one apartment, $30 per month........ 360 00 Third story, one apartment, $28 per month....... 336 00 Fourth story, one apartment, $26 per month......... 312 00 Fifth story, one apartment, $25 per month......... 300 00 Total..................................... $1,08 00 Disbursements, vacancies and defaults not known. The value of the lot according to Charles Griffin is $5,000. The total amount of the investment for a nonfireproof building would be $13,516.78 - cost of lot- or $18,516.78, and the gross returns would be.0867 per cent. For a partial fireproof building we would have $13,757.08 -cost of lot--$18,757.08 total investment. The gross returns.0857+- per cent. For a complete fireproof building we would have cost of building, $15,174.53; cost of land, $5,000, or $20,174.53 as a total investment, or an increase of.079 per cent. H.'s estimate on complete fireproof building would be $14,598.1 2. C.'s estimate of complete fireproof building is $13,922,28. Tlis building covers about 1,253 square feet of ground, and the cost of nonfireproof building of the area would be $10.73 3-4 per square foot. For complete fireproof building the cost per square foot would be $12.11. For partial fireproof building it would be $10.98 per square foot. DAVID W. KING, Architect. T 32 SUPPLEMENT No. IL The Sweating System. The "sweating system " as at present existing in the tenementhouses of New York is not without its-evils, and they are very great ones, but to-day's conditions show an imiprovemnent over those prevailing until 1892, The Congressional Co'mniittce, headed by Congressman John DeWitt Warner, of New York, made a valuable report on Februa.ry 13, 1892, after thorough inquiryi in New York, k.loston and Chicagoc. New York, Massachusetts and Illinois now have anti-sweating laws. The te rm sweat work " practically al)plies only to the mantifacture of two comniodoties - clothing and cigars. In the manunfacture of clothing the system is as follows: The manufacturer proper ciuts the mnaterials and bunches together those intended for each garment. He then dlistribltes them among large jobbers, known as " contractors." The contractor is the middleman and the evil of the systemn lies in the fact that he exists at all. His only legitimate part ini the clothig11 trIade is the distribuiition of the materials after they h1ave been cut, and the collection of them after they have been sewn or "finished." His profit must necessarily consist of the differencei between what he receives from the manufacturer and what lhe pays to the work people. This margin is said to be " sweated1 " out of the work people, and from this the system, as applie(d to the making of clothing, gains its name. It is admitted that tfie manufacturers pay as high a price for th< work as theyv cn reasonably afford to pay at prevailing rates for the finished product. The lhardshijp to the work people is the loss of that portion of their waget which is absorbed by the middleman. That the evils of the plan have not been exagg,,erated will be more readily understood when it is explained that in maniy clases there are not only one, but two and sometimes three of these middlemen. Assume that the manufactufrer cuts and bunches the miaterials for a certain line of garments. He offers to pay 25 cents for the work of finishing. A contractor takes the job and in turn farms it out to a sub-contractor, offering to j)'ay 20 cents for the finished product. The sub-contractor must make his profit, and he, the only one of the three who deals directly with the work people, pays theint 15 cents for the finished product. Thus, while the *aianufacturer pays 25 cents for the perforimance of a certain task, the person who actually performs it is paid only three-fifths of tuhat sumn for his labor, the reimainiiig two-fifths passingl into the pockets of the mi(ddlemlan and subl-lniddlelman. If the labor were not worth the full 25 cents, the imaniufacturer huimself would not pay that sum. The only logi-cal conclusion is that the actual worker gets for eacth gar-i 1)Ii t 10 cents less than he really earns, that 10 cents going towards thle supJjort of tAwo persons who are logically unnecessatiy to the transaction. It is, economically, a Nwasteful and shortsioghted system(, as it devotes two-thirds of the nioney involvNed to lie suplport of individuals who do absolutely no produc-tive labor. Fronm a sociological point of view its evils are even "reater. The waste is drawn froml the source least able to bear it. IT there was not among us a large class of humnan being-s involved in absolutely hopeless poverty, no such waste would be tolerated. At the best, tlhe mianufacture of cheiap clothiing offers the smallest possible margin for wvage payinent. When Ih9is is shaved by two-fifths it is at once evidlent that ththose intflinenced by the condlition are near to the lowest possible limit of 1earning capacity, and hence forced to the highest possible limit of working (apacity. During the existence of this conmnittee, it has been almost impossible to nmake a study of the sw\'eatincg systenm which shall be representati\-ve of any year except 1894. Abnormal conditions have existed among the sweat shops since the beginning of this Vexamination. These began with the extreme buliness depression which practically stolpped the manufacture of cloaks and clothing. Whien trade revived to some extent a new complication arose in the form of a strike, which at the time of t li'is writing is still in progress. These two disasters to the t"ade have acentumtel tie dire poverty of the sweat shop vorkers. Many cases of actual starvation have developed, and the destituiition is most lpitiful. This perhaps illustrates the ultimate misery-breeding possibilities of the sweat shop system. B)ut it has greatly hindered the efforts of the examiners to make an11 accurate statement of the normal conditions of the sweating system in New York. The preSent laws (1892-1893) prohibit the use of "any room or apartment in any tenement or dwelling-house" by any " exenlpt the imnimediate members of the family living therein for the manufacture of coats, vest,. trousers, kneepants, overalls, cloaks, hats, caps, suspenders, jerseys, blouses, waists, waist bands, underwear, neckwear, furs, fur triminigs, fur garments, shirts, purses, 252 feathers, artificial flowers, cigars or cigarettes." The manufacturer is also required to get a permit from the factory inspec. tor before he can use any tenement building, or building in the rear of a tenement, for the manufacture of any of the enumerated articles, and this permit must state the number of persons to be employed therein. This law has by no means done away with all the evils of the sweating system. The fact that the law permits members of the Simmediate family " to carry on the old sweat shop work without the supervison of the factory inspector gives opportunities for violations and evasions. It is unquestionably true that boarders, lodgers and even complete outsiders are frequently admitted to family intimacy for no other purpose than evasion of the law, and it seems safe to assert from common report that the manufacturers and contractors sometimes abet the workers in these violations. The factory inspection, so far as this committee's examiners have reported, does its work honestly and as thoroughly as in its power. Complaints are made, however, of lack of sufficient force. The enforcement of the new laws wrought a most beneficial change. Seventeen thousand one hundred and forty-seven persons employed in the clothing trade were compelled to leave the tenements in 1893, while during the same year 371 tenements were entirely cleared from "sweaters," and are now ased for living purposes only, while 85 tenements were cleared of residents and remodeled into shop buildings. It is assumed that the lack of sufficient force is, in some measure at least, rlesponsible for the viola;tilons which are instanced hereafter. It should be noted that this report is by no means a thorough statement of the existing circumstances in this city. About one-fourth of the sweat shop district was covered by this committee's examiners. On the first floor of a house on Ridge street, a family of Russian jews was found making cloaks on three machines. They were man, wife, boy of 16 and girl of 17. Besides them, one man and one woman were at work in open violation of the law, which allows only the immediate members of the family to work in tenement-house rooms. The kitchen was the workroom. On the floor of this room sat a little girl, six years of age, playing on a pile of unfinished cloaks. Close beside her was a certain vessel which a still smaller child was putting to its appropriate use. Three cats were rolling about on a pile of unfinished clothing. In Essex street was found a family consisting of father, mother and two children (16 and 17), and two men who said they were brothers to the tenant working on men's clothing. The 253 family occupied three rooms. The kitchen was the work-room, and the whole place was in a filthy and unwholesome condition. In Elizabeth street were found two families who employed several workmen in violation of the law. Cooking, eating, sleeping and working were all done in the same room, and the goods were piled upon the beds and tables where the food lay. The filth was indescribable. These are fair samples of the condition as it exists to-day. Far worse conditions than these were discovered among the tenement cigar factories. The manufacturer is proprietor or lessee of tenement-houses containing from 6 to 24 families. He rents the rooms to his workmen and deducts the rent from their wages every week, so that he has factories which, instead of costing him large sums in rentals, actually yield him rentals at the regular rate obtained by the ordinary tenement-house landlord. The system is illustrated by the following: - - have four tenement factories, Nos. 341 to 347 East Seventy-third street. No. 341 contains 20 families, consisting of 85 persons. Each dwelling contains a kitchen 13x10 and two sleeping rooms 7x10 1-2 and 6x7. The ceiling is 8 feet.high. -No. 343 contains 17 families and 72 persons. No. 345 contains 16 families and 75 persons. No. 347 contains 18 families and 76 persons. The four houses collectively contain 72 families, with 308 individuals. There are also 24 persons who work in these buildings but reside elsewhere. The rent ranges from $9 to $10.75, and the wages from $4 to $5.75 per thousand. One of the workers, when question in regard to hours of labor, made the following reply: "Write that I very often get up at 5 p. m. and see families already at work, who continue to work until midnight." It is true that some work from 5 a. m. until 1 o'clock, then fling themselves without undressing upon the bed, sleep for a few hours and then resume their work, continuing this mode of life until sickness overtakes them or overtaxed nature forces rest. Dirt predominates in these buildings. Within nine months two children had died of diphtheria and a man of consumption. The kitchen is always the working-room. - & - have several tenement-house factories on East Fifty-fourth street near Second avenue. No. 316 East Fifty-fourth street harbors 16 families, with.70 persons. Each family occupies a living-room 14x12, a kitchen 9x6, and two sleeping rooms each 7x6. The ceiling is 8 1-2 feet high. One of the sleeping rooms has no window at all; the second has one looking out on the dark corridor. The rent ranges from $8 to $10.50. 254 No. 314 contains 20 families, 93 persons. Each family occupies a living room 13x10, kitchen 10x10, and a bedroom 6x5 1-2. The ceiling is S feet high. The rent is,$10. In this house a child died recently of diphtheria. In No. 312, whiere the rooms are like those of 314, there are 20 families, with 90 individuals. The mortality in this llhouse for a single year was one man, one woman and two children. Wagaes vary from $4 to $6 per thousand. A family containing two wvofking members produces on an ave~cage 2,600 cigars a week. Apartments, stairways$ courtyard and cellar are dilapidated; no whitewashing hais been done in a long time. The manufacturer who owns the houses deducts his rent from the xveeklyv wages of the workers. The water-closets are in a filthy condition. Tn one apartment a mother was busy at bunch-making with an infant at tlLh breast - & - own the houses 303 to 309 East Svventvthird street. No. 303 contains 16 families, representing 58 persons. Each family occupies a kitchlien 11x12 and two bedroomis, each 7x8. One room has no ventilation at all. The hedroom has the usual opening in the w-all 16 inches square antd looking out on tihe dark corridor. Hours of labor begin about 5:30) a. in. and end about 10 or 11 p. mn. Wages vary froam $5 to $6.25 pter thousand. Two ipersons on an average Iproduce 2,700 cigars per week. The rent is $10. In one room a mother was busy at work and was at the same time rocking a cradle with her feet. In another apartment one man11, who wfrked from 4 a. m. till midnight, had last week, after the deduction of rent, 40 cents left to live upon. Another woman had 10 cents left last week after the deduction of the rent. Her husband died two years ago of consumlption. The other houses, 305, 307 and 309, resemble 303. No. 305 is occupied by 19 families, with 07 pIersons. In one dwelling the husband lay sick while the wife was straining every nerve to earn enough to support a family of seven. In another dwelling the examiner surprised a. family of six at diner. There were but two chlairs in the dwelling, which were occupied by the father and mothler. T'le latter held the youngest child cn her lap, the second was standing, the remaining two knelt at the table. The meal consisted principally of boiled )r smoked sausage, wvhich required no preparation. "'his caves time. In one room of No. 307 a young woman sat at the work-table rolling cigars with hlier hands, with lier feet rocking a craidle in which a sick babe was lying. Hours of labor average from 6 a. n. up to 10 or 11 p. m. Some families work steadily from 5 a. m. un-til midnight. Wagres. vary from $4.50 to $5.50 per hu sand. A famnily counting two wo-i-king mnembeirs prodiuces 2,500 cig.,.avs per week. &k - lease the houses 8'22 to 228 East Sixty. thIrd stireet. They contain from 16 to 20 famjliej(s each. Egach dwelling consists of a living-voain '12 by 9)1-d2 feet, an~d two slepig-oosres'lwetively 1)1-2 by 7 feet and 6 by 6 1-2 fee()t, He igh t, 7 1-22 feet. One of the sleepin.g-roomis ha~s an aper-tuIre 15 inche(ls qulare, the other~ lacks even tUris. Rent, $4 to $9.73. Wagecs, $5.75) per thiousand. Two working mienibers of a famuily can produce on an taveragev 2,500 cignars p~erlweek. One womian, whien (pies~tioned as to the hours of labor, replie~s: 11 Oh, t~here at-e Romle who searreely ssleep three or four lionus, but we aro deterwuined not to work ourqselve~s to death. We quit wvork ait 10 p. in." It does not seem wise at the prIesent thile to recommnend fur-ther legislatfion upon the sil)ject. The miater may very well be maode, the subject of fwutlicr legsilative inquiriy. E DWARD MARSHIALLJ cd E-1 41)4 o0 E-4 * Cd o. 0 C,) 0 QK56 C9 f o A - - rz w w t t- cq C mw m wW V. oIW I ý ý 0, 0 % V to -4-d40t- w r4 wt 1 -Z 0 W 0fo I =- - -'-10--q d -4 - ---l - o 0-.04 -M-1, fr. ~ C~ ~ =too 000 -t- 0or-4 -4 m cqit- cNi to x 0 pe U.... 4-2 *. cc0.. zLg. qcu b.04 V V- -qC a0L* 00 M0 a O *i -0 "qQZ HM4 ol - rqP-QNE 0 I ve 00 inx as Gno z.0. An Vd 41 0 0 I O Q - - L9 Uj -, qq - j-t-, t... 04 - - ob ". T 0) z O 0 0 4, %~ ~9: w. ~1 rr '3 #%4 O 9 O 4~ dc 3 oo Ly CG~th uloo 7, aoa~ (b.I 0` P8 Cf: rr aD.cl, AN +A U.r..u t io mc 139 IH. _ý 4V -!gg 1 34Ttle -.AT-. 4V - -S-L'I:"- -,, p I!,I" -- M4Z.Ps I1 - Q4O V..") 0, 87T*. ST. - F44 I zI I ii I lo Ij I* ddli~ r/Ir tI L-witix II~ II, VI ~ it' I~ 14.g j -rV. t c ENL~ R A biL I P A R' K I II,R5obp~Z~6r,~ _P,I/ d ~13~ __ __ I _ __ __ _ __ _ ~ _ _ Y -WOOP IR V E I r m I? I L, 14 IIi.r ErIHT.11,1 W 0 0 D 40 14 rib poel41a 'ok d C o v, ~F o. r ~m C I~i~k ad 6;erunans" 0 ally YcltIveS, P.ri)4ctp ~P o SUbUvba; Ptl~C~PO Lpjt..A 4 C 03 n 'Z. VP ci '1~ Y'.AV a tives a ftd Iv izih 3~ L. ~ C1 (b 3 CtAREMONT PARK ~cr U; b X: to V4 I 1 o tr tn cJ O O 0 M~AP No. 2. T E ~----, 0 OFF OPJ~ IýV. f a CZ: 4o:c SA Diagram 0 ~J ShowingfE~the ProportioE of eachi Nationrality O CITY of NEWYOYRK T~o Pula~tion 4, 0 I I ' -~ qw Census of 18go Mar, Tot al 1. 403Y8 Showing Distribution of principal ~39548National'ties by Sani~taryDistricts, 54334. Made under the Dircietio n of TheTentment H~ousia Con-n-itte Op 1894 -2~679 Gr-mans Iris~h ga-tives Italiat m and incgoB Frnhf~ff~~Bhein r~zgg olerr.Nationrs. (0 1 3 Note:- Thele ationarlities skown ap-& those xva&,.11% "P twoo thii~ds 12 S87 of the toial Popmluf * FeL'tr~ b hp Nwsff 80 11The relativfie Breadth o tfpe Banid,& of C'olor iw qjy;juistvict Show., the~ Provvajo- Qftiops bit 4 makiaws "R th ftroo FIrecterick EE.Pierce, Del.. ~ LEGE:END. I Densily UnKnown. ~UUndo t 100 p erAcre. 100 rn1Cto 2001, 3a00100 91 -40 IJ" L) s O.Ar R I Ig 141 19 rl ~ R lop i it 1111 3LAýc1rCWXL -L t No. 3. N/fAP OCF THE C I TY of NEW~~`~rYORK NYt~~Yt~ ý5110winw The Densioty 5f the Pop u I at io n ardssa Made uncler the dirce-tionoi TbeTencineent House Commit~tee P,ý-Pf,8'94 - ;?Io 0 SSTH..4 am qp. -ww QW-W " LEGEM D. Depirtlity isnkimovn, Undes- 100 per(prft lbo 200tn~b ~ ~ too Rhon.. NjOts!5*114 figures do - note the actual Ilum beir of inhuabitantx per acre according to tile, V - S. C~enaux. 1D S: C).Ar onnn Ill \-S, 1,' 1Spm 1-i I 1111I - II J,~.4 c C CI T of -NEW YOR K IN Ye s h ovvl* yg The Density of thee Popu'lation byWards im 1870. Made under the directibno Tho~Liement House Con'"ittee --Of 18Q4, IZ IV7 L A L A tDAWALi;R r u ~4~-C--CriP ~ ~~ *c~ Q~t; I i 8'' t LE GEND, qUnder100perl (TTT100 tozoo, toois 00r4, 3li 40~00 lio 'I) )r )t Not~e: Solid figtilrv cl note the settiva numm be r of inhabit unt x per acre accordirg fothe U. S. CenaLLS. D s;113t x N4" I YICIL41;1: BL~K~-~n~-L~ T, 4~~ ~-~ N~Jo. 5. M~[AP OFP THE CITY of NEWT YORKN,Y, s howing, The Denzi-ty of the Popul atioon by Wards in~ 1880* - Made unlder the dlirection of: TheTenernent Hou se Commsittee Of 18C4 $4 I LE GEND. C Under looperAcre m 100 to 200 ~. it ~200 i 30 0 it is t 300., 400 it it ý 00 s, 501D is, 500 it 600 is, NOutlolid ri gre 9 denote the acvtual number of inhasbi tants per acre n ocord i n to the U.S.Census. r/ s O NV Ipw H~ V& ~tt~tt f~l 3I ALA L~ No.6, 6.MAP"% CITY of NEWt YORK;N.Y. s howinr Thebe."Sity off ibe P0 p U 1*04-r-v: 10 1-1 by Wa r d s in 1890.hre~ooc Macle wideldr the drcinfr,'n-iTeneme~nt Houuse Cormmittee V.1. -. of-J804* Y U~-' Vy T 14ý DISTICT INCRRTAU. CITIES OF THE WON-(R~r) ARRANGED IN THEC ORDERP OF THEc DEN-SITY OF THBELY. POPUTlATION'S. Dlz!f IRICT. City. Density par acret. Date. 1 2 8 4 5 6 7 10 11 12 13 14 15 16 17 18 19 20 21.3 Sanu. dist. A..................... Koombarwara............... Chukia........................ Kharatalao...................... Tenth ward.............'*-"*-I Josefstadt.................... Arrondissement Bonn e-Noutveil e Betlinal Green, North........... St. Rollox....................... Brownfield...................... Calton proper.................... Mile End NeWtown D(ANVliitechapjel).. Spitalfields (Whitechap~el)..... Colootoll ah...................... Nihonbashi-Ku.... 0.............. Jorobogan...................... Jorosanko.............. Bowbazar........... Moochepara.............. o....... Kanda-Ku.o.............., ' *......I Below Harlem rivet........... Altstadt........................ Neustadt....................... Eleventh war(], New York. Bombay................. Bombay............... Bombay................ New York............... Prague.............. Paris................... London................. G-lasgow................. Glasgow.................. Glasgow................. London................. London................. Calcutta................ Tokio................... Calcutta................. Calcutta................. Calcutta................. Calcutta................. Tokio................... New Xork............... Prag'ue.................. Prague.................. 986.4 800. 47 759.66 718.26 689.02 626.26 4 85".4 434.19 365.3 350 3 45) 343 303.5 291.6 204 187.4 161 159 154 148 146.6 143.2 143 93 1894 1893 1881 1881 1881 1893 1887 1891 1891 1891 1891 1891 1891 1891. 1892 1891 1892 1892 1 892 1892 1891 1893 188 7 188 7 Population. *31, 564 25,615 34,9990 37,048 28,691 66,383 10,680 30,041 51,520 15,757 1 3,7797 22,63 7 17,908 22,456 509781 135,689 39,180 41,657 22,608 39,109 111,784 1,800,846 44,485 79,891 Acreage. 32 46.06 51.58 41.64 106 22 69. 183 141 45 11 66 59 77 ý24 243 262 147 263 762.3 12,5'75. 81 859 * Estirnat d. SUPPLEMENT No. 13. New York's Death-Rate as Compared With That of Other Cities of the World. BY ROGER S. TRACY, M. D. It is extremely diffllicult to compare the conditions which affect the death-rate in New Yoirk city with those which affect ilthe death-rate in other cities of the world. )Differences in the iiethiods of collecting the statistics which are in vogue in different cities often result in exceedingly i isleadig death-l-a tes. Many eities carefully eliminate the deaths of people who are not c(iI*iis, whicih occur within their corporate limits. The deiisity of the population, and its cliaracter as affected by inniigition and nationality, result in aninaincreaQsed( death-rate in New York which should not be taken as bearing testimony against its healthfuln-ess as a Iplace of residence. The following list of citivs. with popiulaltion, deaths aind d(lath-rates is taken fiorm the annnal report of London, England, for 1893, publslihed by the authority of the registrar-general, excep jing that the figurel s for New York are taken from our own rep)ortIs: Population Annual enumerated or rate per Cities. estimated. Deaths. 1,000 living. Edinburgh..................... 267.261 5,268 19.8 Glasgow................ 677,883 15,789 23.4 Dublin..................... 349,594 9,409 27.0 (Ta1cutta...................... 466,460 12,0505 25.9 1omubay........................ 821,764 23,059 28.1 MIadras........................ 452,518 18,477 40.9 Paris......................... 2,424,705 52.739 21.8 Brussels- (with Faubourgs)....... 488.188 9, 675 19 8 Aiiisterdaim.................... 437,892 8,136 18.6 Rotterdam..................... 222,233 4,98 2 21.9 The Hague................... 169,828 3,232 19.1 Copenhagen.................. 337,500 6,845 20.3 Stockholm. 9................... 24249,246 4,770 19.2 Christiania......................161.151 2,820 17.5 St. Petersburg (withliout Faubourgs)I 0 4............ 954,400 2 9,242 30.6 259 Cuties. Moscow...................... Berlin......................... Hamburg (State).............. Dresden...................... SBroslau...................... tMunich.................. Vienna (with suburbs).......... Pr rgue........................ Bud (a-Pesth.................... Trieste.............. orom e......................... Milan.................... Turin.............6....4........ Venice.................... Boston................. New York...0 Brookly ' n.0................ Ph6iladelphia.................. altlimnore.................. Cincinnati................. New Orleans................. 8an Francisco................. Population enumerated or estimated. 753,4t9 1,714,9088 63 i1,878 308,930 353,551 385,000 1,435,931 327,95.3 539,51G) 158,314 4490,430 430,8829 334,0900 168,601 37 4,83S8 231,3096 487,397 1,891,306 900,601 1990,891t 1,115,562 455.427 325,000 254,000 000,000 Annual rate per Peaths. 1,000 living. 27,001 35.9 36.032 21.0 12,977 20.4 7,195 28.4 10,256 29.1 10,075 26.2 34,468 24.0) 9,075 27.7 14,483 26.8 4,420 27.9 10,020 22.3 11.1131 25.8 7.018 21.0 3.998 24.5 19.023 50.9 7.89)0 36.8 11.710 24.0 44,486 28.3. 20,964 21.2 23,615 21.2 9.554 21.0 6,092 18.7 7,130 28.1 5,919 17.9 In many cases, the number of deaths in this table is obtained by adding together the numbers given in the respective weekly lrports for 1893 (52 0weeks). This number usually differs a. little fio111 the actual number for the year but not enough to affect the death-rate materially - never probably more tihan tw tr te- Ie tenths. In consulting a table like the one given here it should always he Ioirne in mind I hat a fair comparison between one city and otlll her can not be made by conmparing Ihe crude death-rates as 111cy are given above. This is in the main because the proporlioiis of the sexes and ages are so different in different places. It is evident, on the surface, that.a city that bas a. large Iropormlion of its population of an age when the mortality is low and t s111all proportion of an age when the mortality is high, will.ha-ve a lower death-rate than a city where the converse is the case, rei if the sanitary condition is about the same. For example, I city with a large propwrtion of children a1(d 1aged peolple and a sMnall proportion of adults at the prime of life, will have a higher deal h-rate thitan one with comparaitively few children and old 260 people and a large proportion of adults of the healthy age. This is one reason why a direct comparison of the death-rate of houses occupied by the poorer classes with those of the wealthy class is always in some degree mislelaiding, because the poor usually have larger families of children, and the latter have many domestic servants of an age when the mortality is low. Therefore, it is that while death-rates, uncorrected, are useful for comparing the sanitary condition of the same town during a succession of years, because, excepting under extraordinary circmniatances, the distribution of age -,nd sex does not vary materially from one year to another in the same community, they are not useful for comparing different places with one another without allowance being made for such differences. The method of making the correction is rather technical for rpe:tition here,* but an illustration of the results of its a)pplicA. tion by Dr. Ogle, of England, may be given, as follows: "In 1881 the general death-rate of England and Wales was 18.9 per 1,000, of all ages, while the general death-rate in France was 22.0, i. e., 3.1 higher than England. But had the age-distribution of the French population been identical with that of the English population, the French death-rate would Jiave been 20.9 and not 22.0. Thus of the 3.1 difference between the two rates, 2.0 was due to difference of health condition alnd 1.1 was due to difference of age-distribution." 'lhe fifty-fifth annual report of 1he registrar-general of England (1892) closes with thlle wordis: "In lprevious reports it has been pointed out that as the sex and age-distribution of the population varies greatly in different countries, and as the rates largely depend upon such distribution, the rates in one country c.in not safely be compared with the rates in anthler, without correction for this difference in the constitution of the several populations. In order to allow of fair compnarison it is most desirable that the several countries should agree upon some ' standard of life table population,' that is to say, a population with fixed age and sex-distributicmn f(;r iniernational use, so that the birth, marriage and death-rates for each country may be: calculated by this standard. I recommend this suggestion to the notice of the respective governments." ROGER S. TRACY, M. D. * The method of making this correction may be given briefly as follows: A death-rate is teken as a standard (in England the standard rate is the rate during the previous ten years for al England and Wales); the death-rate of any particular town is then calculated by applying thbl death-rate at each age-period, using the number of persons at each age-period as a multiplicand and the standard rate at each age-period as amultiplier. The death-rate for the entire population of the town, having been obtained in this way, will usually be found to differ from the standard death-rate which has been adopted, and the ratio between the two, viz.: Standarddeath-ratCalculated death-rate, forms the factor of correction for that particular town, by which its annual death-rate must be multiplied, and thus either increased or diminished, to make it borrespond. for colW parative purposes, with the death-rates of other towns in which the age and sex distribution is different. SUPPLEMENT No. 14. Maps of Density of Population and Nationality. Map I. The ideal density map of the city would be one in which each block is shaded according to its density, that is, the number of inhabitants to the unit of area, e. g., an acre. Such a map would not show the minute variations that would be shown by a table of densities (see table I, column 8), for the best eye probably can not distinguish more than a score of shades, and the average eye may be unable to distinguish 10, while a variaction in numbers, no matter how slight, appeals to the mind. The map, however, with a scale of 25 shades representing deinsities, would express admirably the actual density; the points of congestion being black, the density shading off on all sides to points of least congestion, intensifying again in oliher dense districts, and finally showing parks and unimproved blocks. But such a map wouid have to be very large to show individual blocks, and its size, with other difticultiess, would make it expensive to prepare and reproduce. Besides these objecticins, the population aand area of each block fromn1 whiclh te d iiensity is calcil;ited aric not re;adily obtained, if indeed lhey are to be obtained at all. The idea of such a map had to be abalndoned. The next best thing was to divide the city into districts and shade these. It being necessary to know the population and area of these, the choice was limited to those which are statistical divilions. Wards and sanitary distri;cts are such divisions, and the area of them is known with the population on June 1, 1890. There are 24 wards and 114 sanitary districts, the latter being minor divisions of the wards On account of their number, which would yield a greater variety of densities, the sanitary districts were preferable, and more so on account of their being smaller where the population is denser. They are described in the Eleventh Census in the Monograph on "The Vital Statistics of New York and Brooklyn," compiled by Dr. J. S. Billings. Their area in acres is given (see 1able I, column 7). Their population on June 1, 1890 (see table I, column 5). The population of the city June 1, 1890, was 1,i55,301. On July 1, 1894, it was estimated to be 1,957,452,* an increase of 29.179 per cent. This estimate, it should be noted, may be somewhat too liberal, as the rate of increase may have changed, owing to a decrease in immigration and a temporary emigration attributable to hard times. The popula. tion of each district was increased by a like amount (see table I., column 6). By dividing the population in column 6, by the areas in column 7, the densities in column 8, were obtained. These were seen to vary between 3 in the 24th ward, and 986.4 in sanitary district A of ward 11. Thus they were easily divided in 10 classes of even hundreds. A scale of 10 shades, denoting the 10 classes of densities, was selected. The spaces on a map of the city outlining the sanitary districts were shaded according to the scale of densities. This done, the map was completed. The map represents the important geographical features of the city of New York, the principal parks, the wards and sanitary districts with their boundaries, some of which are named. Table I, column 3, bounds the wards and sanitary districts completely, and column 4, gives the predominant characteristics of each. Fronm this the names of those boundaries not noted on the map can be obtained. A comparison of the spaces representing the sanitary districts, with the scale of densities, gives, within the limit of the scale, the actual densities of the districts. If the density of any district is desired more accurately or its population or area sought, a consultation of table I, column 8, will give it. The general effect of the map brings out the districts where the population is concentrated in contrast with those where it is less concentrated, but it shows also how they blend into one another. These crowded districts are the sites of settlements which to old New York were out of town. With the exception of the upper east side they grew to be the homes of wealth and fashion. Now they are the points where the tenement population is greatest. Map 2. The Monograph on the "Vital Statistics of New York and Brooklyn" gives not only the total population of each sanitary district, but also of what it consists. It gives the colored contingent in one table, pages 230-233, and the more promineat nationalities such as German, Irish, Italian, Russian and Polish, * NoTB.- This estimate is based upon the U. S. census of 1880, and the N. Y. State census of 1892, without reference to the U. S. census of 1890. etc., based on the nationality of the mother in another table, pages 234-237. These are the only data to be had on the distribution of nationalities in the city. They are fortunately sufficient for constructing a map. Whether it is fair to class the child as belonging to the nationality of its mother is a question. At the outset it must be remembered that the question is sociological and not political, and that prejudices are to count more than legal definitions. For one thiing the child is believed to be more apt to inherit its mother's tastes and prejudices than its father's. And there are many more people in the city with foreign mothers than with foreign faihers. Of the 1,489,627 whites in New lork on June 1, 1890, 636,986 were foreign born. And of the 852,641 native born 582,154 had one or both parents foreign. Of these 64,238 had American mothers and foreign fathers, leaving 518,403 with foreign-born mothers. (Incidentally this shlows how few Amnerican women marry foreigners.) But what proportion of nativeborn with foreign mothers had American fathers can not be said A third is probably high, and it would mean ilhat 982,588 of 1,515,301, the total, or 64.8 per cent., had foreign parentage, while 1,155,389 or 76.2 per cent. had foreign-born mothers. In the light of such facts, as the likelihood of our population inheriting its maternal prejudices, and such a large proportion of it having foreign-born mothers, the fairness of tle table from a sociological standpoint as a basis of a nationality map) seems no longer questionable. The table (79 Vital Statisties) gives 12 nationalities including native, and lumps the rest: 1under thle head of " other foreign countries." Table (78 Vital Statistics), gives the colored popula-. tion. Of the 12 given, those of England and Wales, Scotland, Scandinavia and Canada were disregardted; first, because though as numerous as some others they were yet so evenly distributed over the city as to be lost to sight, and, secondly, because, with the exception of Scandinavia, they are more like Americans than tlie others. The best way to represent different nationalities is by different colors. The following convention was adopted: Red for German; green, Irisih; blue, native Americans; orange, Italians; brown, Russians and Poles (shown together); lake, Hungarians; purple, Bohemians; white, French; dark green, other foreign nations; black, negroes. By coloring each district with bands of colors whose breadths bore the saime relation to the sum of the breadths as the amount of the nationalities they represented bore to the total population 264 of the district, a map showing the proportion of each nationality and its distribution could be produced. Other methods for accomplishing this were considered, but this, on many accounts, seemed the best, and was, therefore, adopted. Each of the ten nationalities selected, it was found, would appear more or less in each district. Those appearing to a slight extent would be a detriment to the more prominent ones a nd to themselves by diminishing contrast and thus also injuring the general effect of the map. The rule to represent those nationalities only which made up two-thirds or more of the population of the district, was then adopted. The bands of color were mnade of breadth proportional to these nationalities' quota in the two-thirds and so the map was prepared. It represents (llqality and not quantity of population, so when sanitary district S. of ward 12. and the 23d and 24th wards came to be dealt witl it was decided not to color them. They are thinly populated mainly with natives, Irish and Germans; and lest they might seem, by extent of color on the map, to show there a great preponderance of these nationalities the fact that they are suburban and mainly populated by these nationalities was noted in words. In other respects by carrying in the mind the colors representing the different nationalities the distribution of them over the city is seen at a glance. To show the actual as well as the relative amount of each nationality the statistical diagram at the bottom was prepared. A surprising fact thus revealed is the preponderance of Germans. The map itself gives the idea that New York is pre-eminently an Irish city, but it should be noticed that the Germans like the Italians, Russians,;d Poles, Hungarians and Bohemians and French collect in districts, while the Irish and natives ihave spread over the whole city. Now by comparing map 1 (the one of densities) with this it is seen that the dense districts are almost identical with the.German quarters,, thus accounting for the large number of Germans. Tile above shows what an erroneous idea of numbers the nationality map by itself can give, and how necessary maps 1 and 2 are to each other. The French quarter near to South and Washington squares is remarkable in that it is also a negro quarter, giving evidence of a lack of race prejudice characteristic of the Gallic race. The other French quarter on and west of Sixth avenue between Eighteenth and Thirty-first streets is also a district where negroes appear. In this quarter there are not enough French to appear in two-thirds of the populations of the districts, but such individuality have they that it is known only asa Fvenchl quarter and is, therefore, expressed by the conventional sign of a white 265 circle. The same may be said of the Chinese quarter in the Sixth ward. There are very few Chinese in the city and t'here wheore they are most numerous they do not appear in two-thirds of the population. Yet their individuality has so stanlped( itself on the neighborhood that it was decided to represent the quarter by 4nother white circle. T1his nIapl, it is thollught, shows in the best way the most pronmnent nationalities existing in the city, and their distribution. It is however - and thlie same nay be said of the ldensity 1 iap - the first step in this direction and in the light of later work may he made to appear crude. That more work in the same line will he done in the future, perhaps with greater detail, seemsi probable from the interesting facts by such means made apparent. Maps 3 to 6. Mapsq. 3, 4, 5 and 6, represent the density of the population by wards in 1860. 1870, 1880 and 1890. They comprise a series showing the growth of the population; its shifting from one part of the city to another, and particularly the enormous growth in the Sixth, Seventh, Tenth, Eleventh, Twelfth, Thirteenth and Seventeenth Wards. The data which nuide these niaps lpossible were taken from the census reports, and frour the city board of health report of 1 93. The population of the warvds from the fornier, their acreage fiomr 1he laiter. (Sec table.) The maps are like iap 1 in that they can not show mIninute variations in deinsities. lot' such inrfornation Table II niist be (con1SUltedl. This is the largest and mniost elaborate series of the k ind possible. The largest because previous to 1860 the ward boundaries, were different. Tohe most elaborate because the smallest divisions whose lpohulation and area are known are "tmnloved. namely, wards, sanitary districts being unknown before 1890. In order to prevent statistical confusion in the future, it is to be hoped that any change hereafter in th-le size of wards and sanitary districts nay hbe only by subdivision. In preparing' the maps of this report the committee received invaolable assistance from I)Dr. Roger Sherman Tracy, of the Board of Health. FREDERICK E. PIERCE T. 34 TABLE IL Wards, Sanitary Districts; their Boundaries and Prcdominating Characteristics (taken from the Annual Report of New York City Board of Hfealth); also Population for 1890 and Acreage (taken from Report on Vital Statistics of New York and Brooklyn for 1890); also Estimated Population for 1894 and Density of Population per acre (calculations of F. E. Pierce for Tenement-House Committee). Estimated PoultinpoultinAceae WARD. I Boundaries. Predominating characteristic. Population, population, 1894.1 per acre. First....... Second. Third........ FYourth. Fifth......... Sixth ooo*#.ee A B C see B A B A B C South of Liberty street and Maiden lane............... West of Broadway and State street....a..s...0...... East of Broadway and State street................ Governor's, Bedloe's and Ellis islands................. Between Liberty street and Maiden lane on the south, and Spruce street, Ferry street and Peck slip on the north, east of Broadway and Park row........... Made land............... Business; madeland. 11,122 8,129 2,521 472 929 14,869 10,503 8,257 609 264 83 104 77 54.4 126.5 81.3r~r Between Liberty and Reade streets, west of Broadway,j Between Spruce street, Ferry street and Peck slip on the southwert, and Catharine street on the northeast, southerly of Park row......................... South of New Chambers street and James slip.a00*00400 North of New Chambers street and James slip......... Beade tb Canal street, west of Broadway.......... West of Hudson street.................0....... East of Hudson street........................$.. Below Canal street, between Bowery, Park row and Broadway... o................................ West of Centre street......................... Between Centre and Baxter streets...s*a0040... East of Baxter street.......... 0......*...*....s Business.................. 8,765 1,202 76 15.8 4,864 102 47.6 17,809 23,006 82 280.5 Made land......................97,18.3 9,280 47 197.5 Marshland; Italians..............10,626 13,726 85 392.1 Marsh land............... Marshland............... Business.................. Made land; Italians, Jews..9a00 Italians, Chinese............ 12,385 16,000 162 28.7 7,259 9,378 80 117.2 5,1126 6,622 82 60.7 23,119 29,868 100 298.7 1,957 2,528 51 49.5 6,576 8,497 23 369.4 14,586 % 8,843 26 724.7 Seventh........ Eighth.......... Ninth............ Tenth.......... Eleventh........ Twelfth............. Between Catharine and Grand streets, Division street and East river............................ A Between Catharine and Jefferson streets, south of Monroe street.................................... B Between Jefferson and Grand streets, south of Monroe street...................................... C Between Catharine and Jefferson streets, north of Monroe street......................................... D Between Jefferson and Grand streets, north of Monroe street.............................................. Between Canal and Houston streets, west of Broadway, A West of Varick street............................... B East of Varick street, south of Spring street........... C East of Varick street, north of Spring street............ Between Houston and Fourteenth streets, west of Sixth avenue, Carmine st., Bleecker st., Cottage place...... A West of Hudson street, below West Eleventh street.... B East of Hudson street, below Charles street and Greenwich avenue....................................... C West of Hudson street, above West Eleventh street.... D East of Hudson street, above Charles street and Greenwich avenue............................................ Between Division and Rivington streets, Norfolk street and Bowery...............*.......................... A South of Grand street.................. B North of Grand street................................... Between Rivington and Fourteenth streets, east of Avenue B and Clinton street........................ A Between Avenues B and D, south of Second street...... B Between Avenues B and D, Second and Eighth streets.. C Between Rivington and Eighth ate., east of Avenue D.. D Between Eighth and Fourteenth sts., east of Avenue B.... Manhattan Island, north of Eighty-sixth street........ A West Eighty-sixth to Ninety-fourth street.............. B Between Eighty-sixth and Ninety-fifth streets, Fifth and Third avenues................................ C Between Eighty-sixth and Ninety-fifth streets, Third and First avenues.............................,..... SFederal census, June 1, 1890...................... 7,366 74,110...~~~~~~ ~~~~~~~~~~ f-, -_ Marsh land.........*.......... Marsh land................ Jews..........*.............. Jews...................... Marsh land.................... Marsh land; Italians, negroes.. French, Italians............... 9,959 11,420 22,484 13,508 12,862 14,758 23,049 17,446 202 47 59 50 46 366.8 278.6 250.1 580.9 379.2 Made land.................... Russian Jews............... Russian Jews and Germans.... 31,220 40,333 170 237.2 10,872 14,045 57 244.4 8,520 11,005 57 193.1 11,828 15,283 56 278.3 54,425 70,308 816 222.5 9,137 11,803 68 173.6 21,230 27,427 79 847.2 10,013 12,935 89 145 3 14,045 18,143 80 226.8 57,596 74,401 106 501.9 50,490 39,387 52 757.4 27,106 35,014 54 648.4................................ 75,426 97,435 Germans; Hungarians........ 24,485 81,564 Marsh land.................. 19,785 25,558 Marsh land.................... 12,694 16,399 Marsh land; gas houses........ 18,512 23,914................................ 245,046 816,529................................ 5,107 6,596................................ 18,345 17,241 Marsh land.................... 11,936 15,420, Board of Health estimate for July 1, 1894. 218 82 50 52 84 5,894 176 102 72 446 9 986.4 511.2 815.4 284.7 58.7 37.4 169.0 214.2 TABLE I - (Continued). 1. 2. 3. 4.. 6. 7 8. o Estimated W~D.Populatlon, Density W DBoundaries. Predominating characteristics. olaton, opulation, m creage. WARD. 1894.1 per acre. Twelfth. Thirteenth D H F G H I L im N 0 P R 8 Between Eighty-sixth and Ninety-fifth streets, east of First avenue......................................... Between West Ninety-fourth and One Hundred and Second streets.................................... Between Ninety-fifth and One Hundred and Fifth sta., Fifth and Third avenues...................... Between Ninety-fifth and One Hundred and Fifth sts, east of Third avenue................................ Between West One Hundred and Second and One Hun dred and Tenth streets..................... Between East One Hundred and Fifth and One Hundred and Tenth streets..................................... Between One Hundred and Tenth and One Hundred and Twentieth streets, west of Seventh avenue......... Between One Hundred and Tenth and One Hundred and Twentieth streets, Seventh and Fourth avenues. Between One Hundred and Tenth and One Hundred and Twentieth streets, east of Fourth avenue............. Between One Hundred and Twentieth and One Hundred and Thirtieth streets, west of Fifth avenue........... Between One Hundred and Twentieth and one Hundred and Thirtieth streets, east of Fifth avenue............ Between One Hundred and Thirtieth and One Hundred and Fortieth streets, west of Eighth avenue.......... Between One Hundred and Thirtieth and One Hundred and Fortieth street& east of Eighth avenue......... North of One Hundred and Fortieth street........... Islands in East river, opposite Twelfth ward.....&... Between Division, Grand and Rivington streets, east o. Norfolk street............................... Marsh land................ Marsh land; gas houses. Marsh ln...... Suburban................ Gas houses; Italians......... Suburban.................. 7,091 10,648 8,432 17,876 6,C69 23,353 4,700 7,471 39,520 25,744 27,857 4,891 11,328 16,510 2,653 45,881 27,661 18,220 9,013 13,756 10,892 23,092 8,614 30,175 6,071 9,655 51,030 33,258 35,985 6,314 14,633 21,327 3,427 59,267 35,733 23,534 66 155 112 119 155 126 240 166 214 364 206 237 241 2,34.3 300 109 62 57 137.0 88.7 97.2 194.0 55.6 239.5 25.3 & 58.1 218.4 91.4 174.7 26.6 60.7 9.1 11.4 543 7 637.3 412.9 Suburban......................I Suburban......,..,......,.. F rourteenth 4996~~ West of Wil'ett street...............a...............9..................... East of Willett street..........................................90.0f.*... Between Canal and Houston streets, Broadway andl.. Bowery 80066 060606040486 f 00 00 a0 0a 0 a0 a 0 I---- I I ---- - 28,094 86,292 - - - I - - k Fifteenth th. Sixteenth.fee**$$ Seventeenth Eighteenth...... A B C D A B C D West of Mulberry street,........................Paliains.................. East of Mulberry street..............0*0*0............Italians................. Houston to Fourteenth st., between Wourth avenue and the Bowery on the east, and Sixth avenue, Carmine and Bleecker streets, and Cottage place on the west...... -.- -0 0....... West of Wooster street, south of Fourth street........Italians, French, negroes.. East of Wooster street, south of Fourth street......... French................... West of University place, north of Fourth street........................... East of University place, north of Fourth street..... Business................. Between Fourteenth and Twenty-sixth streets, west of Sixth avenue.......................................................... Between Fourteenth and Twentieth streets, west of Ninth avenue................................Made land; gas-houses....... Between Fourteenth and Twentieth streets, east of Ninth avenue.......................................... lost. Between 'Twentieth and Twenty-sixth streets, west of Ninth avenue.................................Made land................. Between Twentieth and Twenty-sixth streets, east of Ninth avenue.................................................... 0 Between Rivington and Fourteenth streets, Fourth avenue and Bowery, and Avenue B and C~intot street............................ Between Itivington andFourth ste., west of First ave.. Germans................. Between Rv~ngpton and Fourth ste., east of First ave... Germans................... Between Fourth and Ninth ats., west of First avenue.. Germans.................. Between Fourth and Ninth sts., east of First avenue... Germans................. Between Ninth and Fourteenth sts., west of First ave................................... Between Ninth and Fourteenth sts., east of First ave.. Germans................. Fourteenth to Twenty-sixth sts., east of Sixth ave....... 40.......*.....,,.......... Between Fourteenth and Twentieth streets. Sixth and Fourth avenues.......................................... 000060000*908&0........... Between Fourteenth and Twentieth streets, Fourth and First avenues.........................................00040.. Between Fo;irteenth and Twenty-sixth streets, east of First avenue........................................... Made land; gas houses... Between Twentieth and Twenty-sixth streets, Sixth and Fourth avenues............................... 0 a 0 * 0 4 0 a 0 0 0 0 6 Between Twentieth and Twenty-sixth streets, Fourth and First avenues......o........00...0.046600.6...........-090*00*0*oo0q.0q.. 004. 0090 25,399 8.2,811 2-n29 9,671 12,494 37 837,7 4,759 6,148 48 128 1 7,081 9,147 81 112.9 3,888 5,022 63 79.? 49,134 63,468 332 191.2 8,001 10,314 66 156.5 16,594 21,437 91 235 6 6,834 8,827 82 107.6 17,705 22.870 93 245 9 9,181 11,F59 1 55 1 1W.6 18,913 24,433 47 519.8 148.8 Kolf AL B C I) E B C D B 103,158 17,778 30,900 11,772 15,651 10,047 16,910 138,257 22,965 38,888 15,208 20,218 14,140 21,848 290 51 54 43 41 69 42 449.5. 450.3 720.0 853.7 493.2 239.7 520.0 I - 63,T70 81,734 431 189.6 8,864 4,991 66 75.6 11,089 14,324 83 172.5 24,445 31,580 129 244.8 7,024 9,074 71 127.8 16,818 21,765 82 265.5 * Federal census, 1890. t Board of healtb estimate for July 1, 113OW4. TABLE TI--(Continued). 1. 2. 4. 5. 6. 7. 8. WARD.Bi tn Estimated Density WARD. Boundaries. Predominating characteristics. P opulation, E stcri a e d Density 1894.t per acr. Nineteenth.......... A B C D E F G H I K L M N O P R Between Fortieth and Eighty-sixth streets, east of Sixth avenue............................................ Between Fortieth and Fiftieth streets, Sixth and Fourth avenues............................................. Between Fortieth and Fiftieth streets, Fourth and Second avenues.............................................. Between Fortieth and Fiftieth streets, east of Second avenue.............................................. Between Fiftieth and Fifty.ninth streets, Sixth and Fourth avenues...................................... Between Fiftieth and Fifty-ninth streets, Fourth and Second avenues............................... Between Fiftieth and Fifty-ninth streets, east of Second avenue............................................... Between Fifty-ninth and Seventieth streets, Fifth and Third avenues............................... Between Fifty-ninth and Seventieth streets, Third and First avenues......................................... Between Fifty-ninth and Seventieth streets, east of First avenue........................................ Between Seventieth and Seventy-sixth streets, Fifth and Third avenues........................................ Between Seventieth and Seventy-sixth streets, Third and First avenues........................... Between Seventieth and Seventy-sixth streets, east of First avenue........................................ Between Seventy-sixth and Eighty-sixth streets, Fifth and Third avenues.................................. Between Seventy-sixth and Eighty-sixth streets, Third and First avenues.................................. Between Seventy-sixth and Eighty-sixth streets, east of First avenue........................................... Blackwell's Island..................................... 234,846 303,388 1,455 208.5 = I == ==----"-- Fine residences................ Slaughter-houses.............. Fine residences.............. Fine residences............... Fine residences.............. 7,275 19,699 15,550 6,815 17,:79 19,834 11,533 19,117 6,471 7,275 19,978 10,571 14,421 28,477 23,741 6,9.0 9,398 25,446 20,089 8,804 22,192 25,623 14,899 24,696 8,361 9,397 25,810 13,656 18,631 86,787 30,673 8,926 117 99 81 100 87 82 184 90 77 69 49 52 114 84 100 120 80.3 257.0 248.0 88.0 255.1 812.5 111.2 274.4 108.6 136.2 526.7 262.6 163.4 438.7 306.7 74.4 Fine residences................................................ S- I -- Twentieth.100 Twenty-first. 0. T w e nty - sc o n d.. I B D E F A B C D E F GC H A B C D Between Twenty-sixth and Fortieth streets, west of Sixth avenue................................ Between Twenty-sixth and Thirty-first streets, west of Ninth avenue................. Between Twenty-sixth and Thirty-first streets, east of Ninth avenue............................... Between Thirty-first and Thirty-sixth streets, west of Ninth avenue........................... Between Thirty-first and Thirty-sixth streets, east of Ninth avenue............................... Between Thirty-sixth and Fortieth streets, west of Ninth avenue................................. Between Thirty-sixth and Fortieth streets, east of Ninth avenue...................see...........ea...... Between Twenty-sixth and Fortieth streets, east of Sixth avenue................. Between Twenty-sixth and Thirty-first streets, Sixth and Fourth avenues....................... Between Twenty-sixth eod Thirty-first streets, Fourth and Second avenues......................... Between Twenty-sixth and Thirty-third streets, east of Second avenue............................ Between Thirty-first and Thirty-sixth streets, Sixth and Fourth avenues................................ Between Thirty-first and Thirty-sixth streets, Fourth and Second avenues.......................... Between Thirty-sixth and Fortieth streets, Sixth and Fourth avenues.............................. Between Thirty-sixth and Fortieth streets, Fourth and Second avenues............... Between Thirty-third and Fortieth streets, east of Second avenue................................ Between Fortieth and Eighty-sixth streets, west 'of Sixth avenue............a..... 0000.a..........00..0. Between Fortieth and Fiftieth streets, west of Tenth avenue..a........................*........ Between Fortieth and Fiftieth streets, Tenth and Eighth avenues......................o.. Between Fortieth and Fiftieth streets, Eighth and Sixth avenues................................... Between Fiftieth and Fifty-seventh streets, west of Tenth avenue................f............. 84,327 J 108,936 443 Slaughter houses......... Fine residences............... Fine residences.............. Made land,.............. Gas houses; slaughter houses.. -0*000000090*000*06.............. 12,134 16,423 11,979 15,346 15,820 12,625 63,019 5,071 9,777 11,786 5,451 8,268 8,183 6,804 13,179 153,877 15,674 21,217 15,474 19,823 20,438 16,110 81,400 6,551 12,606 15,230 7,044 10,683 4,112 8,146 17,028 198, 761 78 75 84 19 65 62 410 58 50 58 58 52 45 40 49 1,169 200.9 282 8 184.2 250.9 814.4 203.1 1H8.5 112.9 252 1 26-2.6 121.4 206.4 91.4 203.6 847.5 170.0 I I -I -- - I _I_ 22,586 84,307 14,262 10,007 29,177 44,315 18,424 12,916 116 104 104 A6 251.5 426.1 77.1 * Federal census, June 1, 1890o t Board of health, estimate for Jaly 1, 1894. TAPT.T ( - (- o ,,ted). 1. 8. 3. 4. 5. 6. 7. 8. Estimated Population, EsDensity WARD. | Boundaries. Predominating characteristics. on, populion, Acreage. 11390.* 1894.t per acre. Twenty-second.. E Between Fiftieth and Fifty-ninth streets, Tenth and Eighth avenues.............................................................. 23,886 80,854 92 335.3 F Between Fiftieth and Fifty-ninth streets, Eighth and Sixth avenues....................................................................... 9,844 12,719 92 138.3 G Between Fifty-seventh and Sixty-fourth streets, west of Tenth avenue......................................... laughter houses.............. 10,237 13,223 80 165.3 H Between Sixty-fourth and Seventy-fourth streets, west of Tenth avenue.......................................... 6,457 8,340 112 74.4 I Between Fifty-ninth and Sixty-eighth streets, Tenth and Eighth avenues.................................................... 10,467. 13,521 90 150.2 K Between Sixty-eighth and Seventy-seventh streets, Tenth and Eighth avenues....................................................... 4,853 6,268 94 66 7 L Between Seventy-fourth and Eighty-sixth streets, west of Tenth avenue............................................................... 2,343 3,026 131 23.1 M Between Seventy-seventh and Eighty-s'xtb streets, Tenth and Eighth avenues............................................................ 4,628 5,978 79 75.7 Twenty-third........ North of Harlem river, below the line described 53,918 69,676 4,241 16.4 below..................................... Suburban............. Twenty-fourth...... North of Harlem river, above a line from High bridge running midway betwese One Hundred ana Seventiethand One Lundred and Seventy-first streets...... Suburban.,.................. 20,137 26,014 8,474 8.0 1,515,301 1,957,452.................. 0 1, eut~ral census, June 1, 1800. t doarci of health estiwate for July 1, 1894, 273 TABLE II. Population and Density of Wards of New York city in 1860, 1870, 1880 and 1890 (United States Census Reports). *0 WARD.. WARD. p4 ý4 4) 1st......... 3860 18,148 154 117.8 18th......... 1860 32,917 107 807.6....... 1870 14,463 154 93.9...... 1870 t3,364 107 311.8......... 1880 17,939 154 116.5......... 1880 37,797 107 853.2......... 1890 11,122 154 72.2......... 1890 45,884 107 428.8 2d......... 1860 2,506 81 30.9 14th......... 1860 28,080 96 292.5......... 1870 1,312 81 16.2......... 1870 26,436 96 275.4......... 1880 1,608 81 19.8......... 1880 30,171 96 814.3......... 1890 929 81 11.4......... 1890 28,094 96 292.6 3d......... 1860 3,757 95 39.5 15th......... 1860 27,587 198 139.3......... 1870 3,715 95 39.1......... 1870 27,587 198 139.3......... 1880 3,582 95 b7.7......... 1880 31,882 198 161.0......... 1890 3,765 95 39.6......... 1890 25,899 193 128.3 4th. 1.... 860 21,94 83 264.9 16th......... 1860 45,176 349 129.4......... 1870 23,748 83 286.1......... 1870 48,M59 349 138.6......... 1880 20,996 83 252.9 1880 52 188 349 149.5......... 1890 17,809 83 214.5..... 1.. 890 49,134 349 140.8 5th......... 1860 22,337 168 132.9 17th.........1 860 72,953 331 220.4......... 1870 17,150 168 102.1......... 1870 95,8M 831 288.1......... 1880 15,845 168 94.3 188......... 0 104,837 831 316.7......... 1890 12,&5 168 73.7......... 1890 103,158 331 311.6 6th......... 1860 26,696 86 310.4 18th......... 1860 57,462 450 127.7......... 3870 21,153. 86 246.0......... 1870 59,593 450 182.4......... 1880 20,196 86 233.6....... 1880 66,611 450 148.0......... 1890 23,119 86 268.8 1890 63,270 450 140.6 7th........ 1860 39,982 198 201.9 19th......... 1860 32,795 1,481 22.1....... 187 44,818 198 226.4......... 3870 86,090 2,481 58.1......... 1880 50,066 198 252.9......... 1880 158,191 1,481 106.8......... 1890 57,366 O98 289.7......... 1890 284,846 1,481 158.5 8th......... 1860 39,406 183 215.3 20th......... 1880 67,519 444 152.0......... 1870 34913 183 190.8......... 1870 75,407 444 169.9......... 180 35,879 183 196.0......... 1880 86,015 444 193.7........ 1690 31,220 b13 170.6......... 3890 84,327 444 389.9 9th......... 1860 44,385?23 137.8 21st......... 1860 49,017 411 119.5......... 1870 47,609 322 147.8......... 1870 56,703 411 137.9......... 1880 14,596 822 169.5......... 1880 68,536 411 161.8......... 1090 84,425 322 169.0........ 1890 63,019 411 153.3 10th......... 1860 29,004 110t 272.7 22d......... 160 61,725 1,529 40.3 @fe. 1870 41,431 110 376.6.. 1870 71,349 1,529 46.6......... 1880 47,554 110 432.3......... 1880 11!,606 1529 72.9......... 1890 57,596 110 523.6......... 1890 1538,877 1,529 100.6 11th......... 1860 59,571 196 303.9 23d......... 1860.... 4,267............. 1870 64,280 196 327.7......... 1870...... 4,267........ 1880 68,778 190 850.9......... 18F0 28,838 4,267 6.6........ 1890 75,426 196 384 3...0 1890 53,948 4,267 12.6 1th........ 1860 80,551 5,504 5.5 24th......... 1860..... 8,050........... 1870 47,697 5,504 8.6......... 1870...... 8,050 000.......... 1880 81,800 5,504 14.8,o...... 1880 18,288 8,050 1.6 1......... 90 245,046 5,504 44.5......... 1890 20,137 8,050 2.5 * Taken from New York city Health Reports. T.35 SUPPLEMENT No. z5. Health Statistics Referred to in Report: "Local Causes Affecting the Death-Rate in New York.' TABLE A. NUMBER OF HOUSEIS AND NUMBER OF TENANTS TO A HOUSE BY WARDS. NUMBER OF HoUSES. NUMBER OF TENANTS TO EACH TENANTS TO EACH HOUSE IN Sg Total lots HOUSE. FRONT TENEMENTS. I _______ _____ _____ Single with front_____ _________ WARD. tenements -on lot and rear Front. R'ar. Total. tenements. Over fie Under fve T Over five Under five Total. years. years. years. years. First........... Second.......... Third...........0 Fourth........... Fifth..G.*of...... Sixth........... Seventh......... Eighth.......... Ninth........ Tenth........... Eleventh 00*....... Twelfth.......... Thirteenth....... Fourteenth....... Fifteenth......... Sixteenth........ 196 8 46 387 234 383 1,416 724 1,427 1,038 1,952 7,685 922 482 328 1,037 14 2 86 4 139 94 102 92 158 249 17 120 154 31 81 210 8 48 473 238 522 1,510 826 1,519 1,196 2,201 7,1702 1,042 636 359 1,118 182 8 44 301 230 244 1,322 622 1,335 880 1,103 7,668 802 328 297 956 14 2 86 4 139 94 102 92 158 249 17 120 154 31 81 32.8 20.5 30 27.4 25.4 33.9 36.2 21.1 24.5 47.7 29.5 28.9 34.9 34 23.2 27 3.2 1.4 2.2 4.1 3.7 4.9 7.2 3.5 2.9 9.5 5.8 3.9 6.9 6.5 4.3 3 36 21.9 32.2 31.5 29.1 38.8 43;4 24.6 27.4 57.2 35.3 32.8 41.8 40.5 27.5 130 33.2 20.5 30.3 30.7 25.4 36.2 36.9 21.6 25.1 50.3 30.6 28.9 36.6 36.1 23.4 27.9 3.2 1.4 2.3 4.1 3.7 5 7.4 3.6 2.9 10 6 3.9 7.3 6.6 4.3 3.2 36.4 29.1 32.6 34.8 29.1 41.2 44.3 25.2 28 60.3 36.6 32.8 43.9 42.7 27.7 Seventeenth.....2,459 311 2,770 2,148 311 31.8 5.4 37.2 33.1 5.6 38.7 Eighteenth.....1,245 76 1,321 1,169 76 26.6 3.6 30.2 27.3 3.7 31 Nineteenth.....5,385 65 5,450 5,320 65 31.4 4.7 36.1 31.6 4.7 36.3 Twentieth......2,489 341 2,830 2,148 341 25.6 2.8 28.4 26.9 3 29.9 Twenty-first....... 1,418 40 1,458 1,378 40 27.2 5.4 32.6 21.3j 5.4 32.7 Twenty-secon d.. 3,978 168 4,146 3,810 168 29.3 4.6 33.9 30 4.7 34.7 Twenty-third....1,456 2 1,458 1,454 2 19.3 3.3 22.6 19.3 3.3 22.6 Twenty-fourth.... 97.. 97 97.......10.4 2.3 12.7 10.4 2. 12.7 Total.....36,792 12,346 39,138 349446~ 2,346 29.4 4.6 34 j30 j 4.7 34.7 TAIBLEi A - (ContinuedZ). TENANnTS TOEACH ReUssC I TE.NEMENTS. iN REAR TENANTs TO EACH HOUSE IN SUINGL I TENEMiNTS oNi LOT. I TENANTs To EACH LOT WHERE THERSa ARE FRtONT AND REAa TENEMENqTS ON THE SAME LOT. WARD. I - Over five years. Under five years. I Toa. Over five Toa years. Under five years. Toal Over fiveI Under five Toa I years. I years. I Total. __________________________________________________________________________________________________ - I I1' _______________ Fi-rsst...................... 0 00 00 Second............. Third....................... Fourth..................... Fifth.................0..... Sixth................ Seventh................. Eighth.................... a000a04 Ninth............... Tenth...... 0...............0* Eleventh..................00 Twelfth.................... Thirteenth.................. Fourteenth................... Fifteenth.................... Sixteenth................... Seventeenth...o.............. Eighteenth.................. Nineteenth.o. o............... Twentieth...9090...........09 27.9 24 12.3 25 27.5 24.5 17.4 16.1 30.5 20.9 12.3 21.9 31.3 21.3 14.8 21.5 14.7 16.5 15.6 2.7.5 4.4 3 4.5 5.5 3.5 1.9 6.3 3.9 2.9 3.9 2.1 4.7 1.7 4.2 2.4 3 1.9 30.6 24.5 16.7 28 32 30 20.9 18 36.8 24.8 15.2 25.8 33.4 26 16.5 25.7 17.1 19.5 17.5 33.1 20.5 29.9 30.2 25.4 39.3 37.3 22.2 25.6 51.2 31 28.9 38.4 37 23.5 28.8 33.8 27.6 31.6 27.7 3.2 1.4 2.3 4.3 3.7 5.1 7.4 3.7 3.1 10.2 6.1 3.9 7.7 6.6 4.3 3.3 5.8 3.7 4.8 3.1 36.3 21.9 32.2 34.5 29.1 44.4 44.7 25.9 28.7 61.4 37.1 32.8 46.1 43.6 27.8 32.1 39.6 31.3 36.4 30.8 61.7 64 45 53.2 58.4 56 35.3 32.8 76 48.9 31.6 46.6 61.6 43.7 32.4 49.5 38.8 41.8 37.7 6.3 2.5 7.6 7.8 9.4 12.5 6.4 3.7 15.1 9.5 6.9 8.4 12.7 8.9 3.6 8.9 5.3 6.9 4.5 68 66.5 52.6 61 67.8 68.5 41.7 36.5 91.1 58.4 38.5 55 74.3 52.6 36 58.4 44.1 48.7 42.2 Twenty-first...................24.2 5.6 29.8 27.4 5.4 32.8 47.4 j 10.4j 57.8 Twenty-second.................13.4 2.2 15.6 30.2 4.8 35 37.1 5.6 42.7 Twenty-third..................20 2 22 19.3 3 3 22.6 35 5.5 40.5 Tw nty-fourth......................... 10.4 2.3._4 12".7...!...... Total2................... 0.2 3.7 23.9 30.2 4.7 34.9 47.3 8.2 55.5 TABLE ]. CGRmERAL DEATH-RATMES IN TEmNEmENT BY nWARDs, ARtANGD FROM MAXIMUM TO MINIMUM. WARD. Fourteenth. Fourth...... F'irst.,,,.., Fifth..........600 Eighth........... Eighteenth.000000 Fifteenth....... Second.... Sixth.......... Ninth......... v s Twentieth..00900 Twenty-:first...a090 Thirteenth......*0 Sixteenth......0 Eleventh....... Twenty-second.. Seventh.......... Seventeenth...... Twelfth....... Nineteenth...... Twenty-third..000 General. WARD. Over five years. I I I I I 35.12 33.78 33.18 32.60 31.98 29.83 29.32 28.57 27.36 26.56 24.63 23.96 23.59 23.02 22.84 22.78 22.36 21.64 20.69 20.33 18.39 First......... Fourth.,...... Fifth.........09 Eighteenth. Fifteenth...... Eighth......... Fourteenth...... Ninth........ Second.......0 Twenty-first. - Sixteenth...... Sixth......... Twentieth...... Twenty-second.. Seventh....... Seventeenth... Third.......... Eleventh........ Nineteenth. 000 Twelfth........ Thirteenth. *00 24.52 22.39 21.82 20.90 20.49 20.01 18.51 18.38 18.29 17.64 16.85 16.72 16.68 14.78 14.20 14.14 13.17 13.10 12.78 12.37 11.42 WARD. Second........ Fourteenth. First......... Fourth------- Fifth......... Eighth........0 0 Sixth......... Eighteenth. 0 Ninth 9...96 Twentieth. Thirteenth. Twelfth.......9 Sixteenth......0 Fifteentho...... Twenty-second Eleventh....... o Nineteenth...... Twenty-third. -- Seventeenth. Seventh......... Tenth........ Under five years. 1 - 11 181.82 122.21 122.02 108.69 106.45 103.21 101.50 96.36 95.68 95.56 85.53 82.73 77.09 76.93 73.50 72.87 70.82 65.38 65.03 62.94 58.32 WARD. Fifth......... Twenty-third Fifteenth...... Eighth0........0 Fourteenth. 0 0 Eighteenth. Twelfth....... Fourth........ Twentieth. 00 00 Ninth........ Twenty-second Eleventh......60 Nineteenth. 0 0 Sixteenth...... Twenty-first... Tenth........ Seventeenth. Sixth....... Seventh....... Thirteenth. First......... Diarrhea. 2.60 2.55 2.53 2.51 2.25 2.23 2.11 2.01 1.99 1.92 1.91 1.87 1.85 1.82 1.77 1.65 1.59 1.58 1.57 1.49 1.32 00 Tenth........... 17.14 Third.............16.15 Twenty-fourth.... 7.30 General average for entire city, 22.75 Twenty-third 10.49 Tenth...........8.94 Twenty-fourth... 1.98 General average for entire city, 14.31 Third........... 56.60 Second............... Twenty-first.......55.36 Third.................. Twenty- fourth. 31.53 Twenty-fourth.. General average General average for entire city, 76.64 for entire city, 1.90 - --- --- -- -- --- --- TABuic13 - (Contin~ued), WA.RD). D te WARD. Phthisla. WARD. Pneumonia. croup Second......... Twenty-fourth.......... Eighth........ Ninth........ Fiftký............... 000 Nineteenth.............. Twelfth...............060 Fourteenth -... Fifteenth.....go......... se Sixth................. Seventeenth...........Go* Twenty-first..age**......% Eleventh............so* 0 First................. Twenty-third............ Third..a..ao............0 0 0o Twenty-second......... s Eighteenth............ Twentieth............ s.. Tenth...............00* 5.71 3.24 2.41 2.07 1.90 1.88 1.88 1.86 1.63 1.62 1.48 1.46 1.43 1.39 1.32 1.30 1.29 1.04 1.03 1.03 1.01 Second...............ao a First,....000.........a....0 0 Eighteenth............... Fifteenth.............. Sixth................. a* 0a Fourteenth.............. Fourth...............Ose Fifth._6..............0000 Ninth........ Eighth...............000 Twentieth........ Sixteenth............... Twenty-first.......0 000... Seventeenth............. Twenty-second.......... Seventh................. Nineteenth.............. Eleventh......... 00 0a 0... Twelfth.............09, Thirteenth.............. Tenth..... 11.43 4.49 4.19 4.14 3.90 3.85 3.82 3-75 3.69 3.59 3.42 3.13 2.75 2.49 2.40 2.32 2.299 2.19 2.05 2.00 1.81 Fourth,,,,.............OG Fourteenth...... Fifth.............. First................. Second...............069 Sixth..** **.. 66....001 Thirteenth............... Third................ 00 * 0 Seventh.......... Eighth..............009 Eighteenth............... Eleventh................ Twenty-first.............. Tenth.....0.......0...G Twentieth............ Sixteenth............... Twenty-second.......... Ninth................0* Fifteenth.............00 Twelfth.............. 60 Seventeenth.......40 00...0 6.57 6.10 6.06 5.95 5.71 4.74 4.70 4.52 4.45 0 4.22 4.21 3.93 3.49 3.39 3.37 3.28 3.28 3.14 3.13 2.94 2.92 9r Ind ýp CD CD CD I." C)r CD C+ CD t CDD( 0 0 * pT * CD * * * *0 Ot OW~-t 0CD CD D~ * b CD * dC *Q Ct -' co *n 000 to--- TABLE C. DEATH-RATES FROM CERTAIN DISiEASES, BY WARDS, ON LOTS WITH FRBONT AwDR REAR TENEicMENTS ON THE SAME LOT -- ARRANGED FRoM MAXIMUM TO MINIMUM. WARD. Twenty-second Eighteenth...... Eighth.........0 First.......... Fourth.......... Twenty-first...... Sixteenth........ Twentieth....... Seventeenth...... Thirteenth....... Fourteenth...... Tenth.. Ninth......... Eleventh........ Sixth........... Nineteenth...... Twelfth........0 Seventh.......... Fifteenth....... Second..........I Diarrhea. 3.91 3.88 3.53 3.15 3.10 2,59 2.40 2.36 2.09 1.97 1.92 1.88 1. 79 1.79 1.59 1.58 1.53 1.40 1.22 Dipi WARD. and Eighth......... Ninth......... Twenty-second... Niueteenth...... Eighteenth...... Fourteenth. Twenty- first Sixteenth...... Thirteenth...... Seventeenth..... Sixth..........* Seventh......... Twentieth...... Fourth......... First........... Tenth.......... Eleventh....... Fifteenth....... Second........... Third..........I.. htherla croup. 2.59 2.08 1.95 1.89 1.79 1.75 1.73 1.71 1.67 1.49 1.38 1.24 1.18 1.11 1.05.97.96.61 WARD. First......... Ninth....... Fifteenth......0 Twelfth......... TwentW second.. Twentieth....... Fourteenth...... Eighteenth.00.00 Seventh........ Sixteenth...... Fourth..o...... Nineteenth..... Seventeenth. Eighth......... Sixth........... Eleventh........ Thirteenth. Tenth.......... Twenty-first Second....... Phthisis. 11.55 5.96 5.51 4.59 4.32 4.03 3.93 3.58 3.42 3.42 3.32 3.16 2.92 2.82 2.76 2.27 1.82 1.81 1.73 -------~ WARD. Twenty-third Twelfth........ First......... Fourteenth.... Fourth......... Twenty-first Seventh........ee Thirteenth.0,00* Eighth......... Eleventh.....0.. Eighteenth...... Sixth........... Nineteenth...... Twenty-second Sixteenth......a Fifthe.......... Seventeenth.. Twentieth. Fifteenth...... Tenth........ Pneumonia. 12.34 12.23 11.55 7.08 6.85 6.48 5.44 5.00 4.70 4.67 4.47 4.46 4.42 4.32 4.11 4.10 3.91 3.82 3.67 3.33 283 0~ 0 ~ ~C ) 0) 0) I.4., EOi44E-4E00 0 0r E-lE- - 00j r-4 cq0 4a 42= fABLLE C - (Continued). DEMATIH-RATES sFROM THE SA&ME DISEASES -ALL TRNEMENTS INCLUDED. __ -- WARD. Fifth*.........* Twenty-third.0000 Fifteenth.......w Eighth....0..40*0 Fourteenth0. 00a Eighteenth. Twelfth 0g.... Fourth......... 0 Twentieth.0...... Ninth.,........ Twenty-second... Eleventh........ Nineteenth. 0 0 Sixteenth 0 Twenty-first...... Tenth.......*...00 Seventeenth. a00 Sixth.......... Seventh......... Thirteenth0......0 First.......... Twenty-fourth.... Second........0 Third....0.... General death-rate for entire city.. Diarrhea. 2.60 2.55 2.53 2.51 2.25 2.23 2.11 2.01 1.99 1.92 1.91 1.87 1.85 1.82 1.77 1.65 1.59 1.58 1.57 1.49 1.32 1.90 WARD. Second.......... Twenty-fourth... Eighth......... Thirteenth.a0aa0 Ninth0.0*....... Fifth0...a...... Nineteenth0. 0a Twelfth........ Fourteenth. 010 Fifteenth....... Sixth..........0 Seventeenth. Twenty-first. Eleventh.......9 First.......*... Twenty-third.. Third......... Twenty-second... Eighteenth. Twentieth.. Tenth......... Sixteenth....... Seventh......... Fourth.......... Diphtheria and croup. 5.71 3.24 2.41 2.07 1.90 1.88 1.88 1.86 1.63 1.62 1.48 1.46 1.43 1.39 1.32 1.30 1.29 1.04 1.03 1.03 1.01 1.01.90.87 WARD. Second.......... First..........06 Eighteenth. Fifteenth...... Sixth.......... Fourteenth. Fourth...... Fifth..........0 Ninth........... Eighth......... Twentieth.. 00 Sixteenth...... Twenty-first..0* Seventeenth.00*. Twenty-second... Seventh......... Nineteenth. 00 Eleventh.......0 Twelfth....... Thirteenth. 0 Tenth........... Twenty-third.... Twenty-fourth... Third.......... Phthisis. 11.43 4.49 4.19 4.14 3.90 3.85 3.82 3.75 3.69 3.59 3.42 3.13 2.75 2.49 2.40 2.32 2.29 2.19 2.05 2.00 1.81 1.70.81.65 WARD. Fourth.........* Fourteenth. 000 Fifth.0........ F'irst........... Second......... Sixth.......... Thirteenth. Third.......... Seventh......... Eighth........ Eighteenth...... Eleventh.......0 Twentv-first.. Tenth-.......... Twentieth....... Sixteenth......0. Twenty-second... Ninth.........0 Fifteenth....... Twelfth........ Seventeenth.,. *0 Nineteenth.... Twenty-third... Twenty-fourth... General average PneumoniA. 6.10 6.06 5.95 5.71 4.74 4.70 4.52 4.45 4.22 4.21 3.93 3.49 3.39 3-37 3.28 3.28 3.14 3.13 2.94 2.92 2.81 1.91.81 General averagel 1.49 General average 2.55 8.42 I it - 1 11 1 1 r I~ ~ ~ TABLE D. DEATH-RATES PER 1,000 IN TENEMENTS IN CERTAIN SPECIAL LOCALITIES. Ward. Popula- GeneralUnder fe Diarrhea Diphtheria thisis. Pneumonia. tion. years of age and croup. City.......................................... 22.75 76.64 1.90 1.49 2.55 3.42 Sanitary Districts: Sanitary District A.................... 1 6,707 35.93 130.30 1.49 1.19 4.77 6.41 Sanitary District I........................ 22 13,377 15.25 61.43 1.79.67 1.72 2.24 Sanitary District A....................... 4 5,515 36.08 113.58 2.18.36 4.53 8.52 Sanitary District NM....................... 22 6,157 10.07 38.96.33.16.81 1.79. Sanitary District B...................... 4 9,405 32.43 106.62 1.91 1.17 3.40 5.42 Sanitary District C....................... 7 28,370 18.51 53.85 1.16.99 1.76 3.49 Sanitary District A....................... 14 7,712 33.46 127.72 2.07 1.56 3.37 6.74 Sanitary District A....................... 12 6,643 12.33 47.62.45.75 1.65 1.51 Sanitary District B....................... 14 18,026 35.84 120.02 2.33 1.66 4.05 5.82 Sanitary District E....................... 12 14,262 21.94 91.39 1.89 1.89 2.59 1.96 Sanitary District B...................... 6 5,420 24.91 105.75 1.11 1.84 2.03 4.24 Sanitary District H........................ 12 8,512 16.09 66.82 1.41.94 1.64 3.76 Sanitary District C........................ 6 13,641 28.66 101.63 1.76 1.47 4.69 4.84 Sanitary DistrictK........................ 12 8,089 16.32 55.41 1.61 1.85 1.73 2.84 SUPPLEMENT No. 16. Letters to the Committee. Letters from the Chief of the Fire Department. FIRE DEPARTMENT, NEW L ORK CITY, June 19, 1894. RITHARD WATSON GILDER, Esq., Chairman Tenement-louse Commission: Dear Sir.- In compliance with your request, I take pleasure In laying before you such facts as I have from time to time noticed, while attending fires in the class of buildings known as tenement-houses, in this city. My observations are entirely those which relate to fires, their extinguishment, and the preservation of life at such fires, as well as on the laws regulating such construction, entacted during the past few years. As you are aware, the buildings known as tenement-houses are erected mainly with the view of returning a large income for the amount of capital invested. These buildings are erected from time to time under the laws then existing for the construction of buildings in this city. There is no question but that the buildings are erected in compliance with the law, but the law has not until recently made any provision for the protection or preservation of life within those structures in case of fire, and it is only after a fire in one of those tenements where a great loss of life ensues, that any interest whatever is taken for the betterment of the tenement-houses, for the safety of the occupants. The first notable event which occurred in recent years with the view of protecting life within \those buildings in case of fire was the enactment of the fire escape laws, which require that certain buildings intended for more than three families above the first floor shall be provided with proper means of exit as may be directed by the superintendent of building department. This improvement was then followed by the board of health, who, under their rules, require in each building a light shaft as a sanitary measure. This light shaft may, from a sanitary point, be most essential for light and ventilation, but it is one of the most destructive' elements within a tenement, in permitting and causing the extension of fire in its ascent from floor to floor 287 through this light shaft; in fact we class it as a mere flue, and it acts exactly as a flue does, except that it is not confined within a solid wall, the windows being on each side, and directly opposite each other. It is but a matter of a few seconds, when a fire leaps from one of those windows until it crosses to the adjoining building, and if not promptly checked, will spread the fire to every floor within the light shaft in the most inconceivable time. The next element of danger within this class of buildings is the cellar, divided as it is generally into compartments known as woodhouses, each compartment being assigned to one of the apartments. When a fire takes place in one of these cellars containing from 10 to 30 compartments, all being constructed of wood, and at times being filled with inflammable material, it takes hours to gel control of one of those fires, as it has a tendency to make a dense smoke and heat, which invariably passes through the stairway leading from the cellar, and thus charging the main stairway and lhalls with heat and smoke and necessarily driving the occupants to the front and rear of the building. The occupants, on occasions of this kind, are generally in a state of frenzy, and often on reaching the roof or fire escapes, leap to the street, even in the presence of our men, who may be endeavoring with all the haste possible to reach those unfortunates who are crazed with fright and who are generally as unmanageable in this state as any of the brute creation. In many instances the hallways have windows on each side, opening on bedrooms, and also transom lights over the doors. In many cases where a fire occurs in one of those bedrooms, or large rooms, the fire passes out of the windows, transom lights or doors, and into the main hall, and when it reaches the halls and main stairway, it ascends with the rapidity of lightning, till it passes out through the bulkhead on roof, thereby preventing any exit by the main stairway, by the unfortunate occupants, who may be on the level or above the fire. The risk to life is one of the greatest sources of anxiety to this department in combating with fires in this class of buildings, which are located mainly in the Sixth, Seventh, Tenth, Eleventh, Thirteenth and Seventeenth wards. Although this class of buildings are erected in many other sections of the city, yet they are not subject to the numerous fires that the tenements in the above wards, have for years been subject to. The principle of construction is about the same, but there is an element of difference in the nationalities of the occupants residing within the different sections of the city; but it matters not where the tenement is erected, it is full of danger to the occupants in case of fire, which, if not promptly checked, generally results in great destruction to life. 288 We endeavor to keep our companies equipped with all the life-saving appliances that we can obtain, or that we can conceive of, that would be of the slightest benefit to aid in rescuing life. We have also an abundant supply of fire-alarm boxes, located in all those districts above mentioned, but notwithstanding this fact, there often occurs, on the occasion of a fire, a loss of life previous to the arrival of the department, and an apparent neglect on the part of someone in not promptly sending for the department. The building laws of this city have been amended, from time to time, with the view to the betterment of this class of buildings, but I have never been satisfied with the wisdom of enacting laws, that leaves the occupants of the tenefment entirely unprotected in case of fire. The occupants of these tenements are generally the poorest c-f our population, and ire compelled in many inisitancer to occupy those miserable apartments in crowded tenements. It has often surprised me that the element of destruction, which has within its power the means of destroying human life, is not more destructive on the occasion of fires in those buildings. It has been a study for many years, by the the officials of this department as to "tthe better protection of human life within the common tenements as well as in those buildings known as flats," some of the latter occupying prominent sites on some of our most fashionable avenues, and after many years of agitation the department succeeded eventually in forcing an amendment to the building laws passed in 1892, which requires in tenements of more than fouir and five stories in height, that the stairs, halls and the first floor, shall be constructed of fireproof material, with no connection by stairway to the cellar from under the stairway, or in the main hall. This is certainly an innovation, and a great improvement over the laws previously in force, but this law, while a great concession, does not go far enough in our opinion. There appears to be but one solution, in our minds, of this most important question, "the protection of life within the tenements," and in our opinion, the only remedy is by again amending the Laws of 1892, so that the entire stucture shall be fireproof throughout, with the proviso that there shall be no connection between the cellar and the main halls or stairway, and that there shall be no elevator shaft within the stairhole; that there shall be no transom lights, or windows opening into the halls from any apartment. I think it safe to say that, in a structure of this kind built of fireproof material, that the Soccupants will have the opportunity of using the main stairway, and that should a fire occur within one of those apartments, there is no possibility of its extension, within a reasonable time, or at least until the arrival of our department. 289 The cry will be raised in opposition, that this would entail an additional expense in construction, and that it would be taken entirely from the occupants, in the form of increased rent; this no doubt is correct, but the matter of additional rent, where human life is at stake, would not be considered by the occupants. The fact is generally known at this time, that the difference between the cost of an entirely fireproof, and a nonfireproof structure is so small, that it should not under any circumstances be considered, or classed as an element against the sacrifice of life. As to the better class of flats, which are in reality only tenements finished a little more elaborately, with a grander scope of architecture, they are, in themselves, as combustible and as dangerous to the occupants as those mentioned previously, and a fire only requires the slightest headway to cause destruction to life and property. These buildings are of the most deceptive nature; many are classed as safe and palrtially fireproof wherein we, who have had so much experience in extinguishing fires within this class of buildings, know to the contrary, and we would not consider it safe for our own families to live in those grand structures above the second story. I can not conceive any remedy for the evil now existing, from a fire standpoint, in the great destruction of life within all these classes of tenement and flathouses, other than the one suggested, which will meet with strong opposition from the different 'nterests should legislation be requested. I will do my utmost in the future to aid in amending the present laws, so that ample protection will be given to the poor of this city who are from necessity compelled to occupy the miserable tenements which are classed as places of abode for human life, but in reality they are not fit, in some instances, to be occupied by brutes. The innovation of the present laws, in requiring partial fireproof construction, is something that we feel proud of; although its good results will not be apparent for some time to come, nevertheless we feel a pride in the fact that we continued the agitation for better laws for the erection of tenement-houses, and were in the end rewarded by the partial fireproof construction, which more than pays for the interest that we have taken in the welfare of that class of our poor, who so rarely have anyone to look after their interests. Very respectfully, HUGH BONNER, Chief of Department T. 37 290 FIRE DEPARTMENT, NEW YORK CITY, December 3, 1894. RICHARD WATSON GILDER, Eq., C hairman Tenemcn't ouse Corn mission: Dear Sir.-As a supplement to my statement to you, dated June 12, 1894, I herewith transmit several suggestions, which were not heretofore mentioned in such statement. First. I would suggest to your committee the necessity of not permitting any connection, by doors, windows or other opetnings, between the stores of the first floor and the main hall. Second. To inclose with fireproof material, and doors, the elevator shaft in the cellar, where such are used. Very respectfully, HUGH BONNER, Chief of DeJparitment. From the President of the Society for Improving the Condition of the Poor. NEW YORK, June 7, 1894. R. W. GI.D R, Evq, Chairman of the Tenement-Hlouse Committee: My Dear Sir.--The Association for Improving the Condition of the Poor begs to submit to your committee the following recommendations for legislative action relative to the tenementhouse life of New York city: First. We believe it to be eminently desirable that the Legislature should confer upon the board of health specific authority to condemn and destroy dwelling-houses when, in the judgment of that body, it is impossible by alteration or repair to correct their unsanitary features. In the lower part of New York city, investigation will disclose not a few old houses formerly occupied by single families, but which were many years ago transformed into tenement buildings. In these houses the difficulty of providing for sufficient light and ventilation has been aggravated by the adjacent erection of lofty office buildings. In not a few of such houses the situation is practically irremediable by further alteration, and we believe they should be promptly condemned. There also exist a number of old tenement-houses, with front and back buildings erected under sanitary conditions now prohibited, and in which also structural evils have been increased by the erection in the vicinity of new and larger structures. 