ROBERT A. WOODS HEAD OF SOUTH END HOUSE, BOSTON

The capacity for being seen with the eye in the large, which New York in her sky scrapers has purchased at so great a price, is the birthright of Pittsburgh. Where from so many different points one sees the involved panorama of the rivers, the various long ascents and steep bluffs, the visible signs everywhere of movement, of immense forces at work,—the pillars of smoke by day, and at night the pillars of fire against the background of hillsides strewn with jets of light,—one comes to have the convincing sense of a city which in its ensemble is quite as real a thing as are the separate forces which go to make it up.

The Allegheny River, providing a broad, open space up and down and across which much of this drama of modern world industry may be viewed, has at last come to mean not separation but identity of the population on either side of it. If the banks of the river were improved, it might easily be sentimentally as well as economically one of the most important common possessions of the old and the new sections of Greater Pittsburgh.

This tendency of cities to reach out and include their present suburbs, and even the territory where their future suburbs are to be,—a tendency which a few years ago was mocked at,—is in these days seen to be normal and wise. The proper planning of the city's layout, the proper adjustment of civic stress upon the different types of people in a great urban community, demand the inclusion of the suburbs. Greater Pittsburgh is less satisfactory than Greater New York and Greater Chicago, only because it is less inclusive than they. Some important suburbs of old Pittsburgh are not included, and the suburbs of Allegheny are nearly all outside. The latter omission is particularly unfortunate as it is doubtful whether Allegheny by itself will raise the average civic and moral standard of the greater city. It is regrettable too that Allegheny continues to show reluctance in making common cause with her larger neighbor. The toll bridges and the many obstacles against making them free, seem to typify the difficulty of intercommunication. The two towns, however, so clearly belong together that this feeling of clan cannot long survive. From nearly every commercial point of view that is worth considering Allegheny is dependent upon Pittsburgh. In the few exceptional instances, as in the case of two or three large stores, Pittsburgh recognizes a measure of dependence upon Allegheny. It is interesting that those of the old families connected with Pittsburgh industries who still insist on having town houses, reside on the Allegheny parks or commons.

A strong sense of corporate individuality comes to any community that is arrested by the challenge of great tasks. One of the influences leading to the creation of the greater city was the widening of the territory administered industrially from Pittsburgh. The best oil wells are now south rather than north of Pittsburgh, and the center of the coal regions is fast passing from the southeast to southwest and on into West Virginia. The necessity of easy transfer of iron ore from the Superior region is bringing up insistently the proposal of a canal to Lake Erie, so as to match some of Cleveland's special advantages. The nine-foot channel for the whole length of the Ohio will enable Pittsburgh's long arm to reach out and touch that of Cincinnati.

That the expansion of Pittsburgh was preceded and to some extent directed by a reform administration, has tended greatly to re-enforce the belief that Pittsburgh is moving organically toward the better day in her public affairs. This is the first successful movement for municipal reform in a generation. As I pointed out in my first article, it got its immediate stimulus out of the impudent interference of the state machine in unseating a mayor who had been elected by an opposing local faction, and setting up a "recorder" in his place. Carried out under the forms of legislation, this act stung Pittsburgh people into a new feeling of municipal self-respect and led to their electing on a Democratic ticket George W. Guthrie, who had been for many years actively interested in the cause of municipal reform. Mr. Guthrie's family, like the Quincys of Boston, has been represented for three generations in the office of mayor.

Mayor Guthrie has made thorough application of the principles of civil service reform. He has introduced business methods in the awarding of all contracts, including the banking of the city's funds. In a city where only a few years ago perpetual franchises were given to a street railway covering every section, Mayor Guthrie has, so far as the situation allowed, put in force the strictest new conception of the public interest in relation to public service corporations. He compelled the Pennsylvania Railroad to cease moving its trains through the middle of what is potentially the best downtown street in the city. The street railway company was required for the first time to clean and repair the streets, to meet the cost of changes required by the work of city departments, and to pay bridge tolls. Loose and costly business methods in the city departments were radically checked, and accounts with long arrearages involving heavy interest losses to the city, were brought up to date. The cost of electric lighting to the city has been reduced from ninety-six to seventy-two dollars a lamp. Economies have been effected through having the city do some of its own asphalt paving and water-pipe laying.

