5 347 450 .IBRARY, A PLAN FOR A 8 3, 6: 6! 81 HOUSING SURVEY California igional ,cility 7 Commission of Immigration and Housing of California Underwood Building, 525 Market Street San Francisco, Cal. JANUARY, 1916 v HOUSING. 3 A PLAN FOR A HOUSING SURVEY. INTRODUCTION. The plan here presented for making a survey of housing conditions in a city or town does not include the survey of conditions bearing upon a city plan. City planning is a technical subject, and preliminary surveys looking toward constructive city planning work in any city should be undertaken by an expert city planner employed by a city planning commission. In fact the first task that will confront any city planning commission created under the provisions of the state city planning law, chapter 428 of the Statutes of 1915, will be a survey of existing conditions and this Commission can not presume to furnish a plan of survey which would be applicable to any city or town especially when the plan w r ould be furnished to an expert or experts who should be more familiar with the literature and theories of city planning than is this Commission. The plan here submitted is, therefore, limited strictly to a survey of existing housing conditions with reference principally to the construc- tion and sanitation of dwelling houses. THE PLAN. I. EDUCATION. The first essential thing is that the group or organization interested in making a survey should get a clear idea of what housing means, and what those working for better housing are trying to accomplish. There are many bad housing conditions which are not quite so dangerous and serious as they might appear to the beginner. Moreover, the beginner in housing is apt to jump at conclusions and seize upon any suggested remedy when emotionally moved by insanitary and bad housing con- ditions. In this connection Mr. John Ihlder of the National Housing Association says: "For instance, it very often happens that those who find in their own community dilapidated hovels and shacks are prone to advocate the building of model tenements. Yet the coming of these model tenements would in the long run work the city far more injury than the continuance of the present insanitary hovels and shacks which, after all, may be wiped out with comparatively small effort once the community has made up its mind to do so. The tenements, on the other hand, once established remain practically forever." The first suggestion, therefore, is that those who plan to undertake a housing survey should begin by carefully studying some of the housing literature listed in the bibliography of the "A. B. C. of Hous- ing," published by this Commission and which will be sent free on request. COMMISSION OP IMMIGRATION AND HOUSING. ORGANIZATION. When those who have undertaken the work are fairly familiar with the fundamental problems of housing, the next step is the formation of an organization for a survey of existing housing conditions. There are very few communities in the State in which any citizens or even the city eouncilmen or the health officer have any accurate conception of the existing housing and sanitary conditions. It is, therefore, not sur- prising that there are so few well-defined plans for constructive housing and sanitary work in California cities. (A) The people who undertake to conduct or stand as sponsors for a survey should be gathered together in some sort of an organization for the purpose. This organization should preferably have a large representative membership, so that greater influence can be brought to bear in arousing public sentiment and support and in passing ordinances. (B) The general management of the housing survey should be entrusted to a rather small executive committee. This committee should be made absolutely responsible for the prompt and proper conduct of the work. (C) The town or city, or the part thereof that is to be surveyed, should be divided into districts, with a member of the executive com- mittee in charge of the work in each district. (D) The executive committee should carefully select a group of volunteers or paid workers who have completed the course of study prescribed above, and who are pledged to carry through the work conscientiously and promptly. (E) Some one person, preferably one with experience in housing work, should be put in charge of the workers who are to do the actual inspection. This person should train the workers in a uniform method of inspection and in the making of reports. Furthermore, this person, after the work has begun, should make frequent tours in the scattered districts to check up the work of the inspectors. (F) The districts above mentioned should in turn be split up into divisions and two field workers should be assigned to inspection in each division. Much more can be accomplished by two people working together than by working separately. Especially is this true in making measurements and in collecting general statistics. The workers should be absolutely restricted or limited to the division assigned them. (G) "When the working force has been organized nothing should be done in the way of inspection until the workers are made familiar with all the state laws and local ordinances affecting the sanitation, maintenance, and general construction of houses. The workers must know the legal definitions of a tenement house, a hotel, a lodging house, HOUSING. 