291 Second. We recommend that owners of houses, in which the halls are not sufficiently lighted fronm without should be compelled to supply in such halls sufficient artificial light. The dark halls encourage both immorality and caime and should not be tolerated. Third. With the same object in view, we would recommend the extension throughout the mlost crowded sections of the city of the electric lighting system. We believe the effect of brilliantly lighted streets upon the moral character of tenementhouse life would be readily discernible and would meet with the hearty approval of the board of health and the departments of police and fire. Fourth. We heartily second the proposition advanced by Dr. Tracey, of the board of health, tc surround the.public schoolhouses of New York with two or more vacant lots, to be used as playgrounds for the children in lieu of the comparatively dark and even damp playrooms now pcovided for that purpose. This suggestion seems to us to touch 'the life of the poor in a manner peculiarly calculated to produce results beneficial to both health and character. Fifth. We recommend an increase in the force of the sanitary police. This force numbered 45 inspectors in 1887, and since Ilhat time there lhas been no change in its effective strength, yet, according to the United States census, the estimated Lfcrease in the population of the city has been from 1,417,787 in 1887 to 1,663,190 in 1894. If we follow the figures of the State census the increase would appear to be still greater, the estimated number according to that table having been, in 1887, 1,538,814, in 1894, 1,957,452. In addition to the increased labor demanded by this great gain in population and the consequent erection of many new houses, a large number of the newer tenement-houses require much more careful inspection than those of earlier construction. A line of plumbing, extending through the center of the house, supplies two water-closets on ea.ch floor and running water in each tenement, and this increased accommodation to the tenants involves very great additional labor upon the inspector. We, therefore, recommend that an addition of 15 be made to the present number of sanitary police. Sixth. We recommend the establishment of a number of public bathhouses throughout the city. The difficulty of proper ablution in the ordinary tenement-house is such as to make personal cleanliness exceedingly difficult,, and the hygienic as well as the moral importance of public bfoths is incontestable. In 1891 the Association for Improving the Condition of the 292 Poor opened a public bathhouse at Center Market place, and the steadily growing appreciation of its advantages by the people of the neighborhood has sufficiently demonstrated its usefulness. The bathhouse was opened on August 17, 1891, and in the fiscal year of the association ending September 30, 1892 (the bathhouse having been in operation 13 1-2 months), 69,944 persons availed themselves of its opportunities. In the second year (12 months), ending September 30, 1893, the number of bathers was 68,629, and during the first six months of the present year, ending April 1st, there has been an increase over the preceding year of the number of bathers of 6,769. During the summer months the bathhouse can not now supply the demands made upon it. Seventh. We recommend that the landlords of such tenementhouses as are now compelled by law to provide the services of a housekeeper, should be made responsible for the overcrowding of tenements. Such a provision has been in operation in the St. Panc ras district of London for a number of years, and in 1890 was formally approved by the London council. Without recommendation, the association would also beg to call your attention to the question of population per acre, with a view of urging the consideration of hereafter preventing overcrowding by specific legislative measures, as, for instance, the limitation of the number of persons housed per square yard. However satisfactory might be the hygienic features of improved dwellings, we believe that a crowded population in any one locality is morally dangerous. The streets are the only playground for children in great sections of the city, and the necessary contact of great numbers, we believe to be injurious to the development of character. We beg to call your attention to the fact that aven since the addition of the thinly populated twenty-third and twenty-fourth wards of New York city, the population per acre is 65.5, while in London it is but 54. Some measures should certainly be taken to prevent any repetition in the newer quarters of the city of the crowded condition of the tenth ward of New York, in which the population is now 559.2 to the acre, while the most crowded district in London, St. George's, in the east, contains but 187 to the acre. Very truly yours, I. FULTON CUTTINO, 'President. 293 Letter from the Tenth Ward Sanitary Union. To RIOHARD W. GILDER, Esq., Chairman of thle Tenement-onbuse Comnmission, 7New lorkl City: The Tenth Ward Sanitary Union respectfully offers the following report of its work, which it hopes may be of some value to the commission in its labors. The union has been in existence since February 15, 1893. Its purpose has been to improve the general conditions of living of the people in the tenth ward, and especially to aid in improving the sanitary condition of its tenement-houses. The method of attaining this purpose has been to visit the housekeeper and tenants, introduce ourselves, explain the object of our visits and ascertain the name and address of the landlord and agent. If any abuses were found we sought to locate the blame and if it were the fault of the tenants to induce them by greater regularity to fulfill their part. The visit is repeated to insure the fulfillment of the agreement, and is continued as long as is thought necessary. The general method of requiring the halls to be cleaned by the tenants is an illustration of the kind of work for which they are responsible. If the abuse be the fault of the owner the housekeeper is first urged to repair, then the agent and landlord are approached in order and if they will not do their duty the case is carried to the board of health. And we are very happy to be able to acknowledge that their co-operation has been willingly granted and never refused. RESULTS OF THE WORK. The work has been confined mainly to the tenements situated on Delancey, Chrystie, Forsyth and Eldridge streets. Up to March 1, 1894, 183 tenements had been visited. There were 723 entries in the books, which represent 2,500 families visited; 93 complaints were filed with thl board of health and other departments. From March 1, 1894, to June 22, 1894, 73 different tenements were inspected, with a total of 192 visits to be recorded, and 679 families interviewed; 105 fire escapes were cleared, 50 sinks and several closets cleaned. It should be added that the members of the society come from uptown and are able to give but one night a week to the work, and further, that there has been an average of eight workers, and as it has been found best, the workers should go out in pairs, there have thus been but four sets of workers. Our work, as it will be seen, has been wholly practical. We do not claim to be profound students of sanitation or architecture and offer our suggestions for the reform of the present tenement 294 system solely on the basis of what we have seen, and our experience with the existing legislation. We venture to note certain evils which are really covered by the existing laws. 1. The law requires but one water-closet for 15 occupants. This involves two evils. First, the offense against modesty and privacy; second, the difficulty of keeping the closet properly clean, and of locating the responsibility when this is not done. We believe that each family should have its own closet, or at the most, one should be provided for every two families. 2. The law requires that all ceilings and walls should be whitewashed semi-annually. As the officers of the board of health at present are only able to make their rounds about once in 11 months this regulation is rarely observed. 3. The law requires that the fire escapes shall not be occupied by any objects whatsoever. This is a dead-letter and is never carried out in this part of the city, the practical law being that vegetable matter shall not be allowed to accumulate, and that the staircases shall not be covered. This is probably felt to be a necessary concession to the crowded condition of life in this quarter. Our belief is that the present law should be enforced, as all such concessions tend to make the existing system of crowding more tolerable. A trap-door over the opening is needed as now the parents lay down boards for the safety of the children, and these are not always easy to remove in necessity. Evils not Covered by the Existing Laws. 1. We think there should be a reconstruction of the responsibilities of tenant and landlord. The tenant should be held strictly responsible for his own apartments and the landlord for all parts of the tenements which the occupants use in common, i. e., the halls, staircases anJ yards. Housekeepers, as the resident agents of the landlords, should be required to keep the cellars, yards and sidewalks clean, and to direct the removal of garbage; also to see that the halls, stairs, sinks and water-closets connected with the house are cleaned at regular intervals. Abuses in these places by the tenants should subject them to complaint from the landlord to the board with subsequent fine, and the fine should be imposed on the landlord if such complaint of the tenant is not made. The landlord should also be responsible for the condition of the fire escapes and upon his complaint any obstructions should be confiscated. We are aware that this would involve greater expense of superintendence to the landlord, but believe that in no other way can the present evils be satisfactorily treated. Our practical experi I. 295 ence with the cleaning of the hallways, where the landlord is required to see that the tenants do it is that the work is not done and the responsibility is hard to fix. 2. The semi-annual inspections required by law seem insufficient to remedy evils constantly occuring, and we recommend quarterly inspections and that the force of sanitary inspectors be increased to 100. 3. In cases where the responsibility for an offense can not be located, we believe that the imposition of a fine, one-third of which should be paid by the landlord and two-thirds by the tenants on whose floor it is committed, would be the best solution of the divided responsibility. 4. We recommend for new tenements an air-tight ash and garbage chute, as the best solution of the removal of garbage during the day. Without this the tenants will persist in throwing rubbish out of the windows or storing it on the fire escapes. 5. We agree with Poesident Wilson, that the tenements hereafter to be erected should be fireproof; that the use of paper on the walls and ceilings of the tenements should be forbidden; that the halls of all tenements should be lighted at all hours of the night; and as to the seventh recommendation, that "the board of health can permanently vacate and cause to forbid the further use of any rear tenement-house as a human habitation which, in its opinion, from age and dilapidation, impossibility of securing proper light and ventilation, or unsanitary condition for a long period, is unfit for that purpose," we believe that such statutes, if enacted, should include also the front tenement found in similar conditions. 6. For tenements, where the hallway does not extend through the building, with windows at both ends, glass panels in the doors would be desirable for light in the daytime, as now such tenements are often nearly as dark during the day as at night. 7. We recommmend the abolishment of the common sink. Where they are placed in the halls and used by four families, it is always difficult to locate the responsibility for keeping them free from filth. As a matter of fact, we have usually found these sinks in an unsanitary condition, emitting a foul odor. 8. We recommend the erection of public baths at central places in each district, and believe such arrangements to be essential to the cleanliness of the population. We feel sure that if such were provided the people would use them. 9. Equally essential is the establishment of public lavatories and their relation to the tenement system will be appreciated by any one who knows the odors which infest the alleyways of the tenements. The abuses of the dray. wagons constantly 296 standing in the streets and the foul smells around them give added emphasis to this plea. 10. We believe that the rear tenements should be wholly destroyed, and the space reserved for open courts and playgrounds for the children. Even such as are not in an unsani. tary condition overshadow the lower stories of the front house and are in turn overshadowed by them, to the exclusion of light and air. These recommendations represent the worst evils which we have encountered in our work. We are aware that some of them are quite radical and involve serious changes in the entire system and interference with hitherto recognized rights of the owners. But we think it has been sufficiently demonstrated that a large part of the owners will do nothing unless forced by the law, and then only so much as the letter of the law requires. We have encountered many owners who appreciated our work and who could not do more themselves because they were restrained by the competition of others. We believe, therefore, that radical measures of reform would be in the interests of both landlord and tenant and would command the approval of the best people of both classes. Respectfully submitted. M. E. KITZINGER, O17airm an. A. GOODKIND, Secretary. Indorsed by James B. Reynolds, head worker of the University Settlement. Additional Statement from Battalion Chief Bresnan.* After his appearance on the stand, Battalion Chief Bresnan handed in the following sttatement in the form of questions and answers: Question.- Chief, you have been present at previous sessions of this committee, and have heard the suggestions in relation to improving tenement-houses, and making them less subject to fires, and less dangerous to life during and as a result of fire. And you have yourself given testimony and suggestions on this subject at former hearings. * At a meeting of the tenemeot-house committee on Wonday, December 81, 1834, the following was adopted: Resolved, That this committee has learned with profound regret of the death on this day of Battalion Chief John J. Bresnan, at the post of duty. The committee desires to place on record its sense of obligation to Chief Bresnan for his continued intelligent and highly valuable assistance during the entire course of their labors. No one not connected with the cominttee he devoted more time and industry to the collection of information in its behalf and the furtherance of its objects as concerning the question of the safety of tenement-house dwellers from fire. The secretary is directed to for ward a copy of this resolution to the family of the deceased. 297 Answer.- Yes, sir. Question.--Have you further suggestions and reeommendations on this subject, that you believe should be embodied in recommenda'tions of this committee, and will you please state them? Answer.-- I have heard the testimony of Chief Bonner and others in relation to the stairway, between the cellar and the first floor of tenement-houses, and I concur in their opinion, if the stairway could be excluded from interior communication with the first floor, it would be, so far as a rapid spread of fire is concerned, and the prevention of smoke ascending quickly, one of the best improvements that could be made. However, it may inconvenience the occupants of the premises too seriously to cut off internal stairway from the communication between the first floor and the cellar. In that event I would recomnmend that the law in all instances should compel the placing of iron or tin-lined self-closing doors properly framed, and hung at the bottom of the stairwa-y, as well as to the entrance of the stairway, between the first floor and cellar, which the existing law demands. Second. The law relating to the fireproof construction of teneuments, shold require this provision to apply to tenements, irrespective of height. The present law requires fireproof construction of the first floor in tenements, five stories or more in height. lhlird. I also advise an addition to the law, which will require all tenementis in which the first floor contains a store or manufacturing premises, to be si constructed, that the hallway of the first floor will have no communication, such as windows and transoms between thle store or any portion of the same, and the hallway; also prohibiting any doorway between such stores and hallways, except when made of fireproof construction, and to be self-closing. Fourth. Further, I advise in the erection of all fire escapes, and the addition to all existing fire-escapes, especially in the rear of buildings, fire-escape ladders to the roof, so that the escape shall lead upward, as freely as downward. In other words, it will afford an escape to the roof as freely as to the street level. When practicable, I would also recommend that the fire-escapes in the front of the building should also lead to the roof in the manner described. Fifth. All balcony fire escapes connecting two or more buildings should be provided with ladders, between the balconies of fire-escapes, the same as is required for fire-escape balconies on single buildings. T. 38 298 Sixth. Also that the law be so amended that the owner, le&ee. or agent is held responsible for obstruction of fire escapes. ST. JOHN'S PARK. The following statement is from Colonel S. V. R. Cuger (see, also, testimony): The facts in reference to St. John's park are briefly as follows: Trinity church owned it, in connection with the other owners of property fronting on the park. The question of the sale of the park originated with the other owners, who urged upon Trinity that it ought to join in, so as to bring business there. A few owners, however, were unwilling to join in the conveyance for the reason that they wYnted more than the shar\ which they would be entitled to at the price of $1,000,000 which Mr. Vanderbilt was willing to give. As the railroad company and the other owners were anxious to have the transaction go through as speedily as possible, it was arranged that the $1,000,000 should be paid to Trinity church, and that this corporation would make the distribution. Trinity church, in order to obtain a release from these few owners, was obliged to pay them more than their share, the suplus coming out of the money due Trinity church. -e 4. UNOCC(*IIlrt ty J.. a.. OC C C #O/&rA Irt 0 0 - AWAA4 00Vus RISK 0. ft - r,9 OV rJ r 6 4f oe o. 0 4,f a * t 904(6~ S6 7 / q 4CX PI A IA 7* 0N. I1 P We.Z.Z IN 6 oAof 4r SN WN r*Vtl W.4 ZARDOUS Vjf&X-S mB J~p vre -,. rv 6j ATTTORNEY: iTs U O O;2 W j ic O C5 - - M Ot RlIDGEE Is~f.;I: I; ~~- i--- r r r. * '~1 ' r~~. ~,.rrr '5 U., t I_ fx 42 S! -a 0 s 9 -koloo IF d~t p Showizng Small Unoccupied Area in Block Bounded by Delaney, Ridge, Rivington and Attorne treets, f 1 I I r HE STE R )p CI i C) Z ~I P PPp CDR CD:c'a:h a P i t ~ f C rr b cC, clh 01 o~ (b CANALYEI Ctt sT. 0. tQ~b F3 44 74 41C ok ~~/ rb P ge \+\O~L -I TOTAL AREA J-1 987 5 io~rr OCCIPJE ~447S0 FLOORI93. HAZARDOUS RISK~S 7 720 FLOORM /7 740 N oTE: H A Z A A DOU / S /6 X-16ARAt MO W/1TU6 PLroceNTm goor lg Idi I In I ui i - M--- - -. - - -. MMML L ST.. ORCHARD I a z C hi 0 0e 02 LUDLOW 0 70 d Alf1t SToo A400.-W 7 JCALZ clý ~SCA L I A. 1.1 A W"i-wj or PELL ST. Ag. U TI FH 0 T"LAREA OCCUPIED*a FLOOR 0 IAZARDO'US RISKS 040 FLOOR NOTE: ANAZWRDOU1S RIS/X&APE SHO WN Pftqct*74,co COVep 0 -92. 7,f 2 6#317 78752 33795 THUS U. I lamp %M4 %aw %Meg dc.7eo El Showing Sml Unoccupied Area* in Block Bounded..by. Bowery, and Doyer and Poll Streets. I T1 IHU DTAL ARKtA '70000 sa..ra Ar rLOOR A 3 6076 4Z ARDOUS RISKS fiz 5 to 0 FL OOR 6* 6 155, Xorfa 0AZAADOMS R/Jlf, Aftf SHOWN r' twYf,-ý I L r~rrrr~r~c~r~ -- I- ~~ r. ~ --.. _ _ I L D R 10 5 TO a low; kn 4: )I U Z.I ri wr I 0L CID I FO R SYT~r f ToT I I ~, I I I I 'o, ~i,. ~,O 1:: OWNER~ _._ _ ShoingSmai Uooopie ~8ea,p~look Bounded by Forsyth, Broome, Eldridge and De ncoy Stret ý-,l aEOFa-_ I:_I:i~~...,:F 75 -F~ Z.-AROUs Riams 11, orII ~ Tw~ri- AREAIN S. oT I i. FY MTAL)CCUPI ED); REA Ft-00 Ft A f:%LR~ Ak IHA7. AmbDSoBn s HISKS AREA ~ Fis-bRAREA L-_ B~Pr.' ~ Y i ~ IC7L ~ ~~ P ~~4'' I I- --: I - I PF-LL 0 S A ~aB -l. ~y CA N A LOMORA Flo D I VIS i o A4ALLEN -t I 6 I BR~OOME LU DLO RA N Q 0 ROA F1 P,ssEx H HESTE.R R NOFAF OL K- D IV16 I q ~f 57FIF,0F ROHRADDCArA L~/qtL a \.: ~i4~'i C]0---- ~~~~rr a C] -O 2; ~~~ ~;-; -Or ~-~-,-~5~~ iiIt I ~. Z.t `I~I,C~~--u~ ~rc ~ rr~ ~' I a:;5~ ~~ ~;; I ~:; ~:~~~ ~ ~- -: -.~:t F --- -[7-- - rr ~ ~r -t t--.~ 0 -L--~~i E3-- i t-- --i i----- --~i~-- -i?- --- --tt - - --c-. - ----~- -L - ~- -a- -- - - -- III ----I ~ ~Z~- - - - I_ -f )--~--- ~L ~~rl'lL ~~L ~5~ -~1~ _- ~-D--- ---IL~---- _ _ --i ~-- ---n-.08.0 WOW ---o DELANoy, F. LDRI DGF-, BROC:>M E.FC:>ki3YT _, 1_. -.I------;-~ DEME1-výist. -N.u oF.R.ELFASTf3 ROADNVoýA-XFI i I: ~ ': ~F-~- ~~~-~ ~ ~-~I~"L"ILLILLIIL;"IL~S~LI~ 1_-1_ ~ - ~ BROOMMDR FO L~~RAN r ~.i:::~ - j~ ~ ~ ~ ~`~.-1~;.~~.I~ ~;, -~:~: 31; ~:i~ ~5~ 1 - ~ ~: r~l -:~C _ L; ~~~ F.1~ 7tl~~9ii a..Mw w. - - - -*M- -ow -M ia- omw I II': __ ~ __I_ _ --!AP 141 ICArtr(~EUOCC503A~~lV RL~d ~~~1 ~IT~~~~Ill MD T O TA L rrOCCUPIED tr rLOOR HAZA ARDOU~US RISKS AF ICP:A S6,0 0 0 Q~ 7 IV * 66 42 6 * 7.. 2J % 99 4? / Irv 0. 6fe Ao 4.4,c a #o WW row m tt sr rL00R, PER-CENTAGI; C C OVER NOM #AHZARDO-116 R/%5/f%5 Aol )I' ESS 4;EX STO 19.N.O RPOLK st too 70 40 so~~ k ~ ~i-,,f foo i i i ) ' NW' ~Sc*rr C~ C~~.n,:c~f I Showint. --thowupie Area * *k Bounded by EWser Division, Norfolkr and Heater Streets.. ~~~~~;~ ~: 0 c LJ c c '6jp,ýl jil aim wrol so 0 99 411 9 9 SSCA L / 1VlcN= %5jrz- - r PeRCZ*NrAG4C COYZITC D~. a: lmý \J Ir) 131 tlr 2 tn) Showing Small Unoccupied Area and Lack of Proper Fire Escap'es at 18 V estry Str Ir '', W 4w ýIil4ZP.A 5 0 75 ooorr, 99 419 S' to mom'I c 99 S-170 14 SCA c Jr. 'e'eR r A G Z*A G C 0Y E I?4e '.~ 0.l/LCu~,C~~ aI )I Cli -- 4: r "ea and I-A of Al~er',.- "Fire 1: pes at- 18 VestStreet~ and 34 L~aight Street. ~u" r n vL -,AHu. SUPPLEMENT No. 18. Overcrowded Areas. This supplement consists of maps of certain overcrowded blocks in New York; with graphic representations of comparative areas,* etc. The former are by Mr. George T. MeNab, the latter by Mr. D. W. King; who states as follows: GRAPHIC REPRESENTATION OF COOMPARATIVE AREAS IN TENEMENT-HOUSES IN NEW YORK CITY. These drawings are not intended as a check on the calculations of the results of the engineer about whose work there is no question, but were executed at the suggestion of Mr. W. d' H. Washington, who, after having received (from the surveyor, Mr. George T. 31acnab,) the maps and tabulated reports of the comparative areas of ground, occupied areas, floor areas, etc., cf certain block3 in the tenement districts, concluded that.a graphic representation of these areas would prove interesting, and illustrate more clearly and vividly the existing conditions than figures alone. Each square in the different diagrams is intended to correspond in area to the figures given by the engineer, but being drawn to a small scale, can only be considered approximations, hut quite sufficient for the purpose intended. In each case the area f the ground is represented by a square, colored green. The ground covered by the building is represented by a square, colored a burnt Sienna yellow; the total Iloor area is shown bk a square, colored a light Indian yellow. The hazardous risks area, is represented by a square tinted a dark red. While the hazardous risks floor area is repre. sented by a square, colored a light red. DAVID W. KING. * Only a part_of these graphic presentations by Mr. King are reproduced here. -._I~_~~- ~~)-.~-\~-.-- --r- T--~-- -r ~. ~~ ~-- ~- ~--^ ~--- --~ --~-~- --- -- ~ STREET LOCATION. Total area in square Hazardous risks, Hazardous risks, Percei STREET LOCATION. Total ar squareTotal occupied area. Floor area. are, H ar cove Pell, Doyers, Bowery............................... 26,425 24,317 78,752 11,612 33,795 9; Canal, Orchard, Division, Allen......................... 31,500 27,210 129,305 650 1,300 8 Broome, Ludlow, Grand, Orchard....................... 51,975 44,750 169,909 7,720 17,740 8 Essex, Hester, Norfolk, Division........................ 55,000 46,424 212,313 8,119 30,688 8 Hester, Orchard, Canal, Allen........................... 65,625 55,374 237,996 10,330 32,346 8 Delancy, Eldridge, Broome, Forsyth................... 70,000 57,216 236,076 1,325 5,625 8 Division, Rutgers, East Broadway, Pike................. 56,504 46,184 197,470 1,195 3,790 8 Essex, Broome, Norfolk, Grand......................... 60,000 48,495 195,863 9,705 27,813 8 Rivington, Essex, Delancy, Ludlow.................. 69,475 56,055 276,365 4,625 14,451 8 Attorney, Rivington, Ridge, Delancv.................... 80,000 64,020 304,242 9,046 46,714 8 Hester, Ludlow, Canal, Orchard....................... 65,625 52,401 224,826 6,866 24,391 7 Delancy, Essex, Broome, Ludlow...................... 61,250 48,871 220,031 6,575 23,422 7 Division, Pike, East Broadway, Market............... 67,600 53,722 222,671 11,167 39,856 7 Essex, Delancy, Norfolk, Broome....................... 70,000 55,359 237,979 12,929 56,324 7 Canal, Forsyth, Bavard, Chrystie........................ 80,000 63,030 301,245 9,055 26,470 7 Hester, Forsyth, Canal, Eldridge..................... 75,000 59,081 267,167 6,927 23,101 7 Norfolk, Delancy, Suffolk, Broome...................... 70,000 55,080 259,105 7,945 34,335 7 Rivington, Eldridge, Delancy, Forsyth................... 79,400 62,405 262,615 11,441 29,391 7 Birmingham, Madison, Market, Henry................... 48,660 38,200 165,421 4,831 21, 00 7 Essex, Grand, Norfolk, Hester.......................... 80,000 62,702 250,696 19,059 51,735 7 Delancy, Allen, Broome, Eldridge....................... 61,250 47,665 225,055 2,605 9,805 7 Rivington, Forsyth, Delancy, Chrystie................. 79,400 61,229 282,762 5,220 17,205 7 Clinton, Broome, Attorney, Grand.................... 60,000 46,250 176,525 19,875 70,775 7 Rivington, Orchard, Delancy, Allen..................... 69,475 53,545 232,175 7,689 28,857 7 Suffolk, Delancy, Clinton, Broome...................... 70,000 53,800 234,148 12,(13 40,638 7 Suffolk, Rivington, Clinton, Delancy..................... 80,000 61,113 290,674 7,613 25,682 7 Hester, Essex, Canal, Ludlow........................... 65,185 49,248 217,626 8,406 28,344 7 Delancy, Orchard, Broome, Allen....................... 61,250 46,125 222,750 2,160 7,265 7 Essex, Eivington, Norfolk, Delancy...................... 80,000 59,941 269,962 3,690 14,290 7 Norfolk, Grand, Suffolk, Hester................ 79,600 58,776 283,822 9,110 40,880 7 Rivington, Ludlow, Delancy, Orchard............ 69,475 51,020 193,530 7,840 29,580 7 Rivington, Allen, Delancy, Eldridge..................... 69,475 49,525 154,410 19,987 54,662 7 Delancy, Ludlow, Broome, Orchard...................... 61,250 42,894 165,021 11,765 39,655 7 Delancy, Forsyth, Broome, Chrystie.................... 70,000 48,375 178,555 7,675 20,075 6 Total.................................... 34 2,240,399 1,750,402 7,577,062. 286,770 972,600 7 / Acres in total area................................................51.43 Ratio of total area to hazardous risks, area..................................................... 12.80 Mean floor height of occupied area................................................................. 4 33 December 21, 1894. GEORGE T. MACNAB, O6iil Engineer. ed. 2.78 6.38 6.10 4.41 4.38 1.74 1.74 0.83 0.68 0.03 9.85 9.79 9.47 9.08 8.79 8.77 8.69 '8.60 '8.50 8.38 7.82 '7.11 7.08 '7.07 '6.86 6.39 '5.55 (5.31 '4.93 '3.84 '3.44 '1.28 '0.00 59.11 T8.13 SUPPLEMENT No. xg. Legislation in Other States and Countries. To the New York Tenement-House Committee: The sub-committee on legislation in other States and foreign countries respectfully reports as follows: Your committee has requested answers to the following questions, of the secretary of each State and territory in the United States, except the State of New York: "1. What laws or municipal ordinances have been passed by your State concerning tenement-houses or dwellings of the poor; including such laws or ordinances as have been passed in relation to sweating or the manufacture of commodities in buildings where two or more families reside? "What official investigations have been made in your State into any of these subjects?" Answers have been received from 32 States and the territory of Oklahoma. These answers show that no official investigations or legislation upon these subjects have been made by the State or Territorial authority in 26 States and Territories, namely: Delaware, Virginia, New Mexico, Florida, Washington, Idaho, Indiana, except as regards the regulation of child labor, Vermont, West Virginia, New Hampshire, North Dakota, South Dakota, California, Arizonla, Oregon, Kentucky, Minnesota, South Carolina, Alabama, Kansas, Wyoming, Missouri, Nevada, Maine, Montana and Okl%homa. No investigations have taken place in Connecticut or Wisconsin. In Connecticut the statute provides that tenement-houses occupied by more than five families and over two stories in height, shall be provided with fire eaospes. In Wisconsin, chapter 304 of the Laws of 1889, requires that every tenement building be provided with fire escapes. Laws of 18S7, chapter 549, also provides that no more persons shall be put to work in a factory, room, or workshop, "than the laws of health will warrant, as shall be determined by the board of health." 564 In Nebraska, the only legislation on the subject is section 30 of chapter 12a, of the Laws of 1891, which gives the board of health charge, control and supervision of the sanitary condition of houses, tenements, manufactories, and all public and private buildings of every sort. In Ohio, the act of April 18, 1892, provides "that all stairs or stairways for ingress or egress to and from all tenement-houses, apartments, Vianufactories, mills, shops, stores, churches, hotels, and halls for public meetings, etc.", shall be provided with a good substantial hand-rail extending from the top to the bottom of said stairs or stairways, etc., made of wood not less than one and one-half inches wide and two and one-half inches thick, or iron not less than one and one-half inches in diameter. The laws of Ohio also require fire-escapes upon tenementhouses (Ohio R. S., section 2573); and provide for light, air and ventilation in tenement-houses by requiring that there shall be between such buildings one story high a space of 10 feet wide; two stories high, a space of 15 feet wide; three stories high, a space of 25 feet wide; and in every case the length of the space shall not be less than three-quarters the distance of the width of the buildings. (Ohio act, April 15, 1889, ~ 43; Ohio R. S., [8223-112].) Every sleeping-room in a tenement-house which does not connect directly with open air, must in that state have a moveable window or transom not less than three feet square opening into a room which communicates directly with the open air. (Ohio act, April 15, 1889, ~ 44; Ohio R. S. [8223-113].) In Illinois, the act of June 17, 1893, forbids the manufacture, in whole or in part, of clothing, feathers, artificial flowers, or cigars, in tenement or dwelling-houses used for eating or sleeping purposes, except by the immediate members of the family living there, with provisions for the inspection of the same. This is substantially similar to the New York law upon the subject. (See N. Y. Laws of 1886, ch. 409, as amended by the Laws of 1893, ch. 173, section 113.) The reports of Inspector Florence Kelly to the Legislature of the State of Illinois upon the subject of factory inspection are well written and interesting. In Massachusetts, chapter 508 of the Laws of 1894 provides that: "Whenever any house, room or place used as a dwelling is also used for the purpose of carrying on any process of making, altering, repairing or finishing for sale any ready-made coats, vests, trousers, overcoats or any wearing apparel of any description whatsoever, intended for sale, it shall, within the meaning of this act, be deemed a workshop; and every person so occupying or having control of any such workshop shall, 505 within fourteen days from the time of beginning work in such workshop notify the chief of the districit police or the special inspector appointed for that purpose, of the locartion of such workshop, the nature of thc work there carried on, and the number of persons therein employed; the.exercise of such work in a private house or private room, however, by the family dwelling therein, or by any of them, shall not of- itself constitute such house or room a workshop within the meaning of this act; provided, that such family, or any member of such family, engaged in the process of making, altering, repairing or finishing for sale any such coats, vests, trousers, overcoats or any wearing apparel of any description whatsoever, intended for sale, in a private house or private room used as a dwelling as aforesaid, shall, before beginning such work, procure a license approved by the chief of the district police, upon the recommendation of the inspectors especially appointed for the enforcement of the provisions of sections forty-four, forty-five, forty-six, forty-seven and forty-eight of this act; and no person, contractor, firm, or corporation shall give to any person not holding said license any such garments or articles of wearing apparel, intended for sale, to be made in any private house or room as aforesaid; and every smuch workshop and every such private house or private room shall be kept in a cleanly state, and shall be subject to the provisions of this section; and each of said garments made, altered, repaired or finished for sale in any of such workshops, private houses or rooms shall be subject to the inspection and examination of the inspectors of the district police, for the purpose of ascertaining whether said garments or any of them, or any part cr parts thereof, are in cleanly condition and free from vermin, ard every matter of an infectious or contagious nature. "Whoever knowingly sells or exposes for sale any readymade coats, vests, trousers or overcoats which have been made in a tenement-house used as a workshop, as specified in section forty-four of this act, shall have affixed to each of said garnumnts a tag or label not less than two inches in lengt*b and one inch in width, upon which shall be legibly printed or written the words, 'Tenement-made,' and the name of the State and the town or city where said garment or garments were made. "No person shall sell or expose for sale any of said garmnents without a tag or label as aforesaid affixed thereto, nor sell or expose for sale any of said garments with a false or fraudulent tag or label, nor willfully remove, alter or destroy any such tag or label upon any of said garments when exposed for In the same State the construction of tenement-houses is regulated as regards fire-escapes, other exits for use in fires, and the 566 protection of ventilating shafts. (Mass. Laws of 888, ch. 316; Laws of 1888, ch. 420.) In Maryland, chapter 302 of the Laws of 1894, makes it a penal offense to manufacture garments or other similar articles in "any room or apartment which shall not contain at least 400 cubic feet of space for each person habitually laboring in or occupying the same, or wherein the thermometer shall habitually stand, during the hours of labor, at or above 80 degrees Fahrenheit, before the first day of May or after the first day of October of any year, or wherein any person, suffering from a contagious, infectious or otherwise dangerous disease or malady, shall sleep, labor or remain, or wherein, if of less superficial area than 500 square feet, any artificial light shall be labi'ttially used between the hours of 8 a. m. and 4 p. m., or from which the debris of manufacture and of other dirt or rubbish shall not be removed at least once in every 24 hours, or which shall.be pronounced ill-ventilated or otherwise unhealthy by any officer or board having legal authority so to do." (Maryland Laws of 1894, chapter 302.) Your committee have also, through the State Department of the TUited States, requested answers to the following questions of ccnsuls of the United States in' the cities of London, Liverpool, (Glasgow, Paris, Brussels and Berlin: " I. What laws or municipal ordinances, regulating the construction and use of tenement-houses, dwellings for artisans, or houses in which three or more families reside, are in force in the city where your office is situated? "2. What has been the practical effect, as regards morals, crimes, health and otherwise, of the operation of such laws and ordinances? ".3. In this connection, please state whether there has been any change in the.death-rate, number of illegitimate children and of crimes committed in the district? "4. Have any tenement-houses, artisans' dwellings or dwellings containing three or more families been constructed in your city or in its vicinity by the national or city government, or by any philanthropical societies or individuals? ' 5. If so, please describe them and state what has been the practical effect, as regards morals, crimes, health and otherwis.e, of their construction and use. In this connection, please state whether there has been any change in the death-rate, number of illegitimate children and of crimes committed in the district. "6. Has any investigation into the condition of dwellings of the poor been recently made in the locality? If so, please send a bcpy or abstract, of the report, containing a full copy of any recommendations therein made." 567 Winswers have been received from the consuls of the United States at Brussels, Berlin, Liverpool, Glasgow, Paris and London. The evil effects of crowded and insanitary tenements in the city,f Brussels resulted, in 1889, in the passage of a law relative to artisans' houses. This provided for the establishment in each administrative district of one or more committees, charged with building and renting or selling improved tenements; with investigating the sanitary condition of the houses in their district and the healthfulness of the locality; and to encourage economy and insurance. The committees are called committees of patronage and the members- some selected by the government and others by the provincial council-serve three years. They are not subject to interference by the public health officers. They are expected to establish rewards for cleanliness and economy, to be 'paid from endowments or public subsidies, and they are required to make annual reports of their operations. Their recommendations receive special consideration. The law authorizes the General Savings Bank to loan funds for building or buying tenements upon advice of the committee, negotiating insurance on life as guarantee of repayment. Provision is made for receiving donations and legaicies, to be used in constructing approved homes for workmen, and the workmen are encouraged to own their houses by reductions in taxes and fees, provided they are not owners of other property. Co-operative building societies are similarly encouraged. Several societies receiving govftment support have been organized to build model tenements, and although exact statistics are lacking, it is the general opinion that crimes have decreased in consequence, and that the moral evils, due to overcrowding, have been lessened. Mortality has steadily decreased. The condition of the workingman is, however, still a serious problem in Brussels. Of the total population of 168,145 in 1890, there were 19,284 workingmen's families. Of these, 9,364 lived in a single room, and 1,511 of the families living in a single room numbered more than five persons. In 406 families the boys and. girls slept in the same bed. There are 2.05 drinking saloons in the city to every 100 inhabitants, and 17.54 to every 100 families of workingmen. Of the total number of 19,284 families of workingmen, 10,462 received assistance from public benevolent institutions in Brussels in 1890, and this startling fact was indirectly responsible for the complete failure of an attempt to establish homes for the workingmen in the suburbs. Those for whom the homes were designed refused to live in them, because they were so far from the sources of charity. The consul-general at Brussels has sent a full report of the"Belgian system of committees for the encouragement of building and 568 renting salubrious "tenement-houses," and the sale of the same to artisans. The houses are divided into two classes: " First, groups of four houses each of which is intended for a single family, and each habitation is provided with a garden. The second, houses having a common entrance, but divided into several apartments and designed to accommodate a nhmber of inhabitants." The report is accompanied by plans of these houses, the laws in force in Brussels regulating the administration of the health department, and buildings, and statistics concerning the condition of tenement-houses and artisans' dwellings in Brussels, with the rents, number of families, etc. Information concerning the administration of the health department is very full, and is accompanied by copies of the official documents used. These have been sent by your committee to Dr. Edson. The matter concerning building laws and the plans.of the improved artisans' dwellings have been sent to the secretary of this committee for transmission to the sub-committee on buildings. The consul-general in Berlin, reports that no laws cr municipal regulations exist concerning the construction and use of tenement-houses in Berlin, and neither the municipal government, nor the national government has taken a hand in the building of such structures. Capital has been devoted to the building of expensive apartment-houses, and the tenement districts have been left untouched. In the words of, the consul: ' 1>rlin is overbuilt for rich people and those with moderate, fixed incomes; it is under-built for the laboli classes." Rents have risen and wages have fallen, until the average wage-earner, who has a family, is forced to pay half of his income for rent and to take in lodgers of both sexes and of all degrees of decency, including " the floating population which deals in and distributes vice, infectious diseases and punishable crimes." Efforts made by the Berlin police to stop this sub-letting system have only added to the misery of the working classes. The system has harmed family union and often corruipted the young. "Illegitimate children born to very young girls are the natural result of promiscuous herding together of the sexes." Repeated efforts have been made to prevent the crowding of the large floating population in single rooms, which offer places for the beginning of epidemics and the worst of these " pens," as they are called, have been abolished, "but there is a constant tendency to their revival, in defiance of the police, while the size of building lots has grown gradually smaller, the rroportion of people to the lot has grown larger, increasing from 48.3 per cent. in 1861 to 66 per cent. in 1885." It is a significant fact that the ITWillinPm.es of capitalists to build tenements is largely due to 5G9 the fact that property owners in Berlin are heavily taxed and much worried by police regulations, and "find it safer to take the chances of renting to the well-to-do for long periods than to enter the laborious career of tenement owning." Rents are still taxed in Berlin. The vice-consul-general at Paris writes: "In all the large cities of the world one of the most dangerous and intolerable evils is the sanitary condition of cheap tenement-houses, where the very poor a~le compelled to live. Paris, perhaps, has fared better, as statistics will show, as regards morals, crimes, health and otherwise, in cheap tenement dwellings where two or more families reside, than any of the large cities of the world. Until very recently a law enacted during the first Republic in regard to the construction and use of cheap tenement-houses for artisans has been in force. These buildings are divided into two separate and distinct classes, and are under the strict control and supervision of the prefet de police. One class is the chea), unfurnished apartments where several families reside. The other class is the cheap furnished apartments, also, where a number of families reside. A general board of health emanating from the prefecture de la Seine, which is called the Bureau de la Salubriete Generale, exercises complete control over these buildings, so far as sanitary condition is concerned. When it is brought to the notice of this board of health, or whenever a c,. nplaint is made of some defect in sanitary arrangement of any building that may be dangerous to the henlth of the inhabitants of the city generally, the board at once orders a thorough investigation made and steps are taken to remedy the evil. The furnished tenement-houses (' garnies') are placed under the supervision of a board known as the Bureau des Garnies, which also emanates from the Prefecture de la Seine. Before any one can let furnished rooms a declaration must be made and filed with this bureau des garnies, stating that the building and rooms are in good sanitary condition. In addition to this a medical inspector is sent to examine the building and rooms to ascertain whether they can accommodate the number of people they are destined to receive, and whether in a general way the same are in good sanitary condition. There is also connected with the prefecture of police a special medical department called 'La Salubriete,' which is only a part of the Bureau des Garnies or general health department Upon the report made by the nmedical inspector in regard to the sanitalry condition of any building furnished or unfurnished, the Bureau des Garnies gives or-refuses permission to the proprietor to let his rooms. The flrit step, therefore, necessary, for a landlord to take before he T. 72 570 can rent his rooms is to procure a license or permit from this board. This license can be procured upon the landlord making affidavit that his building is in good, healthy condition. It might be noted that not only the cheap tenement-houses which are occupied by artisans and the poorer class are submitted to this inspection, but all furnished houses, hotels, etc., the highest as well as the lowest, are submitted to a rigid inspection and are under the active control of the Bureau des Garnies. For each and every apartment or furnished room that is let there must be kept by the landlord a full and complete record of all arrivals and departures. Every other day an inspector calls at each house where apartments and rooms are let furnished to inspect the record kept and inquire of any events pertaining to the general sanitary condition that may have occurred within 24 hours in that particular house, or even in the neighborhood. It has been a mooted question whether this inspection should not take place daily instead of every two days, and only the question of increase of the number of inspectors, which necessitates an additional expense, prevented the authorities from having the inspection made daily. There are now 102 inspectors of this kind for Paris. These inspectors have certain districts within the corporate limits of the city of Paris, and make their rounds regularly every two days, and so make their reports. There are no tenement-houses constructed solely for the habitation of workingmen by the city government, blut a banking corporation known as the Banque d'Escompte, in Paris, has constructed certain tenement dwellings in a quarter of Pa:ris known as the Buttes Ohaumont where manufactories and working establishments are situated, occupied solely by workingmen. These tenement buildings, however, are of rather the best class and are rented to workingmen who can afford to pay a rental of from $30 to $40 per month. Of course, these buildings are under the strict supervision of the municipal authorities and are given a close inspection as to their sanitary condition, etc. Each building contains a certain number of flats or separate apartments and are occupied by mechanics with their families." "A law was passed November 30, 1894, on the subject of tenement-houses and dwellings for workingmen in France. This law authorizes the establishment in every department of one or more committees of cheap tenement-houses. "The purpose of sulch committees is to encourage the building of healthy and cheap tenement-houses either by private parties or by corporations, with a view to letting them or selling them, either against cash payment or on annuities, to persons not being house owners, particularly to workmen or employees who may be supporting themselves mainly by their work or by their 571 salary, or by parties interested in the said associations, for their own personal use. "These committees may receive subventions from the State on the department or from the 'Commune' as well as gifts and legacies, under the conditions prescribed by article 910 of the Civil Code in regard to establishments of public utility. "They shall not, however, be allowed to possess any other real estate than what is necessary for their meetings. "They may make investigation, open competitions, grant prizes for tidiness and cleanliness, give encouragements in a pecuniary form, and more generally use all means of promoting the building and the improving of cheap tenement-houses." The entire law is given in the report from Paris. The consul-general at London has sent a full report of the English legislation upon the subject which includes the British "Housing of the Working Classes Act, 1890." (53 and 54 Vict., C. 70.) This is the act under which the local authorities are authorized to condemn land, to destroy the buildings thereupon and either dedicate the same as a. highway or open space, appropriate, sell or let the same for the erection of dwellings for the working classes, or exchange the same with other neighboring land which is more suitable for the erection of such. dwellings and on exchange will be appropriated, sold or let for such erection. The provisions for the assessment of compensation in case of such condemnation are novel and seem of sufficient import ance to warrant the careful consideration by the whole comn. mittee as to whether they should be included in any scheme which this committee may recommend for new statutory authority for the destruction of tenement-houses which are in unsanitary condition. These may be found in section 41 of that act, and are as follows: " ~ 41. In all cases in which the amount of any compensation is, in pursuance of this part of this act, to be settled by arbitration, the following provisions shall have effect; namely: "(1) The amount of compensation shall be settled by an arbitrator to be appointed and removable by the local government board. "(2) In settling the amount of any compensation - "(a) The estimate of the value of the dwelling-house shall be based on the fair market value as estimated at the time of the valuation being made of such dwelling-house, and of the several interests in such dwelling-houses, due regard being had to the nature and then condition of the property and the probable duration of the buildings in their existing state, and to the state of repair thereof, and without any additional allowance in respect of compulsory purchase; and 572 (b) The arbitr-ator shall have regard to and makie an allowance in respect of any increased value which, in his opinion, will be given to other dwelling-houses of the same owner by the alteration or demolition by the local authority of any buildings. "(3) Evidence shall be receivable by the arbitrator to prove."(Firstly) That the rental of the dwelling-house was enhanced by reason of the same being used for illegal purposes or being so overcrowded as to be dangerous or injurious to the health of the inmates; or, " (Secondly) That the dwelling-house is in a state of defective sanitation, or is not in reasonably good repair; or, " (Thirdly) That the dwelling-house is unfit, and not reasonably capable of being made fit, for human habitation; and, if the arbitrator is satisfied by such evidence, then the compensation - "(a) Shall in the first case, so far as it is based on rental, be based on the rental, which would have been obtainable if the dw-lling-house was occupied for legal purposes and only by tho nimber of persons whom the dwelling-house was, under all the circlmstances of the case fitted tc accommodate without such overcrowding as is dangerous or injurious to the health of the inmates; and, " (b) Shall, in the second ease, be the amount estimated as the value of the dwelling-house, if it had been put into a sauitary condition, or into reasonably good repair, after deducting the estimated expense of putting it into such condition or repair; and " (c) Shall in the third case be the value of the land, and of the materials of the buildings thereon." (Pp. 27 and 28.) The act further provides in section 50: "Where, in any prow ceedings under this part of this act, it is necessary to refer to the owner of any dwelling-house, it shall be sufficient to designate him as the 'owner' thereof, without name or further description." The provision for the destruction of material portions of buildings unfit for human habitation are in sections 30-38, inclusive, and are as follows: "30. It shall be the duty of the medical officer of health of every district to represent to the local authority of that district any dwelling-house which appears to him to be in a state so dangerous or injurious to health as to be unfit for huma~ habitation. "31. (1) If, in any district, any four or more householders living in or near to any street, complain in writing to the medical officer of health of that district that any dwelling-house in or near thatl street is in a condition so dangerous or injurious to health as to be unfit for human habitation, he shall forthwith inspect the same, and transmit to the local authority the said 573 complaint, together with his opinion thereon, and if he is of opinion that' the dwelling-house is in the condition aforesaid, shall represent the same to the local authority, but the absence of any such complaint shall not excuse him from inspecting any dwelling-house and making a representation thereon to the local authority. "(2) If, within three months after receiving the said complaint and opinion or representation of the medical officer, the local authority, not being in the administrative county of London, or not being a rural sanitary authority in any other county, declines or neglects to take any proceedings to put this part of this act in force, the householders who signed such complaint may petition the local government board for an inquiry, and the said board, after causing an inquiry to be held, may order the local authority to proceed under this part of this act, and such ordPer shall be binding on the local authority." CLOSING ORDER AND DEMOLITION. "32. (1) It shall be the duty of every local authority to cause to be made, from time to time, inspection of their district, with -a view to ascertain whether any dwelling-house therein is in a state so dangerous or injurious to health as to be unfit for human habitation, and, if on the representation of the medical officer, or of any officer of such authority, or information given, any dwelling-house appears to them to be in such state, to forthwith take proceedings against the owner or occupier for closing the dwell'ing-house under the enactments set out in the third schedule to this act. "(2) Any such proceedings may be taken for the express pur pose of causing the dwelling-house to be closed, whether the same be occupied or not, and upon such proceedings the court of summary jurisdiction may impose a penalty not exceeding 20 pounds, and make a closing order, and the forms for the purposes of this section may be those in the fourth schedule to this act, or to the like effect, and the enactments respecting an appeal from a closing order shall apply to the imposition of such penalty as well as to a closing order. "(3) Where a (;losing order has been made as respects any dwelling-house, the local authcrity shall serve notice of the order on every occupyihg tenant of the dwelling-house, and within such period as is specified in the notice, not being less than seven days after the service of the notice, the order shall be obeyed by him, and he and his family shall cease to inhabit the dwelling-house, and in default he sh:all be liable to a penalty not exceeding 20 shillings a day during his disobedience to the order. Provided 574 that the local authority may make to every such.tenant such reasonable allowance on account of his expenses in removing as may have been authorized by the court making the closing order, which authority the court is hereby authorized to give, and the amount of the said allowance shall be a civil debt due from the owner of the dwelling-house to the local authority, and shall be recoverable summarily. "33 (1) Where a closing order has been made in respect of any dwelling-house, and not been determined by a subsequent order, then the local authority, if of opinion that the dwelling-house has not been rendered fit for human habitation, and that the necessary steps are not being taken with all due diligence to render it so fit, and that the continuance of any building being or being part of the dwelling-house is dangerous or injurious to the health of the public or of the inhabitants of the neiAhboring dwellinghouses, shall pass resolution that it is expedient to order the demolition of the building. "(2) The local authority shall cause notice of such resolution to be served on the owner of the dwelling-house, and such notice shall specify the time and place appointed by the local authority for the further consideration of the resolution, not being less than one month after the service of the notice, and any owner of the dwelling-house shall be at liberty to attend and state his objections to the demolition. "(3) If upon the consideration of the resolution and the objections the local authority decide that it is expedient so to do, then, unless an owner undertakes to execute forthwith the works necessary to render the dwelling-house fit for human habitation, the local authority shall order the demolition of the building. "(4) If an owner undertakes as aforesaid to execute the said works, the local authority may order the execution of the works, within such reasonable time as is specified in the order, and if the works are not completed within that time or any extended time allowed by the local authority or a court of summary jurisdiction, the local authority shall order the demolition of the building. "34. (1) Where an order for the demolition of the building has been made, the owner thereof shall within three months after si-rvice of the o:r *'r proceed to take down and remove the building, and if the owner fails therein the local authority shall proceed to take down and remove the building and shall sell the materials, and after deducting the expenses incident to such taking down and removal, pay over the balance of money (if any) to the owner. "(2) Where a building has been so taken down and removed, no house or other building or erection which will be dangerous 56rT or injurious to health shall be erected on all or any part of the site of such building; and if any house, building, or erection is erected contrary to the provisions of this section, the local author, ity may at any time order the owner thereof to abate the same. and in the event of noncompliance with the order, may at the expense of the owner abate or alter the same." " ':. Il) Any person aggrieved by an order of the local authority under this part of this act, may appeal against the same to a court of quarter sessions, and no work shall be done nor proceedings taken under any order until after the appeal is determined or ceases to be prosecuted; and section 31 of the summary jurisdiction act, 1879, respecting appeals from courts of summary jurisdiction to courts of quarter sessions shall apply with the necessary modifications as if the order of the local authority were an order of a court of summary jurisdiction. "(2) Provided that: "(a) Notice of appeal may be given within one month after notice of the order of the local authority has been served on such p 'on; "(b) The court shall, at the request of either party, state the facts specifically for the determination of a superior court, in which case the proceedings may be removed into that court. "36. (1) Where any owner has completed in respect of any dwelling-house any works required to be executed by an order of a local authority under this part of this act, he may apply to the local authority for a charging order, and shall produce to the local authority a certificate of their surveyor or engineer that the works have been executed to his satisfaction, and also the acounts of and vouchers for the cost, charges and expenses of the works, and the local authority, when satisfied that the owner has duly executed such works and of the amount of such costs, charges and expenses, and of the cost of obtaining the charging order which have been properly incurred, shall make an order accordingly, charging on the dwelling-house an annuity to repay the amount. "(2) The annuity charged shall be a sum of six pounds for every 100 pounds of the said amount and so in proportion for any less sum, and shall commence from the date of the order, and be payable for a term of 30 years to the owner named in such order, his executors, administrators, or assigns. "(3) Every such annuity may be recovered by the person for the time being entitled to it by the same means and in the like manner in all respects as if it were a rent-charge granted by deed out of the dwelling-house by the owner thereof. "(4) Charging orders made under this section shall be made according to the form marked A in the fifth schedule to this 576 act, or as near thereto as the circumstances of the case will admit. "37. (1) Every charge created by a charging order under this part of this act shall be a charge on the dwelling-house specified in the order, having priority over all existing and future estates, interests, and incumbrances, with the exception of quit-rents and other charges incident to tenure, tithe commutation, rent charge, and any charge created under any act authorizing advances of public money; and where more charges than one are charged under this part of this act on any dwelling-house such charges shall, as between themselves, take order according to their respective dates. " (2) A charging order shall be conclusive evidence that all notices, acts, and proceedings by this part of this act directed with reference to or consequent on the obtaining of such order, or the making of such charge, have been duly served, done and taken, and that such charge has been duly created, and that it is a valid charge on the dwelling-house declared to be subject thereto. "(3) Every such charging order, if it relates to a dwellinghouse in the area to which the enactments relating to the registration of land in Middlesex apply or to a dwelling-house in Yorkshire, shall be registered in like manner as if the charge were made by deed by the absolute owner of the dwelling-house. " (4) Copies of the charging order and of the certificate of the surveyor or engineer, and of the accounts as passed by the local authority, certified to be true copies by the clerk of the local authority, shall, within, six months after the date of the order be deposited with the clerk of the peace of the county in which the dwelling-house is situate, and be, by him, filed and recorded. " (5) The benefit of any such charge may be from time to time transferred in like manner as a mortgage or rent-charge may be transferred. Any transfer may be in the form marked B in the fifth schedule to this act, or in any other convenient form. OBSTRUCTIVE BUILDINGS. "38. (1) If a medical officer of health finds that any building within his district, although not in itself unfit for human habitation, is so situate that by reason of its proximity to or contact with any buildings it causes one of the following effects, that is to say: "(a) It stops ventilation, or otherwise makes or conduces to make such other buildings to be in condition unfit for human habitation or dangerous or injurious to health; or "(b) It prevents proper measures from being carried into effect for remedying any nuisance injurious to health or other 577 evils complained of in respect of such other buildings; in any such case, the medical officer of health shall represent to the local authority, the particulars relating to such first-mentioned building (in this act referred to as 'obstructive building') stating that, in his opinion, it is expedient that the obstructive build. ing be pulled down. "(2) Any four or more inhabitant householders of a district may make to the local authority of the district a representation as respects any building to the like effect as that of the medical officer under this section. " (3) The local authority on receiving any such representation as above in this section mentioned shall cause a report to be made to them respecting the circumstances of the building and the cost of pulling down the building and acquiring the land, and on receiving such report shall take into consideration the representation and report, and if they decide to proceed, shall cause a copy of both the representation and report to be given to the owner of the lands on which the obstructive building stands, with notice of the time and place appointed by the local authority for the consideration thereof; and such owner shall be at liberty to attend and state his objections, and after hearing such objections the local authority shall make an order either allowing the objection or directing that such obstructive building shall be pulled down, and such order shall be subject to appeal in like manner as an order of demolition of the local authority under the foregoing provisions of this part of this act. "(4) Where an order of the local authority for pulling down an obstructive building is made under this section and either no appeal is made against the order, or an appeal is made and either fails or is abandoned, the local authority shall be authorized to purchase the lands on which the obstructive building is erected in like manner as if they had been authorized by a special act to purchase the same; and for the purpose of such purchase the provisions of the lands clauses acts, with respect to the purchase and taking of lands otherwise than by agreement shall be deemed to be incorporated in this part of this act (subject nevertheless to the provisions of this part of this act), and for the purpose of the provisions of the lands clauses acts this part of this act shall be deemed to be the special act, and the local authority to be the promoters of the undertaking, and such lands may be purchased at any time within one year after the date of the order, or if it was appealed against after the date of the confirmation. T. 73 578 '(5) The owner of the lands may within one month after notice -to purchase the same is served upon him declare that he desires -to retain the site of the obstructive building and undertake either to pull down or to permit the local authority to pull down.the obstructive building, and in such case the owner shall retain the site and shall receive compensation from the local authority for the pulling down of the obstructive building. "(6) The amount of such compensation, and also the amount %of any compensation to be paid on the purchase of any lands under this section, shall in case of differenice be settled by arbitration in manner provided in this part of this act. "(7) Where the local authority is empowered to purchase land compulsorily, it shall not be competent for the owner of a house or manufactory to insist on his entire holding being taken, where part only is proposed to be taken as obstructive, and where suQh part proposed to be taken can, in the opinion of the arbitrator to whom the question of disputed compensation is submitted, be severed from the remainder of the house or manufactory without material detriment thereto, provided that cowr-en:sation may be awarded in respect of the severance of the part so proposed to be taken in addition to the value of that part. "(8) Where in the opinion of the arbitrator the demolition of an obstructive building adds to the value of such other buildings as are in that behalf mentioned in this section, the arbitrator shall apportion so much of the compensation to be paid for the demolition of the obstructive buildings as may be equal to the increase in value of the other buildings amongst such other buildings respectively, and the amount apportioned to each such other building in respect of its increase in value by reason of the demolition of such obstructive building shall be deemed to be.private improvement expenses incurred by the local authority in respect to such building, and such local authority may, for the.purpose of defraying such expenses, make and levy improvement irates on the occupier of such premises accordingly; and the provisions of the public health acts relating to private improvement expenses and to private improvement rates, shall so far as cireumstances admit, apply accordingly in the same manner as if:such provisions were incorporated in this act. "(9) If any dispute arises between the owner or occupier of any building (to which any amount may be apportioned in re~spect of private improvement expenses) and the arbitruto? by1,,whom such apportionment is made, such dispute shall be settled,by two justices in manner provided by the lands clauses acts,:u cases where the compensation claimed in respect of lands 4does not exceed 50 pound&a 579 "(10) Where the owner retains the site or any part thereof, DO house or other building or erection which will be dangerous or injurious to health, or which will be an obstructive building within the meaning of this section, shall be erected upon such site or any part thereof; and if any house, building or erection is erected on the site contrary to the provisions of this section the local authority may at any time order the owner to abate or alter the said house, building or erection; and in the event of noncompliance with such order may, at the expense of the owner thereof, abate or alter the same. "(11) Where the lands are purchased by the local authority the local authority shall pull down the obstructive building, or such part thereof as may be obstructive within the meaning of this section, and keep as an open space the whole site, or such part thereof as may be required to be kept open for the purpose of remedying the nuisance or other evils caused by such obstructive building, and may, with the assent of the local government board, and upon such terms as that board think expedient, sell such portion of the site as is not repuired for the purpose of carrying this section into effect. " (12) A local authority may, where they so think fit, dedicate any land acquired by them under the authority of this section as a highway or other public place." The report states that under the provisions of this and a former act of similar character, the city of London has cleared away two large spaces, one call d the " Petty Court Square Sith" at the extreme east of the city, and the other called the " Golden Lane Site" at the extreme north. On the first space 164 tenenments were demolished, 79,198 square feet of land were cleared, and streets and sewers were reconstructed and model dwellings, some with shops on the ground floor, were built. These were completed in 1885. The entire cost of condemnation and reconstruction amounted to ~201,415 and buildings comprising five blocks, each 30 feet wide, 58 feet high and from 158 to 221 feet long were constructed. They are provided with open landings, washhouses, drying places, sculleries, water-closets, water and gas. The scale of rents are: For a shop with two rooms and basement, from 28 to 30 shillings a week; for a shop with one room and basement, 23 shillings a week; for a tenement with three rooms, 9 shillings a week; for a tenement of two rooms, 7 shillings a week; for a tenement of one room, 4 shilling a week. The gross rental is ~6,000 a year. Plans of these buildings are submitted with this report and seem more appropriate for the consideration of the subcommittee of buildings. The Peabody Trust, the Guiness Trust, the Metropolitan Assoclation, the Improved and Industrial Dwellings Company, the 580 Artisans and Laborers' and General Dwellings Company, and a large number of smaller companies and individuals, have built and own other improved dwellings for the working people and the poor in and about London. The statistics show a less death-rate and a slightly increased birth-rate in these artisans' dwellings, as compared with the general death and birth-rate in London. Illegitimate births in these buildings are few. Crime has been diminished in the area which they occupy. This report also contains the building regulations approved by the London county council for the construction of tenements, which seem to be more appropriate for the consideration of the subcommittee on buildings. It is also accompanied by the report of the royal commission to inquire into the housing of the working classes made to" the queen in 1885, together with a full report of the testimony then taken. The report states that "tenement-houses may be roughly said to be houses which are occupied at weekly rents by members of more than one family, but in which members of more than one family do not occupy a 'common room.'" (P. 8.) A large )portion of the report;Ind testimony is occupied by a consideration of the subject of overcrowding in a single room of persons of both sexes, and the consequent injury to health and property. This is an evil muich more prevalent in Great Britain than in the United States. In 1871, in Glasgow, 41 families out of every 100 lived in houses or apartments having only one room. In 188i, 24 per cent. of the population of Glasgow lived in similar quarters. The report further shows that at that time in London the arbitrators had made extravagant and excessive awards for the condemnation of unsanitary buildings and excessive costs had been taxed for legal expenses. They quote, at page 45, the amendment in the act of 1879 to the Artisans Dwellings Act of 1875, as follows: "On the occasion of assessing the compensation payable under any improvement scheme in respect of any house or premises situate within an unhealthy area, evidence shall be receivable by the arbitrator to prove that, at the date of the confirming act authorizing such scheme, or at some previous date not earlier than the date of the official representation in which the scheme originated, such house or premises was, by reason of its unhealthy state or by reason of overcrowding or otherwise, in such a condition as to have been a nuisance within the meaning of the acts relating to nuisances; and if the arbitrator is satisfied that, from either of such causes as aforesaid, such house or premises was at such dates as aforesaid, or either of them, a nuisance as aforesaid, he shall then determine what would have been the value of such house or premises, supposing the nuisance to 581 have been abated, and what would have been the expense of abating the nuisance, and the amount of compensation payable in respect of such house or premises shall be an amount equal to the estimated value of the house or premises after the nuisance was abated and after deducting the estimated expense of abating the nuisance," and say, "This, however, does not give sufficient help. The ordinary case is of a house which is a nuisance and dangerous to health. Under that provision there would have to be deducted from the value of the house the cost of putting it into sanitary repair; but then the arbitrator will sometimes not be content to give the value of the house as it stood, and for the purposes for which it was then used; he will take into account the probability that that house, or the land upon which it stands, may subsequently be used for other purposes, such as factories, warehouses, new streets, or something of that kind; and the value given, therefore, is often something altogether different from and out of proportion to the value, if the property be regarded in connection with its existing uses. " There are arbitraiors who seem not to exclude from their minds the improvement of the property that would be due to the scheme itself, and give a prospective value to the unhealthy property in consequence of their impression that it would be increased in value when the improvement was effected." (Pp. 45-46.) "Arbitrators and juries have, it is stated, a natural tendency to award excessive compensation when they have the public purse or the rates to draw upon. The districts to be dealt with, more, over, are generally crowded, and as has been seen rents are consequently driven up, and there is again the multiplicity of interests involved between those of the ground landlord and those of the actually occupying tenants. Even with the repeal of tha words 'and all circumstances affectipg such value,' it does not seem likely that arbitrators with the discretion still allowed them would assess the compensation to all the persons interested as it the property were in the hands of one person, though theoretically that rate ought to be adopted; and the law Plso requires strengthening by 'a recognition that compensation should only be calculated on the base of the capicity of a house and not on the numbers actually living in it, inasmuch as overcrowding at present puts a premium on property.'" (P. 46.) "Your majesty's commissioners, in the course of their inquiry, elicited a great deal of evidence which proved the'fact that immenee sume of money are, in connection with improvements, yearly sunk in legal expenses. Mr. Forwood stated that the ~72,000 which was paid in compensation for 635 nisanitary houses at Liverpool was out of all propqrtion to what the owners 582 were moally entitled to; but the sum of ~10,000 paid to lawyers for their legal charges in connection with the same transactiona is a much more suprising figure. When details %ome to be examined the large figures are less to be wondered at. Sir Curtis Lampson testified that no sooner is a property condemned than local solicitors call upon the people who have houses and propose to them to manage the business for them. He mentioned the case of a condemned house, valued at ~20, where the solicitors' charges amounted to ~57." (P. 48.) The consul of the United States at Liverpool has also sent a full answer to our inquiries. He encloses in his report a copy of the by-laws of the borough of Liverpool, con, taining regulations of houses and parts of houses which are let in lodgings or occupied by more than One family. He states that the practical effect of the operation in Liverpool of the British housing of the working classes acts and the by-laws upon the subject has been to improve morals, and health, and greatly decrease the crime previously prevalent among the peope inhabiting tenement-houses. He is unable, however, to furnish any data showing the change in the deathrate, number of illegitimate births and crimes in the districts of Liverpool thereby affected since the passage of these laws and ordinances. He refers, in the description of the destruction of tenement-houses and artisans' dwellings at the expense of the city of Liverpool, to the report of his predecessor, Mr. Sherman, published in the Consular Reports, June, 1890, No. 117. He furnishes a copy of the testimony at a hearing before the local government board upon the application by the town council of Liverpool for sanction to borrow ~25,000 for the ilreT.ase of insanitary dwellings and areas, in June, 1894. It appears in that report (p. 2) that: "It has been the policy of the insanitary property committee rather to sell the land which formed the sites of the houses to builders, under stipulations which would insure the building of suitable dwellings, than enter into the somewhat speculative operation of building houses or dwellings at the expense of the corporation." (P. 3.) " Up to about four or five years ago, we had considerable difficulty in selling these building sites, but now our difficulty is rather the other way. We have more applications for sites for buildings than we are able to meet, and in some cases we have been obliged to keep back the builder until we could get legal difliculties in connection with the details out of the way. We have very little land left on our hands, and there is no land available at the present time for the erection of more than a very few four-roomed cottages." (P. 4.) "Our policy has been to work with the medical officer. To get him from time to time to select a number of the, 583 worst houses in the city, taking them from different parts of the city, but at the same time concentrating them as much as possible in two or three localities, so as to get, if possible, the whole of one street or two streets, and take away the whole of the insanitary property within that street or streets. In that way the committee were able to dispose of the sites to builders, which we should not be able to do if the medical officer only selected the worst courts in a street, and left in that street still standing a number of insanitary houses with their very undesirable tenants. The consequence of this policy has been that during the last four or five years we have been able to get around us a number of builders who are willing to take our land, and to build upon it what we call four-roomed cottages. These cottages have about the same accommodations in them as the court houses whi(h we pull down." The town clerk testified that be~fore the housing of the Working Classes Act of 1884, the borough under its general powers used to buy single houses in different parts ot the city for the purpose of improving the health of the vicinity, and 1hlat the scheme proved impracticable (p. 8): "That was only touching the fringe of the matter. We have bought a single house to remove an ash-pit. We have bought from an owner a house at an enormous sum, and we have pulled down the house at a further expense, in order to erect two water-closets, and all this for the benefit of the owners of the court, who were also compensated by the improvement of their property. It was found out in time, however, that that did no good at all. The first ~100,000 we borrowed went in that way." "I have known ~110 and legal expenses to have been paid for one house." The criticisms upon the methods of the corporation which were stated at the inquiry were that the new houses were filled chiefly by people from other parts of the city or its vicinity and not by the former inhabitants of the same area, who crowded into old houses in other parts of the city; 'hat (p. 20) "The action of the corporation in pulling down these houses creates a want of security on the part of the owners, who are never sure when the corporation will pounce down upon them and take their property, and the consequence is that they have not the heart to- maintain and keep their property in a state of repair, as they would do if they felt more secure. They pay something like ~80, ~90 and ~100 per house for these socalled insanitary houses and when they are taken from them it is at a nominal sum which seems to be no encouragement to them to spend money and improve the property. What we want to point out is this - if the plan suggested by Mr. Norton was adopted - namely, the dealing with isolated cases and small spaces, one house could be taken down in a court, and it would provide back 584 yards and separate water-closets. Anyway, it might afford facilities for the corporation selling little strips of land to owners, in order to enable them to put up separate water-closets, and to get that through ventilation, which is so much desired. These houses certainly offer better accommodation for the eople than the class of houses that are now being built. I challenge Dr. Hope or Mr. Bartlett to prove that there are eight out of ten occupying these new houses who ever lived in the neighborhood before. It seems to me that although you say that you demolish houses that are insanitary, and provide other houses for those people, you do nothing of the kind, but you provide houses for people who live a mile and a half away from these places. We say that the taxes of the town have increased to a lar.ge extent, but the rents of house property have been reduced to an alarming extent, and, if this expenditure goes on, we say that Liverpool with regard to property will be unbearable, the rateable value of property will go down and the corporation and the rate payers will suffer equally." These objections were made by a real estate agent who appeared with others on behalf of the Liverpool Land and House Owners Association. The report of the consul at Glasgow contains valuable information and statistics upon the subject, which is there regulated by the Glasgow Building Act of 1892 (55 and 56 Vict. ch. 239), the Glasgow Police Acts of 1886 and 1891 (29 and 30 Vict. ch. 273), and by by-laws upon the subject. It appears that nearly all the inhabitants of Glasgow live in tenements or apartment houses. " There are but few (what are called here) self-contained dwellinghouses, i. e., houses built for the exclusive use of one family; and these are mostly in the suburbs and inhabited by the very wealthy. The houses are generally built in blocks from two to four stories in height, most commonly of three stories, the lower one being a basement from one-half to one-third above the street with an area in front, as deep as the basement, and enclosed by an iron railing. Many of the people are lodgers taking apartments in these buildings. Most generally a family takes a house and rents out roome to lodgers. Each story above the basement is called a.separate house and these often have separate entra,- es. Others are entered from a common stair at the back end of a close or open hallway situated in the middle of two tenements." The building regulations are set forth with detail in this report, but they seem more appropriate for the consideraition of the subcommittee on buildings. We note, however, the following: "It shall not be lawful in any dwelling-house for any person to make an inclosed bed or bed recess not open in front 585 for three-fourths of its length, and from floor to ceiling." There must be one window in every sleeping apartment, and that so constructed that one-third may be easily opened, and the sash of the window must not be short of certain specified dimensions. " Every building shall be provided with a window-hatch or hatchway in the roof, by which, in case of fire, access may be had to the roof from a common stairway or the upper story of the building." "If a dwelling or tenement becomes filthy or lackilg in sanitary protection, the same may be declared untenantable by the Dean of Guild Court, and the inmates removed; and the same can not thereafter be rented or occupied until repaired and put in proper sanitary condition." The Glasgow Building Act authorizes the purchase of land by the corporation of Glasgow by agreement of the owners and the sale or leasing of the same or construction thereupon by the corporation itself of dwelling-houses for mechanics, laborers and other working people of the poor classes. The number of the working classes to be displaced by the operation of this act was limited to 500 within any six months, unless suitable accommodations were provided in the meantime. Under these acts, May, 1893, the corporation of Glasgow has expended ~1.994,331 ($9,695.411.80). The revenue derived had been ~1,700,411 ($4,902,565.17), leaving a deficit of ~986,919 ($4,802,841.30). The corporation had then on hand property valued at ~545,311 ($2,653,755.52), which was in the course of reconstruction; together with Alexandra park and 970,162 square yards of ground applied to the formation of 29 new streets and in the improvement of 25 existing streets. The total cost to the taxpayers had been ~720,181 ($3,504,760.83). The new tenements are generally four stories in heigth with a basement; 35 feet in depth and 70 feet high. The base tenements consist usually of a kitchen and one or two rooms, with an additional bedroom in the attic over the hallway. Single apartments were rented at ~9 a year in 1893. The practical effect of these laws and ordinances has been to improve morals and to diminish crime. The death-rate and number of illegitimate births in the city has decreased and crime has become less prevalent. The great evil in tenement. houses in Glasgow is said to be the crowding of persons of different sexes into the same room. ROGER FOSTER, JOHN P. SOHUOHMAN. W. 74 SUPPLEMENT No. 20. Bills Submitted to the Legislature by the Tenement-House Committee of 1894. No. z. 3XI ACT to amend chapter four hundred and ten of the laws of eighteen hundred and eighty-two, entitled "An act to consolidate into one act and to declare the special and local laws affecting public interests in the city of New York," as subsequently amended by chapter eighty-four of the laws of eighteen hundred and eighty-seven, and chapter two hundred and eighty-eight of the laws of eighteen hundred and eighty-seven, and otherwise, in relation to the powers, duties and health fund of the board of health, and of the health department of the city of New York, and for the preservation of the publio health. The People of the State of New York, represented in Senate and Assembly, do enact as follows: Section 1. Section two hundred and ninety-six of chapter four hundred and ten of the laws of eighteen hundred and eighty-two, entitled "An act to consolidate into one act and to declare the special and local laws affecting public interests in the city of New York," as amended by chapter eighty-four of the laws of eighteen hundred and eighty-seven, in relation to the powers, duties and health fund of the board of health, and of the health department of the city of New York, and for the preservation of, the public health, is hereby amended so as to read as follows: ~ 296. The board of police, upon the requisition of the board of health, shall detail to the service of the said board of health, for the purpose of the enforcement of the provisions of the sanitary code, and of the acts relating to tenement and lodginghouses [not \exceeding forty-five], at least fifty suitable officers, and men of experience of at least five years' service in the police force, provided that the board of health shall pay monthly to the board of police a sum equal to the pay of all officers and men so detailed. At least [fifteen] twenty of the officers and men so detailed shall be employed exclusively in the enforcement of the laws relating to tenement and lodging-houses These officers and men shall belong to f 587T tle sanitary company of police, and shall report to the president of the board of health. The board of health may report back to the board of police for punishment any member of eaid company guilty of any breach of orders or discipline, or of neglecting his duty, and thereupon the board of police may detail another officer or man in his place, and the discipline of the said members of the sanitary company shall be in the jurisdiction of the board of police, but at any time the board of health may object to the efficiency of any member of said sanitary company, and there" apon another officer or man may be detailed in his place. The board of police shall have the power, and it shall be their duty to fill all vacancies in the police force in the city caused by the detailing of said officers and men upon the requisition of the board of health. And the board of police are hereby authorized and empowered to appoint [fifteen] twenty-five additional men to the police force subject to all the law, rules and regulations relating to and governing the appointment of patrolmen in said city; and the officers thus detailed to the service of the said board of health shall be selected for their peculiar fitness from amongst those who shall pass a civil service examination conducted by the supervisory board of commissioners of the New York municipal civil service. ~ 2. Section five hundred and thirty-three of said act, as amended by chapter eighty-four of the laws of eighteen hundred and eighty-seven, is hereby amended so as to read as follows: ~ 533. The authority, duty and powers of the board of health shall extend over the waters of the bay, up to and within the quarantine limits as established by law, but shall not be held to interfere with the powers and duties of the commissioners of quarantine or health officer of the port. It shall be the duty of the board of health to make an annual report to the mayor of the city of New York of all the opeiiations of the said board for the previous year. The mayor may at any time call for a more full report, or for a report upon any portion of the work of said board whenever he may deem it to be for the public good so to do.