Along with economical departmental service have gone the intelligent and effective efforts, which will be explained in other survey reports, for improving the water supply, abating the smoke nuisance, combating typhoid fever and tuberculosis by wholesale inroads upon almost unbelievable sanitary evils, and for restraining and punishing the exploiters of prostitution.

Not all American reform administrations can report a decline of two mills in the rate of taxation. Had Pittsburgh not been compelled to shoulder a special burden in including Allegheny's large municipal costs accompanied with low property valuation, Mayor Guthrie would have held the rate at this low point.

Under the new charter the mayor cannot succeed himself; so that the question whether Mayor Guthrie could be successful with the enlarged electorate is a theoretical one. Even if the machine should be successful, a standard has been set which the citizens will remember and return to.

Under the determined leadership of A. Leo Weihl, a Voters' League has employed such methods for keeping proper standards before the voters as have been successful in Chicago, Boston and other cities. Within a few weeks, after a year or more of clever and determined pursuit, seven members of councils and two bank officials have been arrested on a charge of bribery. The officers of the league state that this step is but the beginning. It is not claimed that this means anything more than the highly public-spirited activity of a few citizens, and it may be, as is currently reported, that such activity became possible in that certain great financial interests decided to change their policy as to dealing with city officials. However it became possible it meant exposure and disgrace to a system which was rooted in traditions in Pittsburgh. Just as this tradition was broken once in the election of Mayor Guthrie as a result of a bitter sting to the self-respect of the city; so now there is a cheering prospect that this poisoned goad will rouse and mobilize an instinct for carrying moral reforms to the limit which is very powerful in Pittsburgh when a situation forces the issue.

The present phase of political chicanery touches the banks, and the reaction against it will be re-enforced by the growing concern of the community in the face of bank defalcations amounting altogether to not less than five million dollars within the past four years, some if not all of which involved mysterious political complications.

Such an extreme outbreak of crime is related to the transition stage through which the city is passing. Along with the intoxicating accumulation and expenditure of wealth, the old type of dominating, watchful, industrial and financial leader has disappeared,—that which is typified by Mr. Carnegie, B. F. Jones,—whose firm continues the largest independent steel concern in Pittsburgh,—the Parks, the Moorheads, the Olivers, the Laughlins. The large industrial interests are in the main turned into bureaucracies whose plans in detail are decided in New York, and whose officials must guide their public actions so as to serve the corporations' interests. The merchants and professional men of the city who have always deferred to the manufacturers, have only recently begun to assert themselves. It is perhaps natural that civic co-operation should make a more effective appeal to the merchants than the manufacturers, the merchants' constituency and scene of action being very largely local. Mayor Guthrie's election was a result of this new organized element in the life of the city. His work has in the nature of the case been largely the lopping off of old evils and the piecing together of a system of administration which shall embody standards of honesty and business efficiency.

Will the people of Pittsburgh be ready for the further stage of sound reconstruction, for the unified, organic development of the city as a thing in itself; for the application to the common welfare of those coherent, adventurous principles which have made possible the magnificent prosperity of the few? The proper answer to this inquiry must regard the time perspective. A strong momentum of public spirit and social service from out of the past, Pittsburgh, in becoming a great population center, did not possess. But in the last ten years the progress of this community, to one who can test it in varied and intimate ways, has proved in such matters highly significant and promising.

There are significant results, for instance, of the collective action of business men for the enhancement of the general interests of the city. Such effort leads first indirectly and then directly to the improvement of the city as a place in which to live.

Two considerable changes in the layout of the downtown part of the city have been brought about by special branches of trade. The wholesale grocers and the wholesale provision men have been for generations located on Liberty and Penn avenues west of the Union Station. Recently the latter have taken possession of a territory beginning a few blocks farther east and reaching for a quarter of a mile along Penn avenue, and through to the Allegheny River. A large number of the meanest tenement houses have been swept away by this process, and facilities provided for receiving and distributing fruits and vegetables, a distinct gain toward a hygienic urban commissariat. The wholesale grocers have cleaned up an equally large and equally unsanitary tenement area on the South Side, and have built vast subdivided warehouses under a single general management. Perhaps the most important aspect of these great co-operative improvement plans is the suggestion they give of the capacity of Pittsburgh citizens for making other broad modifications in the structure of the city, such as the improvement of its river fronts, the proper planning of its thoroughfares and public centers, and above all the sanitary and adequate housing of its industrial population.