5 and single and multiple dwellings other than tenements. The two state laws dealing with housing conditions which must be carefully studied are the State Tenement House Act, Chapter 572, Statutes of 1915, and the Hotel and Lodging House Act, Chapter 695, Statutes of 1913. Inspections made by workers familiar with state and local laws will be much more profitable because then the violations of these laws can be reported and a distinction made where insanitary conditions are discovered which are not covered by law. There should be careful individual study of the laws and this study should be supplemented by lectures and general open discussions of the various laws and the provisions thereof. III. INSPECTION. When the field workers are thus broadly informed concerning the general problems of housing and concerning the housing laws, the care- ful, methodical work of inspection should begin. (A) It is of primary importance that some sort of housing card or blank be used for the recording of the facts discovered. General state- ments that such and such houses are "in bad condition" or "insanitary" carry no weight and they are not convincing. Furthermore, they are not comparable, and they are not susceptible of statistical treatment. Appended to this plan are the forms used by the State Commission of Immigration and Housing in reporting inspections. These forms do not cover all the sections of the state housing laws nor do they cover the provisions of local ordinances. They do cover, however, the most important violations of laws and the worst insanitary conditions. They can be easily printed on cardboard five by eight inches in size. (B) The field workers should be carefully instructed how to fill out the cards used. It would probably be well for the entire group to inspect one house together, or separately, and fill out cards thereon by way of experiment. Roughly, any cards or reports which are used should gather definite information concerning the following conditions : 1. Percentage of lot occupied by building. 2. Size of yards and courts ; distances between detached houses. 3. Condition of streets and alleys as to repair and cleanliness. 4. General condition of yards. 5. Light and ventilation of rooms and halls. 6. State of repair of walls, ceilings and floors. 7. Size of rooms and overcrowding of rooms. 8. Use of cellars and basements for living purposes. 9. Drainage of cellar, yard, etc. 10. Use of surface wells and relation to privy vaults. 11. Provisions for sewer and running water. 12. Plumbing conditions closed or open. 13. Condition of water-closets or privies. 14. Garbage disposal and receptacles. 15. Stables or any animals on premises. 16. Number and general condition of fire escapes. 6 COMMISSION OF IMMIGRATION AND HOUSING. (C) These reports above mentioned should be made out for every house (whether the outer appearance be "good" or "bad") in the districts where intensive surveys are to be made. Several square blocks, at least, should be selected for such intensive surveys, and they should include the homes of aliens and the wage earners who are most open to exploitation by greedy landlords. Several blocks in the "better" districts should be surveyed for comparison. (D) In addition to these intensive surveys, a survey of the general housing conditions should be made by one small group, or by the head worker mentioned above. This survey would, necessarily, be super- ficial, and touch generally upon cleanliness of streets, alley conditions, cesspools and privy vaults, garbage conditions, general appearance, etc. In this general survey should be included, where possible, statistics concerning the number of tenement houses, hotels, and lodging houses, etc., in the city or town. These can be obtained from the city records, the building inspector, health department, insurance companies, etc. IV. PUBLICITY AND EDUCATION. When the inspectors have covered all the ground possible the informa- tion and statistics which have been gathered must be compiled and put before the public in the most convincing and impressive ways. Above all else the conclusions and tables of figures must be absolutely accurate ; exaggerations or figures open to the slightest suspicion must be ruth- lessly excluded. To quote from George Thomas Palmer, with reference to civic improvement: "Our evidence must be complete, and we must prove every count in our indictment. Our story must be consistent and absolutely truthful. A last year's bird's-nest is of enormous utility compared with an exaggerating or lying reformer, and the oversensitive and hypercritical will be on the alert to find inaccuracies in our evi- dence. In no American city, so far as I know, is it necessary to stretch the truth or frame