F. ELISABETH CROWELL

DEPARTMENT FOR THE IMPROVEMENT OF SOCIAL CONDITIONS, NEW YORK CHARITY ORGANIZATION SOCIETY

Last winter, the Pittsburgh Survey, co-operating with the Bureau of Health, conducted a special investigation of the housing situation in Pittsburgh. Its purpose was a general stock-taking from the point of view of sanitary regulation. Evil conditions were found to exist in every section of the city. Over the omnipresent vaults, graceless privy sheds flouted one's sense of decency. Eyrie rookeries perched on the hillsides were swarming with men, women and children,—entire families living in one room and accommodating "boarders" in a corner thereof. Cellar rooms were the abiding places of other families. In many houses water was a luxury, to be obtained only through much effort of toiling steps and straining muscles. Courts and alleys fouled by bad drainage and piles of rubbish were playgrounds for rickety, pale-faced, grimy children. An enveloping cloud of smoke and dust through which light and air must filter made housekeeping a travesty in many neighborhoods; and every phase of the situation was intensified by the evil of overcrowding,—of houses upon lots, of families into houses, of people into rooms. Old one-family houses were found converted into multiple dwellings, showing that Pittsburgh's housing problem threatened to become a tenement-house problem as well. To cope with these conditions was a Bureau of Health, hampered by an insufficient appropriation, an inadequate force of employes, and in the large an uneducated, indifferent, public opinion. A report of the investigation was published, and was used by the housing committee of the Pittsburgh Chamber of Commerce in its campaign of education in support of ordinances then before councils. These ordinances were in line with recommendations of Superintendent James F. Edwards of the Bureau of Health and the city administration. Councils voted an increase of $20,000 to the bureau for its work in this field. The force of employes in the tenement house division was increased from one chief inspector, three inspectors and a part-time stenographer, to one chief inspector of experience, ten inspectors, one clerk and one stenographer on full time. A new system of records was inaugurated and comprehensive measures were undertaken to obtain the complete census of all tenements in Greater Pittsburgh. Subsequently, an ordinance was passed providing for the compulsory registration of tenement houses.[7] Here, then, has been a long stride ahead in the course of housing reform in Pittsburgh, which had been inaugurated several years before by Williams H. Matthews, headworker of Kingsley House, and the leaders of the Civic Club,—pioneer work which had secured the provisions of the existing state tenement house law and the creation of a tenement division under the Bureau of Health.

This leads us to the present housing situation in Pittsburgh,—a situation which should be seen in its right proportions. First, should be remembered the decades of neglect. The process of cleaning up and rehabilitation is a ten years' job. The very fact that ordinances have been passed, a tenement house census taken and fifty thousand people supplied with sanitary accommodations points the way to the long, exacting work ahead in devising legislation and enforcing it in order to bring existing structures up to what may be called the new Pittsburgh standard. In the second place, the tenement house dwellings for three or more families are, when all is said and done, but a small part of the homes of the wage-earning population. The great housing problem in Pittsburgh is that of the one-or two-family dwelling. Here is a field where even more exacting sanitary work and regulation must be done in the ensuing years. In the third place, the mill towns, as well as the city, present every phase of the evils of bad housing. It is a district problem, then, for the leaders in Pittsburgh. Finally, behind all these existing unsanitary conditions demanding regulation, is the shortage of houses throughout the Pittsburgh District which will reassert itself with returning prosperity. As a result of the campaign of last winter, the Bureau of Health is now for the first time adequately equipped to get at the existing tenement abuses and to point out the need for more housing accommodations,—new low-rental houses,—if the work of reducing overcrowding and eradicating disease breeding quarters is to be carried out on a comprehensive scale.

The tenement house census shows a total of 3,364 tenement houses in the Greater City, and puts in the possession of the department a body of facts bearing upon the localization of bad housing conditions throughout Pittsburgh. This was the first logical step to be taken toward dealing intelligently and efficiently with the situation. To the accomplishment of this task the main energies of the tenement house division have been devoted up to the present time. From every source in every quarter the cry of "hard times" has been insistent and the authorities up to the present time have deemed it inexpedient to force drastic plans for improvement. They have endeavored to keep things clean, and have insisted upon necessary repairs, but orders relating to structural changes have been held in abeyance pending a revival of more prosperous financial conditions. The process of eliminating privy vaults, however, the most threatening sanitary ill, has been vigorously continued. Thus far 5,723 vaults have been filled up and abandoned and 9,323 sanitary water [Pg 875]
[Pg 876]closets for the use of 10,471 families installed in their places. A census of the first twenty wards shows a total of 5,793 vaults still in use in these wards alone. No figures are as yet available for the remaining twenty-four wards of the Old City,—or the fifteen wards on the North Side.

Some of the worst plague spots in Pittsburgh have been eradicated despite the fact that, by veto of the governor of Pennsylvania, power to condemn insanitary structures was not given to the health authorities. That much remains to be done is, however, as true as it was a year ago, as I found on a recent reinspection. "Tammany Hall," Pittsburgh's classic example of bad housing is no more. Unable to vacate by process of law the old planing mill which had been converted into a tenement, the authorities piled violation notice upon notice at such a rate that the owner found the old shack a losing investment, and at last agreed to tear it down. He told me sorrowfully that if "they" had let him alone until September, he could have made $1,800 on the place,—an amount sufficient to pay his taxes to the city that was ruining him. It seemed a pity some method could not be found by which he might be forced to clean out another choice bit of property which he was renting,—a long, narrow, two-story brick tenement, where ten families and two stores are occupying thirteen rooms. The water supply was a sink in one apartment, and another on the second story floor and a hydrant in the yard. Here also were the closets which are shared by seven families, living in the houses adjoining.

Another familiar eye-sore on Bedford avenue was still standing,—worse still, it was rented out, at least in spots,—three families in the front, and three in the rear buildings,—Negroes and whites. It looked more dilapidated and dirtier than when I visited it last winter. The owner was notified over a year ago that the houses must be repaired and certain alterations made if they were to be occupied as tenements. She pleaded a heavy mortgage and a dying sister. The mortgage still holds, the sister is still dying, she is unable to find a purchaser for the property, and in the meantime two-room "apartments" are still to be secured for twelve dollars a month, with all ancient inconveniences:—water to be obtained from a hydrant in the yard, and shared possibly with eleven families; foul privy compartments also to be shared with neighboring families, and perchance an occasional passerby. None but the lowest class of tenants will live in these to-be-abandoned dwellings, and their continued existence constitutes a grave danger from a sanitary viewpoint, not only to the immediate neighborhood, but to the entire city. So long as the law permits such breeding places for disease, so long will the fight against filth diseases be a losing one.

Stewart's Row, on West Carson street, as I found it late this fall, was evidently destined to maintain the standard of the neighborhood in the matter of bad housing as originally set by its neighbor, Painter's Row; two wooden rows of two-family houses, rickety, leaking, sheltering thirteen families; two vaults at the rear, one with contents exposed; two hydrants the sole water supply; an obstructed drain; the hillside decorated with a disgusting combination of waste water, garbage, and rubbish.

Allegheny has added her quota to the problem of housing in Greater Pittsburgh. The tenement house inspectors in the course of their census-taking have unearthed more than one example of rank conditions on the North Side. In one tenement the ground floor was occupied as a stable; a cellar revealed the piled up accumulations of years; privy vaults flourish and household water supply is noticeable chiefly because of its inadequacy. Over one-fourth of the entire number of tenements found in Pittsburgh are located on the North Side. According to the chief inspector at least fifty per cent of these are in a bad condition.

The Tenement House Department has thus found plenty of work ready at hand for its inspectors. Of the 3,364 tenement houses enumerated by the census, nearly fifty per cent are old dwellings originally planned and constructed to accommodate one family. Frequently, no provision is made to meet the demands of the additional number of families. Privacy is destroyed, closet facilities and water supply are inadequate, cellar and basement rooms are made to do duty as living and sleeping rooms and there is no protection from fire danger. Of the remaining number of tenements less than one-half are new-law tenements.

TENEMENT CENSUS.

The accompanying tables show the various nationalities which recruit tenement dwellers and the share contributed by each. Nearly one-half are American born; one-fourth are Slavs. Next in numerical importance are the Hebrews, then the Germans, Negroes, Italians and British. The remaining scattered groups are included under the heading "Miscellaneous." Pittsburgh's tenements shelter 12,300 families, containing 42,699 people; 1,532 families take in boarders and of these boarders there are 3,200. The total number of people living under tenement conditions (three or more families to the house), is 45,899.

The welfare of over forty thousand people is dependent then on tenement house standards and their enforcement in Pittsburgh. This is perhaps eight per cent of the total population, a small proportion when compared with New York for instance. The primary housing problem of the wage-earning population in Pittsburgh, remains then not a tenement problem in the strict legal sense, but a one- and two-family dwelling problem. This is the aspect of the situation which Pittsburgh must face in its entirety if the city is to profit by the experience of older communities.

"If you think Pittsburgh is bad, you ought to see Glasgow," said one man. "Look at the tenements in New York," said another. Yet, if the city's phenomenal growth continues to be equalled by her phenomenal indifference to the necessity of raising the housing standard for her least paid laborers, the day may come, and soon, when Pittsburgh will make a close third to these cities. Because of hard times, vast numbers of immigrants have left Pittsburgh, and temporarily the rental agencies have plenty of idle houses upon their lists. These houses throw light on the situation. Two, three, four, and five-room apartments are available at an average monthly rental of from two and a half to five dollars a room in many sections of the city. There are also some single houses to be obtained for the same price. Over half of these dwellings are without any modern sanitary accommodations, and many are in a wretched state of repair. The majority of the houses are in the most sordid quarters of the city where living is high, at any price. Certain dwellings are offered especially for foreigners or Negroes, dilapidation, lack of conveniences, and an undesirable locality being distinguishing features of these houses.

We label the foreigner as an undesirable neighbor; we offer him the meanest housing accommodations at our disposal; we lump him with the least desirable classes of our citizens; then we marvel at his low standards of living. Give him better, cheaper, houses where he may have a decent and comfortable home, instead of a mere shelter from the elements, unwholesome, overcrowded and expensive, and then see what his standard of living would be.

The natural conformation of the land with its steep declivities, and its winding, tortuous valleys, has added much to the difficulty of the housing situation. Adequate transportation facilities would open up territory on the South and West sides where countless people could be housed. The trend of the mills away from the city to nearby river sites, attracted by lower tax rates and unlimited space will offer further relief and improvement, especially where great employers of labor, in laying out their plants as at Mariana, and Vandergrift and Gary take heed of the proper housing and sanitation of the towns that will grow up about them. As the situation stands to-day, however, bad housing conditions are multiplying in the surrounding industrial towns; and they must face the same problem. Its seriousness demands the formulation of public policies that shall encourage every form of building operation that will produce sanitary houses at low rentals, whether they are private homes or company houses of creditable standard, or dwellings put up by building and loan companies, commercial builders, or co-operative housing companies, along English lines.

A Chamber of Commerce report states: "The city of Pittsburgh, along with its vast industrial development, has grown so phenomenally in population during the past ten years that it has been clearly impossible for the growth in housing accommodation to keep pace. Careful and comprehensive investigations show conclusively that the housing facilities of the Greater City have completely broken down, not only in point of reasonably proper conditions but in amount of available real estate."

"We have not the time, nor is it our function to investigate the housing situation of the city. Let the charitable or philanthropic agencies make a systematic study of the evils that exist, and we will gladly lend the support of our influence to any recommendations which they may offer," said a leading spirit in one of Pittsburgh's great commercial organizations. To this man the proper housing of the workingman had a charitable aspect.

"We don't want to go into the housing business. We are manufacturers, not real estate dealers. We may be forced to build houses in certain new districts in order to attract and hold labor, but in an old, settled community let the laboring man take care of himself. We don't believe in paternalism." I quote the president of a great steel company.

Said a prominent real estate man: "There certainly are other more attractive investments for private capital than the building of small houses,—taxes are high, the demand for such dwellings has fallen off considerably and the returns are uncertain, owing to the difficulty of collecting rents in times such as these."

And the laboring man says: "I want a decent home at a moderate rental, within reasonable distance of my work." Can he get it? Rigorous sanitary work by the health authorities will help. But more than that is needed.