It is indeed by its bold pioneering in such directions as these that the Pittsburgh Chamber of Commerce, chiefly under the leadership of H. D. W. English, has come to have an ever-growing authority in Pittsburgh, and a rather unique reputation and influence in other parts of the country. Greater Pittsburgh, as it is, with the provision for further expansion from time to time, is largely the result of the chamber's persistent effort. The improvement of the Ohio River which is to be undertaken at once by the national government, and the organization of a company to build the canal to Lake Erie, are also results of its initiative. The reduction of the smoke nuisance, the provision of a proper system of sewage disposal, the study of plans for protection against floods, and, most noteworthy of all, the inclusion of the hygienic housing of the people in the list of the city's chief economic problems, are among the statesmanlike undertakings which the chamber has been effectively promoting. The Chamber of Commerce is reinforced by local boards of trade covering the chief outlying sections of the city and including in their membership not only representatives of business carried on locally, but downtown business men who reside in the district. The boards of trade have been infected by the broad spirit of the Chamber of Commerce, and are in essence district improvement societies whose activities are focussed and forwarded by their business-like motive and methods.

It can hardly be that any city has ever had so great re-enforcement of its finer life from the beneficence of a private citizen as has Pittsburgh. Under the general title of Carnegie Institute are included a public library, a museum, an art gallery, and a music hall. These, under one roof, cover an area of five acres. At a little distance are the Carnegie Technical Schools with grounds covering thirty-six acres. The total sum which Mr. Carnegie has given these different objects is upwards of $11,000,000.

The library contains 300,000 volumes. The annual circulation is nearly three times this number. The service rendered by the library is greatly increased by aggressive and ingenious missionary work. There are six well-equipped branch libraries with 170 distributing stations throughout the city. Half of these are in the shape of little reading clubs and home libraries for children, conducted by the library management itself. This branch of the library's work has grown so much as to justify the establishment of a school for children's librarians. The fact that the library exists to discover and elicit new demands is made clear in the establishment of a "telephone reference," through which any person may have a subject looked up for him and a report quickly made. There are indeed more than sentimental reasons for the cherished feeling in Pittsburgh that this is the bright particular exemplar of all the Carnegie libraries.

The art gallery, some parts of which are of exceeding beauty, includes permanent exhibits of painting, sculpture and architecture. Its chief service to art thus far has consisted in a regular annual international exhibition of paintings. A very suggestive plan is followed for interesting school children in the galleries and in pictures generally. A set of photographs of the entire permanent collection is placed in one school after another for periods of two weeks each. It is expected that a continuous circuit will be kept up in this way requiring two years on each round.

The museum stands among the four chief institutions of its kind in this country. It is under expert and enterprising management. A considerable part of its collections have been gathered by its own expeditions. Like the art gallery, it appeals directly to the public schools by sending out circulating collections, conducting prize essay contests, and by carrying on a young naturalists' club.

The music hall represents among this noble group of cultural agencies the one which simply continues the results of a significant phase of the city's inherent growth; for since 1879 Pittsburgh has had some sort of worthy musical festival every year. The weekly free organ recitals are a commendable transfer to America of a well recognized form of municipal service in English cities. It is unfortunate for this purpose that the hall should not be more accessible to great numbers of people. The symphony concerts of the Pittsburgh Orchestra, whose seasons have continued during the past twelve years, are given partly in this hall and partly (in certain years) in the Exposition Building near the Point.

The Carnegie Technical Schools represent the farthest steps yet taken in this country in providing vocational training for those entering non-professional callings. Considering that the greatest weakness of the whole American scheme of education is precisely at this point, the progress of the Carnegie Schools is being watched with keen attention, on both the educational and the economic side, from all parts of the country. Thus far schools of applied design and of applied science, a special vocational school for women, and a school for apprentices and journeymen, have made a strikingly successful beginning. All the schools are open day and evening. The present enrollment includes 2,000 students representing every state in the Union and many foreign countries. It can be said of the administration of the schools that it is worthy of its opportunity. The staff of instructors shows a rare spirit of fresh initiative, of quick and varied flexibility of mind, and of thoroughgoing achievement.

The University of Pittsburgh, is new in name but has in reality existed for more than a century. The institution has, however, not found Pittsburgh conditions conducive to academical development. Its engineering department has, somewhat to the regret of the university authorities, been by far its most important feature. A strong effort is now being made to build it up into a university worthy of a great city. A new site has been purchased and an exceptionally interesting plan for the various buildings has been accepted. When completed these structures will describe a circle up and down a hillside looking out over Schenley Park, with an administration building modelled after the Parthenon as a crowning effect.

The presence of all these educational institutions at the entrance of Schenley Park, with its 420 acres, situated within twenty minutes' ride by electric cars from the heart of the city and on the way to the chief residential sections of Greater Pittsburgh, creates a civic center with a condensed attractiveness and resourcefulness that is already definitely re-enforcing the public imagination.

All this cluster of enlightened agencies, however, to the discerning eye points by contrast to the ultimate, close analysis of economic as well as moral conditions among the people in all the less-favored sections of the city and in all the satellite industrial towns. The conception of a direct community of interest between employer and workman, particularly if the workman is a leader in his craft, begins to be visible as in a few streaks of dawn. But the mass of the unintelligible Hungarians and Slavs must be reached by the more generous and democratic sense of responsibility on the part of employers and the more prosperous classes generally. The work of the next decade is to bring them on a really large scale into the circle of American citizenship and up to the essential standards of American home life.

The touchstone of progress and success in this great enterprise lies first of all with the public schools. The public school system of Pittsburgh is in very many respects behind accepted standards. Its chief defects come out of the faulty system of administration. Every ward has its local school board with the power of levying taxes, erecting buildings, and appointing teachers. This means that in some wards there is a good quality of instruction and properly developed curriculum, while other wards fall far short. It happens from this condition of things that in the working-class wards there is little or no provision for manual training; and in general the points of greatest need are the most poorly supplied. Objectionable political methods on the part of the local boards are pretty clearly in evidence; and such tendencies are by no means absent from the central board. Signs of progress are, however, becoming apparent here and there throughout the school system. The Carnegie Technical Schools are having a powerful influence in this direction. In the South Side, under direct encouragement from this source, and with the co-operation of local manufacturers, an evening trade school has been opened. There have been experiments in the direction of medical inspection and school nursing. There is an active agitation among the teachers for a parental school. In general the whole problem of public school administration has been thrown open for debate by the appointment of a capable state commission to report upon the subject. It is thought that for one thing it will recommend the practical abolition of the power of the local boards, so that they become simply visiting committees.

The high school in Pittsburgh is and always has been an important educational influence. In popular sentiment, it occupies a place somewhat analogous to that of the College of the City of New York. In order to make its service as general as possible the present director sends to the parents of all children graduating from the grammar school an interesting printed statement of the concrete objects and value of the high school. The pressure of the demands of industry as against the attraction of general studies is of course keenly felt. An evening high school with a definitely vocational trend has recently made an encouraging beginning.

The Pennsylvania method of combining public subsidy with private initiative is followed in connection with the kindergartens. A private association has supervision of all the kindergartens in the public schools as well as of some carried on in private institutions. There are altogether eighty-one kindergartens in this system. It is felt that, at least in the early stages, this method of control brings better standards of teaching and assures such collateral work as visiting in the children's homes and conducting mothers' meetings. It is needless to say, however, that in the long run such a division of responsibility will be injurious in point of effective service and of a proper sense of responsibility in the public administrative officers.

This sort of apprehension is all that qualifies in the least one's impression of the admirable work of the Pittsburgh Playground Association. Its activity began twelve years ago, and now,—with an off-shoot in Allegheny,—includes the administration of six well-equipped recreation parks, twenty-four vacation schools held in school buildings, and a number of small playgrounds. The center of the system is the site of an old arsenal, thirty acres in extent, in the midst of a great working class district. At every point in all this work, discriminating effort is made to achieve positive educational results as well as to bring healthful enjoyment to the largest possible number of persons. In this respect, as well as in the definite prospect of appropriations sufficient to provide every now neglected section of the city with an ample playground, Pittsburgh stands at the forefront in this most vital phase of educational and civic advance.

Like Chicago and other typical American cities where men are deeply absorbed in business, women have contributed a particularly important share to public betterment work. The Civic Club of Allegheny County, in which women have for the most part been the active spirits, and various women's organizations, particularly the Twentieth Century Club and the Council of Jewish Women, have accomplished many telling results in this direction. The Civic Club has the direct management of two people's bath houses; but its main service consists not in work of administration but rather in initiating enterprises to meet new problems as they arise, and then setting them loose to develop permanent organizations on their own account. In this way the club started the playground association, a municipal hospital for contagious diseases, manual training in the public schools, a legal aid society, an open-air tuberculosis camp, and a child labor association, beside having an active share in the creation of the juvenile court and the securing of progressive tenement-house legislation.

In the field of charity and philanthropy Pittsburgh shows a very substantial degree of activity and earnest motive. Very much is needed, however, both in the way of more enlightened specific and local execution and of broader co-operation for economy and completeness in each type of social service. The staff of the Pittsburgh Survey has had the privilege of submitting to many institutions and agencies the accredited results of recent experience in other cities and countries. Such suggestions have been cordially received and in some instances at once acted upon. The Pittsburgh Associated Charities, which has been organized within the year, has secured the support of nearly every phase of charitable endeavor in the city. It represents the immediate advantage which Pittsburgh, under the spur of organizations like the Civic Club, has taken of the Survey's presentation of the practical conclusions of scientific charity. The Associated Charities is so new that nothing can be said about results in the ordinary sense; but in contrast to the confusion which existed until a year ago, its clear cogent platform covering both remedies and reforms, its straight appeal to the practical men, its strong representative board, and its fit and well convinced executive officer, are achievements of the first order.

The development of the great filtration project has naturally stimulated other movements for the improvement of the public health. In this direction the municipal health department is a broadly and consistently helpful influence. The fight against tuberculosis is carried on effectively by both public and private agencies. The special commission of experts appointed by the mayor and aided financially by the Sage Foundation for tracing causes of typhoid fever aside from the water supply, will render a most important service to Pittsburgh as well as to the whole country. The successful record of the filtration plant in greatly reducing the amount of typhoid in the city, gives added point to this scientific effort to rid out the last lurking places of infection. In general, however, it must be said that the self-forgetful abandon with which many medical men in other American cities are bringing their priceless knowledge to bear upon public unsanitary conditions and unhygienic ways of life,—a type of effort which both in motive and result may almost be taken as the test of a city's progressive civilization,—has hardly as yet reached Pittsburgh. The exceptions,—notable ones,—are of the sort that prove the rule.

The co-ordination of charitable effort, both in its different kinds and in its different localities, is a step which needs now to be followed by the federation of agencies for social upbuilding. The playgrounds which are fast becoming the headquarters of a kind of neighborhood guild, will furnish a substantial part of the material for this comprehensive social formation. In such enterprise, organized local citizenship, especially as seen in the boards of trade, will undoubtedly afford valuable re-enforcement to the distinctively philanthropic motive. The settlement houses of which there are several, might naturally take the lead. Such a federation would ensure to each local agency information about the results of experience at every other; it would bring the momentum of concrete local knowledge to bear upon the public school system and other parts of the public administration; it would draw into the work of constructive local betterment many resourceful new individuals and new agencies, thus spreading throughout the city the new point of view in citizenship; it would bring forward from the congested sections of the city those rear detachments of citizenship without which municipal reform must continue to be shallow and casual. In the development and extension of local social organization lies much of the promise of widespread growth of public spirit in Pittsburgh. The people have a distinct capacity for the invaluable village type of loyalty. This can in due time with expanding experience be made into the most enduring type of city loyalty,—that based on neighborly co-operation gradually extended and writ large but carrying with it always that sense of reality, that nearness to the soil, in which it began.

FRANCIS J. TORRANCE.

President Pennsylvania Board of Public Charities.