our charges in intemperate words to prove the necessity for civic improvement." (A) The following are brief suggestions of the best ways in which to compile the facts: (1) Simple, comparative tables of figures, show- ing the number of totally dark rooms, and such other insanitary condi- tions. (2) Graphic charts, which better visualize the totals of figures. (3) A block map of the city, containing plats of the blocks surveyed with the insanitary houses indicated by a uniform coloring. (4) Sep- arate maps of the individual blocks surveyed, indicating by different colors the total number of each of the ten or twelve worst sanitary violations in the block. (5) Chart, showing by comparative pyramids the number of violations of existing laws or ordinances, and the num- ber of violations of sanitary rules which should be laws. (6) Charts HOUSING. 7 or maps, showing the compartive death rates of children and adults in the districts surveyed, and their relation to housing. (7) And, most important of all, panels of photographs of the actual conditions, for photographs carry more conviction than even figures and maps. No expense should be spared in employing professional photographers to accompany the inspectors occasionally to get the clearest possible photographs of interiors and exteriors. (B) The material so compiled should then be given the widest publicity and used in every conceivable way to educate the community and make it appreciate the need of improvement. (1) The wide dis- tribution of a brief and not wordy report containing a large number of photographs and all the tables and charts, is probably the first step. (2) Wide and persistent publicity should be given to the report in the local press in spite of the opposition of "boosters" clubs for "con- cealment is ultimately expensive." (3) An attractive exhibit on panels should be installed in a centrally located public hall or vacant store this to be supplemented by a small "feeder" or advertising exhibits in shop windows. (4) Public meetings with lectures should be held in connection with the exhibit, and speakers should give lectures, illus- trated by lantern slides, before every local club or organization. (5) Influential groups of citizens, particularly newspaper editors, legisla- tors, councilmen, labor leaders, business men, and club women, should be taken to see some of the typical housing conditions. V. LEGISLATION. Before an anticlimax is reached in this campaign of publicity or education, there must be a careful directing of the forces of the move- ment to accomplish a definite object the passage of remedial legisla- tion. (Note: In some rare instances it may be found that no new housing regulations are required that the only difficulty lies in securing the enforcement of existing regulations. This will be a rare situation among California cities or towns, however.) The drafting of housing laws is a technical and difficult undertaking. Wherever possible an expert should be employed. At any rate the laws or ordinances of other states and cities should be carefully studied in order to derive all possible benefit from the experience of other communities, and such laws modified to apply to the slightly different conditions that may be found. It may be possible to set "impractical" or "foolishly high" standards, but this danger is not so serious as the possibility of setting standards which are too low. The standards must not be considered merely with reference to existing conditions; they should be fixed to prevent the growth of evil housing conditions or problems in the 8 COMMISSION OF IMMIGRATION AND HOUSING. future. All the public sentiment and support which may have been aroused by the exposure of existing conditions will be needed to force through adequate legislation. VI. LAW ENFORCEMENT. The last step in the program in the field of housing covered by this survey plan is to secure the enforcement of housing laws old and new. To quote from Lawrence Veiller's "Housing Programme" "Having secured legislation, many housing reformers think they have accom- plished what they sought to do, whereas, in fact, they have just begun. Heretofore they have been preparing the soil, and this is seedtime, not harvest. If they want to get the fruits of their efforts they must be prepared to stay at the work for many years to come. How often have we seen important laws completely nullified through lack of enforcement. Housing reform in this respect differs somewhat from other great social causes, inasmuch as there is always an interested opposition ready to take advantage of the slightest relaxation on the part of the community. Eternal vigilance is indeed the price of liberty in this field." The laws "are sure to be not properly enforced unless the people responsible for them do stand by to prod and aid the public officials." (A) The organization which conducts the survey should therefore become permanent and keep regularly in touch with the housing situation. (B) Aid should be given the public officials charged with the enforcement of