[The mayor and one commissioner from the department of health, the commissioner of the department of public works, one dele. gate from the bureau of inspection of buildings, and the commissiosne of the department of street cleaning, shall meet annually, between the fifteenth day of November and the thirtieth day of December, for the purpose of considering the subject of tenement and lodging-houses in the city, and shall make such recommendations of improvement in the laws affecting tenement and lodging-houses as they may deem to be for the good of the people of the city; they shall cause such recom. 588 m tendations to be sent to the governor of the State and to the senate and assembly annually on or before the fifteenth day of January; they shall also consider the subject of the execution of said laws and shall recommend to the board of health such changes in the same as they may deem to be for the good of the people of the city.] ~ 3. Section five hundred and eighty-eight of said act, as amended by chapters eighty-four and four hundred and eightynine of the laws of eighteen hundred and eighty-sever, is hereby amended so as to read as follows: ~ 588. Said board shall appoint and commission at least thirtyfive sanitary inspectors, and shall have power to appoint five additional sanitary inspectors, if it deems that number needful, [said board may appoint and commission such number of "sanitary inspectors" as the board may deem needful, not exceeding forty,] and from time to time prescribe the duties and salaries of each of said inspectors, and the place of their performance (and of all other persons exercising any authority under said board, except as herein specially provided); but twenty of such inspectors shall be physicians of skill and of practical professional experience in said city. The additional sanitary inspectors heretofore duly appointed and commissioned may be included among the sanitary inspectors mentioned in this section, and may continue to act as such without reaippointment, but nothing herein contained shall curtail any of the powers vested in the health department by section five hundred and eighty of this act, and the number of sanitary inspectors for whom provision is made in this section shall be exclusive of the special inspectors for whom provision is made in section five hundred and eighty. AlU of the said inspectors shall have such practical knowledge of scientific or sanitary matters as qualify them for the duties of their office. Each of such inspectors shall, twice in each week, make a written report to said boaird stating what duties he has performed, and where he has performed them, and also such facts as have come to his knowledge connected with the purposes of this chapter as are by him deemed worthy of the attention of said board, or such as its regulations may require of him; which reports with. the other reports herein elsewhere mentioned shall be filed among the records of the said board. ~ 4. Section six hundred and fifty-four of said act is hereby amended so as to read as follows: ~ 654. It shall not be lawful, without a permit from the board of health, to let or occupy, or suffer to be occupied separately as 589 a dwelling, any vault, cellar, or underground room built or rebuilt after July first, eighteen hundred and sixty-seven, or which shall not have been so let or occupied before said date. It shall not be lawful without such permit to let or continue to be let, or to occupy or suffer to be occupied separately as a dwelling any vault, cellar, basement or room wholly or in part underground, unless the same be in every part thereof at least seven feet in height, measured from the floor to the ceiling thereof, nor unless the same be for, at least, two feet [one foot] of its height above the surface of the street or ground adjoining or nearest to the same, nor unless there be outside of and adjoining the said vault, cellar, room, or basement, and extending along the entire frontage thereof, and upwards from six inches below the level of the floor thereof, up to the surface of the said street or ground an open space of a least two feet and six inches wide in every part, nor unless the same be well and effectually drained by means of a drain, the uppermost part of which is one foot at least below the level of the floor of such vault, cellar, or room, nor unless there is a clear space of not less than one foot below the level of the floor, except where the same is cemented, nor unless there be appurtenant to such vault, cellar, or room, the use of a watercloset or privy, kept and provided as in this title required; nor unless the same have an external window opening of at least nine superficial feet clear of the sash frame, in which window opening there shall be fitted a frame filled in with glazed sashes, at least four and a half superficial feet of which shall be made so as to open for the purpose of ventilation. Provided, however, that in the. case of an inner, or back vault, cellar, or room, let or occupied along with a front vault, cellar, or room, as part of the same letting or occupation, it shall be a sufficient compliance with the provisions of this section if the front room is provided with a window as hereinbefore provided, and if the said back vault, cellar or room is connected with the front vault, cellar or room by a door, and also by a proper ventilating or transom window, and, where practicable, also connected by a proper ventilating or transom window, or by some hall or passage communicating with the external air. Provided, always that in any area adjoining a vault, cellar, underground room, or basement there may be steps necessary for access to such vault, cellar, or room, if the same be so placed as not to be over, across, or opposite to the said external window, and so as to allow between every part of such steps and the external wall of such vault, cellar or room, a clear space of six inches at least, and if the rise of said steps Is open; and, provided, further, that over or across any such area there may be steps necessary for access to any building above the vault, cellar or room to which such area adjoins, if the same be so placed as not to be over, across, or opposite to any such external window. ~ 5. Section six hundred and fifty-six of said act is hereby amended so as to read as follows: ~ 666. Every tenement or lodging-house shall have the proper and suitable conveniences or receptacles for receiving garbage and other refuse matters. No tenement or lodging-house, nor any portion thereof, shall be used as a place of storage for any combustible article, or any article dangerous to life or detrimental to health; nor shall any horse, cow, calf, swine, pig, sheep, or goat be kept in said housle. After the first day of September, eighteen hundred and ninety-five, no bakery or place of business in which fat is boiled shall be maintained in any tenement-house more than three stories in height, in which more than two families live on one floor, and which is not fireproof. After the first day of September, eighteen hundred and ninety-five, no part of any: tenement-house shall be used for the storage of feed, hay or straw. After the first day of September, eighteen hundred and ninety-five, all transoms, windows, doors and other openings leading into halls or into rooms opening into halls from bakeries or places of business in which fat is boiled in the basements, cellars, or on the first floors of all tenement-houses in the city of New York, shall be solidly closed with the same material as the walls or partitions in which the openings exist, so that there shall be no opening between said bakeries or other places of business in which fat is boiled and the other parts of the tene, ment-house in which the same shall be situated. After the first day of September, eighteen hundred and ninety-five, all transoms and windows opening into halls from any portion of any tene' ment-house where paint, oil, spirituous liquors or drugs are stored or kept for the purpose of sale, or otherwise, shall be removed and closed up as solidly as the rest of the wall; and all doors leading into any such hall or room from such portion of said tenementhouse used as aforesaid, shall be made fireproof. ~ 6. Section six hundred and fifty-seven of said act, as amended by chapter eighty-four of the laws of eighteen hundred and eighty-seven, is hereby amended so as to read as follows: 591 ~ 657. No wallpaper shall be used in any tenement or lodginghouse. The wallpaper on the walls and ceilings of any tenement or lodging-house shall be removed within sixty days after the passage of this act; provided, however, that the board of health may, in their discretion, permit wall-paper to be used in an apartment-house more than twenty-five feet in width, or in a house in which not more than one family occupy the same floor, or in any apartment containing more than three rooms. Every tenement or lodging-house, and every part thereof, shall be kept clean and free from any accumulations of dirt, filth, garbage or other matter in or on the same, or in the yard, court, passage, area or alley connected with it or belonging to the same. The owner or keeper of any lodging-house, and the owner or lessee of any tenement-house or part thereof, shall thoroughly cleanse all the rooms, passages, stairs, floors, windows, doors, walls, ceilings, privies, cess-pools and drains of the house or part of the house of which he is the owner or lessee, to the satisfaction of the board of health, so often as he shall be required by or in accordance with any regulation or ordinance of said board, and shall well and sufficiently, to the satisfaction of the said board, whitewash the walls and ceilings thereof twice at least in every year, in the months of April and October, unless the said boards shall otherwise direct. Every owner of a tenement or lodginghouse, and every person having control of a tenement or lodginghouse, shall file annually in the department of health a notice containing his name and address, and also a description of the property by street, number, or otherwise, as the case may be, in such manner as will enable the board of health easily to find the same; and also the number of apartments in each house, the number of rooms in each apartment, the number of families occupying each department, and the trades and occupations carried on therein. In case of a transfer of any tenement-house or lodging-house, it shall be the duty of the grantor and grantee of said tenement or lodging-house to file in the department of health a notice of such transfer, stating the name of tihe new owner within thirty days after such transfer. In case of the devolution of said property by will, it shall be the duty of the executor and of the devisee, if more than twenty-one years of age, and in case of the devolution of such property by inheritance without a will, it shall be the duty of the heirs, or in case all of the heirs are under age it shall be the duty of the guardians of such heirs, and in case said heirs have no guardians it ihall 592 be the duty of the administrator of the deceased owner of said property to file in said department a notice stating the death of the deceased owner and the names of those who have succeeded to his interest in said property, within thirty days after the death of said decedent in case he died intestate, and within thirty days after the probate of his will if he died testate. A failure to file such notice shall make said property and-the owners thereof liable to a penalty of ten dollars a day, after the said thirty days have expired, until said notice is filed. Said penalty may be collected in the manner prescribed in section six hundred and sixty-five &f this act. Every person claiming to have an interest in any tenement or lodging-house may file his name and address in the department of health. All notices and orders of the board of health required by law to be served in relntion to a tenement or lodging-house shall be served by pcsaing in some conspicuous place in the house, a copy of the nolice or order, tive dajs before the time for doing the thing in relation to which said notice or order was issued. The posting of a copy of an order or notice, in accordance with this section, shall be sufficient service upon the owner of the property affected. It shall be the duty of the board of health to cause a copy of every such notice or order to be mailed on the same day thiat it is posted in the house, addressed to tne name and address of each person who has filed with the department of health the notice provided for in this section. ~ 7. Section six hundred and fifty-nine of said act, as amended by chapter eighty-four of the laws of eighteen hmndred and eighty-seven, is hereby amended so as to read as follows: ~ 659. Whenever it shall be certified to the board of health of the health department of the city of New York by the sani. tary superintendent, that any building or any part thereof' in the city of New York is infected with contagious disease, or by reason of want of repair has become dangerous to life, or is unfit for human habitation because of defects in drainage, plumbing, ventilation, or the construction of the same, or because of the existence of a nuisance on the premises and which is likely to cause sickness among its occupants, the said board of health may issue an order requiring all persons therein to vacate suc. building or part thereof for the reasons to be stated therein as aforesaid. Said board shall cause said order to be affixed conspicuously in the building or part thereof and to be personally served on the owner, lessee, agent, occupant or any person having the charge or care thereof; if the owner, lessee or agent zan not be found in the city of New York or do not reside therein or 593 evade or resist service, then said order may ble served by deposiing a copy thereof in the post-office in the city of New York, properly inclosed and addressed to' such owner, lessee )e ageat at his last known place of business or residence, and prepaying the postage thereon; such building or part thereof shall within ten days after said order shall have been posted and mailed as aforesaid or within such shorter time not less than twenty-four hours, as in said order may be specified, be vacated, but said board whenever it shall become satisfied that the danger from said building or part thereof has ceased to exist, or that said building has been repaired so as to be habitable, may revoke said order. Whenever in the opinion of the board of health of the health department of the city of New York, any building or part thereof in the city of New York, an order to vacate which has been made by said board, is, by reason of age, defects in drainage, plumbing, infection with contagious disease, ventilation, or the construction of the same, or because of the existence of a nuisance on the premises, which is likely to cause sickness among its occupants or among the occupants of other property in the city of New York, or because it stops ventilation in other buildings, or otherwise makes or conduces to make other buildings adjacent to the same unfit for human habitation, or dangerous or injurious to health; or because it prevents proper measures from being carried into effect for remedying any nuisance injurious to health or other sanitary evils in respect of such other buildings so unfit for human habitation that the evils in or caused by said building can not be remedied by repairs or in any other way except by the destruction of said building or of a portion of the same, said board of health may institute proceedings in the supreme court in the county of New York for the condemnation of said building. Said proceedings shall be instituted and carried on in the manner prescribed by title one of chapter twenty-three of the code of civil procedure, except as modified by this act. Upon the institution of said proceedings, the owner of said building or any person interested therein m- y in his answer dispute the necessity of the destruction of said building or part thereof as the case may be. In such case, the court shall not appoint commissioners unless proof is made of t. 75 594 the necessity of said destruction. In such proceeding evidence shall be receivable by the commissioners to prove: 1. That the rental of the building was enhanced by reason of the same being used for illegal purposes or being so overcrowded as to be dangerous or injurious to the health of the inmates; or 2. That the building is in a state of defective sanitation, or is not in reasonably good repair; or 3. That the building is unfit, and not reasonably capable of being made fit, for human habitation; and, if the commisAioners are satisfied by such evidence, then the compeneation (a) Shall, in the first case, so far as it it based on rental, be based on the rental of the building, as distinct from the ground rent, which would have been obtainable if the building was occupled for legal purposes and only by the number of persons whom the building was, under all the circumstances of the case, fitted to accommodate without such overcrowding as is dangerous or injurious to the health of the inmates; and (b) Shall, in the second case, be the amount estimated as the value of the building if it had been put into a sanitary condition, or into reasonably good repair, after deducting the estimated expense of putting it into such condition or repair; and (c) Shall, in the third case, be the value of the materials of the buildings. Nothing in this section contained shall repeal any part of section five hundred and thirty-five of this act or impar aiiTy0 the powers thereby vested in the board of health. - 8. Section six hundred and sixty-one of said act, as amended by chapters eighty-four and two hundred and eighty-eight of the laws of eighteen hundred and eighty-seven, and chapter two hundred and thirty-eight of the laws of eighteen hundred and ninety. two, is hereby amended so as to read as follows: ~ 661. It shall not be lawful to erect for, or convert to the purposes of a tenement or lodging-house, a building on any lot where there is another building on the same lot, or to build, or to erect any building on any lot whereon there is already a tenement or lodging-house, unless there is a clear open space exclusively belonging thereto, and extending upward from the ground of at least ten feet between said buildings if they are one story high above the level of the ground; if they are two stories high, the distance between them shall not be less than fifteen feet, if they are three stories high, the distance between them shall not be 595 less than twenty feet; if they are more than three stories high, the distance between them shall not be less than twenty-five feet [but when thorough ventilation of such open spaces can be otherwise secured, such distances may be lessened or modified in special cases by a permit from the board of health.] At the rear of every building hereafter erected for or converted to the purposes of a tenement or lodging-house on any lot, there shall be and remain a clear open space of not less than ten feet between it and the rear end of the lot, [but this provision may be modified as to corner lots and may be changed or modified as to lodging-houses in special cases by a permit from the board of health]. No one continuous building shall be built for or converted to the purposes of a tenement or lodging-house in the city of New York, upon an ordinary city lot, and no existing tenement or lodging-house shall be enlarged or altered, or its lot be diminished so that it shall occupy more than [sixty-five] seventy per centum of the said lot, and in the same proportion if the lot be greater or less in size than twenty-five feet by one hundred feet; but this provision shall not apply to corner lots [and may be modified or changed in special cases as to lodging-houses by a permit from the board of health] in which, however, no such building shall occt'py more than ninety per centum of a lot. In computing the amount of the lot covered by a building, any shaft or court of less than twenty-five square feet in area shall be considered as part of the building and not as part of the free-air space. No shaft or court hereafter constructed in a tenement-house except elevator shafts or staircase wells, shall be covered with a roof, skylight or otherwise. The walls of all shafts or courts hereafter constructed in tenement-houses shall be fireproof. In all tenement-houses hereafter constructed or buildings hereafter converted to the purposes of a tenement-house the floor over the cellar or basement, if there be no cellar, shall contain no openings into the first floor but there shall be a continuous fireproof floor constructed with iron or steel beams and arches of masonry; an open area shall be constructed from the level of the cellar to the sidewalk in front of and extending the full width of such houses which shall contain a staircase to give access to the cellar from the street. Provided, however, that these provisions concerning the openings in and access to cellars and basements shall not apply to fireproof strtmctures; nor shall they apply to buildings npt morg than twenty-five feet in width, which are not more than five 596 stories high above the cellar, and which contain not more thnn one suite of rooms on a floor. The dumb-waiters and elevators or lifts in all tenement-houses hereafter constructed or buildings hereafter converted to the purposes of a tenement-house which are not fireproofed, shall be located on the exterior walls and shall have no opening into the cellar and shall be separated from the cellar by solid brick walls, and shall be separated from the other stories of said houses by fireprcof walls. The openings to the elevators or lifts in the stories above the cellar shall be provided with fireproof doors hung to metal frames. This pro. vision, however, shall not apply to elevators which are operated by a conductor stationed within the car; but if such elevators run to the cellar, they must be enclosed in the cellar with fireproof walls, and the door to the cellar, if any, must be fireproof, hung in a metal frame and self-closing. In all tenement-houses hereafter constructed or buildings hereafter converted to the purposes of a tenement-houe all partitiors const-ucted of wooden supports and lath and plaster shall be solid rr filled in solid; all staircases shall be fireproof; but this provision as to staircases shall not apply to buildings not m(re than twentyfive feet wide, which are not over five stories high above the cellar and which contain but one suite of rooms on a floor. No fan-light or window shall be hereafter placed in the partition or Interior wall between the hall of any tenement-house which is Inof lreproof and any room in the same; and no such fan-light or window shall be allowed in any building hereafter converted to the purposes of a tenement-house. In all tenement-houses hereafter constructed and buildings hereafter converted to the purposes of a tenement-house each room must have a separate window opening into the outer air; each water-closet must have a window opening into the outer air; the floor of each water* closet must be made waterproof with asphalt, cement, tile, metal or some other waterprcof material; and such waterproofing must extend at least six inches above the floor so that said floor can be washed or flushed out without leaking. No building or premises oocupied for a tenement-house shall be used for a lodging-house, private school, stable or for the storage and handling of rags, but the board of health may by a special permit, allow the main 597 tenance of a private school in such' a house, [unless with a permit in writing from the board of health; but nothing herein contained shall be construed to apply to a building or premises so used for a stable prior to January first, eighteen hundred and ninety-two.] In case of any violation of the provisions of this section, or of any failure to comply with or of any violation of the terms and conditions of the plan for such tenement or lodging-house approved by the [said board of health] department of buildings or of the conditions of the permit granted by the [board of health] department of buildings for such house, or for the air, light and ventilation of the slame, any court of record, or any judge or justice thereof shall have power, at any time after service of nctice of violation, or of non-compliance, upon the owner, builder or other person superintending the building or converting of any such house, upon proof by affidavit of any violation or noncompliance as aforesaid, or that a plan for light and ventilation of such house has not been approved by the [board of health] department of buildings, to restrain by injunction order, in an action by the health department, or department of buildings, of the further progress of any -violation as aforesaid. No undertalking shall be required as a condition of granting an injunction, or by reason thereof. ~ 9. Section six hundred and sixty-three of said act, as amended by chapter eighty-four of the laws of eighteen hundred and eighty-seven, is hereby amended so as to read as follows: ~ 663. Every such house erected after May fourteenth, eighteen hundred and sixty-seven, or converted, shall have adequate chimneys running through every loor, with an open fireplace or grate, or place for a stove, properly connected with one of said chimneys for every family set of apartments. It shall have proper conveniences and receptacles for ashes and rubbish. It shall have Croton or other water furnished in sufficient quantity at one or * more places on each floor, occupied or intended to be occupied by one or more families; and all tenement-houses shall be provided with a like supply of water by the owners thereof, whenever they shall be directed'so to do by the board of health. But a failure in the general supply of water by the city authorities 9hall not be construed to be a failurb on the part of such owner, provided that proper and suitable appliances to receive and distribute such water are placed in said house. Provided that the board of health shall see to it that all tenement-houses are so supplied before January first, eighteen hundred and eighty-nine. Every tenement-house shall have the floor of the cellar made watertight, and the ceiling plastered; and when the house is located 598 ever filled-in ground, or over marshy ground, or ground on which water lies, the cellar floor shall be covered so as to effectually prevent evaporation or dampness. It shall be the duty of the board of health that the cellars of all tenement-houses are so made or altered as to comply with this section before January first, eighteen hundred and ninety. Every such house erected after May seventh, eighteen hundred and eighty-seven, or converted, shall have the halls on each floor open directly to the external air, with suitable windows, and shall have no room or other obstruction at the end, unless sufficient light or ventilation is otherwise provided for in said halls in a manner approved by; the board of health. The owner or lessee of every tenement or lodging-house in the city of New York shall keep a light burning in the hallway upon each floor of said house from sunset until ten o'clock at night throughout the year. In every tenement-house in the said city in which there is a hallway or hallways with no window opening from such hallway outside of said house, a light shall be maintained by said owner or lessee in each such hallway between the hours of eight o'clock in the morning and ten o'clock at night of each day. The fire department of the city of New York is hereby vested with authority to prescribe reasonable regulations concerning such precautions as may be necessary to prevent danger from fire arising from such lights. ~ 10. Section six hundred and sixty-four of said act, as amended by chapter eighty-four of the laws of eighteen hundred and eightyseven, is hereby amended so as to read as follows: ~ 66. Whenever it shall be certified to the board of health by the sanitary superintendent that any tenement-house or room therein is so overcrowded that there shall be afforded less than six hundred cubic feet of air to each occupant of such building or room, the said board [may] shall [if it deems the same to be wise or necessary] issue an order requiring the number. of occupants of such building or room to be reduced, so that the Inmates thereof shall not exceed one person to each six hundred cubic feet of air space in such building or room. Ohanges to apply to cases of "insufficient ventilation," and to four hundred cubic feet for each adult and two hundred for each child undei twelve years of age. Whenever there shall be more than eight families living in any tenement-house, in which the owner thereof does not reside, there shall be a janitor, housekeeper or some other responsible person, who shall reside in the said house, and have charge of the same, if the board of health shall so require. 599 ~ 11. Section six hundred and sixty-five of said act is hereby amended so as to read as follows: ~ 665. Every owner or other person violating any provision of this title shall be guilty of a misdemeanor, punishable by a fine of not less than ten dollars nor more than cue hundred dollars, or by imprisonment for not more than ten days for each and every day that such violation shall continue, or by both such fine and imprisonment, in the discr.tion of the court. He shall also be liable to pay a penalty of ten dollars for each and every day that such offense shall continue. Such penalty may be sued for and recovered by the board of health, and when recovered shall be paid over to the city chamberlain and become part of the tenement-house fund, directed by section one hundred and ninety-four, subdivision nine, of this act, to be annually appropriated to the credit of the health department and to be expended by the board of health. In every proceeding for a violation of this title, and in every such action for a penalty, it shall be the duty of the owner of the house to prove*the date of its erection or conversion to its existing use, if that fact shall become material, and the owner shall be prima facie the person liable to pay such penalty, and after him the person who is the lessee of the whole house, in preference to the tenant or lessee of a part thereof. In any such action the owner, lessee, and occupant, or any two of them, may be made defendants, and judgment may be given against the one or more shown to be liable, as if he or they were sole defendant or defendants. No part of chapter two hundred and severty-five of the laws of eighteen hundred and ninety-two or of any other act shall be so construed as to abrogate or impair the power of the board of health to sue for and recover such a penalty, whether the liability to pay said penalty shall arise from a violation of the laws, ordinances or sections of the sanitary code, in regard to light, ventilation, plumbing and drainage, or otherwise. ~ 12. Section stx hundred and sixty-seven of said act, as amended by chapter three hundred and twenty-nine of the laws of eighteen hundlred and ninety-two, is hereby amended so as to read as follows: ~ 667. [The board of health shall have authority, within present provisions of law, to make other regulations than the foregoing in special cases as to the proportion of any lot to be covered by any tenement or lodging-house, as to cellars, supply of water above the first floor in any house and the providing of fixtures therefor, light and ventilation, and the use of building or prem 600 fees occupied for a tenement-house, for a school or stable or for storage of rags, when it shall be satisfied that such regulations will secure equally well the health of the occupants and the public health, provided, however, that in all such cases any modifications made by such regulations, hall be in accordance with the conditions of a permit in writing issued by the said board of health.] The board of health shall have authority to make other regulations as to cellars and as to ventilation, consistent with tile foregoing, where it shall be satisfied that such regulations will secure equally well the health of the occupants. ~ 13. This act is hereby declared to be a remedial statute and is to be construed liberally, to secure the beneficial interests and purposes thereof. Nothing herein contained shall be construed to affect any suit or proceeding now pending in any court, or any rights acquired, or liability incurred, or any cause or causes of action accrued or existing, whether for a penalty or otherwise, under any act repealed or amended by this act. All acts and parts of acts in conflict with any portion of this act are hereby, repealed. No 2. AN ACT to provide for the location, acquisition, construction and improvement of additional public parks in the city of New York, and for the construction therein of schoolhouses, school play-grounds and municipal baths. The People of the State of New York, represented in Senate and Assembly, do enact as follows: Section 1. The board of street opening and improvement of the city of New York, is hereby authorized and empowered to select, locate and lay out in the manner provided by chapter three hundred and twenty of the laws of eighteen hundred and eighty-seven, within three years after the passage of this act, so many public parks, to be finished in part as public play-grounds, in the city of New York as it may deem necessary, but not less than two in number, to be bounded by public streets now exist. ing in the district east of the Bowery and Catharine street, and south of Fourth street in said city, and to acquire the title to the lands embraced therein. And the department of public parka 601 of the citi of New York is hereby directed to commence the construction of said public parks so to be selected, located and laid out within the same period of time. ~ 2. At the time of the construction of said parks or at any time thereafter, the department of public parks of the city of New York, may construct in connection with the said parks and upon a portion thereof, municipal baths. ~ 3. Said parks may be located on blocks also containing publio schoolhouses, and at the time of the construction of said parks or at any time thereafter, the board of education of the city of New York, may with the permissjio of the department of publie parks and of the board of estimate and apportionment, construct upon a portion of such public parks, schoolhouses and school play-grounds. ~ 4. For the payment of all expenses to be incurred undes the authority of this act, including the damages awarded and expenses incurred upon the acquisition of land and estates and interests therein and the construction of said parks and the erection and furnishing of buildings thereon, the comptroller of the city of New York is hereby authorized and directed to issue, from time to time bonds or stocks of the mayor, aldermen and com. monalty of the city of New York to be payable from taxation and redeemable in not less than ten or more than thirty years from the date of issue in such amounts as may be necessary to carry out the purposes of this act but not exceeding in all the sum of three millions of dollars; and the mayor and comptroller are hereby authorized and directed to sign such bonds, and it shall be the duty of the clerk of the common council of said city to countersign the same and affix thereto the seal of the said city. Said bonds shall bear interest at a rate to be fixed by the comptroller, not exceeding four per centum per annum, and shall not be disposed of at less than the par value thereof. ~ 5. Whenever and as often as any site may be so as aforesaid selected, located and laid out as hereinbefore provided, the title to the lands embraced therein and all interests in said lands shall be acquired by the mayor, aldermen and commonalty of the city of New York and the same proceeding shall be had therefor as are provided for the acquisition of real estate and interests therein by chapter three hundred and twenty of the laws of eighteen hundred and eighty-seven, with like effect, ~ 6. This act shall take effect immediately. 602 No. 3. AN ACT to provide for open-air playgrounds in connection with schoolhouses in the city of New York. The People of the State of New York, represented in Senate and Assembly, do enact as follows: Section 1. Hereafter no schoolhouse shall be constructed in the city of New York without an open-air playground attached to or used in connection with the same. ~ 2. This act shall take effect immediately. No. 4. AN ACT to amend chapter three hundred and twenty of the laws of eighteen hundred and eighty-seven, entitled " An act to provide for the location, acquisition, construction and improvement of additional public parks in the city of New 'York." The People of the State. of New York, represented in Senate and Assembly, do enact as follows: Section 1. Section ten of chapter thi.ee hundred and twenty of the laws of eighteen hundred and eighty-seven, entitled " An act to provide for the location, acquisition, construction and improvement of additional public parks in the city of New York," is hereby amended so as to read as follows: ~ 10. For the payment of all expenses to be ibcurred, under the authority of this act, including the damages awarded and expenses incurred upon the acquisition of land and of estates and interests therein, and the construction of said parks, and the erection and furnishing of buildings therein, the comptroller of the city of New York shall issue, flom time to time, bonds or stocks of the mayor, aldermen and commonalty of the city of New York, to be payable from taxation and redeemable in not less than ten nor more than thirty years from the date of issie, in such amounts as shall be necessary to carry out the purposes of this act, and the mayor and comptroller are hereby authorized and directed to sign said bonds, and it shall be the duty of the clerk of the common council of said city to countersign the same and to affix thereto the seal of the said city. Said bonds sh:dl bear interest at a rate to be fixed by the comptroller, not exceeding four per centum per annum, and shall not be disposed of at 603 less than the par value thereof. But no contract shall b'e entered into or liability incurred for the construction of any of said parks, or for the erection of any building therein, until the plans for such construction or erection, and in the case of a building and estimate of the cost thereof, shall have been prepared by the department of public parks, and submitted to and approved by the board of estimate and apportionment of said city. But no more than the lum of one million of dollars shall be expended or authorized to be expended in any one year under the provisions of this act; except that there may be issued in addition to said sum. of one million of dollars in each year, such additional bonds or stocks as above mentioned, of the mayor, aldermen and commonalty of the city of New York, as may be necessary to pay the expenses of the const~pction, completion and acquisition of the land and of estates and interest therein, and of the construction of the parks hereinafter named and of the erection cjnd furnishing of buildings therein, to wit: The park commonly called Mulberry Bend park, being a tract of land bounded by Mulberry, Park, Bayard and Baxter streets in the sixth ward of the city of New York; Saint John's park in the ninth ward in said city, ard the park commonly called the East river extension park, being the land bounded on the west by Avenue B, on the north and east by the Harlem and East rivers, and on the south by East Eighty-sixth street, all in the city of New York. S~ 2. This act shall take effect immediately. POSTSCRIPT. Decision of the Court of Appeals in the Water Case. The Court of Appeals, at Albany, State of New York, on Febraary 26, 1895, reversed the order of the General Term of the Court of Common Pleas, and affirmed, with costs, the judgment of the tk#ial court in the case of the Health Department of the City of New York, appellant, v. the Rector, Churchwardens, etc., of Trinity Church, in the City of New York, respondents. The following is from a copy of the record, furnished by H. E. Sickels, official reporter: THE HEALTH DEPARTMENT OF THE CITY OF NEW YORK, APPELLANT, v. THE REOTOR, CHURCHWARDENS, ETC., OF TRINITY CHURCH IN THE CITY OF NEW YORK, RESPONDENT (Decided February 26, 1895.) Opinion of the Court. This is an appeal from an order of the General Term of the Oourt of Common Pleas for the city of New York, which reversed a judgment on a verdict directed for the plaintiff and granted a. new trial. The action was brought by the plaintiff by virtue of several acts of the Legislature giving it power in certain cases to commence an action in its own name for the purpose of recovering the amount of $200, being the penalty for twenty days' violation by the defendant of the act hereinafter mentioned, relative to the supply of water in several tenement-houses owned by the defendant. The defendant denied some of the allegations of the complaint, and set up also, as one of the defenses to the action, that the statute upon which the complaint is founded is unconstitutional. Each party moved after the evidence was in that a verdict be directed in its favor. The motion on the part of the plaintiff was granted, and that on the part of the defendant was denied. The defendant excepted to these decisions of the court, and, judgment having been entered, it appealed to the General Term of the Court of Common Pleas. There the judg 605 ment was reversed, and from the order of reversal the plaintiff appeals here. The cause of action is founded upon section 663 of the Consolidation Act, relating to the city of New York, as such section was amended by chapter 84 of the Laws of 1887. After making various provisions in prior sections for the proper construction and ventilation of tenement-houses in the city of New York, the Legislature, by the amendment of 1887, enacted as follows: "~ 663. Every such house erected after May 14, 1867, or converted, * * shall have Croton or other water furnished in sufficient quantity at one or more places on each floor, occupied or intended to be occupied by one or more families; and all tenement-houses shall be furnished with a like supply of water by the owners thereof whenever they shall be directed so to do by the board of health. But a failure in the general supply of water by the city authorities shall not be construed to be a failure on the part of the owner, provided that proper and suitable appliances to receive and distribute such water are placed in said house. Provided, that the board of health shall see to it that all tenement-houses are so supplied before January 1, 1889." The rest of the section is not material. It appeared upon the trial that the defendant was the owner of certain houses in the city of New York, known as Nos. 59, 77, 84 and 86 Charlton street, and on the 20th of March, 1891, the plaintiff caused to be served on the agent of the defendant a notice requiring the defendant, in conformity with the provisions of the Sanitary Code, to alter, repair, cleanse and improve the premises above mentioned, and directing that suitable " appliances to receive and distribute a supply of water for domestic use be provided on the top floor of No. 59, the basement, first and second floors of No. 77, the basement, first, second and third floors of No. 84- and the basement and attic of 86:" and the defendant was required to comply with the requirements within two days from the receipt of the notice, and it was also stated in the notice that any application for a necessary extension of time or for the suspension of any part of the requirements contained in the written notice should be made to the health department at the time and place designated in the notice. This action was brought against defendant as owner of houses Nos. 77 and 84 Charlton street. The defendant claims that the houses in q't~tion were not tenement-houses as that word is popularly used; that they were houses constructed many years ago as dwelling-houses, and they have never been altered with reference to their internal arrangement so as to convert them into what would popularly be called tenement-houses. They were old-fashioned 606 dwelling-tlouses, two-story, attic and basement There were hydrants in the back yards accessible to all tenants of the houses; but the proof in ihe case shows that at No. 77 Charlton street there were three families, and in No. 84 there were six families, and the houses came clearly and distinctly under the definition of tenement-houses, as enacted by section 666 of the Consolidation Act, as amended by the Laws of 1887 (chap. 84, p. 100). It is claimed on the part of the defendant that the buildings are in a transition neighborhood which will be shortly required for business structures; that they are not in a neighborhood where all or many of the large buildings which are known as tenementhouses, in the popular meaning of the word, are situated, and that these houses are not really within the reason of the statute. The defendant offered oui the trial to give testimony as to the necessary cost of complying with the order of the board of health, whicli was excluded, and the defendant excepted. Defendant also offered to prove that the introduction of appliances to furnish water on each floor, and the required sinks and waste-pipes to connect with the sewer, would cause great danger of injury to the property through the water in the pipes freezing and the pipes bursting in the winter season; also, that no complaints had been made to the defendant corporation by the occupants of these houses in reference to the want of water. All this evidence was Pecluded under the objection of the plaintiff and upon the exception of the defendant. The General Term of the common pleas granted leave to plaintiff to appeal from its order of reversal and granting a new trial on the ground that a question of law was involved which ought to be reviewed by this court. Roger Foster, for appellant. Stephen P. Nash, for respondent Peckham, J. The recovery in this case is founded upon that portion of the Consolidation Act which requires that all houses of a certain description, upon the direction of the board of health, shall be provided with Croton or other water in sufficient quantity at one or more places on each floor occupied, or intended to be occupied, by one or more families. The defendant, among other things, alleges as a defense that the order of the board of health directing the defendant to furnish the water as provided by, the statute was made without notice to it, and that, as it could not be complied with excepting by the expenditure of a considerable amount of noney,,the result would be to deprive the defendant of its property without a hearing and an oppor tunity to show what defense it might have, and that it in fact deprilved the defendant of its property without due process of law. There was no arrangement in either of these houses in 607 question for the supplying of the Oroton or otlier water to the occupants of each fglor at the time when the order of the board of health was made; such order could not, therefore, be complied with on the part of the defendant without the expenditure of money for that purpose. That fact must be assumed, and even upon that assumption we do not think the act is invalid on the alleged ground that it deprives the defendant, if enforced, of its property without due process of law. The act must be sustained, if at all, as an exercise of the police power of the State. It has frequently been said that, it is difficult to give any exact definition which shall properly limit and describe such power. It must be exercised subject to the provisions of both the Federal and State Constitutions, and the law passed in the exercise of such power must tend in a degree that is perceptible and clear towards the preservation of the lives, the health, the morals or the welfare of the community, as those words have been used and construed in many cases heretofore decided. Such cases have arisen in this State where the power of the Legislature was questioned, and where the exercise of that power was affirmed or denied for the reasons given therein. (See People v. Marks, 99 N. Y. 377; Matter of Jacobs, 98 id. 98; People v. Gilson, 109 id. 389; People v. Arensberg, 105 id. 123, and many cases cited in these cases. See, also, Slaughter House Oases, 16 Wall. 36, 62; Barber v. Connelly, 113 U. S. 27; Gas Co. v. Light Co., 115 id. 650; Boston Beer Co. v. Moss, 97 id. 25.) The act must tend. in some appreciable and clear way towards the accomplishment of some one of the purposes which the Legislature has the right to accomplish under the exercise of the police power. It must not be exercised ostensibly in favor of the promotion of some such object while really it is an evasion thereof and for a distinct and totally different purpose, and the courts will not be prevented from looking at the true character of the act as developed by its provisions by ariy statement in the act itself or in its title showing that it was ostensibly passed for some object within the police power. The court must be enabled to see some clear and real connection between the assumed purpose of the law and the actual provisions thereof, and it must see that the latter do ten? in some plain and appreciable manner towards the accomplishment in some of the objects for which the Legislature may use this power. Assuming that this act is a proper exercise of the power in its general features we do not think that it can be regarded as invalid because of the fact that it will cost money to comply with the order of the bcard for which the owner is to receive no compensation or beoese the board is entitled to make the 608 order under the provisions of the act without notice to and a hearing of the defendant. As to the latter objection it may be said that in enacting what shall be done by the citizen for the purpose of promoting the public health and safety it is not usually necessary to the validity of legisilation upon that subject that he shall be heard before he is bound to comply with the direction of the Legislature. People v. Board of Health, 140 N. Y. 1, 6.) The Legislature has power and has exercised it in countless instances to enact general `aws upon the subject of the public health or safety without providing that the parties who are to be affected by those laws shall first be heard before they shall take effect in any particular case. So far as this objection of want of notice is concerned the case is not materially altered in principle from what it would have been if the Legislature had enacted a general law that all owners of tenement-houses should, within a certain period named in the act, furnish the water as directed. Indeed, this act does contain such a provision, but the plaintiff has not proceeded under it. If in such case the enforcement of the direct command of the Legislature were not to be preceded by any hearing on the part of any owner of a tenement-house, no provision of the State or Federal Constitution would be violated. The fact that the Legislature has chosen to delegate a certain portion of its power to the board of health, and to enact that the.owners of certain tenement-houses should be compelled to furnish this water after the board of health had so directed, would not alter the principle, nor would it be neceosary to provide that the board should give notice and afford a hearing to the owner before it made such order. I have never understood that it was necessary that any notice should be given under such circumstances before a provision of this nature could be carried out, As to the other objection, no one would contend that the amount of the expenditure which an act of this kind may cause, whether with or without a hearing, is within the abso. lute discretion of the Legislature. It cannot be claimed that it would have the right, even. under the exercise of the police power, to command the doing of some act by the owner of property and for the purpose of carrying out some provision of law, which act could only be performed by the expenditure of a large and unreasonable amount of money on the part of the owner. If such excessive demand were made the act would without doubt violate the constitutional rights of the individual. The exaction must not alone be reasonable when compared with the amount of the work or the character of the 609 improvement demanded. The improvement or work must in itself be a reasonable, proper and fair exaction when considered with reference to the object to be attained. If the expense to the individual under such circumstances would amount to a very large and unreasonable sum, that fact would be a most material one in deciding whether the method or means adopted for the attainment of the main object were or were not an unreasonable demand upon the individual for the benefit of the public. Of this the courts must, within proper limits, be the judges. We may own our property absolutely, and yet it is subject to the proper exercise of the police power. We have surrendered to that extent our right to its unrestricted use. It must be so used as not improperly to cause harm to our neighbor, including in that description the public generally. There are sometimes necessary expenses which inevitably grow out of the use to which we may put our property, and which we must incur, either voluntarily or else under the direction of the Legislature, in order that the general health, safety or welfare may, be conserved. The Legislature, in the exercise of this power, may direct that certain improvements shall be made in exist* ing houses at the owners' expense, so that the health and safety of the occupants, and of the public through them, may be guarded. These exactions must be regarded as legal so long as they bear equally upon all members of the same class, and their cost does not exceed what may be termed one of the conditions upon which individual property is held. It must not be an unreasonable exaction either with reference to its nature or its cost. Within this reasonable restriction the power of the State may, by police regulations, so direct the use and enjoyment of the property of the citizen that it shall not prove pernicious to his neighbors or to the public generally. The difference between what is and what is not reasonable, frequently constitutes the dividing line between a valid and void enactment by the Legislature in the exercise of its police power. In commenting on the difference of degree in any given case which would render an act valid or otherwise, Mr. Justice Holmes, in Rideout v. Knox, speaking for the Supreme Court of Massachusetts, said: "It may be said that the difference is only one of degree; most differences are when nicely analyzed. At any rate, difference of degree is one of the distinctions by which the right of the Legislature to exercise police power is determined. Some small limitations of previously-existing rights incident to property may be imposed for the sake of preventing a manifest evil; larger ones could not be, except by the exercise of the right of emiT. 77 610 ment domain." (148 Mass. 368, 372. See, also, Miller v. Horton, 152 id. 540, at 547.) The case of Stuart v. Palmer (74 N. Y. 183) is an exanmple of the exercise of the taxing power of the State and other considerations obtain in such cases. Laws and regulations of a police nature, though they may disturb the enjoyment of individual rights, are not unconstitutional, though no provision is made for compensation for such disturbances. They do not appropriate private property for public use, but simply regulate its use and enjoyment by the owner. If he suffers injury, it is either damnum absque injuria, or, in the theory of the law, he is compensated for it by sharing in the general benefits which the regulations are intended and calculated to secure. (1 Dillon on Mun. Corp. [4th ed.] sec. 141 and note 2; Coin. v. Alger, 7 Cush. 83, 84, 86; Baker v. City of Boston, 12 Pick. 183, 193; Clark v. Mayor of Syracuse, 13 Barb. 32, 36.) The State, or its agent in enforcing its mandate, takes no property cf the citizen when it simply directs the making of these improvements. As a result thereof the individual is put to some expense in complying with the law, by paying mechanics or other laborers to do that which the law enjoins upon the owner, but so long as the amo-unt exacted is limited as stated, the property of the citizen has not been taken in any constitutional sense without due process of law. Instances are numerous of the passage of laws which entail expense on the part of those who must comply with them and where such expense must be borne by them without any hearing or compensation because of the provisions of the law. (Thorpe v. R. R. Co., 27 Vt. 140-152.) One of the late instances of this kind of legislation is to be found in the law regulating manufacturing establishments. (Laws of 1887, ch'ap. 462.) The provisions of that act could not be carried out without the expenditure of a considerable sum by the owners of a then existing factory. Hand-rails to stairs, hoisting shafts to be inclosed, automatic doors to elevators, automatic shifters for throwing off belts or pulleys, and fire-escapes on the outside of certain factories, all these were required by the Legislature from such owner and without any direct compensation to him for suich expenditure. Has the Legislature no right to enact laws such as this statute regarding factories unless limited to factories to be thereafter built? Because the factory was already built when the act was passed, was it beyond the legislative power to provide such safeguards to life and health as against all owners of such property unless upon the condition that these expenditures to be incurred should ultimately come out of the public purse? I think to so hold would be to run counter to the general course 611 of decisions regairding the validity of laws of this character and to mistake the foundation upon which they are placed. (Coates v. Mayor, etc., 7 Cowen, 584, 604; Cooley's Const. Lim. [5th ed.] chap. 16, page 706, etc.) Any one in a crowded city who desires to erect a building is:abject at every turn to the exactions of the law in regard to provision for health, for safety from fire and for other purposes. He is not permitted to build of certain materials within certain districts because, though the materials may be inexpensive, they are inflammable, and he must build in a certain manner. Theaters and hotels are to be built in accordance with plans to be inspected and approved by the agents of the city; other public buildings also; and private dwellings within certain districts are subject to the same supervision, and in carrying out all these various acts the owner is subjected to an expense much greater than would have been necessary to have completed his building, if not compelled to complete it in the manner, of the materials and under the circumstances prescribed by various acts of the Legislature. And yet he has never had a hearing in any one of these cases, nor does he receive any compensation for the increased expense of his building, rendered necessary in order to comply with the police regulations. I do not see that the principle is substantially altered where' the case is one of an existing building and it is to be subjected to certain alterations for the purpose of rendering it either less exposed to the dangers from fires or its occupants more secure from disease. In both cases the object must be within some of the acknowledged purposes of the police power and such purpose must be possible of accomplishment at some reasonable cost, regard being had to all the surrounding circumstances. There might at first seem to be some difference as to the principle which obtained in enacting conditions upon complying with which the owner might be permitted to erect a structure within the limits of a city or village or for certain purposes, and the enactment of provisions which would necessitate the alteration of structures already in existence. In the first case it might be urged that the discretion of the Legislature in enacting conditions for building might be more extensive, because the owner would be under no necessity of building; it would be a matter of choice and not of compulsion, and in choosing to build it might be said that he accepted the condition, while in the second case he would have no choice and would be compelled to alter or improve the existing building as directed by the law. The difference, however, is, as it seems to me, really not one of principle, but only of circumstances. Although 612 the owner in the one case is not compelled to build, yet he is limited in the use to which he may put his property by the provisions of the law. He can not build as he wishes to, unless upon the condition of a compliance with the law, and he may very probably be so situated as to location of property, and in other ways, that it is really a necessity for him to use his property in the way proposed, and which he can not do without expending considerable sums above what he otherwise would be called upon to do in order to comply with those proviaions. They must, therefore, be reasonable, as already stated. When one's use of his property is thus circumscribed and limited, what might otherwise be called his rights are plainly interfered with, and the justification therefor can only be found in this police power. So, when the owner of an existing structure is called upon to make such alterations, while the necessity may seem to be more plainly present, still it may exist in both cases, and the only justification in either is the same, Under the police power persons and property are subjected to all kinds of restraints and burdens in order to secure the general comfort and health of the public. The citizen can not, under this act, be punished in any way, nor can any penalty be recovered from him for an alleged noncomphiance with any of its provisions or with any order of the board of health without a trial. The punishmuent or penalties provided for in section 665 can not be enforced without a trial under due process of law, and upon such trial he has an opportunity to show whatever facts wo4d constitute a defense to the charge; to show, in other words, that he did not violate the statue or the order of the board. He might show that the house in question was not a tenement-house within the provision of the act, or that there was a supply of water as provided for by the act, or any other fact which would show that he had not been guilty of an offense with regard to the act. (City of Salem v. R. R Co., 98 Mass. 431, 447.) The mere fact, however, that the law can not be enforced without causing expense to the citizen who comes within its pro. visions furnishes no constitutional obstacle to suich enforcement even without previous notice to and a hearing of the citizen. What is the propriety of a hearing and what would be its purpose? His property is not taken without due process of law, within any constitutional sense when the enforced compliance with certain provisaons of the statute may result in some reasonable expense to himself. Any defense which he may have is available upon any attempt to punish him or to enforce the provisions of the law. 613 An act of the Legislature of Massachusetts which provided that every building in Boston used as a dwelling-house, situated on a street in which there was a public sewer, should have sufficient water-closets connected therewith, was held valid as to existing houses and applied in its penalties to their owneirs, if such houses continued without the closets after its passage. (Commonwealth v. Roberts, 155 Mass. 281, and see Train v. Disinfecting Co., 144 id. 529.) No notice or hearing was provided for in the above statute as to water-closets before the act could be enforced, and yet to enforce it would, of course, cost the owner of the building some money. The same may be said as to the disinfecting of the rags, in above case in 144 Mass. If 1he citizen be charged with any violation of such a statute, and any penalty or punishment is sought or attempted, then is the time for a hearing and then is the time he can make defense if any he may have. But to assert that he must be heard before the authorities assume or endeavor to act under and to enforce the law as against him, is to say, in substance, that each citizen is to be heard upon the general question whether it is right to enforce the law in his particular case. This is not to be permitted. (Co0i. v. Alger, 7 Cush. 53, 104; City of Salem v. R. R. Co., 98 Mass. 431, 443.) Everything that the individual could urge upon the hearing if given prior tc the attempted enforcement of the act by the making of the order in question can be said by him when he is sued, or when the attempt is made to punish him for the alleged violation of the law. Upon the prior hearing, if granted, it would be no defense to him if he showed that the law could not be complied with unless at some reasonable expense to himself. That would have been matd ter to urge upon the Legislature prior to the enactment of the statute, as a question of reasonable cost and of public policy. (R. R. Co. v. Comn., 79 Me. 386, 393; The State v. R. R. Co., 83 Mo. 144-149; Thorpe v. R. R., 27 Vt. 140, 149, 156, note.) We do not think that the cost of making the improvements called for by this act exceeds the limits which have been defined, assuming the amount thereof which the defendant offered to prove. This is not the case of a proceeding against an individual on the ground of the maintenance of a nuisance by him, nor is it the case of an assumed right to destroy an alleged nuisance without any other proof than the decision of the boar' itself (with or without a hearing) tha:t the thing condemned was a nuisaice. Nor is it the case of the destruction of property which is in fact a nuisance, without compensation. 614 When property of an individual is to be condemned and abated as a nuisance it must be that somewhere betwen the institution of the proceedings and the final result the owner shall be heard in the courts upon that question, or else that he shall have an opportunity when calling upon those persons who destroyed his property to account for the same, to show that the alleged nuisance was not one in fact. No decision of a board of health, even if made on a hearing, can conclude the owner upon the question of nuisance. (People, ex rel. v. Board of Health of Yonkers, 140 N. Y. 1; Board of Health, etc., v. Copcut, id. 12; Miller v. Horton, 152 Mass. 540; Hutton v. City of Camden, 39 N. J. Law, 122.) We are, therefore, of the opinion that the act, if otherwise valid, is not open to the objection that it violates cither the Federal or State Constitution in the way of depriving the defendant of its property without due process of law. We think the act is valid as an exercise of the police power with respect to the public health, and also with respect to the public safety regarding fires and their extinguishment. We can not say, as a legal proposition, that it tends only to the convenience of the tenants in regard to their use of water. We can not say that it has no fair, and plain, and direct tendency towards the promotion of the public health or towards the moix speedy extinguishment of fires in crowded tenementhouses. That the free use of water, especially during the summer months, tends towards the healthful condition of the body by reason of the increased cleanliness occasioned by such use, there can be no reasonable doubt. The supply of water to the general public in a city has become not only a luxury, but an absolute necessity for the maintenance of the public health and safety. The city of New York itself has spent millions upon millions of dollars for the purpose of securing this great boon for the inhabitants thereof. The right of eminent domain in the taking of land around the sources of the water supplyi has been granted to and exercised by that city to a very large extent, so that all sources of supply of this vital necessity of life should be rendered as free from contamination und danger to health and life as it possibly could be. This use of the water is not confined, so far as the necessities of the case are concerned, to the public hydrants. The water is brought into the city so that it may be used in every house and bpilding within its limits, and, although we may, and, indeed, must admit that no health law coluld practically be enforced which should provide that every individual inhabitant of the tenement-houses should use the water, yet we think it is perfectly clear that facili 615 ties for the use of the water will almost necessarily be followed by its actual use in larger quantities and more frequently than would be the case without such facilities, and to the great benefit of the health of the occupants of such houses. Those occupants require it more, even, than their more favored brethren living in airy, larger, more spacious and luxurious apartmients. Their health is matter of grave public concern. The Legislature can not in practice enforce a law so as to make a man wash himself; but when it provides facilities therefor, it has taken a long step towards the accomplishment of that object. That dirt, filth, nastiness in general, are great promoters of disease, that they breed pestilence and contagion, sickness and death, can not be successfully denied. There is scarcely a dissent from the general belief on the part of all who have studied the disease that cholera is essentially a filth disease. The so-called ship fever or jail fever arises from filth; most diseases are aggravated by it. That opportunities, conveniences for the use of water in these tenement-houses will unquestionably tend towards and be followed by more cleanly living on the part of the occupants of those houses can not, it seems to me, admit of any rational doubt; and, if so, then the law which provides at a reasonable cost for the furnishing of such facilities is plainly and honestly a health law. The learned counsel for the defendant asks where this kind of legislation is to stop. Would it be contended that the owners of such houses could be compelled to furnish each room with a bath-tub and all the appliances that are to be found in a modern and well-appointed hotel? Is there to be a batfh-room and watercloset to each room and every closet to be a model of the very latest improvement? To which I should answer, certainly not. That would be so clearly unreasonable that no court in my belief could be found which would uphold such legislation, and it seems to-me equally clear ftat no legislature could be found that would enact it. The tennemnt-house in New York is a subject of very great thought and anxiety to the residents of that city. The numbers of people that live in such houses, their size, their ventilation, their cleanliness, their liability to fires, the exposure of their occupants to contagious diseases, and the consequent spread of the contagion through tihe city and the country, the tendencies to immorality and crime where there is very close packing of human be'ngs of the lower order in intelligcnce and morals, all these are subjects which muist arouse the attention of the legislator and which it behooves him to see to in order that such laws are enacted as shall directly tend to the improvement of the health, safety and morals of those men and women that are to be found in such hoeuss. Some legislation upon this subject .616 can only be carried out at the public expense, while some may be properly enforced at the expense of the owner. We feel that we ought to inspect with very great care any law in regard to tenement-houses in New York and to hesitate before declaring any such law invalid so long as it seems to tend plainly in the direction we have spoken of and to be reasonable in its provisions. If we can see that the object of this law is without doubt the promotion or the protection of the health of the inmates of these houses or the preservation of the houses themselves and consequently much other property from loss or destruction by fire, and if the act can be enforced at a reAsonable cost to the owner, then in our opinicn it ought to be sustained. We believe this statute fulfills these conditions. We think that in this case it is not a mere matter of convenience of the tenants as to where they shiall obtain their supply of water. Simple convenience we admit would not authorize the passage of this kind of legislation. But where it is obvious that without the convenience of an appliance for the supply of water on the various floors of these tenement-houses, there will be scarcely any but the most limited and scanty use of the water itself, which must be carried from the yards below, and when we must admit that the free use of water tends directly and immediately towards the sustaining of the health of the individual and the prevention of disease from filth either of the person or in the surrounding habitation, then we must conclude that it is more than a mere matter of convenience in the use of water which is involved in the decision of this case. The absence of the water tehds directly towards the breeding of disease, and its presence is healthful and humanizing. Looked at in the light of a fire law, and the act is also valid. The section of the Consolidation Act in question belongs to titl] 7, which treats of tenement and lodging-houses, and various pro. visions are made in the preceding sections locking towards thce prevention and the prompt extinguishment of fires, as well as towards the protection and promotion of the health of the occu pants of such houses. And it seems to me that the facility for the extinguishment of fires which would result from the presence of a supply of water on each floor of these houses is plain, and the act must be looked upon as a means for securing such an important result. We are inclined, therefore, to the belief that the act may be upheld under both branches alike as a health law and as one calculated to prevent destruction of property from fires which might otherwise take place. The act is somewhat vague as to what shall be regarded as a sufficient quantity of water on each floor, but it must have 617 In this respect as in others a reasonable construction, and when an appliance for its supply is placed on a floor where it might be open and common to all those on that floor, and easy of access, and the supply sufficient in amount for general domestic purposes, then and in such case there woluld be a full compliance with the provisions of the act. Some criticism is made in regard to the wording of the order of the board of health. The order directed that suitable appliances to receive and distribute a supply of water for domestic use should be provided at these various houses, and it is claimed that there is no language in the act which requires appliances for the distribution of water, nor that the water shall be furnished for domestic use. The act provides that the water shall be furnished in sufficient quantity at one or more places on each floor occupied or intended to be occupied by one or more families. This necessarily requires some appliance for that purpose. The statute must also mean that the wlater is to be provided for the use of the one or more families that are to be occupants of the floor, and that must include a sufficient quantity of water for domestic purposes. The provision in the law that the water shall be furnished in sufficient quantities at one or more places on each floor can not be so construed as to leave the number of places of supply enitirely to the discretion of the board of health. As the water is to be supplied in sufficient quantity for domestic and not for manufacturing purposes, when that point is reached the law is satisfied. Looking at the purpose of the supply, it is, as I have said, reasonably apparent that one such place on each floor, fairly accessible to all the occupants of the floor, would be all that could usually and reasonably be required, and anything further would be unreasonable, and, therefore, beyond the power of the board to order. The facilities thus given would at the same time furnish the means necessary for obtaining water to extinguish such fires as might accidentally break out and before they had obtained such headway as to render necessary the aid of the fire department. This is clearly a most important safeguard. The question alluded to in the brief of the respondent's counsel, whether the penalties might not be said to have commenced running immediately after the passage of the amended act of 1887, because of the provision requiring all tenement houses to be supplied with suitable appliances before January 1, 1889, and so have amounted to a confiscation of property, is not before us, as the proceeding herein was to recover only those incurred since the order was made by the board. If such a case arises where T. 78 618 enalties so enormous in amount are claimed, there will probably e not much difficulty in refusing enforcement under the circumstances of that case. Upon the whole we think the order of the General Term of the Court of Common Pleas should be reversed, and the judgment of the trial court affirmed, with costs. Dissenting Opinion. Bartlett, J. (dissenting). I am unable to discover the limit of legislative power if this act is to stand. Upon the face of the proceeding it is not an exercise of the police power to promote the safety of property by the prevention of fire. The order of the health department served upon the defendant directs that suitable appliances "to receive and distribute a supply of water for domestic use be provided," on certain floors in the houses named. The act provides that tenement-houses "shall have Croton or other water furnished in sufficient quantities at one or more places on each floor," etc. The order undertakes to construe the act and requires the landlord to distribute a supply of water for domestic use on each floor. The board of health is not confined to compelling one place on each floor at which water may be obtained, but the act reads "one or more places on each floor;" so that it is left with the board of health to determine how many water faucets upon each floor shall be provided by the landlord for the use and convenience of his tenants. In other words, the Legislature seeks to vest in one of the departments of the city government the power to decide the extent of the plumbing in tenementhouses for Croton water purposes. It must, of course, be admitted that water is essential to the public health, and more particularly in crowded tenement districts. It would undoubtedly be a legitimate exercise of the police power to compel the introduction of water into tenement-houses at some convenient point, where all the tenants could obtain an adequate supply, and it may be that the Legislature could go so far as to require a faucet upon each floor ofthe large tenementhouses, in the public hall, in order to encourage the free use of water, by enabling the tenants to procure it without too great exertion, but certainly it can not be possible that, the Legislature may leave the number and location of faucets on each floor for the domestic use of water to be determined by the board of 619 health. There is no limitation as to whether the faucets shall be in the public hall or in the room of the tenant. To my mind, such an exercise of the police power is spoliation and confiscation under the forms of law; it deprives the landlord of the control of his property and leaves it to a stranger to decide in what manner the house shall be plumbed. It is a direct interference with the right of the landlord to regulate the rental value of his property. It is a maitter of common knowledge that in rented apartments in the city of New York the convenience and volume of the water supply is regulated by the rental value of the premises, and that in the cheap tenement districts the convenience of the tenants is not and can rot be consulted to the same extent as in first-class localities. The vice of the act we are considering lies in the fact, already pointed out, that it is too general in its terms and clothes the health department with unlimited and undefined powers. If it be the legislative intent to compel the introduction of a more abundant supply of water into tenement-houses, either to promote the public health or to provide for the timely extinguishment of fires, I think this very proper exercise of the police power should be manifested in an act containing details and limitations, so that capitalists may understand the burdens imposed upon tenement property, and decide, with a full knowledge of the facts, whether they care to embark their money in that class of buildings. This court has held (Matter of Jacobs, 98 N. Y., 108) that the limit of police power "can not be accurately defined, and the courts have not been able or willing definitely to circumscribe it." Each case must be decided very largely on its own facts. A sound public policy certainly dictates that at this time, when the rights of property and the liberty of the citizen are sought to be invaded by every form of subtle and dangerous legislation, the courts should see to it that those benign principles of the common law which. are the shield of personal liberty and private property suffer no impairment. I think the judgment should be affirmed, with costs. All concur with Peckham, J., for reversal, except Bartlett, J., who reads for affirmance. Judgment reversed. POSTSCRIPT No. 2. LAWS OF 1895. [Every law, unless a different time shall be prescribed therein, shall not take effect until the twentieth day after it shall have become a law. Section 48, article II, chapter 8 of the General Laws.] CHAIPTE;R 69. AN ACT to amend chapter three hundred and twenty of the laws of eighteen hundred and eighty-seven, entitled "An act to provide for the location, acquisition, construction and improvement of additional public parks in the city of New York." Accepted by the city. Became a law March 4, 1895, with the approval of the Governor.. Passed, three-fifths being present. The People of the State of New York, representd in Senate and Assembly, do enact as follows: Section 1. Section ten of chapter three hundred and twenty of the laws of eighteen hundred and eighty-seven, entitled "An act to provide for the location, acquisition, construction and improvement of additional public parks in the city of New York," is hereby amended so as to read as follows: ~ 10. For the payment of all expenses to be incurred, under the authority of this act, including the damages awarded and expenses incurred upon the acquisition of land and of estates and interests therein, and the construction of said parks, and the erection and furnishing of buildings therein, the comptroller of the city of New York shall issue, from time to time, bonds or stock of the mayor, aldermen and commonalty of the city of New York, to be payable from taxation and redeemable in not less than ten nor more than thirty years from the date of issue, in such amounts as shall be necessary to carry out the purposes of this act, and the mayor and comptroller are hereby authorized and directed to sign said bonds, and it shall be the duty of the clerk of the common council of said city to countersign the same and to affix thereto the seal of the said city. Said bonds shall bear interest at a rate to be fixed by the comptroller, not exceeding four per centum per annum, and shall not be disposed of at less than the par value 622 thereof. But no contract shall be entered into or liability incurred for the construction of any of said parks, or for the erection of any building therein, until the plans for such construction or erection, and in the case of a building an estimate of the cost thereof, shall have been prepared by the department of public parks, and submitted to and approved by the board of estimate and apportionment of said city. But no more than the sum of one million of dollars shall be expended or authorized to be expended in any one year under the provisions of this act; except that there may be issued in addition to said sum of one million of dollars in each year, such additional bonds or stocks as above mentioned, of the mayor, aldermen and commonalty of the city, of New York, as may be necessary to pay the expenses of the construction, completion and acquisition of the land and of estates and interest therein, and of the construction of the parks hereinafter named and of the erection and furnishing of buildings therein, to wit: The park commonly called Mulberry Bend park, being a tract of land bounded by Mulberry, Park, Bayard and Baxter streets in the sixth ward of the city of New York; Saint John's park in the ninth ward in said city, and the park commonly called the East river extension park, being the land bounded on the west by Avenue B, on the north and east by the Harlem and East rivers, and on the south by East Eighty-sixth street, all in the city of New York. ~ 2. This act shall take effect immediately. CHAPTER 293. AN ACT to provide for the location, acquisition, construction and improvement of additional public parks in the city of New York, and for the construction therein of schoolhouses, school playgrounds and municipal baths. Accepted by the city. Became a law April 11, 1895, with the approval of the Governor. Passed, three-fifths being present. The People of the State of New York, represented in Senate and Assembly, do enact as fellows: Section 1. The board of street opening and improvement of the city of New York, is hereby authorized and empowered to select, locate and lay out, in the manner provided by chapter three hundred and twenty of the laws of eighteen hundred and eighty-seven, within three years after the passage of this act, so many public parks, to be finished in part as public playgrounds, 4n the city of New York as it may deem necessary, but not less 623 than two in number, to be bounded by public streets now existing in the district east of the Bowery and Catharine street, and south of Fourth. street in said city, and to acquire the title to the lands embraced therein. And the department of public parks of the city of New York is hereby directed to commence the construction of said public parks so to be selected, located and laid out within the same period of time. ~ 2. At the time of the construction of said parks or at any time thereafter, the department of public parks of the city of New York, may construct, in connection with the said parks and upon a povtion thereof, municipal baths. ~ 3. Said parks may be located on blocks also containing public schoolhouses, and at the time of the construction of said parks or at any time thereafter, the board of education of the city of New York may, with the permission of the department of public parks and of the board of estimate and apportionment, construct upon a portion of such public parks, schoolhouses and school playgrounds. ~ 4 For the payment of all expenses to be incurred under the authority of this act, including the damages awarded and expenses incurred upon the acquisition of land and estates and interests therein and the construction of said parks and the erection and furnishing of buildings thereon, the comptroller of the city of New York is hereby authorized and directed to issue from time to time bonds or stocks of the mayor, aldermen and commonalty of the city of New York to be payable from taxation and redeemable in not less than ten or more than thirty years from the date of issue in such amounts as may be necessary to carry out the purposes of this act, bult not exceeding in all the sum of three millions of dollars; and the mayor and comptroller are hereby authorized and directed to sign such bonds, and it shall be the duty of the clerk of the common council of said city to countersign the same and affix thereto the seal of the said city. Said bonds shall bear interest at a rate to be fixed by the comptroller, not exceeding four per centum per annum, and shall not be disposed of at less than the par value thereof. ~ 5. Whenever and as often as any site may be so as aforesaid selected, located and laid out as hereinbefore provided, the title to the lands embraced therein and all interests in said lands shall be acquired by the mayor, aldermen and commonalty of the city of New York and the same proceedings shall be had therefor as are provided for the acquisition of real estate and interests therein by chapter three hundred and twenty of the laws of eighteen hundred and eighty-seven, with like effect. ~ 6. This act shall take effect immediately. 624 CHAPTER 338. AN AOT to provide for open-air playgrounds in connection with schoolhouses in the city of New York. Became a law April 1', 1895, with the approval of the Governor. Passed, three-fifths being present. The People of the State of New York, represented in Senate and Assembly, do enact as follows: Section 1. Hereafter no schoolhouse shall be constructed in the city of New York without an open-air playground attached to or used in connection with the same. ~ 2. This act shall take effect immediately. CHAPTER 567. AN ACT to amend chapter four hundred and feen of the laws of eighteen hundred and eighty-two, entitled "An act to consolidate into one act and to declare the special and local laws affecting public interests in the city of New York," as subsequently amended by chapter eighty-four of the laws of eighteen hundred and eighty.-seven, and chapter two hundred and eighty-eight of the laws of eighteen hundred and eighty-seven, and chapter two hundred and- seventy-five of the laws of eighteen hundred and ninety-two, and otherwise so as to pro. vide for the improvement of tenesenwt and lodging-houses in the city of New York. Became a law May 9, 1895, with the approval of the Governor. Passed, three-fifths being present. The People of the State of New York, represented in Senate and Assembly, do enact as follows: Section 1. Section two hundred and ninety-six of chapter four hundred and ten of the laws of eighteen hundred and eightytwo, entitled "An act to consolidate into one act and to declare the special and local laws affecting public interests in the city of New York," as amended by chapter eighty-four of the laws of eighteen hundred and eighty-seven, in relation to the powers, duties and health fund of the board of health, and of the health department of the city of New York, and for the preservation of the public health, is hereby amended so as to read as follows: ~ 296. The board of police, upon the requisition of the board of health, shall detail to the service of the said board of health, 625 for the purpose of the enforcement of the provisions of the sauitary code, and of the acts relating to tenement and lodginghouses, at least fifty suitable officers and men of experience of at least five years' service in the police force, provided that the board of health shall pay monthly to the board of police a sun equal to the pay of all officers and men so detailed. At least twenty of the officers and men so detailed shall be employed exclusively in the enforcement of the laws relating to tenement and lodging-houses. These officers and men shall belong to the sanitary company of police and shall report to the president of the board of health. The board of health may report back to the board of police for punishment any member of said company guilty of any breach of orders or discipline, or of neglecting his duty, and thereupon the board of police may detail another Jolfficer or man in his place, aund the discipline of the said members of the sanitary company shall be in the jurisdiction of the board of police, but at any time the board of health may object to the efficiency of any member of said sanitary company, and "thereupon another officer or man may be detailed in his place. The board of police shall have the power, and it shall be their duty to fill all vacancies in the police force in the city caused bVy the detailing of said officer and men upon the requisition of the boared of health. And the board of police are hereby authorized and empowered to appoint twenty-five additional men to the police force subject to all the law, rules and regulations relating to and governing the appointment of patrolmen in) said city; and thle officers thus detailed to the service of the said board of health shall be selected for their peculiar fitness from amongst those who shall pass a civil service examination conducted by the supervisory board of commissioners of the Now York municipal civil service. ~ 2. Section five hundred and thirty-three of said act, as amended by chapter eighty-four of the laws of eighteen hundred and eighty-seven, is hereby amended so as to read as follows: ~ 533. The authority, duty and powers of the board of health shall extend over the waters of the bay, up to and within the quarantine limits, as established by law, but shall not be held to interfere with the powers and duties of the commissioners of quarantine or health officer of the port. It shall be the duty of the board of health to make an annual report to the mayor of the city of New York of all the operations of the sail board for the previous year. The mayor may at any time call for a more foll report, or for a report upon any portion of the work of said board whenever he may deem it to be for the publie good so to do6 T. 79. 626 ~ 3. Section five hundred and eighty-eight of said act, as amended by chapters eighty-four and four hundred and eightyLine of the laws of eighteen hundred and eighty-seven, is hereby amended so as to read as follows: 5 588. Said board shall appoint and commission at least thirtyli:' sanitary inspectors, and shall have power to appoint five additional sanitary inspectors, if it deems that number needful, and from time to time prescribe the duties and salaries of each of said inspectors, and the place of their performance and of all other persons exercising any authority under said board, except as herein specially provided; but twenty of such inspectors shall be physicians of skill and of practical professional experience in said city; the additional sanitary inspectors heretofore duly appointed and commissioned may be included among the sanitary inspectors imentioned in this section, and may continue to act as such without reappointment, but nothing herein contained shall curtail any of the powers vested in the health department by section five hundred and eighty of this act, and the number of sanitary inspectors for whom provision is made in this section shall be exclusive of the special inspectors for whom provision is made in section five hundred and eighty. All of the said inspectors shall have such practical knowledge of scientific or sanitary matters as qualify them for the duties of their office. Each of such inspectors shall, twice in each week, nrake a written report to said board stating what duties lie has performed, and where he has performed them, and also such facts as have come to his knowledge connected with the purposes of this chapter as are by him deemed worthy of the attention of said board, or such as its regulations may require of him; which reports, with the other reports herein elsewhere mentioned, shall be filed among the records of the said board. ~ 4. Section six hundred and fifty-four of said act is hereby amended so as to read as follows:. 654. I1 shall not be lawful without a permit from the superintendent of buildings to construct, during the erection of a tenement or lodging-house, nor after the completion of such tenement or lodging-house, any room or rooms in any basement or cellar to be occupied wholly or in part as a dwelling, nor shall it be lawful without a permit from the board of health, to let or occupy, or suffer to be occupied separately as a dwelling, any vault, cellar, or underground room built or rebuilt after July first, eighteen hundred and sixty-seven, or which shall not have been so let or occupied before said date. It shall not be lawful, without such permit, to let or continue to. be let, or to occupy or suffer to be occupied separately as a 627 dwelling, any vault, cellar, basement, or room wholly or in part underground, unless the same be in every part thereof at least seven feet in height, measured from the floor to the ceiling thereof, nor unless the same be for at least two feet of its height above the surface of the street or ground adjoining or nearest to the same, nor unless there be outside of and adjoining the said vault, cellar, room, or basement, and extending along the entire frontage thereof, and upwards from six inches below the level of the floor thereof, up to the surface of the said street or ground' an open space of at least two feet and six inches wide in every part, noir unless the same be well and effectually drained by means of a drain, the uppermost part of which is one foot at least below the level of the floor of such vault, cellar, or room, nor unless there is a clear space of not less than one foot below the level of the floor, except where the same is cemented, nor unless there be appurtenant to such vault, cellar, or room, the use of a water-closet or privy kept and provided as in this title required; nor unless the same have an external window opening of at least nine superficial feet clear of the sash frame, in which window opening there shall be fitted a frame filled in with glazed sashes, at least four and a half superficial feet of which shall be made so as to open for the purpose of ventilation. Provided, however, that in the case of an inner or back vault, cellar, or room, let or occupied along with a front vault, cellar, or room, as part of the same letting or occupation, it shall be a sufficient compliance with the provisions of this section if the front room is provided with a window as hereinbefore provided, and if the said back vault, cellar or room is connected with the front vault, cellar or room, by a door, and also by a proper ventilating or transom window, and, where practicable, also connected by a proper ventilating or transom window, or by some hall or passage communicating with the external air. Provided always that in any area adjoining a vault, cellar, undierground room, or basement, there may be steps necessary for access to such vault, cellar, or room, if the same be so placed as not to be over, across, or opposite to the said external window, and so as to allow between every part of such steps and the external wall of such vault, cellar or room, a clear cpace of six inches at least, and if the rise of said steps is open; and provided further that over or across any such area there may be steps necessary for access to any building above the vault, cellar or room to which such area adjoins, if the same be so placed as not to be over, across or opposite to any such external window. ~ 5. Section six hundred and fifty-six of said act is hereby amended so as to read as follows: 628 ~ 656. Every tenement or lodging-house shall have the proper and suitable conveniences or receptacles for receiving garbage and other refuse matters. No tenement or lodging-house, nor any portion thereof, shall be used as a place of storage for any combustible article, or any article dangerous to life or detrimental to health; nor shall any horse, cow, calf, swine, pig, sheep, or goat be kept in said house. After the first day of September, eighteen hundred and ninety-five, no bakery or place of business in which fat is boiled shall be maintained in any tenement-house which is not fire-proof, or where the ceiling and side Wall 3 of place where said fat boiling is done are made safe by fire-proof material around the same, except by permit of and under such conditions as may be prescribed by the fire department, and after the first day of September, eighteen hundred and ninety-five, no part of any tenement-house shall be used for the storage of feed, hay or straw, except by permit of and under such conditions as may be prescribed by the fire department. After the first day of September, eighteen hundred and ninetyfive, all transoms, windows, doors and other openings leading into halls or into rooms opening into, halls from bakeries or places of business in which fat is boiled in the basements, cellars, or on the first floors of all tenement-houses in the city of New York, shall be solidly closed with the same material as the walls or partitions in which the openings exist so that there shall be no opening between said baleries or other places of business of said floor in which fat is boiled and the other parts of the tenement-house in which the same shall be situated. After the first day of September, eighteen hundred and ninety-five, all transoms and windows opening into halls from any portion of said floor of any tenementhouse where paint, oil, spirituous liquors or drugs are stored or kept for the purpose of sale, or otherwise, shall be removed and closed up as solidly as the rest of the wall; and all doors leading into any such hall or room from such portion of said floor of said tenement-house used as aforesaid, shall be made fire-proof. S 6. Section six hundred and fifty-seven of said act, as amended by chapter eighty-four of the laws of eighteen hundred and eighty-seven, is hereby amended so as to read as follows: ~ 657. No wall paper shall be placed upon a wall or ceiling of any tenement or lodging-house, unless all wall paper shall be first removed therefrom and said wall and ceiling thoroughly cleaned. Every tenement or lodging-house, and every part thereof shall be kept clean and free from any accumulations of dirt, filth, garbage or other matter in or on the same, or in the yard, court, passage, 629 area or alley connected with it or belonging to the same. The owner or keeper of any lodging-house, and the owner or lessee of any tenement-house or part thereof, shall thoroughly cleanse all the rooms, passages, stairs, floors, windows, doors, walls, ceil. ings, privies, cess-pools and drains of the house or part of the house of which he is the owner or lessee, to the satisfaction of the board of health, so often as he shall be required by or in accordance with any regulation or ordinance of said board, and shall well and sufficiently, to the satisfaction of the said board, whitewash the walls and ceilings thereof twice at least in every year, in the months of April and October, unless the said board shall otherwise direct. Every owner of a tenement or lodging. house and every person having control of a tenement'or lodginghouse, shall file in the department of health a notice containing his name and address, and also a description of the property by street number or otherwise, as the case may be, in such manner as will enable the board of health easily to find the same; and also the number of apartments in each house, the number of rooms in each apartment, the number of families occupying each apartment, and the trades or occupations carried on therein. In case of a transfer of any tenement-house, or lodging-house, it shall be the duty of the grantor and grantee of said tenement or lodging-house to file in the department of health a notice of such transfer stating the name of the new owner within thirty days after such transfer. In case of the devolution of said property by will, it shall be the duty of the executor and of the devisee, if more than twenty-one years of age, and in case of the devolution of such property by inheritance without a will, it shall be the duty of the heirs, or in case all of the heirs are under age it shall be the duty of the guardians of such heirs, and' in case said heirs have no guardians it shall be the duty of the administrator of the deceased owner of said property to file in said department a notice stating the death of the deceased owner and the names of those who have succeeded to his interest in said property, within thirty days after the death of said decedent in case he died intestate, and within thirty days after the probate of his will, if he died testate. A failure to file such notice shall make said property and the owners thereof liable to a penalty of not less than ten dollars nor more than fifty dollars. Said penalty may be collected in the manner pre. scribed in section six hundred and sixty-five of this act. Every person claiming to have an interest in any tenement or lodginghouse may file his name and address in the department of health. All notices and orders of the board of health required by law to 630 be served in relation to a tenement or lodging-house shall be served by posting in some conspicuous place in the house, a copy of the notice or order, five days before the time for doing the thing in relation to which said notice or order was issued. The posting of a copy of an order or notice, in accordance with this section, shall be sufficient service upon the owner of the property affected. It shall be the duty of the board of health to cause a copy of every such notice or order to be mailed, on the same day that it is posted in the house addressed to the name and address of each person who has filed with the department of health the notice provided for in this section. ~ 7. Section six hundred and fifty-nine of said act, as zmecnded by chapter eighty-four of the laws of eighteen hundred and eighty-seven, is hereby amended so as to read as follows: ~ i59. Whenever it shall be certified to the board; of health of the health department of the city of New York by the sanitary superintendent, that any building or any part thereof in the city of New York is infected with contagious disease, or by reason of want of repair has become dangerous to life, or is unlit for human habitation because of defects in drainage plumbin, ventilation, or the construction of the same, or because of the existence of a nuisance on the premises and which is likely to cause sickness among its occulants, the said board of health may issue an order requiring all persons therein to vacate such building or part thereof for the reasons to be stated therein as aforesaid. Said board shall cause said order to be affixed conspicuously in the building or part thereof and to be persotally served on the owner, lessee, agent, occupant or any person having the charge or care (hereof; if the owner, lessee or agent can not be found in the city of New York or do not reside therein or evade or resist service, then said order may be served by depositing a copy thereof in the post-office in the city of New York, properly inclosed and addressed to such owner, lessee or agent at his last known place of business or residence, and prepaying the postage thereon; such building or part thereof shall within ten days after said order shall have been posted and mailed as aforesaid or within such shorter time not less than twenty-four hours, as in said order may be specified, be vacated, but said board whenever it shall become satisfied that the danger from said building or pajrt thereof has ceased to exist, or that said building has been repaired so as to be habitable, mayl revoke said order. Whenever in the opinion of the board of health of the health department of the city of New York. any building or part thereof in the city of New York, an order to vacate which has been made by said board, is, by reason of age, 631 defects in drainage, plumbing, infection witlh contagious disease, or ventilation, or because of the existence of a nuisance on the premises, which is likely to cause sickness among its occupants or among the occupants of other property in the city of New York, or because it stops ventilation in other buildings, or otherwise makes or conduces to make other buildings adjacent to the same unfit for human habitation, or dangerous or injurious to health; or because it prevents proper measures from being carried into effect for remedying any nuisance injurious to health or other sanitary evils in respect of such other buildings; so unfit for human habitation that the evils in or caused by said building can not be remedied by repairs or in any other way except by the destruction of said building, or of a portion of the same, said board of health may condemn the same and order it removed, provided the owner or owners of said building can demand a survey of said building in the manner provided for in case of unsafe buildings, and may institute proceedings in the supreme court in the county of New Yo:c for the condemnation of said building. Said proceedings shall be instituted and carried on in the manner prescribed by lthe code of civil procedure, except as modified by this act. Upon the institution of said proceedings, the owner of said building or any person interested therein may in his answer dispute the necessity of the destruction of said building or part thereof as the case may be. In such case, the court shall not appoint commissioners unless proof is made of the necessity of said destruction. In such proceeding evidence shall be receivable by the commissioners to prove: 1. That the rental of the building was enhanced by reason of the same being used for illegal purposes; or being so overcrowded as to be dangerous or injurious to the health of the inmates; or 2. That the building is in a state of defective sanitation, or is not in reasonably good repair; or 3. That the building is unfit, and not reasonably capable of being made fit, for human habitation; and, if the commissioners are satisfied by such evidence, then the compensation(a) Shall in the first case, so far as it is based on rental, be based on the rental of the building, as distinct from the ground rent, which would have been obtainable if the building was occupied for legal purposes and only by the number of persons whom the building was under all the circumstances of the case fitted to accommodate without such overcrowding as is dangerous or Injurious to the health of the inmates; and 632 (b) Shall in the second case be the amount estimated as the value of the building if it had been put into a sanitary condition, or into reasonably good repair, after deducting the estimated expense of putting it into such condition or repair; and (c) Shall in the third case be the value of the materials of the buildings. Nothing in this section contained shall repeal any part of section five hundred and thirty-five of this act or impair any of the powers thereby vested in the board of health. ~ 8. Section six hundred and sixty-one of said act, as amended by chapters eighty-four and two hundred and eighty-eight of the laws of eighteen hundred and eight-seven and chapter two hundred and thirty-eight of the laws of eighteen hundred and nienty-two, is hereby amended so as to read as follows: ~ G6;1. It shall not be lawful, without a permit from the superintenldnt of buildings, to alter, erect or convert to tih purposes of a tenement or lodging-house, a building on any lot where there is another building on the same lot, or to build, or to erect any building on any lot whereon there is already a tenement or lodging-house, unless there is a clear open space exclusively belonging thereto, and extending upward from the ground of at least ten feet between said buildings if they are one story high above the level of the ground; if they are two stories high, the distance between them shall not be less than fifteen feet; if they are three stories high, the distance between them shall not be less than twenty feet; if they are more than three stories high, the distance between them shall not be less than twenty-five feet, but when thorough ventilation of such open spaces can be otherwise secured, such distances may be lessened or modified in special cases by a permit from the department of buildings. At the rear of every building hereafter erected for or converted to the purposes of a tenement or lodging-house on any lot, there shall be and remain a clear open space of not less than ten feet between it and the rear end of the lot No one continuous building hereafter constructed shall be built or converted to the purposes of a tenement or lodging-house in the city of New York, upon an ordinary city lot, and no existing tenement or lodging-house shall be enlarged or altered, or its lot be diminished so that it shall occupy more than sixty-five per centum of the area of said lIt, but where the light and ventilation of such tenement or lodgingbho!se are, in the opinion of the superintendent of buildings, materially improved, he may permit such tenement or lodginghouse to occupy an area not exceeding seventy-five per centum of the said lot, and in the same proportion if the lot be greater 633 or less in size than twenty-five by one hundred feet; but this provision shall not apply to corner lots, in which, however, no such building hereafter constructed, above the first story shall occupy more than ninety-two per centum of the area of a lot, but no such building shall come within five feet of the lear of said lot above the first story. In computing the amount of the lot covered by a building, any shaft or court of less than twenty-five square feet in area shall be considered as part of the building and not as part of the free air space. No shaft or'court hereafter constructed in a tenement-house, except elevator shafts or staircase wells, except any shaft the area of which does not exceed ten square feet shall be covered with a roof, skylight or otherwise. In all tenement-houses hereafter constructed or buildings hereafter converted to the purposes of a tenementhouse, the stairway communicating between said cellar or basement and the floor next above when placed within any such building shall be located to the rear of the staircase leading from the first story to the upper stories and be inclosed with brick walls, and such stairway shall be provided with fireproof doors at the top and bottom of said flight of stairs; an open area shall be constructed from the level of the cellar to the sidewalk in front of and extending the full width of such houses which shall contain a staircase to give access to the cellar from the street. Where stores are located on the first floor the area may be covered with suitable vault lights or gratings. In all tenement-houses hereafter constructed or buildings hereafter converted to the purposes of a tenement-house the openings to the elevators or lifts in the cellar and at every opening on every story shall be provided with self-closing fireproof doors. This provision, however, shall not apply to such elevators in tenement-houses which are operated by a conductor stationed within the car; but if such elevators run to the cellar, they must be inclosed in the cellar with fireproof walls, and the door to the cellar, if any, must be lireproof and self-closing. In all tenement-houses hereafter constructed or buildings hereafter converted to the purposes of a tenement-house; all staircases shall be fireproof; but this provision as to staircases shall not apply to buildings which are not over five stories high above the cellar and which contain not more than three suites of rooms on a floor. Every tenementhouse hereafter constructed or buildings hereafter converted to the purposes of a tenement-house, which building exceeds three stories in height or has basement with three stories above the cellar, shall have the entrance hall and entire stairwell and stairs built of such slow-burning construction or fireproof material as T, 80 634 the superintendent of buildings shall decide; also no wainscoting shall be allowed in the main halls except of cement or other fireproof material; excepting that the handrails and balusters can be of hard wood; at least one flight of such stairs shall extend to the roof and be inclosed in a bulkhead building of fireproof material; on second floor of all tenement-houses not fireproof throughout all entrances from stairs to halls shall be closed off with fireproof double-swing doors; it shall be the duty of the owner or lessee of such tenement-house to have said door on second floor closed every night at not later than ten o'clock. No fan-light or window shall be hereafter placed in the partition or interior wall between the main and private halls of any tenement-house which is not fireproof, and any room in the same. In all tenement-houses hereafter constructed and buildings hereafter converted to the purpsoes of a tenementhouse each room must have a separate window opening into the outer air; each water-closet must have a window opening into the outer air; the floor of each water-closet must be made waterproof with asphalt, cement, tile, metal or some other water-proof material; and such water-proofing must extend at least six inches above the floor so that said floor can be washed or flushed out without leaking. The light and ventilation, for all buildings hereafter erected for or converted to the purposes of tenement or lodging-houses, must be provided in accordance witl the requirements of this title and the conditions of a plan and permit previously approved in writing by the superintendent of buildings, and no existing tenement or lodging-house shall be enlarged or altered or its lot diminished without a similar permit. The superintendent of buildings is hereby empowered and directed to make rules and regulations not inconsistent with the requirements of Ihis title, and which in addition to the requniements of this title shall be the conditiens of approval for the plans and permits; these rules and regulations shall govern the arrangement and distribution of the.uncovered area, size. lighting, location and arrangement of shafts, rcoms, cellars and halls, and may be modified or changed from time to time by hle superintendent of buildings. No building or premises occupied for a tenement-house shall be used for a lodging-holuse, private school, stable or for the storage and handling of rags, but the board of health may, by a special permit, allow the maintenance of a private school in such a house. In case of any violation of the provisions of this section, or of any failure to comply with or of any violation of the terms and conditions of the plan for such tenement or lodging-house approved by the department of buildings or of the conditions of the permit granted by the depart 635 ment of buildings for such house, or for the air, light and ventilation of the same, any court of record, or any judge or justice thereof shall have power, at any time after service of notice of violation, or of non-compliance, upon the owner, builder or other person superintending the building or converting of any such house, upon proof by affidavit of any violation or non-compliance as aforesaid, or that a plan for light and ventilation of such house has not been approved by the department of buildings, to restrain by injunction order, in an action by ahe depactment of buildings, of the further progress of any violation as aforesaid. No undertaking shall be required as a condition of granting an injunction, or by reason thereof. ~ 9. Section six hundred and sixty-three of said act, as amended by chapter eighty-four of the laws of eighteen hundred and eighty-seven, is hereby amended so as to read as follows: ~ GG3. Every such house erected after May fourteenth, eighteen hundred and sixty-seven, or converted, shall have adequate chimneys running through every floor, with an open fire-place or grate, or place for a stove, properly connected with one of said chimneys for every family set of apartments. It shall have proper conveniences and receptacles for ashes and rubbish. It shall have croton or other water furnished in sufficient quantity at one or more places on each floor, occupied or intended to be occupied by one or more families; and all tenement-houses shall be provided with a like supply of water by the owners thereof whenever they shall be directed so to do by the board of health. But a failure in the general supply of water by the city authorities shall not be construed to be a failure on the part of such owner, provided that proper and suitable appliances to receive and distribute such water are placed in said house. Provided that the board of health shall see to it that all tenement-houses are so supplied before January first, eighteen hundred and eightynine. Every tenement-house shall have the floor of the cellar made water tight; and the ceiling plastered, and when the house is located over filled-in ground, or over marshy ground, or ground on which water lies, the cellar floor shall be covered so as to effectually prevent evaporation or dampness. It shall be the duty of the board of health that the cellars of all tenementhouses are so made or altered as to comply with this section before January first, eighteen hundred and ninety. Every such house. erected after 'May seventh, eighteen hundred and eighty-seven, or converted, shall have the halls on each floor open directly to the external air, with suitable windows, and shall have no room or other obstruction at the end, unless sufficient light or ventilation is otherwise provided for in said halls in a 636 manner approved by the superintendent of buildings. The owner or lessee of every tenement or lodging-house in the city of New York shall keep a light burning in the hallway upon each floor of said house from sunset until ten p. m. throughout the year. In every tenement-house in the said city in which there is a hallway or hallways with no window opening from such hallway outside of said house, a light shall be maintained by said owner or lessee in each such hallway between the hours of eight a. m. and tqn p. m. of each day unless said hallway shall be otherwise sufficiently lighted. The fire department of the city of New York is hereby vested with authority to prescribe reasonable regulations concerning such precautions as may be necessary to prevent danger from fire arising from such lighta ~ 10. Section six hundred and sixty-four of said act, as amended by chapter eighty-four of the laws of eighteen hundred and eighty. seven, is hereby amended so as to read as follows: ~ 664. Whenever it shall be certified to the board of health by the sanitary superintendent that any tenement-house or room therein being without sufficient ventilation is so overcrowded that there shall be afforded less than foul, hundred cubic feet of air to each adult and two hundred cubic feet of air to each child under twelve years of age occupying such building or room, fhe sa.d board shall issue an order requiring the:lumber of occupants of such building or room to be reduced in accoordance with this provision. Whenever there shall be more than eight families living in any tenement-house, in which the owner thereof does not reside, there shall be a janitor, housekeeper or some other responsible person, who shall reside in the said house, and have charge of the same, if the board of health shall so require. Permits may be granted to the owners of lodging-houses now in operation on compliance with the rules and regulations of the sanitary code now in force inhthe city of New York. ~ 11. Section six hundred and sixty-five of said act is hereby amended so as to read as follows: ~ 665. Every owner or other person violating any provision of this title shall be guilty of a misdemeanor, punishable by a fine of not less than ten dollars nor more than one hundred dollars, or by imprisonment for not more than ten days for each and every -day that such violation shall continue, or by both such fineand imprisonment, in the discretion of the court. He shall also be liable to pay a penalty of ten dollars for each and every day that such offense shall continue. Such penalty may be sued for and 637 recovered by the board of health in any civil tribunal of said city, and when recovered shall be paid over to the city chamberlain and become part of the tenement-house fund, directed by section one hundred and ninety-four, subdivision nine of this act, to be annually appropriated to the credit of the health department and to be expended by the board of health. In every proceeding for a violation of this title, and in every such action for a penalty, it shall be the duty of the owner of the house to prove the date of its erection or conversion to its existing use, if that fact shall become material, and the owner shall be, prima facie, the person liable to pay such penalty, and after him the person who is the lessee of the whole house, in preference to the tenant or lessee of a part thereof. In any such action the owner, lessee, and occupant, or any two of them, may be made defendants, and judgment may be given against the one or more shown to be liable, as if he or they were sole defendant or defendants. No part of chapter two hundred and seventy-five of the laws of eighteen hundred and ninety-two, or of any other act shall be so construed as to abrogate or impair the power of the board of health to sue for and recover such a penalty whether the liability to pay said penalty shall arise from a violation of the laws, ordinances or sections of the sanitary code, in regard to light, ventilation, plumbing and drainage, so far as the same affects the sanitary condition of the premises; and except that the department of buildings of the city of New York shall have jurisdiction and cognizrance over all matters and things in thititle contained which relate to the construction of buildings,r structures, or any part thereof, and as to light, ventilation, drainage and plumbing. Any penalty for a violation of the provisions of this title in respect to the matters aforesaid, shall be sued f.and recovered in the same manner as the violations of the building laws of the city of New York are now sued for and recovered by the department of buildings in the city of New York; and said penalty so collected shall be paid to the comptroller of the city of New York to be applied as other penalties collected by said department are applied. ~ 12. Section six hundred and sixty-seven of said act, as amended by chapter three hundred and twenty-nine of the laws of eighteen hundred and ninety-two, is hereby amended so as to read as follows: ~ 667. The superintendent of buildings shall have authority to make other regulations as to light and ventilation of all new tenement or lodging-houses consistent with the foregoing; when he shall be satisfied that such regulations will secure equally well the health and safety of the occupants; likewise the board 638 of health shall have authority to make other regulations as to cellars and as to ventilation in completed buildings, consistent with the foregoing, where it shall be'satisfied that such regulations will secure equally well the health of the occupants. ~ 13. This act is hereby declared to be a remedial statute and Is to be construed liberally, to secure the beneficial interests and pu~rposes thereof. Nothing herein contained shall be construed to aftect any suit or proceeding now pending in any court, or any rights acquired, or liability incurred, or any cause or causes of action accrued or existing, whether for a penalty or otherwise, udder any act repealed or amended by this act No powers of the department of buildings are hereby transferred to the board of health. All acts and parts of a cts in conflict wxiith any portion of this act are hereby repealed. INDEX. Adler, Prof. Felix, of T. H Commission of 1884, 85, 118, -, witness, 489. Age and condition of buildings used as tenements, Effect upon death rate of, 28, 32, -- of tenements, 105, 108, 115, 475. Aguilar library, 515. Ainsworth, Hon. D. E,, introduced t. h. bills in N. Y. Assembly Jan. 17, 1895, 649. Airshafts, 326, 435. Alarm, Sending in fire, 232,288,315, 320, 882, 847. American parents of school children in four inspected blocks, 154, - residents' savings, 216, etc., --women, few, marry foreigners, 263. - residents, cost of living of, 434, - residents, 488. Apartment, Cleanliness of, 100, 110, 115,----s and rooms, 110, - houses, 456, 480. Apprentices' Library, 518, 515. Area to be occupied by tenement or lodging house, 17, 56 (see also Overcrowding), - of house in proportion to lot, 64, 66, -- uncovered, 99, - floor, 104. Artisans and Labarers' and General Dwellings Company, in London, 580. Ash and garbage chute, 295. Asphalt pavements, Extension of, recommended, 76, 439, 505. Assessment in relation to area, 884. Association for the Improvement of the Condition of the Poor, N. Y., 83, 48, 190, 208, 218, -,letter from presldent of the, 290,-- baths of the, 504. Astor library, 515. Austrian residents' savings, 216, etc, Authorities believed by tenants to be on side of landlords (Miss Woolfolk), 489 (Chas. F. Wingate), 444. Babcock, S. D., 118. Bakeries in cellars, 440. Balch, Col., prepared table showing sittings ln all N. Y. schools, 172. Balcony fire-escape, 880, 831. Baltimore public libraries, 514. Bandini, Peter, priest of the Chapel of the Holy Rosary and secretary of the Society of SSan Rafael for the Protection of Italian Emigrants, witness, 594. Banking Department, 215. Barge office, 524. Bartlett, J., Court of Appeals, opinion in relaStlon to Beal h Board v. Trinity. 618. Baruch, Dr. Simon, 189, 190, - on baths, 202. Basement, Origin of fires in, 16, height of ceiling of - above ground, 68, fire at 216 W. Thirty-second street started in - 800, - as dwelling, 463. Bathing, Advantages of, 49, - facilities, 98. Baths, Public, recommended, 47, 75, 291,public, 295, 429, 431, 453, 463, 482, 484, 496, 504, 509, 515 --, public, should be free, 438, -, free winter, suggested by T. H. Commission of 1884, 61, - existing in New York, report on, 188, etc, -, New York free floating, 188, -, swimming, 203,- in English cities, 374, - and lavatories in England, 386,-- of the college settlement, 437,-- in Imp Dw. As~'n B'gs, 496. Bayles, J. C., Commissioner of Health. Author of Report on t. houses, issued by T. H. Board during Mayor Hewitt's term, 78. Beihn, John, witness, owner of 216 W. 32d St., 304, 312. Belgian system of housing artisans, 362, etc., - system of committees for the encouragement of building and renting salubrious tenement houses, 568. Berlin, density of population, 11, - workingmen's houses, 214, -- has no municipal laws in relation to tenement houses, 568. Bernheim, Prof. A. C., witness, 382. Billings, Dr. J. S., author of the "Vital Statistics of New York and Brooklyn," 11th Census, 261 etc. Bills submitted to the Legislature by the tenement house committee of 1894, 56,---- No. 1, deals with building, fire and health laws, 586, - No. 2, deals with public parks, schoolhouses, school playgrounds and municipal baths, 600, - No. 3, deals with open air playgrounds for public schools, 602, - No. 4, deals with Mulberry Bend Park, etc., 602. Birmingham Artisans' dwellings, 814, -, Expropriation in, 858. Births, registration of, 173. Bliss, George, in reference to model tenements, 118. Board of Health, N. Y., T. H. census of. 5,4:6, 458, -, annual report of, for 1893, and other statistics, 19, 265, 874, ec. --, inspection of t. houses by the, etc., 88, 56, 5, 60, 61, 71, 72, 295, 428, 485, etc,- of H. and Fire Department, 84', - of H.'s case v. Trinity corpora. tion, 608. 640 Board of Street Opening and Improvement, 179, 181, 182. Bohemian residents, 51, 264, - residents, school children of, 151, - parents of school children in four inspected blocks, 154. Bombay, 11, 256. Bond St., No. 49, Library, 518. Bonner, Hugh, Chief F. D., Recommendations of, 15, -, Letter from, 280, --, witness, 328. Boston, Playgrounds in, 45. Bowery Savings Bank, 54, 216. Brentano Simon, 7, 15, -, Discovery by, that more ten. house fires occur on first floor than on any other, 10, -, author of Report on Fires, 220, -, witness, 344. Bresnan, John J., Chief 6th Batt., F. D., Recommendation of, concerning fireproof, 15, -, Resolution of Committee concerning, 16, -, witness, 296, 349. Bridges, 8, 522. Brody, J. M., inspector of the T. H. Com. of 1894, 85, -- ', Report on 342 Hudson, 543. Bronx Park, 175. Brown, Smith 8., witness, Part owner of 105 E. 1st street, and 212 East Houston St., 4:7, 419. Bruce, Miss, Library given by, 513. Brussels workingmen's houses, 214, 567. Bryan, James, b. of h. inspector, in reference to 70 Vandam st., witness, 535. Building Laws of New York, 288, 837, 888, 339, - Department, 887, 88, 339, 840, - inspectors, 338, 339, 840, - Act of 1822, in Glasgow, 594. Bulkhead, Burning out bf, 15, - in 216 West 32d st., where fire occurred on 80th October, 1894, 301. Burns, Robert, owner of model lodging-houses In Glasgow, 361. Business premises, 109. Buttes Chaumont, workingmen's quarter in Paris, 570. Carpenter, E M., Superintendent of the N. Y. Juvenile Asylum, 189. Carpeting, 86. Cathedral Mission baths, 189, 200, etc. Cellars, Origin of fires in, 16, 287, 886, -, construction of, in tenement houses, 57,-- 97, -, cleanliness of, 107, -, floor material of, 107, - ventilation, 107, -, condition of, 110, 16, --, stairway between the first floor and the, 297, -, connect!on between first floor and, 804, 818, 836, 348, --, bakeries in, 410, --, concrete, 443, -, as a dwelling, 463. Census, U. S., Figures as to nationalities from the, 10,--, U. S., Report of the"aslum" districts in New York, 211, -, school, 178, - reports, 265, -, of the B. of H., 456, 458. Center of gravity of population, 46. Oentral Park, 175. Char;tles, United Hebrew, 219, 430, 489. Charity Organization Society, 217, 819 Charlton street, Nos. 83 and 85 (pages) 509, etc., 538,- Trinity corp. houses, 54,--, houses, Nos. 59, 77, 84 and 86, Trinity property, in relation to water supy ly question, 60&. Cherry street model tenements, 126, 509. Chicago, School population of, compared with that of New York, 170. Chichester estate, 118, 137, - flats, 327, 880, 518. Child of 8 years-a tenement house worker, 528. Children, Death rate of, in rear tenements, 84, -, Home life of, Report on, 146, etc., -, Occupation of, in four inspected blocks, 153, - of foreign-born parents are not forced into money-earning occupations, rather than sent to school, 173, -'s life, 442. Chinese residents, 265. Cigar-house work, 161, - manufactured by sweaters, 250. Circulating Library, N. Y., 512. Citizens' Association of 1864, Council of Hygiene and Public Health of the, 53, -- Savings Bank, 54, 215. City Hall Park, 495, 497. Civil service, Recommendation that Police hereafter transferred to service of Health Dep. should pass examination under rules of, 41, 72. Claflin, John, in reference to model tenements, 118. Cleanliness, Personal, 22, 98, 101, 462,-- of habitation among orthodox Hebrews, 82, - of apartments, 100, 110, 115, - of cel. lars, 107. Closing orders in relation to condemned houses, in England, 578. Clothes prepared by sweaters, 250, - making in tenement houses spreads disease, 438, - of poor people in case of a contagious disease in the apartment destroyed by the Board of Health, without compensation, 451. Cohen, Julius, Inspector of the T. H. Com. of 1894, 85, --, as witness, 534. Collect Pond, 80. College Settlement, 48, -, Baths of the, 437. Collins, Miss Ellkn, and her tenements, 118,131, 186, 441. Collins', Patrick A., U. S. Consul General, report from London, 571, etc. Colored residents, 261. Columbia College, Univ. Dep. of Sociology, 7, 51. Commissionson Ten. Houses, Recommendation concerning, 61,78. Compersation of owners of condemned houses in Ergland, 572, etc., 580, etc. Concrete cellars, 448. Cond mnation of bad or unsanitary houes, 18, 68, 19), 859, 429, 464, etc., - of land and buildings in England, Laws regulating the, 571, etJ. 641 Congressional Com. of 1892, 527. Connecticut tenement-house law, 563. Connection between stores on first floor and main hall in tenements, 290. Connolly, Catherine, lessee of 10 Washington St., Witness, 550. Constitutionality of the Board of Health's demand that water should be supplied on every floor of a dwelling house used as a tenement house, 608, etc., - of Laws and Regulations of a police nature, 610, etc. Construction of tenement houses hereafter to be built, 64, -, materials of, 105, 108, 115. Consuls, U. 8., in Europe, give answers to several questions in relation to laborers' dwellings there, 566. Contagion, due to clothes made in tenement house, 438, 530. Corse, F. M., School report by, 167. Cost of living of different nationalities. 431. Court, Large, in the Improved Dwelling Association buildings, 495, -- in Tenement Houses, 65, should not take the place of uncovered area at rear, 522. Court of Common Pleas, 56. Crime in London, 580. Croker, Edward F., F. D., battalion chief, in reference to fire at 216 W. 82d st., witness, 802, 313. Crotona Park, 175. Crowell, John F., 51, -- helped prepare report on school attendance, 147, -, 162, 173. Crowding of buildings upon city blocks, 17. (See also Overcrowding and Area.) Cruger, Col. S. V. R., Comptroller Trinity Corporation, 298,.- as witness, 586, Cruller fires, 441. Cutter's, Manly H., estimate of fireproofing 27 Rutgers place, 243, - estimate of fireproofing 607 E. 1t2d street, 248, - estimate of fireproofing house W. 130th street, 249. Cutting, Fourteenth street building, 121, -, R. Fulton, 88, 118, 142, -, R. F., president of the Association for Improving the Condltion of the Poor, 290, -, W. Bayard, 5, 118,119, 823, 824, 826, 330, ----, W. B., witness, 495, 518. Daly, M. T., Commissioner of Public Works, 188. Daniel, Annie S., tenement house visiting physician of the N. Y. Infirmary for Women and Children, witness, 587. Dark rooms, 95, 103. (See also Halls.) Death rates, h'gh and low, in N. Y., as attributed to race and nationality, 19, etc., --, low, of the Jews, 459, -, decrease in, In N. Y., 86, 447, -, houses with high, 99, - in 10 Washington street, 550, 553, - New York's compared with those of other cities (R. 8. Tracy, M. D.), 258, - in English cities, 871, - in London, 590,-- in Brussels, 567, -, local causes affecting the, in N. Y., 274, etc, -, how certain diseases affect, 281, etc.,--, per 1,000 in certain localities, 285, - in tenement districts, 443, - for front and rear houses, 477, -, small parks and public baths will lower (R. 8. Tracy), 482. Deaths from tenement house fires, 845. Decision of the Court of Appeals in the water case, 603. De Kay's, Charles, U. S. Consul General, report from Berlin, 568. Delucca, Dominick, lessee of 34 Laight st. and 13 Vestry st., witness, 557. Demilt dispensary baths, 169, 194, etc. Demolition of condemned houses in England, 62, 64, '573. Density of population compared with other cities of the world, 10, 256, 257, 476, etc.,-- per house, 22, - per acre, 23, 43, - per wards, tables of, 266, etc., 487, - of population and nationality, description of maps of, 261, - compared with wages, 431. (See also Overcrowding.) Destruction of unsanitary buildings, 63, 573. (See also Condemnation.) Devins, John B., pastor of Hope chapel, 839 E. Fourth st., witness, 425. Dilapidated houses, 105, 108, 115. Discretionary powers of the B. of H., 71. Diseases, Certain, affecting death rates, 281, etc., -, solid walls prevent spread of contagious, 343, - due to lack of dryness of soil, 443. (See also Sweating s> stem.) Dock parks, 45, - department, 185. (See also Parks.) Door, front, 1C6, 110, 116. Double and single alley, 142. Double decker, Description of, 13, 205, 521, -, expenses of the lessee and those of the owner of a, 206. Dow, Miss, in reference to model tenements, 144. Drainage, effect upon death rate of, 27, 443. Drexel, Joseph W., of T. H. Commission of 1884, 55, 118, 126. Drinking fountains and lavatories recommended, 76, 295, 429, 503, 508. Dryness of soil, Lack of, causes disease, 27, 443. Dumbwaiters in tenement houses, 65. (See also Shafts.) Duncan, agent for 342 Hudson st., 542. Eagleton, Thomas, owner of 197 8. Fifth ave., witness, 406. East River Extension park, 42, 182. East Side, Schools on the, 165, - Side relief work committee, 426. East Eleventh street, houses Nos. 843 and 845, (page) 388, -- Houston, No. 212, (page) 419, - First street, No. 105, (page) 417, - Tenth street, No. 281, (page) 242, -- ixteenth street, No. 401, (page) 408. 642 Edinburgh, Expropriation In, 858, 388, -, social evil in, 452. Edson, Dr. Cyrus, of T H. Com. of 1894, 5, 79, 299, 820, 843, 849, 387, 422, 455, 469, 524, 539. Education, Prof. Giddings' report on, 51, 146, etc. Electric lighting of streets, Recommendations as to, 61, 76, 291, 505. Elevators in tenement houses, 65. (See also Shafts.) Eleventh census, 261, etc., -- street, east, Nos. 848 and 815, (page) 388. Ellis Island, 8. English speaking residents' savings, 218, etc., - residents, cost of living of, 434, -- municipal dwellings, 350, etc., 370, etc.,-- cities, baths and laundries in, 374, - cities, height of buildings in, 362, - cities, taxes in, 380, - housing of the working classes act, 571, etc. Eno, Amos F., son of owner of 214 and 215 Thompson st., wittess, 399, 400. Escompte, Banque d', in Paris, 570. Esterbrook, William P., of the T. H. Commission of 1884, 55. Expenses, Owner's, at 248 W. Thirty-eighth street, 241, - in 607 E. One Hundred and Fifty-second street, semi fireproof, 247. Expropriation for sanitary purposes and destruction of houses by municipalities in England, 350, etc., - officials in England sometimes dishonest, 851, -, 441, - pro ceedings in London, 571, etc., - proceedings in Liverpool, C82, etc. Factory Law, 442. Fan-lights in t. houses a fire danger, 16, 66, 332. Fat boiling as origin of fires, 68. Fessen, Rachel, who lost her life in the fire at 88 Goerck st., 228. Field & Son, architects, in reference to Monroe tenement, 189. Fifth street, No. 711, (page) 47. Filth, law against, 58. Final examination of T. H. Com. of 1894, Summary of the, 108. Finnegan, Peter E., owner of 88 and 85 Charlton st., 511, --, witness, 516, --, 539, 41. Fire, Danger from, in tenement houses, 14, -- Department, courage and efficiency of, 14, -- Department and Beard of Health, 847, - dangers, 160, 65, 66, 882, 841, etc., -, prevention of, in existing tenements, 67, - s, t. h., inquiry into, 220, etc., --s, three typical, reports on, 228, --s in Suffolk st., Goerck st. and Madison St., 320, - s, list of, prepared by Chief H. Bonner, 829, --s, deaths from t h., 45, ----, progress of, at 18 Suffolk st., 87, --, at 88 Goerck st., 2:8, s9,289, 28, 883, --, Madison st. t. h., 288, --at 811 West 82d st., Oct. 20, 1894, 299, --. at 484 East 76th st., January 4, 1895, 880, - at 25 Pitt street, January 2, 1895, 320, - at 2115 First avenue, Oct. 1, 1894, 320, -, Origin of, at F8 Goerck street, 229, 233, 323, -, Origin of Msdison st., 823, - s, Origin of (Fire Marshal J. Mitchell), 341, etc., -- alarm boxes, 288, - Marshal's appointment and duties, 334, - Insurance Co., Continental, 8&5, - Insurance Companies Tariff Association, 340. Fire-escapep, 89, 107, 111, 116, 225, 286, 297, 298, 317, 87, 328, -- at 88 Goerck st., 231, -, Obstructions on, 294, -, Balcony, 330, - in inside light shafts, 3S4, --, Requirements of the law in regard to, 417, -, A case of negligence on part of authorities to see that order was complied with, 421. Fireproof construction and fireproofing, 16, 285, etc., 295, 829, 481, 520, 558, -- -, Cost of, 235, 238, 240, 289, 559, "-- throughout" Chief Bonner's solu'ion of the - building question, 288, - material in construction of high b'gs, 288, - irrespective of height, 207, - requirements, 816, 373, - requirements in Manchester and other foreign cities, 350, - staircase, 326, 327, 828, 339, - partitions, 332, 836, - construction reduces cost of maintenance of fire, departments, as shown in Europe, 379. First Street, No. 105, (page) 417. Floor area, 104, - material of cellars, 107. Flower, Hon. Roswell P., appoints T. H. Com~, 5. Flues, Timbering framed into, 836, 887. Foreign element, extent of the newly arrived, 10, - born parents do not force their chil dren into money making occupations rather than send them to school, 173, - born residents of N. Y., 263. Forty-second at., West, Library, 513. Foster, Roger, of T. H. Com. of 1894. 5, 79, 299, 820, 849, 887, 422, 455, 489, 521, -, Author of report on Legislation in other States and countries, 563,--, for appellant, B. of H. v. Trinity in the Water case before the Court of Appeals, t06. Fourteenth street model tenements, 500. French residents, 264. Freudman, Nathan, tenant of 216 W. 82d, where fire occurred on 30th Oct., 1894, 801, -, witness, 808. Friendly rent collection, 142. Front house population, 101, - door, 110, 116. " Furnished rooms " sign, 503. Furniture in a tenement house apartment, 206. Galando, Dominick, lessee, of 34 and 18 Vestry st., witness, 657. Garbage chute, 95, -- crematory, 445. Garnies, Bureau des, in Paris, 569. German realdents, 27, 216, etc., 864, 429, 488, -- residents, Cost of living of, 434, - Jews, Cost of living of, 434, - parents of school children in four inspected blooks, 155, -- cities, Taxes in, 880. liddlngs, Prof. P. H., 7, 51, 146. 643 Gilder, R. W., Chairman T. H. Com. of 1894, 5, 79, 299, 320, 349, 387, 422, 455, 489, 524. Glasgow, Public Baths in, 50, - housing accommodations. 214, -, expropriation in, 858, 855, -- Watson St. Home, 361, -- oneroom apartments, 361, - lodging-houses, 88, -- Building Act of 1892, Police Acts of 1886 and 1891, and other laws referring t: ten.-houses, 584. Glass panels in hallway doors, 295, - floors, 483. Goerck street, No. 38, Fire at, 228, 230, 320. Golden Lane Site in London, 579. Goodkind, A., Secretary, 10th Ward San. Union, Letter from, 293. Gotham Court, 144, 145. Gothenbarg System, Modified, as to saloon question, 507. Gou!d, Prof. E. R. L., witness, 849, - Recommendations by, 866. Governor (Roswell P. Flower), 5, (Levi P. Morton), 649. Grace church, 512. Grace's term, A proposition to start a large central library during mayor, 518. Graham's, Robert, Secretary Church Temperance Society, investigation, 212, 42J, 423, etc, - testimony before the T. H. Com. of 1694, 422. Grant, Mayor Hugh J.; Letter to, relative to public school accommodations, 171, --, Letter from President of B. of H. to, 470. Griffin on rent, 491. Griffin, Charles, appraiser, 285, 243, 245, 247, 249. Guinness Philanthropic Trust in England, 865,579. Hafker, H., appraiser, 246, 248, 219. Hall, A. C., School report by, 162. Halls Lighting of, 69, 92, 106, 428, 441, --, Sanitary condition of, 105, 108, 116, --, ventilation of, 105,--, dark, 432, 485, 502, 63, 538, -, as element of fire danger, 2^8, -, usefulness of, running through from front to rear in preventing suffocation by smoke, 819, --, communication between stores and, 297, - in model tenements, 519 Halsey, Edwin W., son of owner of 279 Monroe st., witness, 418. H-alth Department, inspection, reports, sta tistics, etc., 19, 38, 56, 58, 60, 61, 71, 72, 265 295, 435, - statistics referred to in Report' "Local causes affecting the death rate in New York," tables per wards, 274, etc., -- Board and Fire Department, 817, - board inspectors, number of, not sufficient, 72, 428, - board census, 5, 456, 458, - board orders, '483, 487, -- department's, N. Y. case v. Trinity Corporation, 603. Hearings, Public, of the N. Y. T. H. Committee of 1894, 299. Hebrew residents, 21, 422, 434, 458, 459, 469, 488, 529, cleanliness of habitation among orthodox - residents, 22, Russian - real81 dents, 51, 127, - residents' savings, 216, etc. - charities, unted, 219, 430, 432. Height, of buildings in English cities, 382. Hewitt, Hon. Abram S., Small P6rks Act of 1887, 42, Report of T. H. Board during his term as mayor, 78. High death rate houses, 99. Hill, Miss Octavia, of London in reference to model ten., 143. Hirsch, Baron de, Trust Fund Bath, 48, 193, etc, - trade schools, 194, - free schools, 194. Hodgman, Abbot, of Ten. H. Commission of 1884, 55. Home life of children, Report on, 146, etc. "House of Blazes," 141. Housekeeper, 57, 294, 432, 438. Housing of the poor, 369,-- of artisans in Belgium, 362, etc., - of the Working Classes Act, British, 1890, (page) 571, etc. Houston St., East, No. 212, (page) 419. Howland, Henry E., trustee of N. Y. Circ. Libr., witness, 512. Hudson St., No. 391, (pages) 533, 536,-- St., No. 342, (pages) C38, 512, 543. Hull, S. J., owner of No. 391 Hudson St, witness, 532. Hulse, W. W., manager of " The Monroe "tenement house, 137. Hungarian Jews' savings, 218, etc, -- Jews, cost of living of, 434, - residents live in certain districts, 264. Illinois ten. house and sweating-system laws, 564. Immigration, 8. Improved Dwellings for the Poor, Favorable effect of, upon occupants and neighborhood, 53, -- Dwellings Association and its buildings, 118, 119, 495,- and Industrial Dwellings Company in London, 579. Incendiarism, 341, etc. Income statistics, 97, 101. Infirmary for Women and Children, N. Y., 527. Inspected, The entire city cursorily, by the T. H. C. of 1891, 83. Inspection, Sanitary, by B. of H., 38, 58, 72, -- force of B. of H., Increase of, recommended, 40, 72, 428, 459, 431,-, Regular, needed, 86, - of buildings, 87, - s of T. H. Com. of 1894, Summary of the First Two, 100, -, Summary of the Final, 108, ---s, Condensed Summary of all the three, 114, -- of ten. houses by B. of H., 295, --, How, is performed by B. of H., 435. Inspectors, Increase of force of sanitary, recommended, 40, 72, 438, 479, 484, - of T. H. Com. of 1894, 85, -, Sanitary, Force, 295, -, Building, 838, 889, 840, --, Dishonest sanitary, 439. Insurance apt to be lacking on property of occupants of tenements, 15, Continental Fire - Company, 835, - Companies' Tariff Association, 840, Prudential - Company of 644 Newark, 413, - rates on model tenements, 499. Investigations, Summaries of T. H. Com.'s of 1894, 105, 108, 114, Investigation of 600 families by isa Adah S. Woolfolk, 210, 433, - by Robert Graham, 212, 422, 423, etc. Irish residents, 27, 264, 488, - parents of school children in four inspected blocks, 154, - residents' savings, 216, etc., - residents, Cost of living of, 434. Italian residents, 19, 51, ~64, 422, 458, 460, 461, 488, 499, - residents, School children of, 148, 149, - parents of school children in four inspected blocks, 154, - residents' savings, 216, etc., - residents, Cost of living of, 434, - immigration, 524, etc., - boys, Traffl in, 5?4, - Immigrants, Society for the Protection of, 534, Jackson Square Library, 513. Jaerger, Lizzie, 12 Suffolk St., fire, 225, 821. James, D. Willif, 118. James St., No. 78, 420. Janitor, 57, 294, 432, 438. Jefferson St., No. 2, (page) 415. Jewish residents, 21, 51, 127, 422, 458, 459, 4C0, 488, 529, Cleanliness of habitation among orthodox - residents, 22, - residents' savings, 216, etc., Cost of living of -- residents, 434, - charities, 219, 430, 432. Joffe, Meyer, Inspector of the T. H. Com. of 1894, 85. Juvenile Asylum Baths, N. Y., 189. " Keep off the grass," 505, 007. Kempton, Marcus, husband of H. Kempton, who owns 190 East Broadway, witness, 410, 414. Kendall, Miss Edith, Chairman Sanitation subcommittee East Side Relief Work Committee, 426. Kindergartens, Additicnal, recommended, 77, 173, 432. King, David W., architect, 285, 238, 245, 246, 248, -- - as witness, 299, 320, 558, -- reports on overcrowded areas, 562. King, Edward, Witness, 447. Kitsinger, M. E., Chairman 10th Ward San. Union, Letter from, 293. Kosher, 22. (See also Hebrew.) Labor, U. S. Dept. of, 5, 819. Laight St., No. 34, (pages) 18, 554. Land and Housa Owners' Association in Liverpool, 58. Landlord's name, Registration of the, 107, 485, -- responsibility for overcrowding, 92, -- responsibilities, t94, The city authorities on-- side, tenant believes (Mfis Woolfolk), 489, (Charles F. Wingate), 444. (See also Owner.) Lathing, Metal, 520. Laundries, Public in Eagl. cities, 874, --, pub ic, 438. Lavatories, Public, recommended and existing ones here and in Europe, 76, 295, 429, t03,?08. Laws, T. H., of other States and Countries, 62, 563. (See also T. H. laws.) Leases, short, Trinity Corporation's, 537, etc. Legion of Honor, The Fulton Council of the, in reference to Miss Collins's houses, 133. Legislation in other States and Countries. 62, 563. Lenox library, 515. Leroy St., No. 108, (page) 532. Letters to the T. H. Committee of 1894, 286. Leverich, H. M., inspector of T. H. Com. of 184, 85, -- as witness, 337, 416, 534, 549, 554. Lewis St., Nos. 161 and 163, Fifty barrels of dirt removed from, 427. Libraries, Public, 512. Light in tenement houses, 57, 114, 291,-- In halls, 106, 4?8, - and ventilation in schools, 1l4,- Electric, in streets, 61, 76, 291, 505, - shaft as element of fire danger, 287. Lispenard Meadows, 30. tfs'ner, Jacob L., agent for 401 E. 16th St., witness, 409. Litman, Alex,, assistant to the s cretary of T. H. Com. of 1894, C49 Liverpool workingmen's cottages, 213, -, Expropriation in, 354, - ten. house laws, 582. Living, Cost of, of different nationalities, 434. Localities, Death rates per 1,000 in certain, 285. Lodging-houses, 56, 57, 70, 71, 861, Model - houses, 376, 377, 388, -- houes in Glasgow, 361, 381. Lombardi, Anthony, lessee of 208 Thompson st., witness, 898. Lombardy, Italians from, 526. London model dwellings for the working classes, 213, -, expropriation in, 255, -, -, Social evil in, 453, -, t. h. laws, 571, etc. Lot, Rents in and returns on houses occupying less than 80 per cent. of a lot, 885, 386. (See also Area.) Lowell, Mrs. Charles Russell, Chairman East Side Relief Work Committee, 426. Mcrdle, Henry, owner of 31 Laight st., wit. ness, 555, 558. SMcccallum, Samuel, B. H. San. Inspector, witness, 412, 510. McCotter, Richard B., agent for 208 and 220 Thompson st., witness, 396, 401. MoLaren, Charles, agent for 10 Washington st., witness, 551, 553. Macnab, George T., T. H. Committee's Surveyor,' 502. MacSweeney, Acting U. 8. Com. of Immigration, 9. Madison street fire, 283, 820. Manhattan Island, Effect of waterways of, upon t. h. problem, 8. 645 Marshall, Edward, Secretary of T. H. Com. Neals, James E., U. S. Consul, report from of 1894, 5, 6, 79, --'s Report, 81, -- 's Re- Liverpool, 582. port on Model Tenements, 118, - 's Report Neapolitans, 526. on Sweating System, 250, - Present at all Nebraska tenement-house law, 564. the Public Hearings. Notices and orders of B. of H., 60, 486, 487. Marshall, H. R., architect, 132. Oak Streat Police Station, 144. Maryland ten. house and sweating system Obstructive buildings, Laws in relation to, in laws, 566. England, 576. Mason, Alfred Bishop, witness, 454. (See also Condemnation.) Massachusetts ten, house and sweating system O'Connor, Hon. Edmund, introduced t. h. bills laws, ~64. in N. Y. Senate, Jan. 17, 1895, 649. Material of construction, 105, 108, 115. Ocupations of parents of school children, 156. Matting and carpetirg, 86. O'Donohue, Joseph J., of Ten. H. Com. of Mayo-Smith, Prof., helped prepare Report on 1884, 55. Echool Attendance, 147. Ogden, owner of 10 Washington street, 5U0. Measles, Death rate in connection with, among Ogle, Dr., (Eng ), about death rate in England, Italians, 19. 260. Mercantile Library, 512. Ohio tenement-house laws, 584. Metropolitan Association in London, 579. Old buildings, 91. Miles, Mrs. E. F., in reference to model ten., (See also Age.) 143. O'Neill, Mary, daughter of Mrs O'Neil, owner Miner, Matthew, owner of 70 Vandam St., wit- of 108 Leroy street, witness, 53.'. ness, 58W, 537, 538. Orders of the B. of H., 60, 466, 487. Mitchell, James, Fire Marshal, 15, -, as wit- Other states and countries, Legislation in, 563. ness, 324, 340, 344, 417. Ottendorfer, Orwald, of T. H. Commission of Model tenements, 53, 118, etc., 366, 495, 499, etc. 1884, 15, 118, 1G2, library given by -, 513. Monroe, modern tenement house, 137. Overcrowded areas, Maps of, 5U2. Monroe street, No. 279, (page) 413. Overcrowding on area, 850, 441, 418, 562, - Moore, Francis C., President Continental F. I. in rooms, 70, 98, 3K0, 424, 418, 433, 435, 448, 501, Co., witness, 335. 529, - in rooms in Berlin, 568, - in rooms Morals as affected by overcrowding, etc., 54. in England, 580, - compared with wages, -- in tenement house districts, 104, - 434. among sweaters, 530,-- in Berlin, 568,- (See also Area.) In London, 580. Owner's name, 59, 72, 107, 485, -- expnses, Morris, Moreau, of T. H. Commission of 1864, No. 218 West 38th street, 241. 55. (See also Landlord.) Morse's, Allan B., U. S. Consul, report from Panic, danger of, at a fire and otherwise, 331, Glasgow, 584. 346. Morton, Hon Levi P., Governor, signed t. h. Paris, density of population, 11, - cheap bills, 649. tenement-house committees, 570, - teneuosaic Law, Rules of the, designed to maintain ment-house laws, 569. health, 22. Parker, A. D., report on public parks, 175. Moses, Solomon, of T. H. Com. of 1894, 5, 79, Parkhurst, Rev. Dr. Charles H., 453, 508. 299, 320, 349, 387, 433, 455, 489, 524. Parks, public, large and small, recommended, Mulberry Bend, 26, 61,-- Bend Park, 42,43,74, existing, etc., 41, 45, 73, 142, 373, 432, 43H, 4S9, 182,-- Street Bend opening, 495. 481, 494, 497, 505, 506, 522, 543, report on Municipal dwellings in Great Britain, 310, etc., public -, 175, etc., acreage of - spaces, 370, etc.,- supervision of building, 492, 806, 178, St. John's park, 298, City Hall -, 495, - ownership of improved dwellings, 522. 497. (See also Public, and Baths.) Partitions, Fireproof, 832, 836. Murray, T. F., inspector of T. H. Com. of 1894, Patronage committees in Brussels, 567. as witness, 894, 408, 509. Pavement. Extension of smooth, recommended, Name of owner, 59, 72. 76, 429, 505. Nash, Stephen P., for respondent in Health Peabody trust, in London, 579. Board v. Trinity case before the Court of Peckham, J., Court of Appeals, opinion of Appeal, 806. ccurt in relation to Health Department v. Nationalities, Population by, 101, 113, 117, - Trinity Corporation, 606. of parents of school children, 154, -, De- Pelham Bay park, 175. scription of Maps of Density of Population Penny Provident fund, 216. and, 261, 488. People's baths, 190, etc. (See also Race.) Percival, James H., in reference to Monroe Native born residents of N. Y., 263. tenement, 142. 616 Perseco, Guiseppe, witness, tenant of 216 W. 82d street, where the fatal fire occurred, 810. Personal Cleanliness, 98, 101. (See also Cleadlines..) Petty Court Square Site, in London, 679. Philadelphia public libraries, 5;4. Pier Parks or Promenades recommended, 45, 181, etc., size and construction of proposed -- parks, 186. Pierce, F. E., designer of Density of Pop. and Nation, maps, 261, --, as witness, 487. Plnchot, J. W. (in reference to model tenements), 118. Plans demonstrating cost of fireproofing, 210, etc. Playgrounds, Small Parks with, recommended, 78, School - and others, 163, 231, 432, 487, 442, 543, -- in Edinburgh, 358. Plumbing, Defective, 87, 103, Bureau of Ventilation and - transferred from the B. of H. to the Building Dep., 442, 469. Police, Sanitary, Increase of, force, recommended under Civil Service rules, 40, 41, 72, - Acts of 1886 and 1891 in Glasgow, 584, -- nature, Constitutionality of Laws and Regulations of a, 610, etc. (See also Sanitary.) Polish residents, 201, 264, 422, 488, --residents' savings, 216, etc., - residents, cost of living of, 434. Poor, N. Y. Assoc. for Impr. the Cond. of the, 83, 48, 190, 203, 218, 290, L04, -, Improved Dwellings for the, 53. Population, The N. Y. T. H., 11, 46, 456, 458, -- by nationalities, by front and rear houses etc. (T. H. Com. of 1894), 101, 104, 107, 111, 118, 117, - per wards, Tables of, 266, etc., -- of 88 Goerck st., 280. Post, George B., of T. H. Com. of 1891, 5, 79, 524. Postscript. Decision of the Court of Appeals in the Trinity Water Case, 603. Poverty, 438. Prague's density of population, 11, 25., 477. Price, G. M., Inspector of the T. H. Com. of 1894, 85. Privy vaults abolished in 1837, 5. Prostitution in Ten. Houses, 78, 88. (See also Social Evil.) Provident Loan Society, 217. Prudential Insurance Company, of Newark, 448. Public hearings of the T. H. Com. of 1894, 299. (See also Municipal.) Questions on inspectors' schedules, T. H. Coom. of 1894, 81, etc. Race and nationality, high and low death rates in New York as attributed to, 19, 26. (See also Deathrate.) Rafter, Edward, owner of 843 and 345 E. 11th street, witness, 890. Rags, Storage and handling of, in tenement houses, forbidden, 70. Rainsford, W. 8., rector of St. George's Church, 209 E. 16th street, witness, 505. Rank and file of workers (T. H. Com. of 1691, inspectors), 85. Rapid transit, Increase of, recommended, etc., 75, 386, 367, 867, 372, 373, 876, 489, 522. Rear tenements, Effect of, upon light and air of city blocks, upon death rate, etc., 18, 32, 296, 444, 458, 401, 46, -- tenement house population (T. H. Com. of 1894 inspection), 101. Rebuilding of Vienna and its effects, 879. Reichardt, Anthony, of T. H. Com. of 1884, 55. Relief Work Committee, East Side, 430. Rentals in tenement districts, 52, 102, 104, 431, 446, 498, r06, --, specal cases,.27, 280, 24 243, 245, 247, 249, 385, - and savings, report on, 204, etc, -- in New York double those paid in English cities, and even more, 423, high -- in Berlin, 568. Reservoir Equare proposed library, 513. Reynolds, A. L., report on rental and savings, 54, 204. Reynolds, J. B., of the Univ. Settl., endorsel the Tenth Ward San. Union's letter to the Com. of 1891, 296, -, as witness, 501 Rice, Henry, president United Hebrew Charities, witness, 430. Richardson, sexton of the Cathedral Mission, 201. Ridge street, No. 71, (page) 429. Riis, Jacob A., on connection of schoolhouses with small parks, etc., 45, 142, -, as witness, 440, 447. Riverside model tenements, 122, 519, - Park 176, - Association baths, 189, 199, etc. Robbins, Dr. Jane E., of the College Settl., on baths, 47, -, as witness, 437, 455. Robb'as, 8. Howland, Fire Commissiorer, 15, -, as witness, 825. Roberts, Charles F.,of the B. of H., witness, 483. Roe, Catherine, (husband killed by falling down stairs in 501 W. 16th St.), Witness, 523. Roof as a place of Refuge, at 38 Goerck St. fire, 282, -, sleeping on the, 601. Rooms, Apartments and, (T. H. Com. of 1191 Inspection), 110. Roosevelt's, George W., U. 8. Consul, report from Brussels, 567, Rules and Regulations for tenants in model tenements, 119, etc. Russian residents, 51, 127, 201, 24. 422, 488, 589, School children of - residents, 150,-- parents of school children in four inspected blocks, 154, Savings of - residents, 216, etc, - residents as sweaters, 258, Codt of living of - residents, 486 617 Rutz, William, boy (No. 12 Suffolk St. fire), 224, 821. St. John's Park, 298, 543. St. John's Cemetery Park, 42, 180, 182. St. John's Guild nurses, 201. salford (Eng.), 82. Saloons, 425 507. Salubrf6td G6n6rale, Bureau de la, in Paris, 569. San Rafael, The Society of, for the Protection of Italian Emigrants, 524. Sanit' ry inspection, 88, 58, 72, -- inspection in Paris, 570, - Police, 91, Number of -- Police not sufficient, 58, 291, 428, Number of -- inspectors not sufficient, 88, 72, 295, 479, 484, Dishonest - inspectors, 439, N. Y. - law, 850,Bad- surroundings, 99, Population per acreage of and density per acre in different - districts, 266, etc., - condition of halls, 105, 116, 250, etc. (See also Police.) Sanitation Subcommittee of the East Side ReIfef Work Obmmittee, 486. Savings, 51, 207, etc., 215, - banks, 215, General - Bank in Brusaels, 567. Scandinavian residents, 27. Schedules, Inspection, 81, etc., 84, 85. Schclkel & Co., William, buildtrs of Cherry street model tenements, 126. School parks and - playgrounds, 45, 74, 163, 29, 48', - houses and kindergarters, 77, - attendance, report on, 146, etc., - Report, Block No. 1, 148, - Report, Block No. 2, 149, - Report, Block No. 3, 150, - Report, Block No. 4, 1I1, - children, Nationality of parents of, 154, -- hildren, occupations of parents of, in 4 inspected blocks, 156, - - children, conditions of life of, 158, etc., --s and School buildings, 163, - Report, by A.. Hall, 162, -- Report by F. M. Corse, 167, - Report by W. S. Ufford, 168, - accommodations, 170, 173, - pop. of Chicago compared with that of New York, 170, - Report shows children of foreign-born parents are not forced into money-earning occupations rather than sent to school, 178, - Census, 178, - Re. port, general conclusions, 178, --s, Light and ventilation in, etc., 164, 412, -s, on the East Side 165, Baron de Hirsch Free --s, 194, Baron de Hirsch Trade -s, 194. School sinks, Number, location and condition of, in tenement houses, 96, 106, 109. Schuchman, John P., of T. H. Com. of 1894, 5, 79, 299, 3:0, 349, 887, 422, 455, 489,, 54 -, Report on Legislation in other States and countries, 563. Schultz, J. S., in reference to Monroe tenement, 189. Scrymser, James A., on achool accommoda tlons in general, 170. Second Ave., near St. Mark's Prace, Library, 518, - street, Nos. 166 and 108, Trinity O. rporation's houses, 544. Secretary's Report, 81,-- Report on Model Tenements, 118,- on sweating system, 250. (See also Marshal.) Seligman, Prof. E. R. A., witness (on water taxes), 57, 545. Semi-fireproof buildings, 245, etc. Senner, U. S. Ocmmissioner of Immigration, 9. Shafts in tenement houses, Elevator and Da ubwa!ter, as element of fire danger, etc., 65. 287, 332, 335, 343. Shaler, Alexander, of T. II. Commission of 1884, 55. Ehaw, Albert, Ph. D., on Parks and Playgrounds, 44, - on Municipal Baths, 50, - as witness, 367. Shropshire's, Clyde, U. S. Vice and Deputy Consul General, report from Paris, 569. Sickels, H E., official reporter of the Court of Appeals, Albany, N. Y., 603. Sigeltinger, sanitary inspector of the Trinity corp., 544. Single Tax, 454. Single rooms, Overcrowding in, in England, 580. (See Overcrowding.) Sink, Abolishment of the Common, 295, - used as urinal, 389. Sixteenth St., East, No. 401, (page) 4:8. Sloan's model tenem nts, 118, 499. Small Parks Act of 1887, 42, 74, 181, etc. (See Parks.) Smith, Prof. Mayo, helped prepare report on school attendance, 147. Smoke, Destruction of life by, 15, - suffocation by, cause of deaths in the 216 W. 32d St. fire, ~03, Suffocation by - prevented by through hallway, 319. Social Evil, 78, 88, 451, etc., 502, 508, 530. Soil, Effect upon death rate of, 27, 413. South Fifth avenue, Nos. 25, 27, 29 and 197, (pages) 401, 403, 401, 405. Springer, Prederick, B. of H. inspector, witness, 5'0, 553. Stables in to nement houses, 70, 488. Staircases in tenement houses, 65, -- between cellar and first floor, 297, - as element of fire danger, 288, Iron -, 818, - on the outside, 440, 483. State, Department of, (Information from foreign cities), 5. Statistician, Municipal, reeded (Jacob A. Ril&), 442, 445. Statistics of tenement hcuEes, 59, 60. Btcebeig,, R. M., in reference to Monroe tenement, 139. Street lighting, 61, 76, 291, 505. Strong, Hon. Wm. L., Mayor of New York, approved the t. h. bills, 619. Sub-lettirg in Berlin, 568. Suffocation by smoke, 15, - by smoke cause of deaths in the 216 W. 82d st. fire, 88, -- prevented by through hallway, 819. Suffolk at. fire, 80, 828. 048 - Summaries of T. H. Com. of 1834 investlgations, 100, 108, 114. Sunday opening of saloons, 507. Swamp, The, 30. Sweating system, Report on the, 250, -- Meaning of the term, 250, - system, looked into in 1892 by Congressional Committee, headed by Congressman John DeWitt Warner, 250, - system, improvement of conditions of the, over these existing before 1692, 250, - character of the system, 250, -, evils of the system. 251, -, clothing and cigar work, 250, - system, laws in relation to, 251, - system, a few striking examples of, 252, Russian residents as sweaters, 252, - system and disease, 530, -- system, Ordinances in relation to, in diff. States, 563, etc. Swimming bath, as a means of cleansing, 203. Tatham, Dr., Salford, Eng., 82. Tax, Single, 454, -es in English cities, 380, --es in German cities, 380, -es on tenements in Vienna, 366. Taylor, Superintendent People's Bath, 193. Tenant's responsibility for his apartment, 294. Tenement house, Legal definition of, 11, 57, Number of - houses in New York, 12, 23, Types of - houses, etc., 111, 204, 358, - houses on 25 x 100 feet lot, 827, 33, 436, 502, 544, Abolishment of rear - houses, 296, -- house population, overcrowding, etc., 11, 455, 458, Effect of - life upon death-rate, 28, 92, Effect of - life upon death rate of children, 84, - house rentals, 52, - h-use fires: (dangers) 14,15, (inquiry into) 220, etc, (deaths from), 845, Model - houses, 53, 118, etc., 366, 495, 499, etc., - House Building Company and Association, N. Y., 118, 120, 128 130, - house laws in different States and countries, 62, 5C3, etc., - house laws in England, 571, etc., Committees of cheap - houses in Paris, 570, Low taxation of - houses in Vienna, 860, - House Commission of 1881, 5,54, 55, 442, 469, 527, -- House Sweating, Warner's Congressional Com. of 1892, 527, - House Com. of 1894: (Members of) 5, 79, (Letters to) 286, (Public Hearings of) 299, (Bills of) 586. Tenth St., East, No. 231, non-fireproof buildings, 242, - Ward Sanitary Union, Letter from, 293. Thirty-second St., West, No. 816, Fire on October 80, '94, (page) 293. Thomas, T. F., in reference to Monroe tenement, 189. Thompson street, (No. 208) 895, (No. 220) 395, (Nos. 214 and 215) 899, 400. Todd, George, Master plumber, witness in reference to 84 Laight st., W55. Tompkins Square, 507. Touhey, Martin, witness, owner of 78 James At, 420. Tracy, Dr. Roger S, of B. of H., 10, 11, 19, 43, 256, 258, 265, 291, 447, - as witness, 476, 487. Trade Schools, Baron de Hirsch, 194. Transoms in ten. houses, a fire danger, 16, 63, 218. Trinity Church and the water law, 56, - church, in reference to St. John's Park, 298, 543, - church as owner of ground, 511, 5;6, 532-, - corporation's Ehort leases, 536, 537, - corporation's income and expenditures, 545, - Corporation, N. Y. Health Department's case v, 603. Tuska, Morris, Vice-president United Hebrew Charities, witness, 433. Ufford, W. S., School Report by, 163. Uncovered areas, 99. (See also Area.) United Hebrew Charities, 219, 430, 483. Urinals, 503. Vacation orders, 486, 465, etc., 474, 479. (See also B. of H., Tenement and Con. demnation.) Van Cortlandt Park, 176. Vandam street, No. 70, 535, 536. Vanderbilt, Cornelius, in reference to model tenements, 118, -, in reference to St John's Park, 298, -, George, library given by, 513. Vanderpoel, S. 0., of T. H. Commission of 1884, 55. Ventilation, 57, 92, 103, 114, 435, 478, 481, - as secured by better construction, 66, - of halls, 105, - of cellars, 107, - in schools, 161, - and plumbing, bureau of, transferred to building department from B. of H., 442, 469. Vermin, solid walls prevent spread of, 844. Vestry street, No. 18, 556. Vienna low taxation of tenements, 866, - remittance of taxes in case of the construction of new buildings, 879. Vital Statistics, The, of New York and Brooklyn, Monograph on, by Dr. J. S. Billings, 201, etc. Wage earner, 493, How -- affect density, 434. Wall paper in tenement houses, 69, 87. Wards, (Characteristics of sanitary districts and). 266, etc., (population per), 286, (acreage of), 266, (density peracre in), 266, -, population and density of, in 1860, 1870, 180 and 1890, (page) 278. Warner, John De Witt, Congressional sweating system committee of 1892, 250, 57. Washington street, No. 10, (page) 649. Washington, W. d'H., of T. H. Com. of 18:4, 6, "9, 455, 489, 524, 58, -- on pier parks, 184, etc., - on fire-proof construction, 285. Water street tenements, 441. Water supply in tenement haoues, 58, 100, 110, 115, 480, 444, 447, 546 (in reference to Trinity Corporation) 589, etc.,-- tax, 883, 887, (high in New York) 540, -- Case, Deciion oc the Court of Appeals in the, 008. 64 Waterclosets and school stnks, 66, 96, 106, 100, 115, 232, ~94. Waterlow, Sir Sidney, in reference to Model tenements, 119, 501. Watson Street Home, in Glasgow, 361. West Street, No. 6, (page) 551. West Forty-second st. Library, 513. Wheeler, Mrs, in reference to model tenements, 144. White, Alfred T., and his model tenements in Brooklyn, 118, 122, 366, 500, 518, - as witness, 518. Whitewashing of ceilings, walls, etc, in tenement houses, 86, 204, 426. Whyo gang 137. Willet St., No. 119%, Rear, (page) 428. Williams, of Brooklyn, baths for the emp'oyees of his factory, 202. v -:9 Wilson, Charles G., Pres. B. of H., 456, -'s letter to Mayor Hugh J. Grant, in 1892, (page) 470. Windows, in ten. houses, 57. Wingate, Charles F., of Ten. H. Com. of 1884, 55, - as witness, 442. Wisconsin tenement house laws, 563. Women and children, N. Y. Infirmary for, 527. Wood, Dennison, in reference to model tenements, 118. Woodruff, Charles E., T. H. Com. of 18^4 inspector, as witness, 405. Woolfolk, Mis, of the College Settlement, 210, 217, --, as witness, 483. Wright, Caroll D., of Bureau of Labor, 5. Yard space in tenement houses, 106, Condition of -, 109, A large - in the Improved Dwellings Association Buildings, 455.,! ' <* " I Hon. Edmund O'Connor introduced the Tenement H3use report and bills in the Senate and Hon. D. E. Ainwsorth in the Assembly; the latter were approved by Mayor Wm. L. Strong, and signed by Governor Levi P. Morton. The faithful and valuable services are hereby acknowledgel of Alexander Litman who acted as assistant to the Secretary throughout the entire investigation,of the committee, and who afterward assisted in carrying the Report through the press.-R. W. G. THE UNIVERSITY OF MICHIGAN GRADUATE LIBRARY DATE DUE F U JUL6 DO NOT REMOVE OR MUTILATE CARD