the housing laws in the following ways: (1) Organize sympathetic, moral, and even financial support to back the officials in enforcing the laws. (2) Attempt to reach and educate recalcitrant builders and owners so as to secure their co-operation rather than their opposition. (3) Organize, support, and secure adequate staffs of inspectors and adequate appropriations for all departments charged with enforcing the laws. (4) Semiannual, general inspections by com- mittees to check up and report violations and to observe the efforts used to enforce the laws. VII. CONCLUSION. The plan outlined above deals largely with amelioration of conditions. Some organizations may be interested in going on into the more con- structive fields of housing, such as community housing, garden cities, city planning, etc. The Commisison would be glad to correspond with organizations or individuals regarding these subjects. HOUSING. APPENDIX. The following are reproductions of the Tenement, Hotel and Lodg- ing, and Family Dwelling cards used by the Commission of Immigra- tion and Housing. They can be reproduced on cardboard 5 by 8 inches in size. It is recommended that the back of the cards be left blank for additional remarks by the inspectors. 'I 1 c 1 I g Enclosed i Nationality Cleanliness iltchen used for i i 5 I 5 i f i Ji 1 ' w*^ 1 > j t* e c a 5 1 4 G c 5 ntilation Income 9 *J J a 2 I > ! "o 1 No. vacant, ground How lighted of toilet compartm Ventilal Cleanli ad of house Open on DATE. >t I n o Sol a 5 Condition 1 a a ^ S K a Occupation he No. windows J *-. *o 1 1 E I 1 a 1 i ! I * | 1 I 1 c "a f3 l-s Sa A O 1 o C t t o U V e a o a i S c. c a K 3 t m A C i d E 3 B a * e s W 1 1 i |a || 1 X i 1 o * ^ la S , i o s- _3 , R g 2 1 " 1 S| 6 "3 n 1 1 p S 3 a g 2 C o "? 'S 9 1 3 thout windows Adults S o J3 n S 1 t s 5 E i & S Size Outbuildings N o k ffi Material Distance betwee Rear porch: op M a h i5 1 Wash tub * 13 rt Si 1 1 > s H O ce o & E C * 3 - 1 3 c o Use Material of floo 1 1 Total No. persons in apartment S Daek of card. NVESTIGATOR-- > _i 5 3 O X C ^0 ts 1 fa K Basement or cellar M O O K Congestion Itemarks on NAME OF I ! i S kt i M a 2 "3 _ to H 2 "6 o U a a 2 g > c 3 S 2 "3 s o ^2 " M p 3 S ^ M O i u c t-> 1 " 1 i: 5 c o o g c ] el a fc i 1 O Q f | X | o i | c 1 C ee b. 1 M 1 C j J 1 O G B B S O c o 3 5 S . 4. d c * " v ^ c B o 1 * ^ *jj *s E J 1 5 fa fa * Q w c {j jf i "5 c CO , S ? S ^ S M j m 1 * ^ n z> S a 1 3 i "3 i ^ a o c H e C M I 5 2 I j l-j c .s o f ^ c T- B ^ s 1 2 2 e E < I - a p. 5 M* C o o i 3 1) I 1 3 i 1 I S 1 I M S ^ & 1 ? s > B 3 * EH c M & g s i CU K K O 1 i v O H JU i ^ a c i 3 i ee i o | 1 i s if H c 2 i I T. hi J S : s ^ 1 1 s "x D Q ^ S c I V UI . STREET 2 H 1 1 1 'o. without 0S S Materla 1 I I I O U) z a K 3 j P S u . c U e CJ UJ ^ o " a. o tti V 8 > U) i i i B "E a c 1 ! ^ 1 5 c Z M r t "3 o z UJ (0 5 3 M d O lr Intal | O O a) UI 1 6 S P 01 I 1 = t c -r D K O T "H H s 1 CQ Drainage Size of A m i oc Material. UI 11 1 Rooms: Bedroom Access fr Materl 1 1 1 1 X c a fl Statlonei | 5 L I g o l- j K 2 S > UJ a * Z . a M UJ . c o &t |_ Q 4 a ** e O ^ BLOCK _ 09 jU c I 4 I 1 (1 3 ^3 w 1 a 3 a i c Cellar 01 Basemer Sanitati | Itemark; NAME 8 o a A 1 a 1 9 S 1 a a CO rt S o g o b 'ft 5 >t . g 1 ! 1 P s K R M 3 ;e of court o ion of head house m tenemen i ^ c 1 a go S S | 1 2 1 I B g 3 5 c 1 s t 1 * B 3 S M og S [ 33 a us |g g e 1 o 2 ^ A < O 1 i tf *** fa J 9 A rea cu. ll o| "o a 1 U S |f <1 ll M 5 aa I (X * i 'S a CO H o g z e 2 g i | n a 1 * S^ APAR A H ^5 ** 1 a a ft: a W z S d a s B I ^ 1 S o b s and remarl GATOR T HOUSE lion of Xr r A -.3 M 7 " g E" S Si Si i m 1 W 2 g CO "3 s g z S 1 E c 1 1 1 : ! . i a 1 "5 d o e I o^ K c a C 2 g 5 o 1 a wg r ti 1 g ncome nuary " a d CO 3ow Ofte Monthly 1-5 i o d c l"5 be | g > M d ; "c g 1 *o 1 - frH k"* e 32 a) to d ^ C d 04 w d S ft t,' 1 g ^. d 4J 0) S c "C M 07 "o tf 1 1 ;- e- I al I: Floor Covering: Car Wa/Zs: Papered Pa: Material of Beds d Blankets 5 Sheets Pillows Towels: Individual 4-1 "c c. d 1 ~G Expenditures: Rent E bi E a c t. o (D E c. go i i lack of card. INVESTIGATOR ING HOUSE SCHEDU lissiott of Jmmioi'.ii a = Q i 1 1 2 a o" 4) O m O jS C 3 M M . ^ ft * fl P O I o o "H 5 73 * S CQ CO d ~~ R. n, CJ 1 E te % s. g cu 1 1 ; S e O) d ">> c ^ w > o 5 ^ "3 d 1 odd 73 ffi 3 03 H "o ^ Z A h C ,c CQ C I P h *" 73 _o 1 S e. O o i 73 < H -> z B CO | -1 R O 1 t*. 1 o Q 73 S a o 55 09 1 S. o Garbage Cat NG HOUSE | i c D _***. CO O H S I i if | 1 fi 1^ E 1 C 1 *. i j Cii E 1 d O | J * i sss < ii QO z Zo C * *c r i " 000 083 668 4 University of California SOUTHERN REGIONAL LIBRARY FACILITY 405 Hilgard Avenue, Los Angeles, CA 90024-1388 Return this material to the library from which it was borrowed. 16 COMMISSION OF IMMIGRATION AND HOUSING. THE COMMISSION INVITES CORRESPONDENCE CONCERN- SUGGESTIONS. IF A COMMUNITY NEEDS ASSISTANCE IN ORGANIZING AND STARTING A SURVEY, THE COMMISSION WILL LEND THE SERVICES OF AN EXPERT WHENEVER PRACTICABLE. COMMISSION OF IMMIGRATION AND HOUSING OF CALIFORNIA. 525 Market Street, San Francisco. University Southe: Libra: