BUREAU FOR SOCIAL RESEARCH OF
THE SEYBERT INSTITUTION
THE SOCIAL
SURVEY
By
CAROL ARONOVICI, PH. D.
DIRECTOR OF THE BUREAU FOR SOCIAL RESEARCH,
PHILADELPHIA
PHILADELPHIA:
THE HARPER PRESS
1012-20 CHANCELLOR STREET
MCMXVI
'
COPYRIGHT 1916
BY
HARPER PRINTING COMPANY
HvIMED IN THE UNITED STATES
PREFACE
THIS book lays no claim to originality. A con-
siderable share of what is here presented was
published in pamphlet form as Bulletin No. 20
of the Department of Social and Public Service of the
American Unitarian Association. It was then revised
and enlarged before its publication in a second edition,
and was subject to additional changes when it was
published as a series of magazine and newspaper
articles.
The kind reception given to the pamphlets and
articles which I have published on the subject of sur-
veys, and the widespread use that has been made of
them in club and classroom work, throughout this
country, and in some instances abroad, prompt me
to enlarge the scope of the work into book form, in
the hope of recording in a connected and relevant way
the experience gained in recent years in the field of
social surveys.
The lines of inquiry suggested can hardly be con-
sidered as sufficiently detailed to cover the field in any
of the subjects discussed. What I have hoped to do,
is to present to the reader broad outlines of general
investigation in the expectation that those undertaking
a social survey would soon become conscious of the
more intricate and more subtle manifestations of social
life that lend themselves to analysis and measurement.
A guide for social survey work, that would cover
the whole field of surveys and include a discussion of
the technique required for an efficient collection, classi-
fication and interpretation of social facts, is beyond
the scope of this book, and could hardly be condensed
into one work unless it be in the nature of a sociological
encyclopedia. C. A,
TABLE OF CONTENTS
PAGE
THE MEANING OF THE SURVEY 1
GENERAL CONSIDERATIONS 6
The Survey and the Science of Society 7
Starting a Survey 9
The Point of View 12
The Scope of the Survey 15
Surveying Forces 17
Training Surveying Forces 19
Preparing the Community Mind 21
Sources of Information 22
( IIAKACTKK OF THE COMMUNITY 28
Territory /' 28
Population- 31
THE CITY PLAN 34
The Air 36
Food Supply 37
Shelter 38
The Special Amenities of Life 39
Relation of City Plan to Labor 39
Relation of City Plan to Leisure 40
LOCAL GOVERNMENT 44
The City Budget 48
Municipal Improvements and Loans 49
SUFFRAGE 55
Americanization 56
INDUSTRY 58
Types of Industry 58
Character of Workers and Compensation 61
Steadiness of Employment 63
v
vi TABLE OF CONTENTS
PAGE
Temporary and Side Employment 64
Protection against Unemployment 68
Safety in Employment 69
Welfare Wlork . 71
Labor Organizations and Labor Problems 72
HEALTH 76
Mortality 76
Morbidity 77
Housing 80
Conditions of Dwellings 81
Environment of Dwelling Houses 83
Rooming Houses 83
General Considerations 85
Causes of the Housing Problem 88
Governmental Factors 91
Housing Factors 94
Ownership of Homes 101
Legislation 101
Relation of Homes to the Community 102
Industrial Sanitation 103
School Sanitation 105
Sanitary Control 107
General Questions 107
Contagious Diseases 107
The Food Supply , . . . 108
LEISURE 109
Recreation 112
Commercial Recreational Facilities 115
Private Non-Commercial Recreational Facilities . .116
Cultural and Educational Facilities 118
The Emotional Aspects of Leisure 123
Art 125
Relation of Government to Leisure 128
^EDUCATION 131
The School and the Child 137
Basic Educational Questions . . . . ' 138
Administration 139
TABLE OF CONTENTS vii
PAGE
School Service and Community Needs . . . . . . 139
Efficiency 140
Private Educational Agencies 142
Educational Status 143
WELFARE AGENCIES . 145
Poverty and Dependency 149
Institutional Equipment 155
Efficiency Tests and Control of Welfare Agencies . .167
/CRIME 175
Juvenile Delinquency 176
Juvenile Delinquency and Court Procedure .... 178
Adult Crime 180
STATISTICAL FACTS AND THE SURVEY 184
SOCIAL LEGISLATION AND THE SURVEY 189
THE FACTS AND THE PEOPLE 194
The Report 197
People's Publicity 197
Exhibits 199
The Public Forum 200
The Public Schools 201
The Civic Pageant 202
A SOCIAL PROGRAM 203
APPENDIX . '. 209
Sources of Information 209
Social Agencies of Xational Scope 215
Bibliography 217
INDEX . 253
LIST OF ILLUSTRATIONS, CHARTS, ETC.
PAGE
Chart Showing Departmental Organization of the Depart-
ment of Finance of the City of New York as Contained
in the 1907 Charter Revision Commission's Report . .11
Chart Showing Departmental Organization of the Depart-
ment of Parks of the City of New York as Contained
in the 1907 Charter Revision Commission's Report . . 16
Diagram from How Should Public Budgets be Made . . 26
Distribution of Heights of Buildings 35
Chart Showing Relations Between Wages of Fathers, Pro-
portion of Working Mothers and Deaths of Babies per
1000 Births 59
Card Used by the Author in the Study of Family Budgets
Employed in the Study of 2000 Wage Earning Fami-
lies in Rhode Island 62
Obverse Part of Above Card 66
Chart Showing Percentage of Employed in Each of Nine
Building Industries at a Time When Each Industry
Showed the Largest Percentage of Unemployment . . 70
Chart Showing Percentage of Men in Building Trades and
in the Printing Trades Employed Every Month During
the Year 74
Cartoon Baby's Foes 79
Surface Drainage, a Menace to Health Found in Most
American cities facing 80
Housing Card for Use in the Recording of Facts Relating
to the Apartments Occupied by Individual Families . 82
Housing Card for Use in the Recording of Facts Relating
to Conditions Outside of the Apartments Occupied by
Families Individual 84
viii
LIST OF ILLUSTRATIONS, CHARTS, ETC. ix
PAGE
Homes for Pensioned Workers at Essen, Germany . facing 90
Map Showing Block Congestion Prior to Block Reconstruc-
tion in Liverpool 93
Map Showing Block Reconstruction of Congested Area in
Liverpool 93
Low Cost and Artistic Houses Provided by the Pennsylva-
nia Railroad for Its Employees at Enola, Pa., Repair
Plant facing 96
Apartment Houses in San Francisco, California . facing 112
"A Game, a Drama, a Ritual, a Social Occasion; a Group
of Children Passionately Recalling Out of the Twi-
light of Consciousness a Communal Dream, Testing
and Transmitting the Only Immortal Life of Which
We Clearly Know" facing 120
Remarkable Setting for Interior, by Maeterlinck, Pro-
duced by the Washington Square Players, a Group of
Amateurs facing 126
Tenements, Berlin, Germany facing 128
Chart Showing Actual and Desirable Organization of the
Administration of the Schools in the City of Philadel-
phia 132
Chart The Public School of Tomorrow 135
Chart Showing Comparative Expenditures for Schools Last
Year in Montclair, N. J., and Greenwich .... 141
A School Building at Altdorf, Germany .... facing 144
Chart Used by the Bureau for Social Research, Philadel-
phia, in the Study of Family Relationships, and Indi-
vidual Characters in Dependency, Delinquency and
Illegitimacy Cases 154
Chart Showing Distribution of Feebleminded in Massachu-
setts Institutions, Waiting Admission and in the State 156
Diagram Showing Progress of Unadjusted Child in New
York City 177
Plan for Medical Examination of Prisoners . . .181
THE SOCIAL SURVEY
THE MEANING OF THE SURVEY
WITHIN the last two decades there has been a
wide-spread effort on the part of social workers,
students of the social system, public spirited citizens,
statesmen and the public at large to ascertain the
conditions under which our social institutions are
operating, and to determine whether, under the present
state of our knowledge of these institutions, we are
getting full value for the state and the individual.
At first this effort was sporadic, and tended to
startle and confuse, rather than give a clear vision of
the existing evils and stimulate constructive remedies.
The muckraker, however, had his share in the now
clearly defined task of ascertaining in their minutest
detail the factors that underlie our social fabric and in
providing methods and machinery for a more scientific
and more efficient handling of the numerous social
problems, that a highly organized, increasingly complex
and constantly changing democracy brings forth.
The social survey movement in this country repre-
sents the cumulative result of the growing conscious-
ness among the leaders in social, industrial and govern-
mental life of this nation of the need for a clearing of
the atmosphere, and an intelligent and honest facing
of the facts that have so far stood in the way of a
realization of the highest ideals of a potentially ideal
democracy. The radicals are deploring the apparent
2 THE SOCIAL SURVEY
bankruptcy of American institutions, the church is
fearful of a decline due to a too rapidly changing social
and economic order, while capital and labor are wasting
themselves in a bitter struggle for the possession of
the earnings that represent the difference between
the marginal line of subsistence and the honest returns
of the fruits of the worker's labor.
In the midst of this turmoil of differing opinions and
points of view, looms the question as to whether society
is obtaining a fair return on its investment in human
life and labor, and whether applied science, which
seems to be the dominant achievement of this age, has
been called upon to serve the machinery of society
to the same extent that it has been called upon to serve
the more humble tasks of human productiori, such as
the making of cloth or the perfecting of the sixteen
inch gun.
Social workers and socially minded citizens cannot
fail to see the enormous waste of human life and energy
that is daily going on in our midst. They cannot fail
to recognize that this waste is not merely affecting the
individual, but that the loss is clearly social and pro-
ductive of conditions which are a handicap to the
attainment of the high achievement that this democracy
is capable of attaining.
It is this growing conviction of social failure that
is slowly crystallizing public opinion regarding the
dangers of the wasteful and cruel leakage in our human
resources. Business men and social workers, church-
workers and statesmen, university professors and labor
leaders are all coming to agree that the mistakes and
sins of our industrial life, the neglect and blind self-
interest in the business world, and our ignorance and
THE MEANING OF THE SURVEY 3
indifference towards the machinery that has to do with
the political and administrative affairs of the country,
are placing a heavy burden upon human life and human
achievement, and are wasting invaluable human re-
sources. This is quite as true of the small town and
village community as it is of the vast territory of the
United States.
The American mind is eminently practical and
measures values in terms of concrete returns. While
this characteristic has led to momentous advance in
the business world, and in the fields of science and
politics, the achievement has been individual rather
than social, and progress has been largely confined to
certain classes, without materially affecting the masses
of the people.
The conservation of natural resources has become
an established principle in our national economy, the
possibilities for increased industrial efficiency and
productivity without increase in the use of labor are
engaging the attention of the business world. On the
other hand the conservation of human resources, the
increased efficiency of community life, community
production and community development are still in
the background of our national achievement. The
point of view is not one of improvement of resources,
but of use increase, not one of co-ordinate development
but individual use efficiency.
The advocates of conservation of national resources
injd the practical managers who are testing the efficien-
cy limits of our labor and machinery are rendering
valuable national service, but their work is of the
present; it is largely material, and aims at human
achievement with the human element left out.
4 THE SOCIAL SURVEY
We are compelled by the evidence adduced by
recent studies of society to disagree with Carlyle's
dictum that "The history of the world is the biography
of great men/' and to accept the more recent and more
scientific principle that all great men are the result
of opportunities for self-expression, afforded by a social
state for which \he individual is responsible only in so
far as he developed his powers by the most intensive use
of the opportunities available in the community.
This places upon society a responsibility for the
human resources at its command, for the efficient and
common expression and utilization of which it should
be accountable. Professor Lester F. Ward in America
and Alfred Odin in France have demonstrated beyond
the shadow of a doubt that genius and talent are
capable of achievement only where opportunity is
greatest. It remains for this democracy to provide
equal opportunities for all in such infinite variety as
to call into the service of society every vestige of the
latent power that now lies fallow under a burden of
social inequality and economic inequity.
To accomplish this result, we must know the facts.
We must turn from the field of speculation to the
great laboratories, which are open before us in the
midst of the people. We must gather all the facts,
without bias, without haste and without preconceived
ideas. When the facts are known, and the good is
balanced against the bad, an awakening of the Amer-
ican people is bound to result, an awakening to a con-
sciousness of their responsibility, which will blast
the way towards improvements of a constructive, far
reaching and permanent character. It is the function
of the social survey to gather these facts and present
THE MEANING OF THE SURVEY 5
them with the accuracy and impartiality that char-
acterize the findings of laboratory methods in the field
of biology, physics or chemistry. It is only by the
development of a scientific technic in the discovery;
classification and interpretation of social facts, which
would be akin to the technic developed and applied
in the other fields of human knowledge and achieve-
ment, that we shall build up a science of social organi-
zation and function such as may serve the human race
as a guide in its very difficult task of achieving progress
without waste and utilizing human energy without
injustice.
A social survey may therefore be defined as a stock
taking of social factors that determine the conditions
of a given community, whether that be a neighborhood,
village, city, county, state or nation, with a view to
providing adequate information necessary for the
intelligent planning and carrying out of constructive
and far-reaching social reforms.
GENERAL CONSIDERATIONS
THE survey idea has now passed all the usual evolu-
tionary stages of a social movement. From a
clearly denned conception in the mind of the trained
sociologist and devoted social reformer, it has passed
through the sporadic efforts of a few scattered individ-
uals in a limited number of communities to the endemic
condition of mind that precedes all well balanced con-
structive social work.
The overwhelmingly rapid growth of our cities, the
concentration of one-third of the population of the
country within less than 0.12 per cent, of the area of
this country, the vast influx of foreign populational
elements due to immigration, the steady migration of
industrial establishments from the larger to the smaller
populational centers, the astoundingly rapid develop-
ment of industries and the revolutionizing of the
processes of production, have so complicated the social
and economic issues of this country as to necessitate
accurate scientific study and measurement where
observation and personal experience were once suf-
ficient.
The increase in the business activity that the last
two decades have witnessed and the scientific methods
of production and management that have become
necessary for efficient and economic production,
have had a very salutary effect upon social service.
In the maintenance of welfare work, the financial
burden carried by big business, contributors and
managers or the tax-paying public, has stimulated in-
6
GENERAL CONSIDERATIONS 7
terest in the application of scientific methods to
philanthropic work, which promises to revolutionize
not alone the efficacy of the service rendered, but the
entire philosophy of charitable giving, from one of in-
dividual relief to one of prevention and necessary
social reconstruction.
The startling revelation of the Pittsburgh Survey,
the discoveries of inefficiency in municipal offices made
by the Bureau of Municipal Research of New York,
the shocking political situation found to exist in San
Francisco, all based upon facts gathered by impartial
and trained investigators, have been so rapid and so ef-
fective in producing results that scientific investigation
has received a new stimulus and a constantly widening
support. The grafting politician is taking heed of the
new menace that scientific diagnosis of social and
political institutions presents to inefficiency and dis-
honesty, while the most sceptical of citizens, and those
who had almost lost confidence in democratic insti-
tutions, are finding a new stimulus for a better citizen-
ship, and a wholehearted confidence in the future of
public service.
Improvement of the means of transportation, and
the more even distribution of industries throughout
the country due to the rapid exodus of the industries
from the highly urbanized to the smaller and less
urbanized communities have spread the interest in
and need for social surveys to the more remote and
less populous centers.
THE SURVEY AND THE SCIENCE OF SOCIETY.
Sociology or the Science of Society has progressed
slowly and has so far remained largely a field of abstract
8 THE SOCIAL SURVEY
speculation, rather than of positive scientific inquiry
and interpretation. As sociological research does not
lend itself easily to the laboratory method both because
of the practical difficulty in the way of experiments
with aggregations of human beings and because much
of this experimentation is dependent upon spans of
time beyond the possibilities of the laboratory method,
the only available means for the building up of this
science on the basis of observed facts must be found
in the study of history and the minute observation,
measurement and interpretation of human institutions,
as well as their relation to the individual and to each
other.
The study of history is inadequate for the con-
struction of a science of society because its content
depends upon the knowledge, point of view and in-
fluences of social institutions in relation to the times
recorded in history, while society is a dynamic organism
growing constantly more complex, more heterogeneous
and more highly differentiated in its functions. The
accumulation of the facts gathered in the vast and
rapidly increasing motley work that is now being done
and the technic that is being developed in the selection,
segregation, measurement and interpretation of social
facts will open new horizons to the study of society,
and a new sociology will be created based upon facts
gathered and measured by uniform standards, tested
and verified by a skilfully developed scientific technic.
The reaction upon the whole of our social structure
resulting from the development jpf the new science is
bound to lift the veil that hangs over the present
blundering institutions and develop a social structure
in harmony with the best interest of the individual
STARTING A SURVEY 9
in his relation to the social order of which he is a part.
The Russell Sage Foundation, the many Bureaus of
Social or Municipal Research that have sprung into
being throughout the country, the research depart-
ments of the more progressive universities, like Wis-
consin, are laying the foundation for a great positive
science of society. Governmental agencies and educa-
tional institutions, large industrial establishments and
business corporations are contributing to the task of
accumulating social data upon which to base social
reforms, and the old institutions are tottering under
the weight of evidence which is bound to make way
for a new, less wasteful and more equitable social order.
STARTING A SURVEY.
The Federal Government of the United States has
for some years been instrumental in the carrying out
of intensive scientific studies of social and economic
problems in various localities or throughout the country
as a whole. Much of the information gathered is
valuable, and at rare intervals has been productive
of social legislation and improvements. These extra-
community efforts, however, have most frequently
resulted merely in the accumulation of well sorted
and well stored facts, fit for the consumption of experts,
but indigestible, although easily accessible to the
general public. These valuable and costly social
studies or surveys have, however, fallen far short of
their purpose to enlighten public opinion and facilitate
public action.
The most effective survey work that has so far beenL-
done in this country has been initiated through the'
communities themselves, even though they were due
10 THE SOCIAL SURVEY
to outside stimulus and were carried out under the
supervision and direction of outside experts.
A survey, like any other civic activity involving a
conscious effort on the part of a group of citizens, must
be started by some particular civic or philanthropic
agency, some body of men or women interested in
the welfare of the people whose intentions cannot be
questioned and whose integrity, good judgment, moral
and political standing are beyond reproach. Most
small cities and towns have a Charity Organization
Society, a Young Men's Christian Association, a Board
of Trade, a Business Men's Association, a' Grange, a
large Women's Club, a University Club or some other
similar organization or agency which is backed by
prominent men or women or both. The person or
persons interested in making a survey should select
the most prominent, the most respected, and if possible,
the best financed organization in the community to
back the work. The main conditions to be observed
in selecting the organization should be as far as pos-
sible a complete absence of sectarian affiliations,
political color or special industrial or public service
interests.
When the organization has been decided upon, a
carefully selected special committee of persons from
various walks of life should be appointed with instruc-
tions to plan and organize the survey under the auspices
of that organization. This committee should not be
so large as to be unwieldy, nor so small as to be in
danger of being one-sided or not representative of the
best elements in the organization. A committee of
ten persons in localities under ten thousand population
and of fifteen to twenty in localities over ten thousand
8
u PH
Eg
12 THE SOCIAL SURVEY
with special sub-committees would probably prove
most efficient.
In larger cities a permanent Survey or Social Re-,
search Bureau is desirable if it can be organized and
maintained, so as to remove all possibilities for factional
control or financial restrictions. Municipal Bureaus
are valuable and desirable assets in a community,
but in the fields in which political influence may con-
trol appropriations in order to throttle the revelation
of facts detrimental to parties or special interests, an
independent, privately maintained research agency
is preferable.
While the technic of social survey work or social
research is sufficiently developed to render possible
the accurate study of social phenomena, the general
public has yet much to learn in order to be safeguarded
against pseudo-sociological interpretation to which
special interests frequently have recourse for their
own selfish ends. This necessitates a check and balance
system of research agencies, giving to the public agen-
cy the field that can be detached from private interests,
and leaving to private enterprise the work that under
our present status of municipal and state administra-
tion, would be dangerous to entrust to official depart-
ments.
THE POINT OF VIEW.
Where a well organized permanent survey agency
exists, or where experts are engaged to carry out a
special inquiry or a general study, the point of view
may be safely left in the hands of those who have been
engaged to carry out the work. These experts, how-
ever, should not be considered able to catch the spirit
THE POINT OF VIEW 13
of .a community in which they are only temporarily
stationed. Every assistance should be given to them
by those familiar with local conditions, but advice
should not be imposed upon the experienced investi-
gator, who knows his sources of information and
possesses the. necessary skill to use it.
Where a survey is to be carried out by local and not
highly specialized workers, who do not possess wide .
experience and special training in this field of endeavor,~-j~
the local community should decide upon the scope and !
point of view by which the problems to be studied
should be approached.
Whenever possible, the advice of some outside expert
familiar with the method of investigating conditions
and acquainted with the problems of given communities
will be found valuable, and will prove the easiest and
surest way of deciding upon the point of view from
which the survey is to be approached. If such an
expert is not available the local social workers con-
nected with various philanthropic agencies should be
consulted as a group and their suggestions considered
as coming from persons with first hand information
concerning existing conditions.
In deciding upon the point of view from which to
approach a survey it is important to recognize in
general, several conditions:
1. Is the community ready for a careful consideration of its
local problem or problems to be covered by the survey?
2. In what way are the schools, the churches, the press and
the local organizations being prepared for a civic revival that \
may result from the revelation of a survey?
3. To what extent may the governmental agencies be depended /
upon to co-operate in the gathering of the facts and in the carry- /
14 THE SOCIAL SURVEY
ing out of the recommendations that are to form part of the
survey findings?
4. What are the populational groups that may prove most
antagonistic or most helpful in the effective carrying out of the
preliminary work of the survey and the carrying into effect of
the recommendations?
5. What problem or problems is the community best prepared
to face at the time of the survey, and what would be the best
approach to such a problem, that would pave the way to con-
certed community action and a recognition cf the survey method
as an efficient means of social improvement?
6. Can the local press be depended upon to serve the purpose
of the survey without prejudice and without the application of
sensational methods which are effective in the production of
marketable headlines instead of enlightened public opinion?
These are questions that the committee must ask
itself before deciding upon the point of view from
which to approach its work, and any intelligent
person or body of persons sufficiently interested in the
community to act as a survey committee should be
able to answer these questions. If the community
is suffering from undue and pernicious political activity
and there is reason to believe that the result of a study
of the administration of public affairs would lead to
immediate and radical changes for the better, it is
well to begin the work from that end and work up
towards the general social problems as outlined in
this bulletin. If the social problems of a community
are more promising of results and the press is ready
to help bring the facts before the public and stand
back of recommendations that might logically be made
after the facts have been ascertained, it is best to begin
from the social end. If the community is aroused to
some particular evil, which has not yet been remedied
and which depends for its solution upon a thorough
SCOPE OF THE SURVEY 15
and impartial investigation, by all means the survey
should begin with that particular problem.
In all of the work, however, whether it is undertaken
in order to bring about a complete change in the com-
munity life, or whether it is to deal only with specific
problems^xhe committee must approach its task with
a definite understanding that the work is to be done
for the benefit of the locality without the sensationalism
that would be injurious to its reputation as a center
of population. The work is not to be given up until
definite results are accomplished, and above all every
available social force in the community should be
made a part of the working team of the survey so that
no particular body of men or women may take the
full credit for the results accomplished. }
SCOPE OF THE SURVEY.
A survey should cover as far as possible every phase
of community life, advantageous and disadvantageous,
that time and available energy can secure, but if a
selection of specific problems is made either for the
purpose of beginning the work or because of limitations
of time and working force, the lines of investigation
selected should be practical, should have in view
improvements affecting as many people as possible,
should be easily understood by the masses and should
be measurable in commonly accepted quantities. If
the supply of milk is bad, an investigation into the
source of milk and the passage of proper regulations
for the control of the milk supply will soon show results
that can be measured in terms of a material reduction
in the infant mortality and morbidity. If the schools
are spending large amounts of money with meager
SCOPE OF THE SURVEY 17
results, an investigation into the accounting system
of the school department, a study of the physical con-
ditions of the children and visits to the homes of back-
ward and truant pupils will soon reveal the cause of
the inefficiency, in terms which can be easily under-
stood and almost as easily remedied.
Whatever the scope of the survey, it should be
definitely outlined at the beginning both as to char-
acter, extent and intensity. A superficial survey is
worse than useless because its conclusions are bound
to be unreliable and open to attack. Intensive work
is the essential of effective survey work, and if the
scope of the inquiry is to be determined upon the
basis of the relation between the extent of the field
covered and the intensive concentration of effort upon
a single problem, the smaller and more intensive
study should be selected. A survey that is superficial,
that is open to question or without sufficient backing
as to facts may defeat not only the end of the particular
survey in question, but may cast doubt upon the social
survey as a means of achieving a desired social end.
Stated in brief, a survey must follow lines which
are of a practical character, must be based upon ample
and irrefutable facts, must be interpreted in the light
of existing social conditions, and must have in view
tangible improvements which are easily understood and
most generally desired.
SURVEYING FORCES.
With the committee on Survey appointed and the
scope of the work to be undertaken immediately
decided upon, it is important to secure the cooperation
of intelligent persons in the community who by the
18 THE SOCIAL SURVEY
nature of their training, knowledge and experience
are best fitted for the work. It is quite essential,
moreover, in selecting those who are to assist in the
work that they be assigned tasks which are best suited
to their mental equipment and interest.
Social workers, physicians, lawyers, superintendents
of schools and teachers, clergymen, business men and
mill owners, superintendents of mills, labor union
leaders, editors, university professors and students,
officers of civic and philanthropic agencies are, in
general, the classes of people most likely to respond
to a demand for assistance in this sort of work.
It must be borne in mind that the inclination and
mental make-up of each person are to be considered
in assigning a worker to any particular field and that
only persons with high standing in the community
should be chosen. This latter condition is so im-
portant that a single mistake in choosing workers may
impair the effectiveness of the whole enterprise.
As in many towns and cities, colleges and univer-
sities furnish an opportunity for increasing the field
of the survey through the assistance of students, it
is important to sound a warning against indiscriminate
use of student work. Eight years of experience have
demonstrated to the writer that only the most mature
students are capable of doing accurate and reliable
work and that even with this class of help the greatest
care and the largest possible amount ' of supervision
is necessary.
The newspaper editor, who, owing to his probable
knowledge of conditions, familiarity with public
opinion and the methods of stimulating it, is one of
the most valuable members of an investigating body
TRAINING THE SURVEYING FORCES 19
either as a worker or as a member of the survey com-
mittee, should be very carefully selected, or else the
temptation to publish news may get the better of the
interest in the welfare of the community, and in survey
work an ounce of discretion is frequently worth a ton
of publicity.
With the workers selected and the problems to be
handled decided upon, the machinery for investigation
is ready and while it is difficult to discuss in the brief
space of this publication the problems and aspects
to be considered as part of -a survey, certain definite
lines of inquiry may be safely outlined, leaving the
more intricate problems and investigations to the
expert "social engineer" whenever his assistance can
be secured.
TRAINING SURVEYING FORCES.
Training as a lawyer or teacher, experience as a
judge or a superintendent of schools, leadership in
politics, industry or social life should not be assumed
as being adequate for the handling of a social survey
or any part thereof. The selection, collection, classi-
fication and interpretation of social facts demand a
certain amount of special study and training, which
must be attained by familiarity with the work of
others, and an understanding of certain fundamental
principles underlying the particular problem to be
dealt with.
It is hardly conceivable that any one unfamiliar
with the fundamental principles of plumbing and
housing sanitation, even though belonging to the
medical profession, would be qualified to study and
interpret the facts relating to the housing conditions
20 THE SOCIAL SURVEY
of a community. Similar difficulties may be encounter-
ed by the successful and experienced business man
in the analysis of the administration of a particular
city department, or the relation of the municipal and
state tax system to the municipal budget. Many
more examples of similar character could be cited
to indicate that a social survey is a job of itself different
from other callings, and that wherever and whenever
local workers must be employed, their preparation
for the task should be undertaken with the utmost care.
A large number of books and pamphlets have been
written about survey methods and within the last
ten years scores of excellent surveys have been con-
ducted by experts and laymen in the field. Many of
these are easily accessible in a library of any size,
and many are obtainable through the book stores or
through the agencies responsible for the surveys. At
the end of this book will be found a bibliography
giving the books most valuable in the preparatory
training for survey work, and a list of what the
author considers the best surveys that have been
made within recent years.
While it is frequently advisable to take advantage
of the interest awakened in the community in favor
of a survey and begin work at the earliest possible
moment, the present awakening of the social con-
sciousness towards the necessity for a meeting of
social facts squarely and honestly may warrant slight
delay in the actual beginning of the field work, in order
to give the surveying forces an opportunity to prepare
for the task. Universities may be induced to introduce
special courses intended to prepare students for survey
work, and these courses may be extended into the
PREPARING THE COMMUNITY MIND 21
community in the form of extension lectures, which
have become so common in recent years.
Clubs and classes for the special purpose of studying
social problems and analysing the surveys of other
cities may be organized with profit to both those who
are eventually to carry out the survey, and to those
who are to form part of the enlightened general public,
whose duty it will be to carry out the recommendations
of the survey on the basis of its findings.
PREPARING THE COMMUNITY MIND.
There is no community in this country which does
not have its social and civic problems. Many of them
represent serious social evils which demand radical
changes in the organization of the community, while
others are less dangerous and relate to conditions
which are only relatively objectionable because of the
very high standard of the people whom they affect,
and which in an average community would not be
considered a factor worth studying. As the recognition
of many of the existing social problems depends largely
upon the personal point of view of the people, it is
frequently desirable to set up before the community
a high and uniform standard towards which it should
strive and which has been attained in other communi-
ties. This can be done by properly directed reading
through the public libraries and public schools and
through the local press. The most effective work,
however, along this line can be done by exhibits of
conditions that can be attained and have been attained
elsewhere. These exhibits need not be elaborate affairs,
heralded by the blowing of trumpets and costly display.
They can be made into simple panels easily displayed
22 THE SOCIAL SURVEY
in schools, churches, business and social organizations,
libraries, museums, art galleries and social centers,
where people come and go and have a little margin
of leisure time in which to observe, learn and think.
If housing conditions are bad, a few intelligently
prepared and well displayed photographs of garden
cities or model villages will be sufficient to arouse inter-
est and discussion and awaken organizations that may
help to carry a housing movement a long way towards
radical reforms. If the schools or playgrounds need
improvement and expansion, pictures and charts
showing what has been accomplished in other similar
communities and the social returns that these improve-
ments have produced will soon stimulate not only a
demand for improvements, but will bring new workers
into the folds of the surveying forces.
The daily press may also be called to assist in the
establishment of higher standards of social and govern-
mental efficiency with a view to preparing public
opinion for the task of meeting the findings of the
contemplated survey with open minds and a clear
vision of what is possible of attainment through con-
certed effort, and an intelligent interpretation of facts.
SOURCES OF INFORMATION.
In every community there are many sources of
information from which may be derived data essential
in any social survey. Many of these sources of infor-
mation are part of the recognized function of public
and private agencies. The department of vital statistics
of a community which records births, deaths, marriages
and contagious diseases is the most valuable point of
departure in the study of the life of the people of a
SOURCES OF INFORMATION 23
community. The records of the municipal or private
relief agencies of the city contain invaluable data upon
which to base an estimate of the extent, character and
causes of dependency that exists in a given locality.
The records of the school department are the best
index of the efficiency of the schools in furnishing
educational facilities and of the child problem, that
the school authorities must cope with in the carrying
on of their work.
It is to be deplored, however, that our vital statistics
in most communities are disgracefully inaccurate and
incomplete even when compared with the most back-
ward of civilized nations, that public school records
are inadequate and that relief records are a compromise
between the antiquated notions of economy and privacy
of boards of directors and overseers of the poor, and
the pressure for time that agents of relief organizations
are compelled to meet. Even in the advanced com-
munities case records are the object of dispute between
social workers, boards of directors and the uninitiated
public.
A case record is a more or less accurate picture of
facts relating to an individual or family, secured with
a view to facilitating an accurate social diagnosis
which would lead to effective and prompt treatment
of a particular case. That often some of the informa-
tion gathered and recorded relative to a case or group
of cases is found to have no bearing on the problem
to be dealt with and is, therefore, apparently useless
information as far as that particular case is concerned,
is not to be doubted. Upon inquiry it will be found,
however, that successful medical diagnosticians must
also rely upon case records and that many of them
24 THE SOCIAL SURVEY
contain useless or irrelevant matter. Efficient service
makes it necessary, however, to obtain a large amount
of information which can be sifted in the search for
facts and factors upon which an accurate medical
diagnosis can be based. If this method of recording
cases is essential in medicine, which is surely on its
way towards becoming a positive science, it is easily
conceivable that in the field of social service, which
is still a great way from having developed a technique
of accurate social diagnosis, this method of treatment
will be even more efficacious. In this latter field, it
must be remembered, the method of treatment demands
recognition, not only of the individual concerned, but
of his relation to a complex, not wholly understood
and constantly changing social order.
Many social service workers accept the task of
preparing their records with a certain degree of fatalistic
submission to precedent without appreciating the
fundamental need for a knowledge of the facts upon
which to base judgment that will be fair and just, not
only to those whom they propose to aid, but to their
own sense of discrimination and understanding of
human problems. The worker who claims to under-
stand the intricacies of human life in relation to
society without investigating, recording and cor-
relating human and social facts, assumes a compre-
hension of society that in the centuries past has been
the gift of only a few of the epoch-making geniuses
who have hesitated and deliberated long before taking
the responsibility for the settling of human destinies
for which case workers almost daily make themselves
responsible.
Admitting for the sake of argument that, as a means
SOURCES OF INFORMATION 25
of diagnosing, case records, with their time-consuming
costliness, justify only in part the financial investment
they represent, we find, upon inquiring, that there
is a wider use for the case record which has as yet
remained untouched.
Accumulated experience is a valuable asset in all
work, but in social service its value can hardly be over-
estimated. The daily dealing with cases of profoundly
varying types and of varying degrees of interest pro-
duces upon the mind of the worker impressions, the
relative importance of which, when translated into
the personal point of view through the mentality of
the worker, is bound to be distorted by the degree and
type of impressionableness, if I may use the word, of
this same worker.
The case record, when kept carefully and analyzed
at given times, should serve to strengthen personal
convictions derived from experience, by verifying the
results, and should give balance to personal impres-
sions by affording evidence upon which they may be
corrected and adapted to the actual facts.
We hear much about efficiency in social work, but
the measurement of this efficiency can only be brought
about by a careful analysis of results. It is true that
each social worker has a personal standard of efficiency,
but such a standard can be conveyed to boards of
directors and the charitable public only through the
measurement of results accomplished and failures
encountered in the service. Both the social worker
and the public need more than the word or impression
of the worker to convince them of the value and
efficiency of a particular type of service. A careful
analysis of the case records, but only where case
26 THE SOCIAL SURVEY
records are accurate and complete, would yield a
reliable estimate of results accomplished. It must be
remembered that charity was invented as a means of
serving the poor and that good service must be efficient.
Beyond the measure of service relating to individual
workers and institutions, we will find a use for good
case records as a basis of comparison between the work
HAVE
WE
ENOUGH
HOME LIBRARIES DARK ROOMS
HOSPITAL BEDS ROTTEH HOSE
PLAYGROUNDS VAGRANTS
SCHOOL BATHS SCHOOL SINKS
POLICEMEN BURGLARS
MILK INSPECTORS INFANT MORTALITY
ATTENDANCE OFFICERS TRUANTS
STREET SPRINKLERS TUBERCULOSIS
CHILDREN'S LIBRARIES FAGINS
From How SHOULD PUBLIC BUDGETS BE MADE?
Published by the New York Bureau of Municipal Research.
of different individuals or agencies working in different
geographic spheres and using different or similar
methods. If adequate and, as far as possible, uniform
records are used by the different agencies or individuals,
the analysis of such records serves as a medium for
the exchange of information concerning results ac-
complished and tests of efficiency of methods when
the methods are the same, and for laboratory experience
when the methods are different. This value of ex-
SOURCES OF INFORMATION 27
change of experience, whether with the same or differ-
ent method, has not been appreciated sufficiently in
social work, and should command the attention of
both workers and trustees. The value of case records
that are complete and uniform as a test of methods
of social service from a laboratory point of view, is
clearly evident.
Turning from the value of the good case record as
a means of increasing efficiency of service, we must
not disregard the record as a source of information
for sociological research. Buried in the scores of
thousands of records of welfare agencies of this country
are first-hand, accurate sociological data gathered
without bias and without a preconceived point of
view. Causes and effects, response to treatment and
failure to respond, adequacy of social efforts and clear
relationships between individual and community con-
ditions are displayed in simple, well classified and
chronologically arranged records. They hold for use
vast stores of information which, when analyzed,
should point the way toward a more constructive
point of view of our social tasks and a clearer under-
standing of the larger social problems which are
clamoring for solution.
The social survey affords the most fruitful means
of utilizing the treasures of information that now lie
buried in the archives and files of social agencies. By
stimulating a more intensive use of the case record
with a view to utilizing it in the study of pressing
concrete social problems such as the survey handles,
the double purpose of more accurate diagnosis of cases
and a clearer understanding of the larger community
problems could be accomplished.
CHARACTER OF THE COMMUNITY.
/ T A HE study of social phenomena has advanced far
- enough to warrant the acceptance of the princi-
ple that social phenomena are not merely the sum
total of individual action and interaction, but that
these actions and interactions result in certain syn-
thetic social structures and functions, wholly distinct
from individual functions, subject to laws and produc-
tive of active forces peculiar to the social structure
and the social structure alone.
All social phenomena depend upon and have their
being in two fundamental factors, namely territory
and population; and no study of social conditions as
manifestations of the social organism, whether they
be normal or pathological, can be accurate or complete
without a careful analysis of these two factors.
TERRITORY.
By territory, is meant the sum total of natural en-
vironmental conditions, such as climate, topography,
geological and chemical composition of the land, the
flora, fauna, and the relation of all these to surrounding
areas. These factors are the essential forces in deter-
mining the character of social institutions which
population creates and controls. Population is the
sum total of human elements that constitute society,
and which through the use of territory and through
its constant effort to utilize and control its resources
for its own preservation and development, bring into
28
TERRITORY 29
being the various degrees of civilization that the
reaction of man upon territory make possible.
Cities, villages and towns represent social institu-
tions or partial manifestation of such institutions; and
like society as a whole, depend for their development
and dominant characteristics upon both territory and
population.
In this book, we shall not be able to go minutely into
the discussion of the theory of territorial or geographic
influence upon social institutions. Writers like Ratzel
and De Greef have proved the truth of this principle
beyond a shadow of a doubt and Gumplovitz as well
as Rotzenhoffer have proved the civilizing value of
the inter-relation between population or racial groups.
A careful study of the cities of Europe and America
with their highly differentiated characteristics in the
way of physical plan and diversity of industrial develop-
ment, as well as in their social and governmental
institutions, raise the question as to the factors that
have dominated the development of these social and
economic manifestations. The mountain tops with
their infertility and difficult access will not encourage
the building of a densely settled community, while an
island within easy reach of fertile fields and with a
navigable water front will tend to become congested.
The cities of this country, like the cities of the rest
of the world, are the products of the interplay of human
needs and desires with the physical conditions which
bring the population within reach of both the essentials
and luxuries of life. The development of these cities,
however, being dependent upon both natural or terri-
torial conditions, and the development of human
intelligence and knowledge applied to community
30 THE SOCIAL SURVEY
planning and development, have shown the same
waste that we find in the utilization of other natural
and human resources.
Admitting that territory and population are essential
in the development of a community, whether it be a
state, a city or village, the first essential of a social
survey should be the study of the natural environ-
mental conditions of the community to be surveyed.
We cannot presume to deal in detail with all the
questions that should be raised in the course of a
survey regarding the geographic or territorial con-
ditions controlling the life of the community. Among
the questions to be raised the following may be con-
sidered as most important:
1. What are the natural resources, such as mines, agricultural
areas, forests, fishing areas, within easy reach of the people of
the community?
2. What are the natural obstacles in the way of a proper
utilization of these resources by the people of the community?
3. Has the community ever undertaken the exploitation of any
of these resources and what have been the difficulties in the way
of such exploitation?
4. Have the resources been controlled by social conditions
which made their utilization for the benefit of the community
difficult or impossible?
5. What have other countries done to meet similar conditions?
6. Are the natural environmental conditions of the community
such as to promote healthful living and human efficiency?
7. What has been done to overcome material conditions, cli-
matic difficulties, foods, bad natural drainage, obstacles to direct
communication with adjoining territories, improvement or
development of natural shipping facilities etc.?
8. What is the total of natural territorial obstacles to the
efficient development of industries, commerce or the exploitation
of natural resources that the community could best afford to
POPULATION 31
overcome and which would give the best results both to the
community and to the individuals?
All these questions cannot be answered adequately
without carrying out a parallel study of the type of
population that the community contains, together
with the plan upon which the community was originally
built, and the flexibility that such plan presents in the
development of conditions that will be best suited
to existing conditions and needs.
POPULATION.
In no community of the world has population be-
come so complex a factor in the development and
maintenance of social institutions as in the United
States. The vast natural resources, and the rapid
development of industry and commerce have turned
towns into metropolitan cities and villages into great
industrial centers spreading over the billions of acres
of the territory of the United States, and united by
great arteries of transit. The effect of all this is to
make both labor and industry migratory, to make
citizenship transitory and the social and economic
conditions constantly shifting and changing.
Added to the expansion of the communities due to
the natural opportunities presented by this country,
is the great influx of foreign population, representing
all the civilized races of the world, and constituting
a great problem of social and industrial assimilation,
the import of which goes far beyond the mere question
of political assimilation, the problem which seems to
have taken the foreground of assimilative endeavor
in this country.
It is the function of all careful students of the
32 THE SOCIAL SURVEY
population in relation to social conditions, to discover
the degree of intimacy in the relation of adequate
social and economic assimilation to its more remote
need, known as political assimilation. An industrially
unassimilated foreign element is vastly more dangerous
to American institutions and citizenship than a great
mass of unnaturalized, industrially efficient and pro-
ductive foreigners.
Most communities can be studied from the point of
view of their populational make-up, by a careful
examination of the United States census or the state
census. The child population may frequently be
studied from the school census, which is commonly
undertaken by the educational or school departments
of the larger cities.
There are certain questions which might be asked
regarding the population. A few will serve as examples :
1. What is the total population of the community?
2. What has been the rate of increase in the last fifty years?
3. What proportion of the population is native of native
parents, native of foreign parents, foreign born, mixed or
colored?
4. What is the distribution of the population according to age
and sex by place of birth and parentage?
5. What is the total number of married persons by sex, age
periods and nationality?
6. What is the total number of persons unmarried over twenty
years of age? (Give the sexes, the place of birth and when
possible, the place of birth of parents) .
7. What is the total number of children under five and under
one year of age of the different nationalities and parentage?
8. Compare all of the answers to the above seven questions
for the last census year with similar answers for the ten years
previous, and if possible the twenty years previous, and find
POPULATION 33
what the increase or decrease has been during the periods
mentioned. 1
The information gathered in answer to the above
questions will be useful as a guide in further work.
It gives the foundation for a study of the human ele-
ment of the community and in a manner is a concrete
expression of the growth and change in the population
during a reasonable period of time.
While a knowledge of the general distribution of
the various types of populational elements in the
community is an essential need in the treatment of
local social problems, we must recognize that within
the community, there are definite tendencies towards
the segregation of specific types of population, in
specific and more or less well defined areas. It is
important, therefore, to consider in the study of
population, not alone the total, but the relation of the
people to the various sectional units, such as wards and
districts of various kinds, which are frequently deter-
mined primarily by the original character of the district,
tenements, sparsely settled and cheap areas, etc.
A populational map of a community indicating the
distribution of nationalities, races, school population
and so forth is indispensable for the analysis of local
social problems and in determining adequate means of
meeting them. Knowledge of the distribution of
population, when related to the geographic conditions
which prevail in the community, is the basis for a con-
sideration of the city or town plan.
J The United States Census is taken every ten years on the ten
year period, while the state censuses are taken every ten years
on the five year period. In consulting the Census it is well to
consult the one nearest the date of the investigation.
3
THE CITY PLAN
THE city plan which represents the " territorial"
character of the community in its relation to the
life, labor and leisure of the people is determined by
the social, racial and economic institutions of its people.
City planning is emerging from the uncoordinated and
socially uneconomical methods which controlled the
earlier development of our cities and towns into a
clearly denned policy consistent with the recognized
needs of modern civilization.
It is extremely difficult to formulate a limited num-
ber of definite questions which may be used as a basis
of measurement of the efficacy and efficiency of the
city plan. Keeping in mind the three prerequisites of
a socialized plan, namely, the adequate recognition of
the needs of all the people, in so far as the preservation
of their life; the facilitating of the efficient exercise of
their power to labor; and the affording of adequate and
well balanced facilities for the use of their leisure^ we
can apply to the city plan well defined standards of
measurement, upon which valuable criticisms and con-
structive improvements may be based.
In order to ascertain what relation the city plan
bears to the people, as expressed in the three elements
which the city plan presumes to provide for, we must
analyze more minutely each element as related to the
people. Life, for its continuance, depends upon the
following elements: air, light, food, .clothing, and
.shelter. Of these, all but clothing are more or less
influenced by the city plan. A few questions regard-
34
Si
a
is
is
o c
36 THE SOCIAL SURVEY
ing each of these elements may further^promote an
intelligent analysis of the existing plan and the develop-
ment of ideas and ideals that should be embodied in
the replanning of existing facilities.
THE AIR
The protection and continuance of life depends upon
the kind of air we breathe. Its quality should be con-
sidered from the following points of view:
1. Are the streets so laid out as to afford a free circulation
of air between built up areas?
2. Has pollution of the air due to industrial plants, waste dis-
posal facilities, the smoke nuisance, been controlled by a proper
segregation of those activities that are likely to pollute the air
of the community?
3. Has sufficient vegetation been planted and maintained in
streets and open areas to assist in the purification of the air
and control the temperature, particularly during the summer
months?
4. Have the prevailing winds been considered in the laying out
of the streets, so as to provide protection against inclement
weather in winter and summer?
5. Have building restrictions been provided, so as to remove
the houses of the people to the farthest possible point from the
dust and dirt of the street?
The above are definite requirements of a city plan
and are clearly coordinated with the problem of proper
light which may be provided by the recognition of the
following requirements :
1. Is the orientation of the streets and the houses arranged
with relation to a maximum amount of sunshine for the largest
possible street and window areas?
2. Are distances between buildings restricted, so that a maxi-
mum amount of light and sunshine is available for the interior
of the buildings ?
3. Is the height of the buildings so restricted as to make pos-
THE CITY PLAN FOOD SUPPLY 37
sible an equitable distribution of sunshine to all buildings and
streets instead of permitting tall buildings to dispossess the
smaller structures of their due amount of light and sunshine ?
FOOD SUPPLY
Although air and light would seem to be free elements
in nature, it is a striking paradox that in our cities,
brick, mortar and labor out of which our cities are
built are cheaper than sunshine and air. The food
supply, however, is purchased by the people at daily
fluctuating prices and in as far as this is possible, in
accordance with immediate needs. While people
may be willing to forego certain shortcomings in the
daily supply of air and sunshine, they seldom submit
without resistance to a restriction of the food supply.
Although the city plan cannot, in the long run, con-
trol prices and supplies dependent upon the national
market, the relation of the distribution of a given food
supply among the people of a given city can be and
should be determined as far as possible, by a proper
planning scheme.
Some of the questions to be asked in this connection
are as follows;
1. Have public markets under municipal control been pro-
vided?
2. Are these markets located at strategic points where they
are easily accessible to the largest possible number of people?
3. Are these markets connected with the main transit lines,
so as to make it possible to ship to and from such markets the
necessary products to be handled?
4. Have facilities for the direct marketing of farm products
been provided at convenient points in the community?
5. Is the distribution of population so controlled as to keep
distances between points of distribution of products and the con-
sumer reasonably limited?
38 THE SOCIAL SURVEY
6. Are the building lots in the areas occupied by the wage
earning classes sufficiently large to permit of a limited amount of
farming ?
It is a well known fact that congestion promotes a
certain reduction in the cost of the food supply because
of the greater competition among merchants and the
greater quantities that can be distributed from one
center. It is the function of city planning to counteract
the disadvantages of congestion by proper provision
for the distribution of the food supply.
SHELTER
The discussions of the problem of providing for
adequate shelter or housing facilities for the working
people will be given fully in the chapter on Health. All
that needs to be said at this juncture, is that a well
planned city generally is likely to facilitate good
housing conditions and a poorly planned city is likely
to afford poor housing conditions. As the intensity
of the use of the land permitted by the city plan
determines the money value of the land, and as free
use of the land is the determining factor in the type
of house generally built, the city plan with all its re-
strictions, controls to a very considerable extent the
type of house to be constructed.
All that can be said at this point regarding the
standard by which the housing provisions should be
judged in the light of the city plan, is to restate the oft
repeated dictum, that good housing provides for
"healthful accommodations, adequately provided with fa-
cilities for privacy and comfort, easily accessible to centers
of employment, culture and amusement, accessible from
the center of distribution of the food supply, rentable at
THE CITY PLAN RELATION TO LABOR 39
reasonable rates and yielding a fair return on the in-
vestment." 1
THE SPECIAL AMENITIES OF LIFE.
While the essentials of life above enumerated are
imperative for its preservation, the city plan should
concern itself with the prevention of all conditions
which may be detrimental to the normal functioning
of the human system both physical and mental.
The troublesome noises of traffic, the injurious odors
of factories, the marring of the landscape by unsightly
structures, are all conditions that come properly under
the control of the city planner, and their presence
in areas where the people carry on their daily life is
an indication of bad planning.
RELATION OF CITY PLAN TO LABOR.
With advancing civilization, production has become
largely social, and the facilities for the use of labor
depend upon the relation of the labor supply to the
industries; the relation of the industries to the supply
of raw materials and the centers of distribution of the
products. The city plan must recognize these inter-
dependencies, between the factors controlling pro-
duction, and must provide facilities for easy adjust-
ment between them. From the point of view of
production, the city planner must recognize the follow-
ing essential principles:
1. Easy flow of the supply of labor to the centers of
employment through a transit system that is adequate
for the fluctuation of individual workers from one
iCarol Aronovici Constructive Housing Reform National Muni-
cipal Review, Jan., 1914.
40 THE SOCIAL SURVEY
center of employment to another without increase of
cost and without change of residence.
2. Fixed industrial centers confined to definite zones
t and connected by water or land transit facilities in-
volving the least possible cost and affording the greatest
speed and regularity of service.
3. Utilization of areas suitable for industrial develop-
ment without encroachment on residential areas and
without making the expansion of industries too costly
or impossible.
4. Due regard for the development of industries best
suited to the locality planned, and the segregation of
industries according to their needs as to open space,
transit, labor supply, supply of raw materials, and
range of centers of distribution.
5. Adequate provisions for the protection of the
health of the workers through restrictions upon the
use of land which would give to the workers a maximum
amount of air, light and sunshine during working hours.
A recognition of these requirements will protect the
workers, promote a distribution of industries, keep
the wheels of production going and the people employ-
ed. If the plan of a city does not recognize these
principles, it cannot be recognized as adequate for
modern industrial and human needs.
RELATION OF THE CITY PLAN TO LEISURE.
The changes that have taken place in the industrial
life of the people during the last century due to im-
proved machinery, and an increasingly widespread
demand for leisure have placed before the city planner
the problem of providing within the city plan well
developed and intelligently located and distributed
THE CITY PLAN AND LEISURE 41
recreational centers, such as would serve the needs
of the greatest possible number of the population.
So far city planning has not developed an adequate
technic for the study of leisure time needs and pro-
vision for meeting them. Civic and recreational centers
are suffering from a very serious confusion that exists
in the minds of the people in charge of much of our
planning work. Monumental structures and orna-
mental open spaces are frequently confused with the
recreational needs of the people; the size of the crowd
being the measure of successful location of social and
civic structures, while neighborhood activities and
neighborhood life are assuming the uncivic, unsocial
and impersonal character of the tenement. What is
needed, however, is not a concentration of recreational
activities such as we are witnessing in many of our large
cities, but a socializing of recreational activities. Con-
centration and congestion of such activities tends to
become anti-social rather than social and should,
wherever possible, be avoided. Neighborhood develop-
ment of recreational activities such as are represented
by the neighborhood playground, school gymnasium
and lecture hall, branch libraries and other purely
local agencies which are a part of the neighborhood
and which become an integral part of the life of the
people should be the keynote of the development of
recreation centers.
The white way may be an extremely striking and
interesting civic achievement, admired and boasted
of by all, but its anti-social potentialities are far in
excess of its commercial and recreational value. The
modern ideals of recreation demand a crystalization
of the community spirit, not by the development of the
42 THE SOCIAL SURVEY
impersonal and overwhelmingly costly civic improve-
ments, but the encouragement of sane, healthful and
intimately social intercourse that will give every
individual a place in his neighborhood and foster a
community patriotism through an intensive, well
organized, highly social and fundamentally civic neigh-
borhood development.
When we reach a point where every individual will
be a part of the neighborhood life in which he lives
and where he will fill a place that cannot easily be
filled by anyone else and when every one will bear a
share of the burden as well as share in the joys and
benefits and pride of neighborhood life, we shall have
socialized our cities more than any impersonal and
commercialized effort could ever accomplish for the
community as a whole.
While I must confess that I find it difficult to crystal-
ize into a few questions the lines of inquiry required
by an adequate survey of the recreational or leisure
time facilities of a community, there are certain definite
facts and factors, which when ascertained, may be
used as a guide in formulating a recreational plan and
in forming a fair conception of the adequacy of ex-
isting facilities.
The following are some of the conditions to be con-
sidered in the examination of leisure time facilities in
their relation to the city plan:
1. The distribution of population in relation to recreational
centers such as parks, playgrounds, large play areas, public halls,
public community centers such as schools, etc.
2. The racial and occupational character of the population in
relation to the recreational facilities of given neighborhoods.
3. The character of recreational facilities in relation to their
use by the variqus classes of people.
THE CITY PLAN AND LEISURE 43
4. The characteristic recreational needs and possibilities for
self expression of people in relation to the facilities for such
expression.
(Each nationality has its own traditional amusements and)
methods of play which should be studied and given an oppor- [
tunity for expression.)
5. The relation between the cost of amusements per individ- >
ual in the use of commercialized amusements as compared
the cost of such amusements to the city.
6. Obstacles in the way of an increased use of the public recre-
ational facilities as to access, inadequacy, lack of variety, racial
and national prejudices, artificial boundary lines between popu-
lational groups due to natural or artificial barriers, etc.
Answers to these questions can be obtained only by
an exhaustive study of conditions in each neighborhood
and recreational center. The results attained, how-
ever, throw light upon the whole leisure time problem
of the community, and may assist in determining upon
a clear cut policy which would affect both the manage-
ment and use of present facilities as well as the planning
of future.
The questions that I have endeavored to raise
regarding the city plan are far from representing either
the full extent of the problem or its import. I have
merely endeavored to give the reader a glimpse into
the far reaching significance of city planning work as
a determining factor in the life of the people.
LOCAL GOVERNMENT
IT is a generally accepted fact, demonstrated by
repeated study, that the type of government of a
community not only reflects the citizenship of that
community, but determines to a very considerable
extent the number and solution of many of its social
problems. The understanding of the organization
and work of the local government is therefore a pre-
requisite of efficient work in remedying existing con-
ditions, and oi"ten in explaining civic apathy, that is
so dangerous to American democracy.
Some of the facts to be ascertained concerning local
government are as follows:
1. Is the community an independent governmental unit or is
it part of some other city or town?
2. Is the government based upon a special charter or is there
a general charter that applies to all localities of the same class
in the state?
3. What changes have taken place in the charter during the
last fifty years?
4. Has the commission or city manager plan been tried in your
community?
5. How large is the city council and board of aldermen, or
whatever the local legislative body may be?
6. Are the councihnen elected at large or by wards?
7. What powers does the mayor have?
I What power does the council have?
9. What powers does the state legislature have in relation to
local administrative and financial affairs?
10. What laws intended to benefit the community have been
submitted to the State Legislature within the last ten years, and
have failed of passage?
11. How are the judicial officers of the city appointed, what
44
LOCAL GOVERNMENT 45
is their tenure of office and what types of cases do they handle?
12. Are the schools administered by elective officers or by an
appointive committee? How are the appointments made?
13. What are the departments which constitute the work of
the local government?
14. To whom are the heads of each department responsible
and what is the extent of this responsibility?
15. What is the appropriating body which decides upon the
the distribution of the public funds?
16. Are budgetary estimates published in advance or are
requests made privately by department heads to the appropriat-
ing body?
17. What legislation affecting the health and morals of the
community as a whole has the council enacted within the last
five years?
18. What local problems have arisen within the last ten years
which have not been solved on account of the limited powers of
the local government?
19. What means of publicity do the city departments use to
inform the public of their work? Are published reports required
by law and if so, is the form determined or is it left to the dis-
cretion of the reporting department?
20. What method of checking accounts is in use?
It is clear from the above questions that the points
emphasized relate to the machinery of the local govern-
ment in its relation to the individual voter as a part
of the whole community or of a particular neighborhood
or ward. The distribution and use of the city's or
town's financial resources have long been the subjects
around which have centered most of our existing or
suspected graft. Inadequacy and inefficiency of service
have frequently been attributed to insufficient financial
resources when fundamentally a lack of understanding
of the community's needs has caused an unintelligent
and unreasonable budgetary distribution.
The relation between existing home rule, its efficacy
46 THE SOCIAL SURVEY
and the handicap resulting from its limitations have
been emphasized in the above questions, so that some
judgment regarding needed charter changes may be
formulated.
The above general questions have to do particularly
with the organization of the government and to a
certain extent with the legislative powers of the com-
munity. The taxing powers and the financial condition
of the locality may be ascertained by endeavoring to
answer the following questions :
1. What is the tax rate and how is it determined?
2. What is the number of taxpayers upon real estate as com-
pared with the number of taxpayers upon personal property?
3. What are the laws concerning assessments?
4. Is land assessed separately from improvements?
5. What share of the taxes is being derived from public service
corporations?
6. What other revenue is derived from public service corpor-
ations?
7. What other revenues does the city derive from sources such
as renting of property, fines, licenses, etc., and what proportion
of the total revenue do they form?
8. Do the taxes meet the needs of the present budget or is
money being borrowed to pay current expenses?
9. What is the borrowing limit and how much is the indebted-
ness of the community?
10. Is there a special tax for school purposes and what is the
rate?
11. In what relation does the increase of city revenue from
taxation stand to the total increase in population?
12. Is any differentiation made in the rate of taxes between
assessed valuation based upon purchase price and revenue pro-
ducing values such as is represented by the public service corpo-
rations?
These are only a few of the numerous questions
that should be asked in connection with a study of the
LOCAL GOVERNMENT 47
local government. It is hoped that in the process of
securing the data relating to them, other questions
will suggest themselves which are more distinctly of
a local nature and which will lead to a better under-
standing of conditions than we can hope to suggest.
The lack of uniformity in the town 'and city govern-
ment of this country and the specific phases of admin-
istrative work inherent in particular localities make
a fuller outline of inquiry inadvisable. It is to be
hoped, however, that in choosing the workers in this
field, tax payers, lawyers, real estate dealers, bankers,
employers of labor, labor leaders and other men
familiar with public affairs will be found willing to
take the work into their hands.
Within the last twenty years little progress has been
made in taxation methods. With the rapid increase
in population due to foreign immigration, the growing
congestion in our cities and the shifting of wage earners
from one industrial center to another, the increasing
tax rates caused by necessary school facilities, health,
police and fire protection to be provided for a non-tax-
paying population are becoming more and more burden-
some and inequitable. A clearer vision of the tax
problems is greatly needed in every community so
that a more just and adequate system of taxation may
be devised and applied. Western and Canadian cities
are experimenting with new methods and are securing
the desired results. The fundamental philosophy of
all new systems of taxation is based upon the principle
of returning to society the values created by it and
infusing into the tax burden a promotive rather than
a restrictive element of activity and production.
48 THE SOCIAL SURVEY
THE CITY BUDGET.
Having ascertained the sources and amount of
revenues that the city has at its disposal, the method
of distribution of these revenues between the different
departmental activities must be ascertained.
Generally speaking, the expenditures of a municipal-
ity may be classified into general maintenance and
permanent improvements. It is an accepted principle
in American municipalities, that the general main-
tenance fund must be derived from general taxes and
that improvements should be made with money secured
by loans and guaranteed by bond issues. In some
instances where the taxes are inadequate to meet the
necessary exigencies of the community, and where
there is reluctance on the part of the governmental
party in power to raise taxes, funds derived from bond
loans are used for current expenses.
Relative to the general distribution of funds derived
from taxes the following facts should be ascertained :
1. Does the municipality have a definite system of annual
budgetmaking, upon which appropriations are based?
2. Is the distribution of funds to each departmental activity
based upon an itemized departmental estimate?
3. Are increases for departmental expenditures based upon the
normal increase in revenue or upon carefully studied needs?
4. In what ways does the appropriating body ascertain the
needs of the community upon which to base appropriations ?
5. Is there a permanent body of trained persons studying
throughout the year the changes in the needs of the community
with a view to guiding the body which controls the finances of
the municipality in their distribution of funds?
6. Are individual departmental activities studied from time to
time in order to ascertain whether they may not be abolished,
MUNICIPAL IMPROVEMENTS AND LOANS 49
and other more necessary and suitable functions established in
their stead?
7. Are questions of relative importance of activities weighed
from the point of view of political interest or service to the com-
munity? Are hospital needs, for example, disregarded in favor of
a firemen's parade or a bandstand?
These few questions indicate the trend of investiga-
tion that should be pursued by those carrying on a
survey in order to determine upon the method employed
in dispensing the people's money. The result may
be a complete change in the method of taxation and
use of tax funds.
MUNICIPAL IMPROVEMENTS AND LOANS.
Practically all permanent improvements in our
municipalities are made with money obtained in bond
issues. The assumption is that in order to do justice
to the present generation by distributing the financial
burden among those who are to benefit by the im-
provement, the next generation of tax payers should
be called upon to assist in meeting the financial obliga-
tion involved by such improvements.
In the study of the use of money derived from
municipal loans, in relation to its use for improvement
which will benefit the next generation, three important
factors should be considered; namely, cost, durability
and service.
COST. Municipal improvements are mainly centred
upon sewer systems and disposal plants, water supply
and filtration plants, street systems and land divisions,
park and parkway systems, playgrounds, etc. All
these improvements are generally made with money
derived from municipal loans amortized during periods
50 THE SOCIAL SURVEY
of from thirty to fifty years. In other words, every
piece of important municipal engineering and im-
provement is carried out by mortgaging our children,
by placing obligations and duties upon posterity.
This being the case, it must be recognized that a large
share of the money used by the municipality does not
belong to the people who have either directly or in-
directly ordered or tolerated the improvements to be
made.
In planning municipal improvements, we must
measure their value not alone in terms of immediate
need and efficiency, but in terms of values to the people
who must in the end stand the cost. of these improve-
ments. That this has not been the case heretofore
is generally known.
The fact is that there has been no greater source of
graft and public theft in recent decades than in the
field of municipal improvements, for which the citizens
of the future must pay. It is hardly necessary to
emphasize the fact that this form of graft has been the
source of some of the most degrading evils in municipal
affairs.
Road commissioners, bridge commissions, and the
various other forms of political commissions, whose
only ability consists in spending money enough to
satisfy their political lieutenants, and in bluffing the
public sufficiently to keep out of jail and to remain in
office, have employed money derived from loans in
criminal and fraudulent improvement schemes, without
fearing exposure. The doom of this type of com-
missions and commissioners could have been sounded
long ago, had the tax paying citizens' .code of ethics
contained anything beyond the crude principles of
MUNICIPAL IMPROVEMENT AND LOANS 51
personal honesty, which seems to tolerate complicity
in dishonest government as long as it does not involve
personal danger.
DURABILITY. There are two points of view at
least, from which durability in public improvements
must be considered. The mere engineering aspect
of durability entails a calculation of quantitative and
qualitative factors dealing with the materials on hand
and the immediate and future use. This, however,
relates directly to the improvement in question, and
is seldom based upon sociological studies, which deter-
mine with accuracy the justification of investments
made. We also are constantly finding that certain
standards are changing with the times and demand
costly and unnecessary adjustments that could have
been avoided had foresight, which comes from an un-
derstanding of the social, economic and sanitary needs
of a community, been exercised. Let us take some
of the best known lines of municipal engineering, and
consider their relation to durability from the point
of view of the people.
A street layout, when once decided upon, fixes for
many years, and in some instances for centuries, the
lines of development of certain communities. To
change and divert the development from these lines
to new ones is costly and wasteful in every way. Phila-
delphia's gridiron system is a good example of develop-
ment which is not fit for a large city, and where millions
of dollars will have to be, and are now being spent,
to secure changes in the original plans. The plan of
Philadelphia was undoubtedly laid out with a view
to affording the simplest possible development and
give the greatest regularity. This was a proper princi-
52 THE SOCIAL SURVEY
pie to follow, but the broader needs of transportation,
congestion of population, distribution of industrial
and business and social activities were wholly over-
looked.
The alley system, which has been one of the most
serious evils in the development of our cities from the
point of view of housing, was made possible by the
maladjustment of the city plan to city needs and the
absence of initiative among municipal engineers in
departing from the old system of street development
to consider more seriously the modern tendencies and
modern needs.
The Washington plan which is held out as one of
the most monumental arid far reaching undertakings
in the line of municipal planning, failed in so far as it
did not provide for the working people and made
necessary the development of alleys that have for
years been a menace to the health of the people of
the capital city.
The plan which the engineer L' Enfant made for
the city of Washington may be called a social failure
although it meets the needs of sumptuous develop-
ment that is generally associated with the capital of
a country.
In measuring the durability of an improvement it
is important, therefore, to consider the extent of the
improvement in its relation to possible social changes
both in the character of the community and in the
type and number of people to be served in the future
by the improvement to be undertaken.
Aside from fitness to changing conditions, we must
consider the wearing qualities of such improvements,
using as a basis the increasing cost of maintenance
MUNICIPAL IMPROVEMENTS AND LOANS 53
that the advancing age of the improvement will re-
quire. It is only on such a basis that a fair estimate
of durability can be made.
SERVICE. All work done by the municipality is
social service work. Some of it is repressive and is
expressed in terms of control of conditions and individ-
ual action and considerable is expressed in terms of
constructive work. As all municipal improvements
are social improvements of one or another kind, they
should be measured by the standard of service that
they are calculated to render. This being the case,
we must admit that permanent improvements must
be subjected to measurement on the basis of two
standards of efficiency. One is the efficiency of the
improvement from the point of view of technical
engineering, and the other is the degree of efficiency
attained as a means of serving the interest of the public.
A structural undertaking may be a marvel of technical
skill, and at the same time stand out as a hopeless
failure from the point of view of social efficiency.
A system of parks and playgrounds which is a
masterpiece as a product of landscape architecture,
but is located where it is inaccessible to the public
is socially a failure. A transit system that meets
existing conditions and is based upon estimates of
economic returns and special business interests may
be an example of the highest type of engineering skill,
and may meet every requirement of high finance, but
it must be considered as a complete failure if it does
not serve the interests of the public as a whole. Another
traffic scheme may be splendidly adjusted to certain
needs of a particular section of the city and may be
injurious to the health and comfort of the very people
54 THE SOCIAL SURVEY
it serves because it stimulates congestion which carries
with it bad sanitation, moral dangers, difficulties of
police control, concentration of vice and crime.
Favoritism or undue commercialism in the planning
and development of such systems are anti-social and
the responsibility for each work rests with the tax-
payer. In measuring the value of permanent municipal
improvements from the point of view of service, the
extent of the service as a benefit to the whole com-
munity should be considered. Where the benefits are
limited to special classes or neighborhoods, the burden
should be placed where it belongs.
The fundamental philosophy of the bond issue is
justice and only by measuring its value in relation to
cost, durability and service can justice be done.
SUFFRAGE.
THE condition of the local government, its efficiency
and capacity for development and service depend
to a considerable extent upon the prevailing suffrage
laws as well as upon the character of those enjoying
the right and taking advantage of their privilege to
vote. A knowledge of the suffrage conditions in a
community may be gained by inquiries such as these:
1. What are the local suffrage laws?
2. -What is the race and nationality of the probable voters?
a. Do women have full franchise, do they vote on school
election only, or are they wholly deprived of the franchise?"
3. Within the last twenty years what has been the change
in the national and racial composition of the persons entitled
to vote?
4. What was the difference between the total number of voters
at the last local election and the total number of persons entitled
to vote? (Indicate these figures by nationality and place of
birth of father if possible.)
5. Are there ward leaders; and if so what is their character,
business interest, connection with public work and public service
corporations, public offices? What are their political and re-
ligious affiliations and nationalities?
6. Have the various nationalities and races come to be organ-
ized into political clubs and if so, to what extent and for what
purpose?
7. Is buying and selling of votes a general practice, and if so,
what parties and what interests practice this method?
8. What is the usual political affiliation of the various nation-
alities?
9. What agencies are interested in the development of intelli-
gent citizenship among the natives and foreign born and what
results have been accomplished through their. effort?
The question concerning the reasonableness of the
55
56 THE SOCIAL SURVEY
general fear lest the foreigner may, from the point of
view of citizenship, prove injurious to American
democracy, American institutions and traditions, can
be answered more intelligently by an impartial inquiry
into the above nine questions than by any other means.
The results of such inquiry may bring about either
greater ease of mind for the natives or a more patriotic
activity for the civic education of foreigners, stimulated
by a knowledge of the facts.
AMERICANIZATION.
The great war and the contending national interests
in this country have brought forward the problem of
Americanizing the foreign elements with all the force
that actual or imaginary dangers to the national life
of this country could develop. There is, however,
confusion in the mind of the general public as to the
meaning of Americanization that a social survey
should not overlook. The Americanization of the
foreign elements through the acquisition of citizenship
seems to have taken the place of that greater need
for the social, industrial and intellectual assimila-
tion of the foreigner. No one seems to recognize the
dangers of a politically incorporated body of citizens
whose social ideals, economic standards and intellectual
attainments form a greater menace to American
democracy, if given political power than if deprived
of it.
In studying the facilities for Americanization in a
community, we must, therefore, center our attention
upon the following conditions:
1 . In what relation does the foreign population stand numeri-
cally to the natives of native parents or natives of foreign parents?
AMERICANIZATION 57
2. What is the average number of years that pass before the
various foreign elements in the community of voting age obtain
their citizenship?
3. What is the distribution of the occupations of the foreign
voters who have acquired the franchise during the last five years?
4. If all the foreign males of voting age were to require the
franchise, what type of population would control the political
situation of the community? -V
5. What is. being done to care for the education of the foreign
elements preparatory to their enfranchisement?
6. Is the political situation in your community such as to
give the foreigners inspiration to strive for the best type of
government, or is the gang with its grafting politicians going
to be his teacher in American citizenship?
7. Is the foreigner getting justice in the courts, in his employ-
ment and in the protection of the health and morals of his family?
8. Are the schools meeting the needs of the potential citizen-
ship, both in relation to the children and the adults?
These and many other questions should be raised
in order to ascertain whether Americanizing influences
are at work in preparing the foreign elements for their
citizenship. Unless this is done, we shall be placing
the power of government in the very hands which
we now fear as a menace to this democracy.
NDUSTRY.
INDUSTRY, or that combination of opportunities
and conditions which makes up the chances for
labor, the sources of maintenance and the assurance of
the workers against the dangers of overwork and un-
derpay, unsanitary and dangerous labor conditions and
idleness is the most vital force in the community; it
is the power that determines its growth and character.
This broad point of view of industry should be so
studied as to show its relationship and influence
upon the workers and upon the industries.
For a clear understanding of the local industrial
problems and a more logical plan of inquiry it is advis-
able to classify the whole subject as follows:
1. Types and Size of Industries.
2. Character of Workers and Compensation.
3. Steadiness of Employment.
4. Chances of Temporary and Side Employment.
^ 5. Protection against Unemployment.
6. Safety in Employment.
7. Welfare Work.
The above classification covers in a general way
the main aspects of the study of industry and upon
their intelligent treatment and a careful scrutiny of
the facts depend the answers to many of the important
industrial problems of the day.
./
TYPES OF INDUSTRY.
By types of industry is to be understood not only
the production of the mill and the factory, but all
58
LOW WAGES
SEE THE SCREEN
IN ONE TOIH STUDIED 8Y IKE U.S. CHILDREN'S BUREAU
FATHER'S WEEKLY WAGE
UNDER *tO
WA6E-EABNING
MOTHERS
CHART SHOWING RELATIONS BETWEEN WAGES OF FATHERS, PRO-
PORTION OF WORKING MOTHERS AND DEATHS OF BABIES PER
1000 BIRTHS.
Prepared by the Children's Bureau of the United States Department
of Labor.
60 THE SOCIAL SURVEY
larger productive activities which use labor in con-
siderable quantities, particularly those pursuits which
give character to the community and which have
determined the growth of the population and the
development of manufacture and trade.
A reasonably comprehensive idea of the types of
industries prevalent in the community can be obtained
by consulting the last census report on occupations
and selecting the pursuits which employ the largest
number of laborers or workers. A standard of such
study may be found by placing the limit of workers
at one hundred persons or more for each industry
studied. This is, however, not the figure which should
always be accepted as the best, but should rather be
a point from which to determine a standard by taking
into account the extent of the investigation to be
made, the amount of time available, the size of the
community and the number of workers available for
the survey.
The industries to be considered once agreed upon,
the following questions should be answered:
1. What is the character of each industry and how many
establishments are in operation?
2. What is the number of workers employed in each industry
and in each establishment?
3. Is there a financial or legal connection between any of the
industrial establishments?
4. What has been the growth of each industry in the last ten
years?
5. Have any establishments been abandoned or bought out
by others in the same locality?
6. Have any outside competing interests bought out local
establishments which were later abandoned?
7. Are most of the industries in the hands of local people or
INDUSTRY 61
are they in the hands of outsiders who have come to seek a labor
market?
8. How are industrial establishments taxed and how does it
affect the establishment of new industries?
9. Are the industries so co-ordinated as to be dependent upon
each other's products or not?
10. Do industries find a satisfactory labor supply in the com-
munity or is labor imported from other localities?
11. Are extensive means of advertising for labor used and
what responsibilities do the employers assume towards their
imported employees?
12. Is the importation of labor due to an actual industrial
demand for extra help or to a desire to reduce wages by over-
stocking the labor market and hindering the unions?
13. In what relation do the opportunities for employment
stand to the labor market?
14. Is there sufficient variety in the industries to provide
employment for all the various types of workers such as men and
women, skilled and unskilled, or is there a lack of adjustment so
as to afford opportunities for employment only to selected classes?
CHARACTER OF WORKERS AND COMPENSATION.
The above inquiries having been completed and the
facts clearly and comprehensively stated, the character
of the workers and wages may next be considered and
the inquiry should follow somewhat along the following
lines :
1. What is the total number of workers in each industry and
if possible in each establishment?
2. How many of the workers are men, women or children?
3. What is the proportion of skilled and unskilled workers of
each sex?
4. What are the nationalities and races mainly represented in
each occupation?
5. What is the maximum and minimum wage in each for men,
women and children in skilled and unskilled trades?
6. Are men or women more commonly idle in particular in- *-L
dustries and why? /
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STEADINESS OF EMPLOYMENT 63
7. Are married women and women with small children employ-
ed and to what extent?
8. Is there a large group of workers without family connec-
tions in the community?
9. Do many workers live in other localities and come to work
in your community or vice versa?
10. Are skilled workers available in the community or must
they be brought from outside?
11. Are the schools endeavoring to train workers along the
lines required by local industries and if so, are the products of
these schools finding employment in the locality?
That some difficulties will be found in ascertaining
the facts relating to the above questions must be
granted, but through the assistance of the census,
the manufacturers and superintendents of manufactur-
ing plants, the charitable agencies, the school authori-
ties, the ministers and the voting lists, satisfactory
results can be obtained.
STEADINESS OF EMPLOYMENT.
One of the most serious difficulties in modern indus-
try is the fluctuation in the demand for labor during
various periods of the year. The community life of
a city or town is often rendered unstable and thriftless
by the constant changes in the opportunities for regular
and well-paid employment. This is particularly true
of small populational centers where only a limited
number of industrial establishments of the same kind,
which are often controlled by the same company or
corporation, are to be found. An inquiry along this
line might be based upon the following questions:
1. Do your industries employ steadily through the year the
same number of workers and what industries have variations
in the number of their employees?
2. When and how long are the rush and slack seasons in each
64 THE SOCIAL SURVEY
industry and what classes of workers are affected most seriously
by them?
3. Is the work of the industries with slack seasons such as to
make it possible for workers to go from one industry to another
and to what extent is this the practice?
4. Does the rush season bring many out of town workers?
5. Are men or women most commonly affected by the rush
and slack seasons?
6. Has work been suspended because of strikes or lockouts
within the last two years and if so, in what industries and what
has been the number of workers affected?
7. What has been the result of the most important strikes
and lockouts that have taken place within the last two years?
(Increased wages, shortening of hours or replacement of strik-
ing workers with non-union labor?)
Enforced idleness, due to irregularity of employ-
ment, is one of the most serious social problems to be
dealt with. Not only is the economic life of the individ-
ual and the family affected, but the moral and social
life of the workers is endangered. The saloon, the
vice resort and the cheapest types of amusements
thrive upon irregular employment, while the rush
season endangers the health of the workers and attracts
a nomad population of wage earners who are soon
thrown upon the community for care and support.
Rush and slack industrial seasons are due to a lack
of intelligent adjustment between supply and demand
which scientific management can and should abolish.
TEMPOEARY AND SIDE EMPLOYMENT.
Many of the workers abroad and some of the recently
arrived immigrants in this country with their love
of the out-of-doors and an appreciation of the oppor-
tunity to use the bounties of the land, are adding to
their daily income derived from work in the mills
TEMPORARY AND SIDE EMPLOYMENT 65
or mines, by cultivating a small tract of land which
constitutes a considerable source of pleasure and self-
education besides the financial gain. This practice
is not to be found either among the native born mill-
workers or among the immigrants who are crowded
into the tenement districts of our cities and towns.
There are, however, certain sources of income resulting
from supplementary occupations which are carried
on in the homes during evening hours which may
justly be considered and which are the outcome of
unsteady employment and in many instances of in-
sufficient wages. In some instances desire to accumu-
late wealth or secure economic independence induces
families to take up work in the homes so that all
members of the family may assist. Child labor of the
most objectionable type has developed in connection
with home industries.
There are also many occupations in which workers
engage during times of employment and which are
beneficial in so far as they do not interfere with the
integrity of the family and the home. The taking of
work from the factories into the home, the taking of
the entire family into berry picking camps and similar
occupations which engage the attention of the entire
household are to be discouraged. There are, how-
ever, conditions under which work in the home and
in the fields is done without serious danger.
In ascertaining the possibilities and character of
side and temporary employment the following ques-
tions may be used as a partial guide:
1. How many of the working people's homes present oppor-
tunities for small scale farming?
2. What is the character and extent of the local industries,
i!
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TEMPORARY AND SIDE EMPLOYMENT 67
and what legal restrictions are placed upon such industries?
(Sweatshop laws, tenement house restrictions, etc.)
3. Are small children used in the home industries and to what
extent?
4. What are the lines of extra work that laboring people can
undertake aside from their regular daily tasks?
5 What is the extent of the practice of keeping roomers and
boarders in private families?
Aside from these questions the problem of the local
industrial balance should be considered in terms of
the possibilities for finding employments in nearby
communities in times of industrial depression in the
home city or town. This problem of migration for
purposes of finding work in other communities rather
than in the home town or city has its advantages and
disadvantages and should be carefully considered.
In the communities where nearby population centers
carry on industries similar to those of the home com-
munity it is often possible to shift workers from one
to the other without impairing the family ties and
with considerable advantage both to employer and
employee. But when migration for the purpose of
finding work takes the members, and particularly the
head of the family to distant places, it is often done
at great risk to the home. Many cases of desertion
and the numerous instances of broken up families
due to the departure of the head must be attributed
in no small degree to this type of labor migration.
As far as possible a survey should concern itself
with the possibilities of shifting labor from one industry
to another, and within reasonable limits investigations
of the opportunities presented by the labor markets
of nearby communities with a view to labor migration
and exchange should be carefully carried on.
68 THE SOCIAL SURVEY
PROTECTION AGAINST UNEMPLOYMENT.
Protection against unemployment has developed
slowly in American industries and has depended largely
upon private initiative and such foresight as has been
customary with labor organizations in the nature of
insurance against illness and accident. But generally
speaking nothing has been done in the way of provid-
ing compulsory insurance against unemployment.
Some questions in connection with the problems of
unemployment may help to show what the problems
are:
1. What is the usual number of unemployed at certain periods
of the year?
2. What organizations and societies provide for mutual insur-
ance against enforced idleness?.
3. What is the number of working people who have deposits
in various banks?
4. What is the average deposit per worker in savings banks?
5. What is the number of property owning workers and what
is the average valuation of property per worker?
6. Is there any organization which lends money to workers
upon notes or surety on a reasonable interest without intent of
gain?
7. Does the community ever borrow money for public works
which are purposely rushed during times of depression?
8. Does the City or State maintain a free employment agency?
9. Is a city woody ard or city laundry maintained for the pur-
pose of giving work to temporarily unemployed?
10. Do any philanthropic agencies maintain such establish-
ments?
11. What is the full employment capacity of all work-giving
agencies and what is the maximum and minimum number of
unemployed during the year?
12. Of the families and individuals handled by the charitable
agencies, private and public, what proportion were cases due
to unemployment caused by labor conditions?
SAFETY IN EMPLOYMENT 69
It will be found that many of the answers to these
questions indicate a shortage of community responsi-
bility and a lack of adjustment that commands atten-
tion.
SAFETY IN EMPLOYMENT.
The most wasteful and most criminal negligence in
the protection of our human resources is to be found
in the flagrant absence of proper protection of the
workers in the pursuit of their daily labor in mill and
mine, and in many of the walks of life in which millions
of workers are daily taking their risks. Protection
and prevention of industrial accidents have recently
awakened public interest. The failure to secure proper
legislation and volunteer, action for the protection of
the workers against industrial accidents has been due
not only to employers but also to the workers who fear
the extra burden of insurance. The public mind,
however, is coming rapidly to realize the importance
not only of insurance against accidents and death,
but that the prevention of accidents is of the most
momentous importance to modern industry. Current
discussion of the subject found in the public press,
the frequent references to it from the pulpit and the
professor's chair and the agitations carried on in this
direction by leaders in social and political life, clearly
show that public sentiment is in favor of insuring
protection and safety to the workers.
In connection with this topic questions such as
these might be asked with profit:
1. Is there any compulsory insurance law providing for com-
pensation in case of industrial accidents resulting in disability
or death and if so what are the provisions?
70
THE SOCIAL SURVEY
Electrical contracting
Lumber and planing mills
80
Vontllating and heatin
Jl
Plumbing and steam fittln
Sheet netal work and roofi
General contracting
50
Brick stone and camant work
SECTIONS IN OUTLINE REPKESENT PERCENTAGE OF MEN EMPLOYED
AND SECTIONS IN BLACK PERCENTAGE OF MEN UNEMPLOYED IN
EACH OF NINE BUILDING INDUSTRIES AT A TIME WHEN
EACH INDUSTRY SHOWED THE LARGEST PERCENTAGE
OF UNEMPLOYMENT.
From the volume on Building Trades by Frank L. Shaw, of the
Cleveland Educational Survey.
SAFETY IN EMPLOYMENT 71
2. What is the status of legislation providing for proper pro-
tection of machinery?
3. Under whose jurisdiction is the protection of machinery
enforced?
4. What is the number and nature of industrial accidents that
have occurred during the last year or two?
5. Are the laws concerning the protection of machinery en-
forced properly?
6. What amounts have been paid to industrial accident victims
by manufacturers, insurance companies, charity societies, lodges
and mutual aid societies within the last year or two?
7. In what industries have most of the accidents occurred and
what has been the age and nationality of the persons injured or
killed?
8. How many persons wholly dependent upon injured workers
have been affected? What are their ages and social condition?
9. What have been the causes of the different accidents and to
whom have they been attributed?
10. How many of the industrial establishments maintain an
emergency department?
Many other parallel questions are sure to appear
in different localities which might be followed up with
profit, but the general lines are above suggested.
WELFARE WORK.
A keen appreciation of welfare work done under the
auspices of particular establishments for the benefit
of the employees has been realized among many of
the leading captains of industry and the results have
shown gains not only in improved relations between
employer and employee but also in terms of increased
efficiency among workers. An inventory of welfare
work done by various local establishments may be
secured by gathering facts concerning the following:
1. How many of the industrial establishments maintain for the
use of their employees a lunch room, rest room, baths, meeting
72 THE SOCIAL SURVEY
rooms, club rooms, playgrounds, settlement houses, a social secre-
tary for individual work particularly with girls, etc., and what is
the character of each?
2. What establishments have an apprentice system for the
training of skilled workers and what class of persons are usually
selected as apprentices?
3. Is there a pension fund connected with any of the industrial
establishments and what are its conditions?
4. What establishments maintain a system of volunteer insur-
ance or free medical aid in case of sickness?
5. Are there any special funds provided by industrial establish-
ments for social service work to be carried on for the benefit of
the community at large?
The above outline of an industrial survey is far
from being complete, but the questions were formulated
with the^aim in view of suggesting in the mind of the
reader the vital industrial problems which have an
immediate effect upon the community and the working
people.
Welfare work carried on by industrial establish-
ments has frequently created antagonism and resent-
ment among employees. Lack of proper management
and a narrow point of view may defeat the best efforts
of an employer. The effect that such service has upon
the workers should be carefully studied.
LABOR ORGANIZATIONS AND LABOR PROBLEMS.
So far we have been considering the relation of the
industry to the work. The relation of the worker to
his industry, however, represents an entirely different
set of conditions and problems.
With a flexible labor market such as this country
presents, the constant changes in industrial methods
and types of workers, the labor elements in this country
liave found it to their advantage to organize against
LABOR ORGANIZATIONS 73
the exploitation that free labor competition necessarily
produces. In the carrying out of a social survey it is
essential to ascertain the extent and character of labor
organization that exists in the community and to
what extent they attempt to deal with the local labor
problems.
LABOR ORGANIZATIONS. In the study of labor
organizations it is necessary to ascertain the actual
distribution of the labor elements in the community
as follows:
1. What is the distribution of wage earners in the community
according to age, sex, nationality, color and occupation?
2. Which of the occupations are organized into labor unions
and what is the membership of these unions?
3. What are the differences in the wages of organized as com-
pared with unorganized trade?
4. In what proportion are the foreign labor elements dis-
tributed in the organized as compared with the unorganized
trades?
5. What has been the history of the important organizations
and what are their principles, rules and customs?
6. What is the character of the leadership that the unions are
dependent upon?
7. What is the attitude of the unions toward labor legislation
regarding woman and child labor, industrial insurance, factory
sanitation, etc.?
8. To what extent have the labor unions been recognised by
the industrial establishments in the community and what con-
tentions have taken place within the last ten years for the recogni-
tion of the unions?
9. Are the dividends and general financial standing of the
manufacturing plants that do not recognise unions on the average
liigher or lower than in plants in which unions are recognised?
LABOR PROBLEMS. The labor problems may be
divided into two distinct groups : namely, the problems
of the employer and the problems of the employee.
74
THE SOCIAL SURVEY
Under some conditions the problems of the employer
are the same as the problems of the employee, as is
the case when general industrial depression sweeps
the country, but as a rule, while the problems of one
Sep. Oct. Nov. Dae. Jan. Feb. Mar. Apr. May June July Aug.
Printing trades
Building trades
PERCENTAGE OF MEN IN BUILDING TRADES AND IN THE PRINTING
TRADES EMPLOYED EVERY MONTH DURING THE YEAR.
The largest number in any one month is taken as a basis and is
represented by 100 per cent.
From the Printing Trades volume of the Cleveland Educational
Library.
affect the other, they are not generally different in
the effect upon the two groups of interests. 1
A few lines of inquiry relating to labor problems may
be considered on the basis of the following questions:
1. Is the labor supply in the community commensurate with
the labor needs, or is there an oversupply of labor and a shortage
of employment opportunities?
2. Is there a shortage of labor in one field and an over supply
in another?
!Fpr most communities this information may be obtained by con-
sulting the last Federal or State Census.
LABOR PROBLEMS 75
3. Are any steps being taken to meet the needs for workers
especially trained for the local trade, or is the community depend-
ing upon importation of such labor supply?
4. Are the local industries mainly low wage industries?
5. Are the industries affording employment opportunities for
both sexes and all working ages?
6. Are provisions for arbitration, in case of labor disputes, pro-
vided by law or agreement?
7. What disputes have recently been settled on the basis of
these provisions and how effective have these settlements been
in meeting the needs of labor employers and employees?
8. What has been the attitude of the local authorities toward
labor troubles both from the point of view of endeavoring to
effectuate a settlement or in quelling disturbances?
The above questions do not lay claim to having
covered the field, but they are sufficient to lead the
surveying forces into the subject, which will unfold
its intricate ramifications and develop a broadening
interest and sympathy and understanding in relation
to one of the most complex social problems of our
industrial life.
HEALTH.
THE last century has been a period of human
achievement; the present century promises to be
one of human improvement. We have been hoarding
knowledge and wealth and boasting of what the human
mind is capable of knowing and doing; we are now
ready to use this wealth and knowledge and exper-
ience for the general improvement of the race by in-
creasing its capacity for work, service and happiness.
In a word, we are turning from the objective to the
subjective of human society.
The study of health may be divided into three
important factors, namely, the conditions of health
that exist, the factors that determine the condition
of health and the laws intended to promote health.
The first relates to mortality and morbidity, the second
to the various causes of sickness and death and the
last to the legislative control of conditions that deter-
mine health.
MORTALITY.
The first prerequisite of an intelligent health survey
is the ascertaining of the health conditions in terms
of measurable quantities expressed in statistical form.
In most of the registration cities statistical data for
the accurate study of health conditions are available.
There are cases, however, where the negligence of
the health authorities renders such study impossible.
In such cases it is necessary to prepare for the survey
at least one year in advance, in order to record the
mortality and morbidity rate and furnish a basis of
76
MORBIDITY 77
judgment as to the status of the health of the com-
munity for at least one year. Such questions as these
should be answered in the preparation of a survey
of health conditions :
1. What is the death rate from all causes in the community
according to ages, sex and nationality of those who died within
a period of one or two years?
2. What is the death rate by nationality, age and sex in other
communities of the same size?
3. What are the causes of deaths by nationality or race, by
age and sex and which of them are preventable?
4. What is the death rate among infants under one and under
five years of age, by nationality and sex?
5. Which sections of the community show the highest death
rates and which the lowest?
6. Are deaths reported accurately to the authorities and are
the facts published regularly and intelligently?
7. Are the reports discussed in the daily press and do they
attract attention?
8. How does the death rate in your community compare with
the death rate in other communities and the state?
9 What proportion of the deaths were due to preventable
causes, either accidents or diseases?
10. What proportion of deaths were due to contagious diseases?
MORBIDITY.
The evils and suffering caused by disease when seen
from the point of view of the family, the danger to
the community due to contagion, the burden upon
the city and state entailed by hospital care and upon
charitable societies dealing with the conditions result-
ing from sickness among the poor, are more serious
even than the sad and often unnecessary deaths.
The work of preventing diseases depends very
largely upon the distribution of these diseases accord-
ing to location and a proper determining of the causes.
78 THE SOCIAL SURVEY
To provide medical care and hospital facilities is
among the first duties of the community, but to ascer-
tain and remove causes of disease is the only modern
way of serving the interests of health. The most
elaborate system of hospitals and the most liberal
provisions for medical care of the sick are only an
indication of our failure to prevent disease and death
before it makes its victims. Preventive medicine and
sanitary engineering should replace our hospitals and
the drug industry, and our advancement in public
health-work should be measured by the degree of this
displacement.
The following should be ascertained in a study of
morbidity :
1. What was the number of persons ill with contagious dis-
eases and what was the character of the disease during the last
year?
2. What epidemics have occurred in the last five years in the
community and have causes attributed to them been removed?
(In statistical tables deaths from preventable diseases should
be considered separately.)
3. What has been the number of victims of the epidemic and
how many recovered?
4. How many persons have received free treatment in hospitals
and dispensaries in the last year and for what diseases?
5. Do any particular industries show a larger number of cases
of sickness than others, what is the character of the diseases and
are they contagious or not?
6. How many children have absented themselves from school
during the year on account of illness?
7. Have the schools been closed during the year on account of
epidemics and for how long?
8. In what trades have women shown the largest amount of
illness and irregularity of work?
9. What have been the prevailing contagious diseases among
children and infants during the last year?
BABY'S FOES
POV
IGNORA
BAD SURROUNDINGS.
;/*%.,
A
Nil*.-
AND T;
ARE KILLED BY
ITHERS
LIFE BEARING SCARS MABE BY THEM,
80 THE SOCIAL SURVEY
10. What has been the distribution of these diseases according
to locality, type of feeding, seasonal changes, etc.?
With the material accumulated in the investigation
of the questions as above indicated, the survey has
reached the point when the consideration of the more
specific problems of ill health and mortality may be
undertaken.
HOUSING.
The housing of the people is so vital a factor in
determining the health of the community and its
influence is so closely connected with the moral and
social atmosphere in which the people must live that
it deserves special attention.
In dealing with housing conditions and the evils
resulting therefrom, we find that resistance to disease,
infant mortality, longevity and industrial, moral and
social efficiency may be unhesitatingly drawn along
the boundaries that divide the community according
to the condition of the homes and the living conditions
which they render possible. This being the case, it
is of the utmost importance to ascertain the housing
conditions of a community in order to ascertain the
forces working against proper housing and to make
possible the outlining of constructive housing policies
consistent with the local facts.
The far reaching influences of bad housing conditions
must appeal therefore to those who are interested in
the welfare of the community for its own sake, as well
as to those who calculate their social service in terms
of increased efficiency in the daily tasks of the workers,
and savings in financial responsibility both towards
the city and the philanthropic agencies of the com-
munity. The work of ascertaining housing conditions
SURFACE DRAINAGE, A MENACE TO HEALTH FOUND IN MOST
AMERICAN CITIES.
CONDITIONS OF DWELLINGS 81
of the people should therefore be done with the utmost
care and the results weighed in terms of health as well
as in terms of moral standards and industrial efficiency.
The most serious defects of housing reform in Amer-
ica are the assumptions that the housing problem is
wholly distinct from other problems, and that it in-
volves essentially the question of a problem of sanitary
accommodations. That the absence of town planning
and the general environmental conditions outside
of the home coupled with inflexible and frequently
antiquated laws and practices are the real menace of
the home, must, however, be realized.
The sanitary aspects of the housing problem should
be considered along the following lines:
CONDITIONS OF DWELLINGS
1. Is the locality a community of homes or of three or four or
more family houses and what is the number of each type?
2. What is the average porportion between rental and family
income? (If this cannot be ascertained, the rental per tenement
by number of rooms in some characteristic sections should be
considered.)
3. Are the families crowded in small tenements and what is
the extent of the crowding? (Number of persons per room,
crowding in bedrooms, etc.)
4. How frequently are roomers taken in to piece out rents?
5. Is the water supply in the homes of good quality and suffi-
cient for the use of the families?
6. Is there a sewer system and is it connected with the dwell-
ings in all parts of the city? If not, what is the number of
dwellings not connected and the number of families and individ-
uals affected?
7. What is the character of the toilets; are they located in
apartments, cellars, halls, basements or yards and are they con-
nected with the sewer? (Secure facts concerning each.)
8. Are toilets used by one or more families each and to what
extent is overcrowding in toilet use prevalent?
6
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ROOMING HOUSES 83
9. What types of toilet ventilation are prevalent?
10. To what extent are bathrooms provided in the poorer
sections of the community?
11. Is household refuse removed by the city and what is the
method and frequency of removal?
12. How frequent are windowless rooms in dwellings?
13. How frequently are rooms dark because of proximity of
buildings, lighting through airshafts or narrow courts?
14. Are yards provided in tenements and what are the prevail-
ing sizes?
ENVIRONMENT OF DWELLING HOUSES
1. What is the average width of the tenement streets and how
wide are the sidewalks?
2. Are the streets swept, watered, flushed or oiled in the
tenement districts and if so, how often and by what methods?
3. Are the streets paved and what is the type of pavement in
tenement districts?
4. Are playgrounds provided in the crowded districts?
5. Are street car lines common in these districts and is the use
of the streets by children dangerous?
6. Are saloons common in the residential districts and to
what extent are they found in buildings occupied by private
families?
7. Are houses of prostitution or prostitutes permitted in the
neighborhood of or within dwellings?
8. Are the dwellings in the proximity of the factories and are
they affected by smoke, gases or other by-products which might
be injurious to health?
9. Are there in the proximity of dwellings swamps or lowlands
which breed mosquitoes or produce offensive odors?
10. Are noises prevalent in the dwelling districts that could
be reduced or avoided?
11. Are abandoned buildings common in the neighborhood and
are they protected against improper use by tramps and persons
of questionable character?
ROOMING HOUSES.
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of labor from one center to another has come the
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S o
cc
P
STREET
Building:
Front-Rear-Brick-Frame Det
STORES
N one-No. LOCATION
OWNER OR AGENT
NAME
STREET
How Paved REPAIR <
FIRE ESCAPES
Nojie-Adqte LOCATI
GARBAGE CANS
Adqte.-No.-Metal-Wood
YARD
None-Slze In ft. Drainage
VARD TOILET STRUCTU1
No. Toilets No Fain None Rf
HALL AND APARTMENT
VAULT
SEWER-CONNECTED MATE
OUT-BUILDINGS
None-Krarne-Brlck U
WATER SUPPLY
Street- Yard-Cellar- Hall
LOWEST FLOOR
Cel.-Bas USB Bus
HOUSE DRAIN
Exposed-lron-E.irtben-:
ROOF
ACCESS None-ScuttJe-BuIkh
PIPES ABOVE ROOF
VfiNT S
HOUSING CARD FOR
ROOMING HOUSES 85
problem of housing persons living away from their
families, which in "many cities has assumed large pro-
portions and frequently constitutes a serious social
problem. The rooming houses and the hotels are the
places which largely provide homes for this class of
population and the consideration of these hotels and
rooming houses should receive attention in the body
of a housing survey. The problems connected with
this type of housing can be stated in this manner:
1. What is the total population by sex living away from
home?
2. What is the number of rooming houses connected with priv-
ate homes?
3. What is the number of hotels and private rooming houses
and what is the method used in conducting them?
4. Are they controlled by local or state legislation, what is
the character of this legislation and what authority enforces it?
5. Are there any special rooming houses provided by philan-
thropic agencies and what is their capacity?
6. Are there houses or tenements in which men keep house
without women and what is their number and condition? .
7. What is the sanitary condition of the rooming houses ancl_L-'
hotels? (Use as a basis for study the questions on conditions of '
tenement houses.)
GENERAL CONSIDERATIONS.
So far I have dealt with the physical conditions of
the existing homes in relation to the population of
the community. This, however, represents only a
small part of the larger problem. The facts gathered
on the basis of the above suggestions are always more
or less in the nature of a muckraking process and most
communities are generously provided with material
for such a process.
A housing survey, however, is not a muckraking
process. The display of filth and congestion, the
nuisances of broken roofs, doors and windows, the
86 THE SOCIAL SURVEY
disease breeding toilets and the sewage that so frequent-
ly flows through our city streets are well fitted for the
sensational exploitation that housing reform has been
subjected to during recent years. High phrases of
crime, disease, and death have become an integral
part of the vocabulary of the housing agitator and
tomes upon tomes of housing laws, some practical and
some wholly unnecessary, have invaded our statute
books. The word slumming has become almost syn-
onymous with a housing investigation and a housing
report a verbal and pictorial display of all that is
repellant in the form of human habitation and sur-
roundings in our midst. We have been passing through
the hysterical period of housing reform and the results
accomplished fully measure up to our -methods.
An honest and scientific housing survey is more than
a photographing of slum conditions. It is a faithful
/picture of the causes of bad housing, of its effects in
terms of human life and human efficiency, of its cost
to the individual and to the community at large and
above all to be a logical result it must be a programme
of action that is consistent with the means of the people
whom we are endeavoring to benefit and in harmony
with their standards, their social life and personal
aspirations.
Casual examinations of the five score and more
housing surveys that have been carried out in many
cities throughout the United States show them to be
mainly social studies limited in scope to existing evils
or what might be called the pathological aspect of the
problem. The remedies are almost universally ex-
pressed in terms of legislation, regulation, inspection
and education which deal with the physical factors
GENERAL CONSIDERATIONS 87
of individual buildings and the methods of improving
them by reconstruction or destruction. Here our sur-
vey work seems to come to a standstill. Most of us
can distinguish between normal and subnormal con-
ditions and all those interested in the improvement
of housing conditions are nearly agreed upon what the
minimum standards should be.
A housing survey, however, should be more com-
prehensive than the work that housing workers have
generally been permitted or were able to do.
A study of conditions without reference to causes
and effects cannot be constructive. In housing reform
our task is not so much in the ascertaining of existing
conditions as in the relation that these conditions have
to certain fundamental economic, social and municipal
factors that render radical changes impossible or diffi-
cult. The fundamentals of an intensive housing survey,
which is the essential prerequisite of all other social
surveys, are as follows:
1. Character of the home as related to the welfare
of the family.
2. Relationship of this home to the community'
activities upon which depend the economic and
social life of the people, and
3. The cost of the accommodations as related to
the earning capacity of the occupant and rental
or purchase prices.
A comprehensive housing survey that neglects these
three aspects of the problem is incomplete and from
the point of view of constructive reform without value.
So far surveys have dealt with health, comfort and
privacy. The lodger evil has been added to many of
88 THE SOCIAL SURVEY
the serious problems that were structural in character.
The only aspect of the sanitary problem that has been
overlooked is the study of the causes of existing con-
ditions. Had we been eager to examine into the causes
of bad housing conditions, we would have been led to
the examination of some of the more fundamental
questions of transit, city planning, taxation, etc.
^ The following appears to me as a fairly complete
outline of the causes of bad housing:
CAUSES OF THE HOUSING PROBLEM.
a. Population.
1. Immigration as represented by the rate of in-
crease in population both native and foreign.
2. Industrial growth without community prepara-
tion, as represented by rapidly growing industries
wholly out of proportion with the rate of home
building in the community.
3. Race factors, as represented by the tendency to
segregate the colored race into quarters inad-
equately provided with horrlqs for the type and
the number of people to by accommodated.
4. Ownership, or the lack of it, due to changing
industrial conditions, tenement building^
b, Municipal administration.
1. Enforcement of law through well organized
municipal departments.
f Sewage disposal facilities.
2 I Water supply.
1 Waste removal and street cleaning.
[ Streets, Park Department.
3. Municipal building of cheap homes rentable to
subnormal families at low rental rates.
CAUSES OF THE HOUSING PROBLEM 89
4. Taxation system as expressed in the exemption
from taxes of cheap wage earners' homes or in the
reduction of such taxes.
c. Legislation.
1. Municipal regulation dealing with safety and
health regulation.
2. State laws dealing with the fundamental law of
building.
3. National, dealing with tariff on imported mate-
rials, transportation rates as regulated by Inter-
state Commerce Commission, affecting transpor-
tation of materials, etc.
d. Neighborhoods and Community Changes.
1. Zoning affecting the location of objectionable
factories or other activities.
2. Industrial changes such as the shifting of indus-
tries from one section to another and interfering
with the home life of the people.
3. Shifting of population due to changes in the
racial, natural or social character of the people
in relation to a given locality.
e. Natural Difficulties.
1. Drainage.
2. Building difficulties due to topography.
3. Grades.
4. Climatic conditions determining materials and
durability.
f. City planning.
1. Street layout.
2. Transit.
3. Zoning and open spaces.
90 THE SOCIAL SURVEY
It is not necessary in this brief chapter to deal with
every factor here outlined. The elements of popula-
tion and industrial growth, however, are of such mo-
mentous importance that I must pause for a moment
to deal with them.
Immigration and industrial growth so overload the
housing capacity of many of our communities as to
create congestion in existing buildings and stimulate
the construction of dwellings which in sanitary stand-
ards and architectural construction violate every
requirement of human comfort, health and good taste.
" Spasmodic booms" and untruthful advertising of
the advantages of certain communities are frequently
responsible for such conditions.
A housing survey that analyzes the causes of these
increases in population and the character and location
of industrial plants will show that owing to lack of
foresight on the part of manufacturers and the local
governmental bodies, they are located at points where
congestion is made necessary and adequate distribution
of the population impossible.
An honest statement of the facts relating to the
methods of distributing our industries and the difficul-
ties of making them accessible to the workers will be
of the utmost value to the community as it will show
the failures of the local transit facilities as to
time, cost of transportation, and convenience. Indus-
trial growth implies growth of population which must
meet the demand for labor. This demand for labor
is generally responded to by the newly arrived foreign
elements, which owing to their racial and economic
standards, encouraged by the lack of adequate housing
facilities, create housing problems of the most serious
GOVERNMENTAL FACTORS 91
kind where healthful and comfortable conditions existed
before.
A very large share of our housing problems is due
to a forced industrial and commercial progress wholly
out of harmony with the social organization and equip-
ment of our communities.
The most accurate conception of the governmental
factors dealing with housing may be gained from an
analysis of the functions which the Government does
or may exercise in the control of housing conditions
both in the form of legal provisions and in the form of
administrative activities affecting the housing of the
people.
I have, therefore, outlined the functions that the
local, state and federal governments may exercise in
the development of proper housing conditions and
in the control of minimum standards. This outline
is as follows:
I. PROMOTIVE GOVERNMENTAL FACTORS.
Banking laws such as Germany provides whereby
workers can obtain loans at low rates of interest
for use in building homes.
Municipal or state loans devoted to the use of
home building through financial aid given either
to individuals or to organizations.
Exemption from taxation of certain types of most
needed homes.
Free or cheap land made possible by purchases
of large tracts of land controlled by the municipal-
ity and devoted to housing needs.
Free or cheap transit.
OTY- OP -LIVERPOOL
BEVINGTON -
PLAN SHEWING AREA BEFORE DEMOLITION
MAP SHOWING BLOCK CONGESTION PRIOR TO BLOCK RECONSTRUCTION
IN LIVERPOOL.
CITY OP LIVERPOOL
BEVINGTON
PLAN SHEWING AREA AS REBUILT, 1912.
SHOWING BLOCK RECONSTRUCTION OF CONGESTED
IN LIVERPOOL.
AREA
94 THE SOCIAL SURVEY
Architectural engineering service to builders fur-
nished by municipality free of charge.
Municipal building.
Tariff regulation affecting building materials.
Destruction of buildings unfit for habitation.
II. RESTRICTIVE GOVERNMENTAL FACTORS.
Buildings.
a. Sanitation.
Light.
Ventilation.
~. .. /Water supply,
Cleanliness } . , . . .
I Accumulation ot waste,
Height, Width of streets.
Lot Areas.
Proximity of buildings.
f Toilets,
Waste disposal \ Sewage,
I Other waste.
b. Safety.
Safety exits.
,.,. f Fire proofing,
I Combustible Materials.
c. Moral
TJ . /lodgers,
Privacy -s ,.
I overcrowding.
Business and family use.
Arrangement of rooms.
fProstitution,
~, . I Liquor,
Character of occupancy^ .
[Gambling.
Surroundings.
HOUSING FACTORS 95
a. Sanitation.
Cleanliness of streets.
Shade.
Proximity to Parks.
Noxious gases from manufactures.
f Bad property,
. ,. Open sewers.
Sources of disease { c
Stagnant water,
[ Pumps, etc.
Unnecessary noises.
b. Safety.
Traffic.
Dangerous use of streets.
Sources of fire.
Lighting.
c. Moral.
Amusement centers.
Prostitution.
Gambling.
Liquor traffic, etc.
It will be noted that I have recognized two types of
governmental factors: the promotive and restrictive.
With the latter we need not deal as it represents the
recognized and over emphasized type of governmental
control which is wrongly considered the whole of
legislative and governmental duty. I desire especially
to direct the attention of the reader toward the con-
structive and promotive work that the Government
can and should exercise.
Banking laws, taxation, cheap land, free or cheap
transit, municipal building of homes, tariff on building
96 THE SOCIAL SURVEY
materials, etc., are economic factors and are fundamen-
tal in determining the supply, distribution, cost and
character of homes.
When one analyzes the factors affecting the char-
acter and supply of homes the economic cost looms up
as the all embracing force in housing reform. The
availability of capital has for many years been the
element which has stood in the way of the wage-earner
in his effort to own a home. Banking institutions as
well as the municipalities and the state have charged
heavily for any 'financial assistance that the ordinary
wage-earner has been able to obtain. In the transac-
tions that have taken place large interests and dispro-
portionate profits to the middleman have placed a
heavy burden upon the home owning wage-earner.
An investigation into the financial methods that
prevail in a community and the financial history of
many of the individual small homes will reveal facts
that should lead, as they have already done in Germany,
to banking laws and municipal and state loan activities
that will relieve the wage-earner of the usury and
speculation that a poor man must face when he desires
to acquire his own home.
The banks of Germany and the larger cities as well
as the French Government place at the disposal of
individuals and building societies from 50 to 80% of
the money necessary for the construction of working-
men's homes. In contrast with this governmental
service we should ascertain the problems and difficulties
of the modest builder in our own communities.
Land values depend upon the intensity of their use
or their potentialities for such use. The poor man
must face the land speculator whose profits aggregate
HOUSING FACTORS 97
during a short period of time from 100 to 5,000 per
cent of the original investments.
Cases have come to my personal attention which
yielded a profit of from 500 to 4,500 per cent during
periods of holding ranging from two to twelve years.
Similar conditions exist in all cities of the United
States. Such profits are unnecessary and socially
wasteful. A survey should reveal the facts and create
public opinion against land speculation. The cities
and towns should own land and offer it to the modest
investor at a profit to the municipality but at a reason-
able rate to the investor.
The community should have the right to control the
use of the most valuable land in the community and
not permit valuable waterfronts to be occupied by
slums and dumps. The economic loss to the locality
and to the people is too great to be tolerated without
control. There are innumerable instances of water-
front conditions which should bring shame to any one
with local civic pride and indignation to the hard-
headed practical business man.
The keeping of land out of use is a common and
paying practice. Our systems of taxation make this
practice possible and a housing survey would be of
momentous assistance in housing reform if a study of
such land and its relation to present needs were made
with a view to showing how the system of taxation
in vogue renders the practice possible under social
conditions which make the immediate use of such land
imperative.
The cost of materials is frequently affected by local,
state and federal legislation. The legislation which is
imposed upon the builder is frequently inconsistent
98 THE SOCIAL SURVEY
with the needs of the structures and out of proportion
with the available funds.
The statement has frequently been made that in
the last two thousand years, except for the introduction
of steel, there has been no progress in the invention
and use of building materials. It would seem safe to
assume that wood will always be the staple element
of building, since it is the material that invariably
becomes a part of the structure, and is accessory in
the making of scaffolding, forms and other incidentals.
The United States is becoming more and more de-
forested, and wood is yearly increasing in price. Lumber
being in many sections of the country the most im-
portant building material, the cost of construction is
being enhanced. The character and size of buildings
is therefore being perceptibly affected, with the result
that rents go up, and, as wages do not, as a rule, keep
pace with rents, housing standards go down. Since
this is the case, it is of extreme importance to ascertain
in what way the price of lumber and other materials
used in construction may be reduced.
The advocates of conservation of natural resources
are clamoring for laws that will preserve and protect
our forests. Builders are complaining against the
high price of lumber due to what they claim to be a
monopoly and a shortage of supply, while the tariff
interferes with its free importation. The failure to
heed the demands of the advocates of conservation,
and the tariff imposed upon lumber, render impossible
the cheap building of homes, and nullify all honest
effort toward conservation. A removal of the tariff
on lumber would, in a comparatively few years, allow
the development of national resources of lumber, and
HOUSING FACTORS 99
make the United States a strong competitor in the
lumber market of the world. The downward revision
of the tariff that went into effect lately contains rates
on building materials which show a recognition of the
need for cheapening such materials and the protection
of the present undeveloped national resources in this
country.
Transit is generally based upon the commercial
needs of a community. This fundamental error in
our systems of transportation and the " nickel" policy
that so frequently prevails among our public ser-
vice corporations are very largely responsible for
congestion, high land cost and bad housing accom-
modations.
A housing survey that fails to recognize the problems
that the wage-earner must face in reaching his place
of employment, both in point of time and in relation
to daily cost and convenience, is incomplete. A large
share of our land problems may be solved by an
adequate transit system. The congestion that often
prevails in many of our cities is due to difficulties of
access to places of employment and amusement centres.
Transit facilities in harmony with local needs would
be a remedy. Belgium is solving its problem of con-
gestion by cheap and fast transit methods. We can
apply the same methods in this country and make
them pay both to the individual and to the operating
agencies. The expansion of residence over a large
territory would also benefit the city treasury by an
increase in the amount of land use and the economy
that would result from improved conditions in terms
of better health necessitating fewer hospitals, better
morals necessitating less policing and fewer judges,
100 THE SOCIAL SURVEY
greater industrial efficiency with increasing earning
capacity and higher standards of living.
I have dealt with factors that generally do not enter
into a housing survey. These factors, however, are
fundamental to constructive housing reform.
Land, taxes, cost of materials, availability of capital,
transit and a carefully developed policy of govern-
mental agencies which would tend to give the wage-
earners an opportunity to acquire and maintain their
homes under economic conditions consistent with their
wages, their physical needs and social standards are
the only practical and far-reaching methods of solving
the housing problem. A housing survey that neglects
a consideration of these factors is therefore incomplete
and cannot lead to constructive reform.
You may investigate your needs for docking facilities
and mortgage your city to acquire them, but if in so
doing you sacrifice the interest of the homes of the
people who have first right on the city's investment
you will soon have to invest your gains in jails and
hospitals. If you acquire imposing parks and boule-
vards without due regard to the service that these
improvements will render by their relationship to the
homes, you will be indulging in public luxuries to serve
private gain. A social survey that does not take as
its foundation a thorough study of housing conditions
and the possibilities for improving them is bound to
be a failure and it is for this reason that I have taken
the liberty of expanding this section beyond the normal
limitation of any given section of this general outline
of social survey.
There are cases, however, where the more intensive
study of the housing problem is not possible. In such
HOUSING FACTORS }()],
cases the following problems may be studied on the
lines of the questions outlined below:
OWNERSHIP OF HOMES. ^
1. How many families own their own homes?
2. Is the tendency to own homes on the increase or on the
decrease?
3. Are the individually owned homes on the average better
than the homes owned by other persons or corporations?
4. What is the general character, size, building material, and
architecture of individually owned homes?
5. What is the average assessed valuation of the individually
owned workingmen's homes?
6. What is the per cent, of individually owned homes free
from mortgages?
7. Are mortgages on homes taxed separately from the prop-
erty itself?
8. What are the building associations that promote indiv-
idual home building?
9. What are the practices of the local banks with regard to
loaning money on mortgages or for building purposes?
10. To what extent do the mills provide houses for their
employees?
LEGISLATION.
When facts concerning the housing conditions have
been collected and so arranged as to give a clear con-
ception of the problem, a thorough study of the laws
relating to housing, sanitation and house building
should be made. This can best be done by persons
familiar with handling legislation and with the building
trade. Whenever it seems apparent that the building
laws are insufficient to meet the needs of the com-
munity, an examination of the aspects left without
legal provision should be included in the survey. When
the laws in existence do not seem to be enforced, much
profit may be derived from an examination of the
THE SOCIAL SURVEY
aspects of housing legislation unenforced and a con-
sideration of the machinery provided for its enforce-
ment should be made from the following points of view :
1. Is the machinery and appropriation provided for the enforce-
ment of the law sufficient to meet the local needs?
2. Is the law clear and definite enough to empower the offic-
ials to enforce it?
3. Are the officers efficient and honest in the performance of
their duty?
These three questions should be applied as a test
to all legislation dealing with social conditions and
whenever possible the officials concerned should be
consulted and their work examined with a view to
securing necessary facts and obtaining their co-opera-
tion.
RELATION OF HOMES TO THE COMMUNITY.
I have pointed out elsewhere the relation between
the people and the city plan. The relation of the home
to the community and incidentally to the distribution
of employment, educational and recreational facilities
may be ascertained in a general way by answers to
the following questions:
1. What transportation facilities are the street car and railway
systems providing to facilitate the transportation of employees?
2. Are reduced fares for working people provided?
3. Are the outlying districts provided with adequate trans-
portation facilities so as to make access to amusement and cul-
tural centres easy and cheap?
4. What are the differences in the average cost of staple foods
between the congested sections and the outlying districts?
5. Is the city following a carefully worked out plan in its
development of streets, parks, playgrounds, etc., or are the real
estate interests the main factor in the development of the com-
munity?
THE HOME AND THE COMMUNITY 103
6. Are large tracts of land being opened up for residential
purposes and what steps are being taken by the community to
insure symmetry, open spaces, etc.?
7. Can individual homes be built at a sufficiently low cost to
make possible reasonable rents and a fair return upon the invest-
ment? If not, why?
INDUSTRIAL SANITATION.
In the earlier part of this bulletin the problems of
protection against industrial accidents which result
in injury and death were discussed. Industrial sanita-
tion deals with the broader aspects of health as related
to employment, namely, the physical injury that
results from the conditions under which the work is
being done.
The human waste which results from the lack of
scientific methods in the protection of the health and
life of American wage-earners has been variously esti-
mated in dollars and cents. The mortality rate due to
causes directly connected with employment, places the
United States among the most careless nations of the
civilized world. It is about time, therefore, that a
far-reaching constructive policy be adopted by the
individual states or the Federal Government whereby
a higher value would be placed upon human life and
the usefulness of the individual worker in the field
of industry be prolonged in time and increased in
efficiency. The lesson of Europe is before us and we
have only to learn. Movements in this direction have
been started already, but each community must con-
tribute its share of interest and enthusiasm.
The larger share of the worker's time is spent in the
home and in the factory, and it may safely be estimated
that on the average as much time is spent in the place
104 THE SOCIAL SURVEY
of employment as is spent in the home. It is reasonable,
therefore, to place the sanitary conditions of the indus-
trial establishment as next in importance to housing
sanitation.
The important aspects of the industrial establish-
ments may be ascertained by investigations intended
to answer the following questions:
1. What proportion of the workers in each of tke principal
industries are employed in-doors and what proportion are employ-
ed out of doors?
2. What are the sanitary regulations provided by state laws
affecting industrial establishments?
3. What local legislation regulates the sanitation in industrial
establishments, and what are the legislative powers of the locality
in matters of health?
4. What officers are charged with the enforcement of the law?
(Give title and number of state and local officers, salaries, method
and term of appointment, etc.)
5. Are the laws enforced and if not who is responsible for the
failure to enforce them?
6. How do the industrial sanitary laws of your locality com-
pare with similar laws of other communities of the same size but
in different states, particularly in New York and Massachusetts?
7. What is the extent of manufacture carried on in tenement
buildings or other structures not intended as industrial establish-
ments?
8. What are the hours during which women and children are
permitted to work in industrial establishments?
9. Are workers crowded in factory buildings?
10. At what age are children permitted to begin work?
11. Are sweatshops common and what are the products manu-
factured in them?
12. What is the death rate from industrial diseases?
13. Are especially dangerous trades prevalent in the com-
munity and what has been done to avoid the existing dangers?
14. Are special efforts being made to educate the workers in
dangerous occupations as to the best methods of preventing the
ill physical effects of the occupation?
INDUSTRIAL SANITATION 105
15. Are recreational facilities provided within and outside in-
dustrial plants to counteract the bad effects of the particular
trade processes due to posture, bad atmospheric conditions, eye
strain, etc.?
A study of the laws relating to sanitary regulation
in factories and shops will bring the various aspects of
the subject to the attention of anyone making a survey.
The enumeration of the questions involved in a study
of this kind in full would render this section wholly
out of proportion with the rest of this publication.
The reader should be guided in the consideration of
this subject by the laws of New York and Massachu-
setts, which, although not ideal, are among the best
so far available in the United States.
SCHOOL SANITATION.
While the industrial workers are spending a large
share of their time in shops, factories and mines, the
children over a certain age, (generally seven years) are
at school and although the school hours are not quite
as long as the hours of labor, a considerable amount
of time in the child's life is spent upon the seats of the
class room, in contact with other children and subject
to the influence of the sanitary conditions of the school
building. That the public schools are not always pro-
vided with the best sanitary devices and are not beyond
reproach in matters of possibility for contagion and
physical injury to the child, is a fact so very generally
accepted that even a superficial survey of community
health is not complete without a consideration of the
subject of school sanitation.
Some of the questions to be asked in connection
with sanitary conditions of public schools are as follows :
106 THE SOCIAL SURVEY
1. Is medical inspection in schools provided by the local
government?
2. Is the inspection done only for children that are pointed
out by the teachers, or for every pupil in the schools?
3. What proportion of all the children in the schools were ex-
amined last year?
4. Do the school teachers see to it that the children receive
the medical care prescribed by the medical examiner?
5. Are there school nurses or school visitors who look after the
medical care of the children after medical examination?
6. Is there dental examination in schools and what is the meth-
od of examination pursued?
7. Are examinations for eye strain and other defects of the
eyes made by the general medical examiner or an oculist?
8. Is the number of seats provided in the school rooms suf-
ficient to accommodate all the children and what type of extra
seats are used?
9. Are the seats adjustable in the school rooms and are they
properly adjusted?
10. Are the systems of ventilation in use adequate and under-
stood by the caretakers? (Consult medical inspectors, teachers,
builders and janitors.)
11. What is the size of play space connected with each school?
12. Do the schools have baths?
13. Do the schools furnish free or cheap lunches?
14. Are open air schools for tuberculosis and physically sub-
normal children maintained, and if so what is the number of
classes, the number of children and the location of these schools?
15. Are the open air schools sufficient to accommodate all the
children in need of such treatment?
16. Are the toilets sewer-connected and properly ventilated?
17. Have the common drinking cup and towel been abolished?
18. Are mentally defective children placed in separate classes
and given special medical care?
In formulating the above questions an attempt has
been made to emphasize the conditions which are most
obvious and which could be ascertained by any inter-
ested citizen. The newer movements in the direction
SCHOOL SANITATION 107
of school hygiene, such as the examination of the eyes
and teeth, open air schools, etc., have been called to
mind in order to indicate the work that is being done
in some of the more progressive cities and towns of
this country.
SANITARY CONTROL.
A survey of the general sanitary conditions of a
locality as distinct from the facts relating to mortality
and morbidity which were discussed in the section
dealing with the general subject of community health,
if exhaustive, should be undertaken by a sanitary
engineer or someone acquainted with technical problems
of health. It is possible, however, to suggest some of
the important conditions of community health which
may be studied by any member of a survey committee
with satisfactory results. These problems are:
GENERAL QUESTIONS.
1. Is the locality sewer connected throughout and, if not, which
parts are not sewer connected?
2. Is the water supply of good quality, and are tests of the
condition of the water made regularly by the local or state health
authorities, and if so how often and what manner?
3. Is the house refuse removed by the local authorities, and
if so, how often and in what manner?
4. Are the streets regularly cleaned, and what is the authority
in charge of the work?
5. Are the smoke, dust and gases emanating from the manu-
facturing establishments controlled by legislation, and is the leg-
islation enforced?
CONTAGIOUS DISEASES.
1. Are cases of contagious diseases reported to the health au-
thorities, and what agencies are engaged in following them up?
2. Are advanced cases of tuberculosis cared for in hospitals
especially provided for that purpose or in wards set aside in gene-
108 THE SOCIAL SURVEY
ral hospitals, and are accommodations sufficient to meet the local
needs?
3. Are sanitaria available for incipient tuberculosis patients
and have they sufficient capacity to accommodate all those in
need of such care?
4. Can the health authorities compel the removal of a tuber-
culous patient to a hospital when dangerous to the health of the
members of the family?
5. What other contagious diseases besides tuberculosis are re-
ported to the health authorities; how and where, .in cases of is-
olation, are these cases cared for?
6. Is fumigation or other method of disinfection practiced
after the removal, recovery or death of the patient in the home?
THE FOOD SUPPLY.
1. Is there any inspection of milk in your community, what
are the laws concerning milk, and under whose jurisdiction is the
work done?
2. Is the inspection done without licensing the dealer, or by a
system of license which is based upon inspection of the sources
of milk?
3. Is there meat inspection in the State, and in what manner
is the inspection done in your locality?
4. Are bread stuffs, candy, fruit, ice cream, etc., under inspec-
tion and what is the law concerning such inspection?
5. What other classes of food are inspected by local or State
authorities?
6. Is there a pure food and drug law in your state and how
is it enforced in your locality?
7. By whom and in what manner is the federal Pure Food
Law enforced?
8. Are there public markets and under what authority is their
sanitary condition controlled?
In dealing with health problems the simplest and
most vital questions have been considered. The more
technical problems, however, have been indirectly
suggested with a view to enlarging the scope of the
inquiry through the employment of experts when con-
ditions warrant such action.
^LEISURE.
RECREATION is the safety valve of civilization.
It is the nightmare and dream of modern society;
it is the balancing medium between the strain of daily
toil and the normal, physical, and mental functions; it
is the protector of human society and the training
ground for the criminal and degenerate.- A community
that tolerates prostitution without control, allows the
saloon to take the place of the playground and the
home, closes the doors of its schools for more than half
the time, and compels the children to find their amuse-
ments upon the streets and back alleys is producing
its own criminals, is destroying the integrity of the
family and injuring the industrial efficiency of its
workers. That recreation is needed is a truism that
has become a gospel in modern social reform ; the qual-
ity of the recreation must be determined by the com-
munity itself. Recreation is, however, only a limited
aspect of the broader and increasingly more complex
problem of leisure.
With advancing civilization has come a disentangle-
ment and differentiation of industrial processes and a
shrinking of work hours in favor of leisure time. This
condition, so increasingly characteristic of highly de-
veloped peoples, has tended to deprive production of
its inspirational and recreational elements and has
reduced work, in the vast majority of cases, to physical
functioning aided only by a limited number of brain
centres.
It may be said, without fear of denial, that the
109
110 THE SOCIAL SURVEY
potentialities for progress in a given country can be
measured by the leisure at the disposal of the people,
while its value as a dynamic factor in the achievement
of progress must be measured by the manner in which
this leisure time is utilised. The utilisation of leisure
depends, however, upon two fundamental factors:
education and facilities for self expression. The social
survey in dealing only with recreational facilities of
the community is taking into account only the negative
aspect of leisure time, namely, the facilities for recruit-
ing energy and courage and nerve force necessary for
the pursuit of the normal but static functions of social
and industrial life. What needs to be dealt with is
the positive, dynamic aspect of leisure, which repre-
sents the creative, as well as the recreative, aspects
of leisure time use. In so doing the field of investiga-
tion extends beyond the bounds of playgrounds, parks,
swimming pools and ball fields into the field of intel-
lectual equipment and development, the relation of
the people to the arts and crafts both as pastimes and
creative forces and the reaction that this relationship
of the people to their leisure produces in the life of
the political and social institutions of the com-
munity.
Of the three essential elements of human life, life,
labor and leisure, the last represents the most highly
social, the most easily amenable to differentiation, the
most fruitful field for the development of individual
creative ability.
Granted the importance of leisure time, the com-
munity should assume the responsibility for its pro-
tection and conservation as a social force by making
adequate provision, either directly maintained by the
CLASSIFICATION OF LEISURE 111
community or stimulated and assisted through its
efforts.
Although broad classification of the facilities for
adequate use of leisure time, based upon a clearly
denned line of cleavage is impossible, I venture upon
the following division: i
1. Recreational.^
2. Educational and Cultural.
3. Esthetic and Emotional.
I have stated that recreation is to be understood as
meaning the utilisation of leisure time for recuperation
of energy and the employment of mental and physical
faculties with a view to maintaining or increasing the
productive efficiency.
Educational and cultural occupations as a leisure
time element go beyond the recreational and tend to
improve and create new forces and abilities which can
be used later as a means of recreative activity, but
whose main function is the constant adjustment of
the individual to the social achievement of his fellow-
men and of his age and a utilisation of this achievement
for both personal and social ends.
The esthetic and emotional aspects of leisure time,
such as are expressed in the drama, the folk song, the
folk dance, the pageant, etc., have a high and distinct
recreative value, and also serve to develop a higher
emotional life and promote facilities for the social
showing of such emotional life through the creation
and development of Art.
As we study the history of the use of leisure time,
we find that it has passed from self expression to self
indulgence. The pressure placed upon the workers
112 THE SOCIAL SURVEY
in the exercise of their industrial activities, as developed
in the earlier periods of this industrial era, hampered
the possibilities for self expression, such as were de-
veloped during the earlier periods of civilised life, so
that the only interpretation that the workers could
give to leisure was a passive enjoyment rather than an
active self expression.
In this country we are only beginning to see the
light of a new era of leisure time use which will give
the people a true conception of the points where their
function as promoters of the highly skilled, carefully
organized and commercialised facilities for the use of
leisure time will become only one of the humble mani-
festations of leisure time needs and use, while individual
participation and self expression on the part of all will
take their place as the highest achievements of civiliza-
tion and as creative forces in the progress of
society.
I have ventured into the discussion of leisure far
beyond the statement of facts to be ascertained, not
because what I have stated is not already clear to
many writers in the field of recreation and leisure, but
because the scope of the inquiry depends upon the
character of the investigation to be pursued.
RECREATION.
With commercialised recreational facilities, certain
factors have come into being which, by their dangerous
character, have made necessary public control as a
means of protecting the community against their evil
effects. In order to ascertain the conditions which
have developed in the past so that the government is
obliged to take part in the control of the commercialised
APARTMENT HOUSES IN SAN FRANCISCO, CALIFORNIA, UTILISING THE
CONTOUR OF THE LAND IN THE DEVELOPMENT OF
ARCHITECTURAL CHARACTER.
RECREATION 113
facilities which are intended as a means of recreation,
the following questions should be asked:
1. Is the locality license or no license?
2. If license, what are the conditions for obtaining a license?
What is the number of saloons, and are they located in the resi-
dential, tenement or factory districts?
3. How common is the practice of renting rooms in connec-
tion with the saloons?
4. Are women and children allowed to go into the saloons and
under what restrictions?
5. If the locality is no license, is liquor sold in any particular
establishments and in what manner?
6. Are houses of prostitution or assignation permitted or tol-
erated?
7. Is street soliciting by prostitutes tolerated by the police?
8. Are rooming houses under police supervision, and if not
what is the consensus of opinion concerning the moral condition
of rooming houses?
9. Are the dance halls under police supervision, and what is
the moral condition that prevails in such dance halls?
10. Are dance halls connected with saloons or rooming facili-
ties or both and what is the condition of these saloons and room-
ing facilities?
11. What is the age limit for men and women permitted to use
the dance halls?
12. By whom and how are the regulations concerning the
saloons, rooming houses and dance halls enforced?
13. What legal restrictions are placed upon theaters and mov-
ing picture shows and what department enforces those legal re-
strictions?
The saloon, the dance hall and the rooming house,
combined with dangers of prostitution, present the
most important problems of recreation and amusement
that exist in a community. In conjunction with these
problems the cheap theater, the summer amusement
resort, and the opportunities afforded by the indis-
criminate running of steamer excursions upon which
8
114 THE SOCIAL SURVEY
the liquor traffic is not controlled, the careless renting
of state rooms, and lack of supervision in the conduct
of excursionists, may also form part of the survey of
the amusement and recreation facilities. The objection-
able conditions in the latter types of amusement are
so obvious as to require no outline of investigation.
With the most important amusement facilities of
a public nature considered, we may proceed to the
consideration of another class of amusement which is
generally provided by the community or some private
agency for the purpose of counteracting the evil effects
of the saloon, the dance hall and the cheap theater.
The public assets and liabilities in providing recreation
and amusements may be ascertained by a study of the
following :
1. What park facilities are provided by the community?
What are the distances from the residence and tenement districts
and what is the fare to these parks?
2. Are grounds for ball and other games for adults furnished
by the community?
3. Are playgrounds for children and adults provided by the
community or by private agencies or both; how are they super-
vised, what is the cost of their maintenance per year, what is
the attendance during various seasons of the year, what is the
equipment and are they located where they are most needed?
4. Are the school buildings provided with playgrounds; if so
are the children permitted to use them in the summer and are
they supervised?
5. Are free concerts in parks, playgrounds and schools provided
by the community?
6. Have moving picture shows, theatrical performances and
other amusements been introduced into the public schools?
7. Have games been introduced into the work of the public
schools?
8. What is the total amount of money spent by the city or
RECREATION 115
town for public recreation as compared with expenditures for
fire protection, courts, jails, etc.?
9. Are the public recreation facilities available to the public
on Sunday and if not, what is the main reason for the closing
on Sunday?
The study of public recreation and amusements
should lead the survey committee not only to ascertain
the existing facilities, but also to inquire into the pos-
sibilities and resources available which could be used
in extending the service of the local government and
of such volunteer agencies as may be available. The
finding of such possibilities and resources must, how-
ever, be left entirely to the discretion and intelligence
of the committee and its workers.
COMMERCIAL RECREATIONAL FACILITIES.
So far we have dealt with facilities provided by the
public authorities. There are, however, in each com-
munity provisions for recreation that are either highly
commercialised, such as the theater and the moving
picture "show," the athletic field for professional
players, the back garden and other similar facilities.
These have grown out of local demands and need
special consideration in survey work, as they are an
accurate index of the relation between public recrea-
tional facilities and local needs and, by careful analysis,
may serve as indices for the lines of enterprise that
public recreational facilities should follow.
These private facilities should be studied from the
following points of view :
1. What are the various types of recreational facilities provided
by commercial enterprise and what is the legal and administra-
tive machinery provided for their control?
2. What is the cost per person expended by the people of the
116 THE SOCIAL SURVEY
community in the maintenance of the commercialised amuse-
ments according to each type of such amusement and what is
the per capita cost of recreational facilities provided by the com-
munity?
3. To what extent do the commercialised amusements dupli-
cate public recreational facilities?
4. What is the basis of competition between the public and
commercialised recreational facilities of the same type and how
could this competition be turned in favor of the public facilities?
5. What has been the history of the various commercialised
amusements as compared with the facilities supported by the
public?
6. What type of amusements would seem to present a menace
either to health or morals of their patrons and what proportion
of the total amusement facilities do they represent?
7. Are these dangerous amusements inherently bad or would
improvement through control do away with their objectionable
features?
The commercialised amusement is undoubtedly the
most difficult to study because of its great range of
variety and because no records available for public
use are kept. Through local ordinances or state laws
some records might be obtainable, but in most instances
attendance, character of amusement, sanitary con-
dition, exposure to danger from bad companions or
the professional white slaver, etc., will have to be
ascertained by personal investigation.
PRIVATE NON-COMMERCIAL RECREATIONAL FACILITIES.
In most large communities with over 20,000 popula-
tion there are many privately maintained recreational
facilities that meet definite needs and are quite distinct
from the commercialised or the public recreational
facilities. Among the agencies providing such facilities
are the churches, settlements, Young Men's Christian
Associations, Young Women's Christian Associations,
NON-COMMERCIAL FACILITIES 117
boys' or girls' clubs, playgrounds and other similar
philanthropic or semi-philanthropic institutions.
The moral and physical conditions under which
these recreational facilities are conducted may, in
most instances, be depended upon to be subject to
reasonable supervision. The important problems to
be considered, however, in connection with these
facilities are as follows:
1. To what extent do the private recreational facilities meet
the needs of the neighborhood in which they are located?
2. Is the cost of maintaining these facilities justifiable when
compared with the numbers attending the public or the com-
mercialised agencies at the same costs?
3. Are the recreational facilities suitable for the types of. people
they are intended for and if not, how could they be rendered
suitable?
4. Is the inside management sufficiently well adapted to the
type of people who are expected to use the facilities and is it
sufficiently flexible to meet special needs?
5. Are the private agencies conducting experimental work in
the recreational field which might serve as a guide in the organi-
zation and management of the public agencies?
6. To what extent are these philanthropic or semi-philanthro-
pic agencies self supporting?
Passing from the private agencies which are sup-
ported from philanthropic resources, we find in many
communities a variety of co-operative organizations
representing many recreational facilities which need
study. Some of these represent a dangerous element
in the community, while others are the result of legiti-
mate needs and are the expression of the highest type
of co-operative and recreational organization. Among
the former may be mentioned the drinking and gam-
bling clubs, while among the latter are the athletic
societies, such as the German "Turnverein," singing
118 THE SOCIAL SURVEY
societies and other similar organizations. A careful
examination of the membership, management, pur-
poses and results accomplished by these private
recreational societies may be useful both in establishing
adequate control of the dangerous elements and in
adapting the methods of legitimate organizations to
both public and philanthropic recreational facilities.
CULTURAL AND EDUCATIONAL FACILITIES.
Once an immigrant from eastern Europe who had
recently acquired the English language and was wal-
lowing in the luxury of access to an unlimited and un-
censored supply of books found after many weeks of
reading and study that his newly acquired knowledge
was evaporating almost as fast as he acquired it.
Disturbed by this experience, he presented himself
one day before the chief librarian and asked for advice
in the selection of books that would educate him and
make him stay so.
Our public schools do or pretend to educate us, but
they do not make us stay so. The function of making
us stay educated after our training in the recognised
institutions is completed is one dependent upon leisure
time and the facilities the community affords for the
maintenance and continuance of public education
beyond the public schools.
Local institutions and political organizations are
constantly changing. The inventions in industry, the
discoveries of science, the development of new philoso-
phies that underlie the cosmic forces of the universe,
the growth of new standards of ethics and of new
religious beliefs affect our daily life more intimately
than we are able to realise. There is a constant flow
CULTURAL AND EDUCATIONAL FACILITIES 119
of ideas and ideals which affect our whole social system
as we understand or fail to understand them. It is
this flow of ideas and ideals that demands the analytical
thought of the people which can be secured only
through the most extensive and intelligent use of
leisure time as an educational factor.
The press, the public lecture and forum, the library,
the extension departments of our universities and
museums are among the most important forces upon
which the educational and cultural life of a community
logically depends.
The PressT
In this country we have come to recognise the press
as a powerful factor in the life of a community. The
influence of the press as an educational factor can be
measured only by a careful study of the local daily
and periodical publications. While no set rules regard-
ing the method of study that should be applied in the
analysis of the local press can be laid out with any
degree of definiteness and of general application, such
questions as the following may throw some light upon
the situation:
1. How many dailies and periodicals are published in the
community mainly for local consumption and what is their re-
spective circulation?
2. What partisan groups, political, social, industrial or religi-
ous are represented by the local press?
3. What is the attitude of the press toward local social and
economic problems?
4. What type of educational material do the local papers con-
tain aside from news items and partisan discussions?
5. What changes have taken place within the last ten years
in the most important local publications in relation to factional
divisions and educational material?
120 THE SOCIAL SURVEY
6. Is the press ready to follow certain lines of educational lead-
ership that can be separated from partisan discussions?
7. Are articles and letters relating to local problems and other
educational material published by the press without discrimin-
ation or censorship?
It is on the basis of this knowledge only that we can
form an estimate of the value of the local press both
as an educational force and as an ally of a social survey,
the most important function of which is the publica-
tion of facts relating to local conditions with a view
to educating public opinion and securing permanent
improvements.
The Public Lecture and the Forum.
Professor Corson of Cornell University once said:
"We define education as a means of drawing out and
then we do our utmost to find ways of ramming it in."
In discussing the relation of the public lecture to the
forum one is tempted to define the former as a means
of ramming education into the public and the latter
as a means of drawing the thought out of the public.
Some of the lecture and forum facilities are offered
by governmental bodies, such as the public schools,
while others are maintained by churches, settlements,
colleges, private scientific societies, co-operative politi-
cal and social organizations, etc. The subjects dis-
cussed either in lectures or debates with the names of
the organizations offering the opportunities to the
public or selected groups, the attendance, and a general
estimate of the lectures given and debates held during
one winter month will give a sufficiently clear idea of
the range of thought that is permitted to flow through
the community. I use the word flow deliberately
because in recent years public schools and colleges,
CULTURAL AND EDUCATIONAL FACILITIES 121
as well as many private organizations not excluding
churches, have been tempted to place a certain censor-
ship upon the lines of discussion and debate that
should be permitted in the relation of the subjects
for discussion that is carried on in private halls to the
discussion that is permitted in public buildings. Public
assistance will determine the extent of thought and
expression that the community affords.
The Library. -V"
An agency for public education which is coming
more and more to be a guiding force in the life of a
community is the public library and within recent
years it has fully justified its prominence as a social
factor. A few questions relating to libraries may be
asked with profit:
t 1. What is the number of libraries in the community, what
is the size of their book collections, what is the number of readers,
hours of service, etc.?
2. Are the congested sections provided with proper library fac-
ilities and what are the most distant points in the community
from any library?
3. Under what conditions are books loaned to readers and do
readers have free access to shelves?
4. Are home libraries or some other methods of depositing
small collections of books in private homes, settlements, etc.,
provided?
5. What is the number of private book collections at the dis-
posal of the public?
6. Are the schools provided with small deposits of books for
the use of teachers and pupils, and are similar deposits available
in factories and stores?
7. Are books on subjects related to special industries carried
on in the locality reserved in the libraries for the special use of
workers and students?
8. Are notices of new books and other library facilities pub-
lished often in the press for the purpose of attracting readers?
122 THE SOCIAL SURVEY
9. Are exhibits held and public lectures given in the libraries?
10. Do any of the local libraries provide facilities for secur-
ing information for readers not expert in the use of books and
libraries and what is the nature of these facilities?
11. Are small collections of books relating to current topics of
special interest placed at the disposal of the public?
12. Are the book buying committees of sufficiently broad cali-
ber to give the library a collection of books of broad and diversi-
fied scope?
Extension Departments of Universities.
The extension departments of the universities, while
in many instances adequately developed as continua-
tion schools for adults, frequently fail to be more than
adjuncts of the general flood of so-called educational
lecturing which has no special message and does not
meet any particular need. An analysis of the subject
matter of such lectures will soon reveal their value
as a means of extending educational influences of an
academic character beyond the confines of the univer-
sity campus.
The Museum and Art Gallery.
While the museum and the art gallery represent
frequently a vast investment and priceless treasures,
the use of these educational factors in the community
is frequently limited to the few select people who have
a knowledge and an appreciation of museum and art
gallery objects. The actual measure of the value of
such facilities to the community would be found in a
careful census of the attendance during a period of
say, six months, gathered not only at the gate, but
from questions asked in schools, factories, stores,
settlements, clubs, etc.
The means of attracting the public to the museum
EMOTIONAL ASPECTS OF LEISURE 123
and art gallery through publicity of various kinds, co-
operation with educational institutions, and other
organizations should be considered with a view to
ascertaining whether with a small additional invest-
ment for publicity a greater usefulness could not be
given to the objects gathered, for the use and enjoy-
ment of the people.
THE EMOTIONAL ASPECTS OF LEISURE.
Among the emotional aspects of leisure we have as
the most important religion and art.
The religious spirit has become crystallised in the
churches of various denominations and creeds and
their relation to the people and the community is of
paramount importance. We cannot in this work under-
take a discussion of the relation that the church has
to the religious needs of the people. It would seem
that a sufficiently diversified grouping of religious
beliefs has come into being in this country and else-
where to satisfy any of the temperamental, philosophic
and racial differences that exist among the people and
if one fails to find the particular religion or creed best
suited to one's needs, the solution is to be found in a
further search for new sects rather than in the creation
of a new religious creed.
The problem, however, that the social surveyor has
to face is not the adjustment of the individual to a
particular creed, but the adjustment of the church to
a changing social order and the application of ethical
standards, more or less common to all religions, to
practical social problems. It is, therefore, the social-
ising influence of the church on the basis of its own
124 THE SOCIAL SURVEY
ethical code that should be taken as a standard in
measuring church efficiency.
Some of the questions to be asked in connection
with an inquiry into this aspect of the life, work and
influence of the church are as follows:
1. What is the denominational distribution of the population
of the city? (Take a church census of the whole community or
of one or more neighborhoods.)
2. How does the denominational census correspond to the
church membership in the community?
3. Are the churches located at strategic points in relation to
their membership or potential membership?
4. Are church activities sufficiently diversified and attractive
to hold the interest of the average mind?
5. Are religious discussions encouraged among laymen, or are
the ministers the only and supreme authority in matters of re-
ligious belief and learning?
6. Do the ministers stand out as a force in the community in
matters, which seem to be the least controversial of subjects of
agitation, and are they considered fearless, intelligent, progressive
leaders?
7. Is the church management a democratic institution or is it
in the hands of a group of powerful individuals who control the
policy of the church in accordance with an established order which
cannot be deviated from without precedent?
8. Are the churches used as forums for the discussion of speci-
fic public questions?
9. What churches carry on institutional work and what are
their activities?
The questions I raise may involve exhaustive study
of the most skilful kind. It would be well to place
before the clergy the above questions and allow them
to apply the test of self analysis which, if done con-
scientiously and fearlessly, will reveal many problems
of the church far beyond those I have ventured to
EMOTIONAL ASPECTS OF LEISURE 125
suggest, with the result that a more highly socialised
church would come into being.
ART.
Art is the highest expression of creative socialised
leisure. Its character and development depend not
alone upon the innate genius and achievement of the
individual but upon the concept and appreciation of
art forms among the people themselves. In other words
art in all its manifestations is the result of creative
genius in its relation to social achievement in education,
production, leisure and social institutions.
As in the case of the forms of physical recreation,
such as football, baseball, etc., so in the fields of art
we have compressed the utilisation of leisure in relation
to it with objective, contemplative, almost passive,
enjoyment of art forms and have completely neglected
to recognise the fact that art can be made a synthetic
product of the emotional life of the people, expressed
en masse, enjoyed and understood en masse.
It is true that the theatre, the symphony orchestra,
the art galleries, the esthetic dancer, and other art
forms are necessary manifestations of the emotional
life of the people which to a considerable extent inter-
pret their emotions, aspirations and ideals. A survey
of these manifestations and art forms in the community
is necessary not only from the point of view of the
measure of the use of leisure time along these lines
that prevails, but from the point of view of the com-
munity plan for a well co-ordinated plan of the develop-
ment and promotion of the use of leisure time in art
forms. The national theatres of Europe, the orchestral
organizations maintained and supervised by munici-
126 THE SOCIAL SURVEY
palities, the costly collections of art treasures that
have found their way into our art galleries are all
manifestations of a great need for the placing at the
disposal of the people of high types of art forms as a
means of stimulating the appreciation and under-
standing of the emotional and cultural value of art.
The survey should ascertain to what extent the
facilities for the enjojnnent of art are related to their
actual use by the public.
In order to do this the following few questions may
be asked:
1. What are the art forms encouraged, maintained and con-
trolled by the state, municipal or private agencies?
2. What are their true values and in what way is their selec-
tion determined?
3. In what ways are the people in the community brought in
touch with the facilities for enjoying the recognised art forms
in the community?
4. Are the schools, public lecture system, recreational agencies,
etc. promoting through educational and publicity means an in-
telligent appreciation and understanding of the art forms at the
disposal of the people?
5. Are the public buildings and monuments in the community
built in a manner that would tend to harmonize with best art
standards of modern civilization?
6. Do the schools and the institutions purporting to give train-
ing in home making endeavor to instill in the pupils an appre-
ciation of the differences between the artistic and the ugly?
7. Does the city have an artistic ideal in its general develop-
ment and plan?
These questions are more or less abstract but they
relate to one of the most pressing needs in American
civilization. Children and adults alike must be taught
the difference between the esthetic and the ugly and
must be stimulated in their choice of their art enjoy-
ment along the lines represented by the highest forms
-
EMOTIONAL ASPECTS OF LEISURE 127
of art. This should apply to the selection of furniture
for the home in the same way that it applies to the
selection of poetry, novels, the drama, the symphony,
or the esthetic dance. Commercialised art needs the
stimulus of a higher but popular education in art, if
we are not to degenerate to the low levels of the lewd
cabaret and the skilful but clumsy clog dance as the
symbols of the emotional expressions of the common
people of America.
Passing from the art forms which find their expres-
sion through the highly skilled and personally emotional
producer of art forms as we find them in the writer of
the novel, the poet, the dramatist, the painter, the
actor and the singer to the production of art forms
that find their creation and expression in the people
themselves, we find a wholly virgin field and one that
affords the greatest opportunities for popular self
expression and self interpretation, one that is pregnant
with the great truths of individual values and collective
powers in the creation of art.
The pageant, the folk dance, the folk song, the fairy
tale are all manifestations of the common imagination
of the people purified and crystallised into forms of
great simplicity and beauty and capable of reproduc-
tion with professional preparation or commercial organ-
isation. It is these forms of art that the city of the
future will soon find its greatest civic and creative
assets. At the present time the American as recognized
by law and tradition has no forms of art that have
been preserved through the generations that have
passed. The intensely individualistic life of pioneer
days made the preservation of the traditional folk
arts impossible and the present day finds the truly
128 THE SOCIAL SURVEY
American people in ecstasy over the folk creations of
Russia, Poland, Italy, Norway, but lacking a contribu-
tion of its own. Slowly American society is becoming
more intensely coherent and expressive of definite
ideas and ideals. This is bound to result in a new and
great folk art, but its basis must be found in the folk
art forms of the people who have come more recently
from foreign lands and whose folk art has reached a
state of development that is intensely social and highly
artistic.
The festival of the Italian, the dance of the Pole,
the folk song of the Russian, the folk art of the Bul-
garian are all assets in an American community that
should be studied and utilised. It is only through the
knowledge and understanding of these folk arts of the
great conglomerate mass of national and racial factors
that make up this country that a true folk art can be
produced and no great nation has ever lived without
a great art. Let the social surveyor recognise this
aspect of the social life of the people with as much
concern at least as he regards the accounting of the
minute expenditures of the city's finances and the
humble products of the public institution for the deaf,
the blind or the insane.
RELATION OF GOVERNMENT TO LEISURE.
Recent years have witnessed an unprecedented
development of recreational facilities provided and
maintained by local governments. The playground,
the wider use of the school plant, the recreation centre,
the swimming pool, the bathing beach, are all creations
of a growing need for better and more diversified
recreational facilities. The public lecture and the
IF TENEMENTS CANNOT BE AVOIDED THEIR SURROUNDINGS SHOULD
BE CAREFULLY PROTECTED. BERLIN, GERMANY.
RELATION OF GOVERNMENT TO LEISURE 129
public band concert mark the recognition of the cul-
tural elements in the use of leisure time. These facilities
for recreation and leisure time use, however, are neither
experimental nor expressive of local neighborhood
needs. They afford little opportunity for independent
thinking or independent action. They supply the
staples of leisure time which are essential to normal
physical and mental development, but hardly keep
pace with the times and seldom, if ever, give vent to
the more sporadic intellectual and emotional needs of
the people which manifest themselves in independent
and progressive thinking and deep emotional expression.
The local government in all its work must comply
with a recognised, established and well crystallised
standard of recreational needs. At this point govern-
ment must stop and individual initiative begin. The
leadership, whether that be along the line of art,
science, literature, or politics must at this point be
given the opportunity for self expression. The govern-
ment can furnish the physical facilities for the expres-
sion of this leadership, but at this point it must stop.
The schools, halls, public open spaces, etc., should
und^r simple and democratic regulation be placed at
the disposal of the people of the community and the
neighborhood be permitted to work out for itself the
requirements for self expression. In others, the Com-
munity Centre must be the free avenue for the use of
leisure time, physically maintained by local govern-
ment but free to utilise, express and exchange ideas
representing the growing intellectual and emotional
trend of the locality or its component factors, whether
they be large groups or limited factions representative
of specific types of ability, thought or belief.
9
130 THE SOCIAL SURVEY
A careful census of what the people do with their
leisure when made by individual accounting and relating
to a large number of individuals will soon show that
the leakage in the leisure time of our people is socially
and politically just as wasteful to this democracy as
the cruel leakage in human life due to anti-social
industrial conditions which still linger in our midst.
The suggestions for the utilisation of the facilities for
leisure time use afforded by the community resulting
from such an inquiry can hardly be fore-shadowed here.
Such studies have been made by the People's Institute
of New York with the result that a very momentous
movement for the re-organisation of leisure time use
has been made in that great metropolis.
EDUCATION.
HPHE subject of education in a community is one
* so generally of common concern and touches
so many aspects of community life .that little need
be said in favor of including a study of the educa-
tional facilities in the body of a social survey.
Education is the most powerful agency in modern
democracy. It is the only means of social progress
that has remained unquestioned and the public school
still stands as the purest example of a democratic
institution which is ready to rise to heights that so
far have not been fully appreciated. It is upon the
school that organisation and efficiency, "the harmonis-
ing of individual effort with the effort of all," depend.
A study of the educational facilities of a community,
.to be exhaustive, would necessitate the advice of an
educator and the experience of a person familiar with
the details of modern school administration. Such
; aid, however, is beyond the reach of most communities
and the work is left in the hands of laymen whose
opinion concerning the fitness and efficiency of educa-
tional work must be based upon concrete simple facts,
clearly and closely related to the problems of educa-
tion.
I have dealt with the education of the adult in the :
chapter on Leisure and shall, therefore, confine the
discussion in this chapter to tha school system as
found in our various communities' and their gradation
from the lowest to the most advanced institutions.
That there is honestftttssatisfaction with the present
131
EDUCATION 133
methods and achievements of the public school system
is clearly evident from the fact that scores of intensive
surveys have been completed recently in some of the
largest cities of the country and that new experiments
are constantly being tried in both public and private
institutions. These manifestations of dissatisfaction
with what has so far been accomplished are full of
promise for a new era in American education that will
harmonise social needs with individual potentialities
and co-ordinate the national and racial elements of
the people by conserving and utilising native abilities
as an asset to industrial efficiency and American
democracy.
With this task, American education, as the goal, the
social survey must begin with an accounting of the
child elements in the community, the school facilities,
the school methods and the school results in the light
of the actual needs of those to be educated both in
terms of industrial and social efficiency.
The accounting of the child element may be carried
out by the regular school census if done with care,
intelligence and due regard to its use as a basis for
measuring the efficiency of the school system in making
education universal and checking up the enforcement
of the compulsory education laws.
The school census which is taken independently by
each community while checking up the work of the
school and the enforcement of the law has a much
greater significance than has so far been given to it,
if its full value could be realised and utilised by the
school authorities and the surveying forces. 1
l The school census generally covers all persons between five or
six years and twenty years of age.
134 THE SOCIAL SURVEY
Some of the questions that could be answered by the
school census are as follows:
1. What is the actual school population of the community and
what is its potential school population?
2. What is the average age of children on entering school and
what is the average age on leaving?
3. What is the rate of progress of children by age according
to grades?
4. In what ways do the foreign children, according to national-
ity, differ from the native children in age and grade distribution?
5. W T hat proportion of the children are ignorant of the English
language according to age, sex and nationality and what is their
distribution throughout the school grades of the school system?
6. What proportion of the children according to sex, national-
ity and age are above or below their normal grades?
7. What is the distribution of children leaving school accord-
ing to age, sex and nationality of parent?
8. What are the fields of endeavor into which children go after
leaving school and what is the relation of their school prepara-
tion to this endeavor?
9. How does the distribution of the children according to age,
sex, nationality, grade, compare with similar distribution in the
school system of other cities?
10. What is the distribution of the sizes of families, occupation
of parents, and age distribution of children as related to the age
at which school children go to work?
Where private or parochial schools exist, the census
should cover these schools separately with a view to
establishing bases of comparison for standards of
efficiency. This may place before the respective
authorities of the different types of schools a strong
stimulus for the improvement of methods of organisa-
tion and teaching.
During recent years considerable attention has been
directed toward the child of subnormal or abnormal
mentality and the physically disabled. A census of
The Public School of Tomorrow
A natural wy for our children to live and learn
its?
. Two Schools in One Building
*iool is represented on chart by boys.and the other by girls
( art represents a study, work and play school day
tils are instructed in Arithmetic, Unguagtffeadino, History
"graphy.-aiso trained in workshops,auditorium,g>/nnasum
by grounds.
)0 Children were on part time in Philadelphia schools ttoyor
Khools would give these children thatwhichthecit/owe^ them
opportunity forgrowthand
Chart prepared by the Philadelphia Public Education Association.
136 THE SOCIAL SURVEY
such children is an indispensable asset to proper school
organisation. It is due to the exceptional child that
the school system place at its disposal the facilities for
utilising its full intellectual powers while on the other
hand it is due to the average normal child that we place
nothing in its way towards utilising the teaching
facilities of the school system without being held back
by the mentally subnormal.
A careful examination of the results of the school
census will reveal the need for the following special
provisions within the school system, if the require-
ments of all classes of children are to be met:
1. Schools for truants and incorrigibles. (Parental
school.)
2. Schools or classes for backward children.
3. Classes for recently arrived immigrant children.
4. Elementary industrial schools for retarded chil-
dren.
5. Classes for the mentally defective. (Feeble-
minded.)
6. Classes for epileptics.
7. Schools for crippled children.
8. Industrial schools for part time training in co-
operation with local industrial plants.
9. Schools or classes for the blind.
10. " " " " " deaf.
11. " " " " " children of exceptional
mentality.
12. Open air schools.
The examination of the school facilities and their
adequacy in meeting the local needs as discovered by
the school census can easily be" counted out by any
EDUCATION 137
group of intelligent citizens familiar with educational
methods and able to interpret the simple statistical
data that an ordinary school census contains.
THE SCHQOL AND THE CHILD.
The universal relationship between the potential
school population and the actual school population
has been discussed above. There are, however, definite
tests of school efficiency that are not necessarily subject
to universal interpretation, but depend rather upon
the test which can be applied to the school work
through the relation of its products to the community.
Reading, writing and arithmetic are the three essentials
of public school education. They form what might be
called the common denominator of public school work.
The complex community and industrial life under which
the children leaving school must live, however, places
the test of school efficiency far beyond the common
means of expression which the three "R's" represent.
A study of the placement of all or a good share of
the school children leaving school during one year and
the failures as well as the achievements of the children
placed in wage earning occupations will do more
towards clearing up the perplexing problems of the
educational system than any of the pedagogical dis-
cussions that might be carried on by pedagogs and
tax payers. This study of the placement of children
and their successes and failures may determine both
the possible, although only immediate, distribution
of the children according to their probable occupational
distribution, which should be used as a basis for the
preparation of the school curriculum, as well as an
index of the failure of the schools to train the future
13$ THE SOCIAL SURVEY
workers in the essentials required by the every day
tasks of American industrial and business life.
Should such a survey extend over a period of five
years the results might be used as a basis for a complete
recasting of the educational system of the community,
so as to make it fit into the economic and social require-
ments that the young worker must face on entering
upon the task of earning a living.
Consultations with employers of young workers as
to the requirements of their industry and the problems
of meeting those requirements with young workers
leaving the schools should constitute the main basis
of such a study. Beyond this point much information
might be gained from the study of the problems and
conditions met by the young workers as they conceive
these problems and as they endeavor to meet them.
The shifting in the occupations of the young workers
and the final successful placements might assist in
the development of a technique for local vocational
training and guidance, the former being quite as im-
portant as the latter.
BASIC EDUCATIONAL QUESTIONS.
Aside from the broader survey work special questions
relating to the administration, service and efficiency
of the schools must be answered through the survey.
These questions should relate to the following phases:
1. Administration, dealing with methods of handling
the affairs of the schools.
2. School Service and Community Needs, dealing with
the educational needs of the community from the point
of view of the number and character of the people to
be trained, and the relations between the existing
EDUCATION 139
educational facilities and the training needed to meet
the social and industrial demands.
3. Efficiency, dealing with the type of work done by
the schools, the returns for money invested in educa-
tion, etc.
With these three lines of inquiry in view, let us con-
sider some of the most important questions bearing
on each.
ADMINISTRATION.
1. How are the members of the school committee or school
board elected or appointed? What is their number, how long do
they serve, how are they paid? What active committees and
sub-committees have been appointed? What are their duties,
how long have they served, what have they accomplished?
2. What is the total expense for public education, is the money
derived from a special tax or from the general public funds, is
the county or state assisting in the expenses and for what pur-
poses is this assistance given?
3. In what proportion are the expenditures on public schools
distributed between teacher's salaries, maintenance, repairs, con-
struction, etc.?
4. Is the system of accounting connected with the public
schools department up to date and efficient?
5. Are school books furnished by the school department, and
what is the system of buying and distributing books?
6. Is a truant department maintained, and what is its organi-
zation, relation to the school department, method of work and
legal backing, number of truant officers, salaries, etc.?
SCHOOL SERVICE AND COMMUNITY NEEDSTT-
1. What is the total capacity of the different grades in the
public schools, what is the number of children in each grade, are
children in the higher grades or higher schools ever rejected be-
cause of lack of room?
2. What is the average number of pupils per teacher in each
grade and are cases of overcrowded classes common?
140 THE SOCIAL SURVEY
3. Are schools for feeble minded, backward, defective and crip-
pled children maintained, are they sufficiently large to meet the
community? How are children committed to these schools?
4. What schools for professional or industrial education are
maintained, what is their character, capacity, cost of mainten-
ance?
5. What institutions for higher learning are found in the
community which have official recognition and are intended to
meet the educational needs of the community, what is their capac-
ity, organization, cost of maintenance?
6. Are kindergartens maintained in the public schools of the
poorer sections of the community, and if so, what is their number
and capacity?
7. Are evening schools for foreigners, ignorant of the English
language maintained, what is the attendance, cost of mainten-
ance, organization, etc.?
8. Are evening schools and public lectures for adults main-
tained, what was their character, number and attendance dur-
ing the last school year?
9. Is industrial education part of the school curriculum, is it
compulsory or optional, what are the trades taught and how long
are the courses?
10. What industrial schools are maintained by the community
and by private agencies for the purposes of meeting the indus-
trial needs of the community, what is their capacity and what
number of their pupils have gone into the local industries as
skilled workers within the last five or ten years?
11. Is any effort being made to adjust the common school to
the obvious needs of the local industries?
12. Are scholarships and apprenticeships for industrial educa-
tion in schools and shops available to the pupils of the public
schools, what is their purpose and character?
EFFICIENCY.
1. What are the requirements for teachers' certificates in each
grade?
2. What are the salary schedules for teachers and principals?
3. What has been the training and experience of the super-
intendent and the principals of the various schools?
EDUCATION
141
Comparative Expenditures for Schools Last Year
in Montclair, N. J. and Greenwich
FOR EVERY DOLLAR THAT
Montclair
Spent
Salaries I
Repairs i
Fuel I
Supplies
Furniture
Insurance
Sight Schools
School Gardens
Summer Schools
Open Air Schools
Manual Training
Buildings
Other Expenses
.
Greenwi ch
Spent
452 cents
|2 dollars
,63 cents
J-9 cents
r?6 cents
Nothing
Nothing
Hothing
nothing
Bothing
cents
r cento
22
ollars
FROM THE SCHOOL SURVEY REPORT ON THE GREENWICH COSTS.
A striking method of comparing Costs.
142 THE SOCIAL SURVEY
4. What was the number of repeaters last year in the various
graded schools, and what in the opinion of the Superintendent of
Schools and the school committee are the main causes that pro-
duce repeaters?
5. What is the cost to the community of the repeaters in pro-
portion to total expense upon school maintenance?
6. Are defective and backward children sent to special schools
or are they retained in the regular classes?
7. Are special classes for foreign children unacquainted with
the English language maintained?
8. Are school reports published regularly and do the reports
deal with the distribution of expenditures, school population,
number of pupils dropped from the rolls, repeaters, absences and
truancy, appointments and changes of teachers in various grades
and needs of the department with comprehensive evidence as to
such needs?
9. Are facilities and rules for reporting class room conditions
provided and what is the system followed?
In connection with the general consideration of the
public school system, a study of the colleges and univer-
sities in the locality may be undertaken with a view
to ascertaining whether the facilities offered by these
institutions may be of service to the public schools
and in what manner this service can ,be secured. In
some instances special courses for the purpose of assist-
ing the teachers in service to keep in touch with the
newer movements and ideas on education may be
introduced into Universities and Colleges, if the needs
are properly ascertained and clearly presented.
PRIVATE EDUCATIONAL AGENCIES.
Aside from the public school, the College, University
and the library, almost any community offers certain
educational opportunities which are worthy of note
and which can often be made more efficient and broad-
ened in service by a more general knowledge of their
EDUCATION 143
existence and co-operation with other private or public
agencies. The nature of some of these agencies is
suggested in the following questions:
1. What is the number of social settlements in the community,
what is the nature of their work, how are they maintained, are
they located where they are most needed, etc.?
2. Are there historical, botanical and zoological collections,
industrial and art museums or any other facilities for the exhibi-
tion of objects of educational and artistic value?
3. Are public lectures offered by any agencies and what is the
character of these lectures?
4. Are the churches doing any educational work aside from
their religious services and if so what is the extent and nature
of the work done?
5. What are the special private educational institut ons main-
tained in the community, what is their scope, capacity and extent
of work?
6. Are any of the private educational agencies assisted by the
local government, county or State, and if so to what extent and
for what purpose?
Particular communities will probably present special
facilities and problems, and, altho considerable ground
can be covered by following the outline above suggest-
ed, much valuable information will be secured in the
course of the inquiry which will have a direct bearing
upon the subjects herein considered but which cannot
be dealt with fully here.
EDUCATIONAL STATUS.
The educational facilities of a community and the
racial and industrial make up of the population deter-
mine the educational status which should be ascertained
for the purpose of comparing the efficiency of the school
system, its service to the community and the educa-
tional problem presented by the foreign elements.
144 THE SOCIAL SURVEY
The facts relating to the educational status are of
statistical nature and can easily be ascertained from
the local school department and the state or Federal
Census. The following are the facts to be ascertained :
1. What is the number of adult illiterates in the community,
by age, sex and place of birth?
2. What is the number of foreign born persons who cannot
read or speak the English language, by age and sex?
3. What is the number of pupils in the public schools who fin-
ished the grammar schools course and the number of pupils who
finished the first, the second, the third, and the fourth years of
the high school?
4. What is the number who finish the special schools courses
provided for industrial education as compared with the total
who begin such training?
The above four questions will serve as a measure
of the work of the public schools and also indicate the
task that is still to be performed in order to make
illiteracy impossible and the privileges of the public
schools of the most general service.
WELFARE AGENCIES.
IN every locality there are certain agencies and
organizations which through continuous and self-
sacrificing efforts are endeavoring to counteract and
remedy social ills, to remove conditions producing
social waste and as far as possible to promote the
development of the community along permanent, con-
structive lines.
The number and character of the philanthropic
agencies in a community should be an index of the
social problem in such a community if private philan-
thropy, the city and State are meeting their obligations
properly, and are determined to avoid undue social leak-
age. On the other hand the efficiency of philanthropic
agencies in meeting the social problems before them
is the sure criterion of the type of service rendered
and is the only means of insuring sufficient and efficient
service without waste to the public or loss to those
who are directly or indirectly affected by local problems.
Social science is still in its infancy and practical sociol-
ogy so far has not clearly pointed the way towards
constructive and scientific social service; therefore,
the origin of each kind of welfare agency can not always
be traced to the beginning of the problem, but rather
to a spasmodic and sometimes temporary awakening
of the public, the church or the state, to effects rather
than to causes of evils. Many of the social remedies
applied are make-shifts and palliatives which are in-
tended as a temporary relief of the evils already created,
rather than the prevention of the conditions which
10 145
146 THE SOCIAL SURVEY
produce them. This misconception has resulted in
many communities in a considerable number of ill
conceived and poorly organized societies and organi-
zations which have for their aim the relief or cure of
social evils without regard to the relation of these evils
to the whole of the social system, and much of the
work done is unscientific and wasteful.
As philanthropic work through the various welfare
agencies is the foundation upon which the remedial
work of the community rests and as upon its methods
and results depend not only the welfare of the poor,
but the peace and happiness of the whole community,
it is important to consider these agencies as minutely
as possible.
A classification of charitable and philanthropic
agencies must of necessity be arbitrary, and hard and
fast lines are as difficult to draw between the activities
of such agencies as between the functions of human
society. The classification which we suggest in this
bulletin and which should be used as a guide in group-
ing various welfare agencies is based upon the most
important functions of such agencies and in the course
of a survey, only the main line of service should be
considered. The following grouping should be used :
1. Charitable relief, including all agencies, State,
municipal or private, whose work consists in aiding
the poor through material relief.
2. Charitable relief with religious aim, including
relief agencies which are carrying on religious pro-
paganda in connection with their work.
3. The group "homes" should include all institutions
which provide shelter for persons of various ages who
are wholly or partially dependent for their support on
WELFARE AGENCIES 147
these institutions. This group should include homes
for the defectives, for the aged and the homeless feeble
minded, crippled, convalescents, as well as such insti-
tutions as provide shelter for which they receive part
payment, such as the Y. M. C. A. and the various
workingmen's and working girls' homes.
4. Sanitary relief and education should be the agencies
which deal with health, such as various health organi-
zations, hospitals, anti-tuberculosis and district nurses
associations, milk stations and other agencies of similar
character.
5. Leisure time agencies should include settlements,
playgrounds, special schools, museums and lecture
service, community centers, co-operative theatres, etc.
6. Protective agencies should include such organi-
zations as interest themselves in the protection of
minors, young women and animals.
7. Industrial aid includes employment agencies,
special means of providing temporary employment,
day nurseries, etc.
8. Civic agencies should include such activities as
deal with the improvement of local conditions, activi-
ties for securing legislation involving the welfare of
the community and other militant agencies whose
effort is of a social character.
In some communities it is probable that other types
of agencies will be found and the discretion of the
committee on the survey should be resorted to in
formulating a classification. It is quite certain, how-
ever, that a very large majority of the agencies found
will be amenable to the classification above sug-
gested.
In considering the efficiency of these various agencies,
148 THE SOCIAL SURVEY
the following questions should be asked in connection
with their work:
1. What is the main purpose or purposes of each individual
agency?
2. To what extent is the purpose of the agency in accord with
its actual service?
3. Who are the managers and how are they elected or appoint-
ed? (Give the social service connection of each member)
4. How does the agency select its beneficiaries? Are religious,
racial or national lines emphasized or favored?
5. Is it affiliated with some larger city, state or national organ-
ization?
6. Are the sources of revenue public, private or both? (State
how much from each source.)
7. What has been the financial history of each agency during
the last ten years?
8. How is the revenue distributed between the various lines
of activity, as well as in relation to equipment, administration,
service, relief, etc.?
9. How are accounts kept and how often are they audited?
10. Are financial reports published periodically and are these
reports presented in a form that is easily understood by the
public?
11. Are social workers employed to carry on the work, and if
so, how many and what are their salaries, training and experience?
12. Are volunteer workers used, if so, how many and what has
been their training and experience?
13. What changes in the scope, policy and method of work of
each organization have taken place during the last ten years?
14. Are accurate records of cases kept, and if so, to what extent
are they used in measuring the extent and efficiency of the work
of each year?
15. Are the records of the various agencies of similar character
and sufficiently similar in form to admit of comparative study of
the work of each group of agencies of the same type?
16. To what extent does the State or municipal government
exercise control over the work of each group, whether they re-
ceive public funds or not?
WELFARE AGENCIES 149
17. What are the methods of raising funds from the public and
what is the annual cost involved in the raising of such funds?
18. Is there a Bureau of Registration or exchange of informa-
tion which registers cases dealt with by social agencies which is
used in order to avoid duplication and to what extent is this
Bureau used by the social agencies of the locality?
19. Is there competition or co-operation between the various
agencies of the same type in the city?
20. Are the facilities of each agency used to full capacity and
if not why not?
With the facts outlined in the above questions ascer-
tained, a general conception of the social equipment
of the community would be made possible by a careful
interpretation of the facts gathered. In the next
chapter we will deal with the more specific questions
as related to the various types of social agencies.
POVERTY AND DEPENDENCY
r
In the chapter on Industries and Wages we have
dealt extensively with the industrial problems to be
considered in a survey. Strictly speaking, the present
chapter should be entitled Economic Problems and
Dependency but the treatment of this subject from
the standpoint of the community entails so many lines
of inquiry and the facts are so scattered and difficult
to obtain that it seems advisable to consider the more
limited aspects of economic conditions, namely, poverty
and dependency, which are the most concrete and sim-
ple expressions of "community economics" and its
failures. Poverty and dependency are the synthesis
of the conditions which cause our social mal-adjust-
ment, particularly industrial mal-adjustment, inef-
ficiency and impotency. They are the fruits of our
150 THE SOCIAL SURVEY
lack of social foresight and of the wastefulness of our
human resources.
Owing to the absence of a definite line of demarca-
tion between self support and poverty, and also be-
cause of the decided difference of opinion between
experts as to the necessary wage needed for a normal
standard of living, all consideration of the subject of
poverty and dependency will have to be based upon
facts relating to persons and families aided by charitable
agencies rather than upon the number of persons and
families in need of aid. The investigation dealing
with actual aid given has the advantage of being based
upon conditions easily ascertainable and concerning
which there can be no difference of opinion, except
as to degree.
The subject of poverty is clearly distinct from that
of dependency, the former implying financial conditions
which require aid in the form of means of subsistence,
while the latter is a condition which involves not only
lack of means of subsistence, but such other physical,
moral and educational care as is generally required
by persons who are physically, mentally or morally
defective or feeble, and who, owing to their economic
conditions, must be placed with organizations main-
tained for this purpose.
POVERTY.
To discuss the causes of poverty would be to enter
upon an extensive study of our whole social system,
but to make a study of the poor of a community and
the direct causes of their poverty is much more within
the scope of a survey as is here suggested. The facts
concerning the number of poor families and individuals
POVERTY AND DEPENDENCY 151
under the care of charitable agencies can be ascertained
more or less accurately from the records of the local
charitable societies, the records of the overseers of
the poor, church relief organizations, and other relief
agencies.
It must be borne in mind, however, that the records
of relief agencies represent only the individuals and
families who have been actually dealt with by the
agencies, and do not include the vast array of econom-
ically subnormal families and individuals who either
refused to apply for aid or are unknown to the relief
giving agencies.
Some light may be thrown upon the amount of
poverty as expressed in relief giving by securing answers
to the following questions:
1. What is the number of families and individuals who received
aid during the last year and what is the average size of each
family? (Inquire into sex, age, nationality, occupation, etc.)
2. What are the relief agencies of the locality and what are
their annual budgets for administration and relief?
3. What are the conditions or restrictions under which relief
is furnished?
4. Does the municipality maintain a poor department and
what are the conditions under which relief may be obtained? Is
favoritism for political reasons shown?
5. What are the main causes for dependency as far as the
records show?
6. What proportion of the dependent families or individuals
may be attributed to preventable causes such as industrial acci-
dents, preventable sickness, low wages, irregularity of employ-
ment, failure to insure against death of head of family and other
similar causes?
7. What provisions are available for the employment of the
industrially subnormal who could at least partly pay for their
own support?
With the facts relating to the above questions a
152 THE SOCIAL SURVEY
hand and the experience in securing the information,
the value of the records upon which they are based will
be more accurately estimated. A classification of causes
of poverty may be prepared along the following lines :
1. Cases of poverty due to the death of chief wage
earners.
2. Illness or old age of the chief wage earner.
3. Lack of employment of chief wage earners or
other members of family contributing largely towards
family support.
4. Irregularity of employment, strikes, lock outs, etc.
5. Insufficiency of earnings for family needs.
6. Low wages.
7. Absence of head of family through desertion or
imprisonment.
8. Drunkenness or other vices of chief wage earner
or house keeper.
9. Poor management due to ignorance.
The results obtained will differ in different com-
munities and in order to add value to the classification
of cases, additional information concerning the nation-
ality, place of birth, age and occupation of the bene-
ficiaries of charitable agencies should be added to the
general classification of the causes of poverty. This
classification will add considerable weight to the mass
of evidence collected and may assist in determining
the policy of charitable societies in such cases as the
necessity for piecing out the wages where the chief
wage earner is able bodied and capable of doing a good
day's work, but is underpaid; or in a case where the
chief wage earner is in prison working for the State
and the family is without support.
DEPENDENCY 153
Throughout the investigation of poverty it must
constantly be borne in mind that the work is of little
value without a consideration of the industrial con-
ditions which have been outlined elsewhere.
DEPENDENCY.
As was stated at the beginning of this chapter,
dependency means a condition of poverty, which, aside
from the lack of means of subsistence, is caused
by physical, mental or moral defects or deficiencies
such as require special care on the part of some organi-
zation or agency to which such persons are entrusted.
The facts concerning such persons can easily be ascer-
tained from the local and state institutions, whether
they be public or private, if adequate records are
available.
The facts concerning dependency may be ascertained
through the following inquiry:
1. What institutions, private and public, care for the insane,
feeble minded, epileptic, crippled, aged, abandoned, orphan or
dependent children? What are the conditions for admission to
each institution, what is the cost of maintenance, under whose
auspices are they conducted, how are funds obtained?
2. What is the total number of inmates in each institution and
if a State or county institution, what is the number of local in-
mates?
3. What efforts are being made in each institution to make the
inmates self supporting?
4. How many have been discharged within the last five years
from each institution and what has become of them so far as the
institution is aware?
5. How are discharged dependents followed up after their dis-
charge?
6. Are dependents placed in private families, and if so, how
are the families chosen and what control does the placing agency
have over the families with whom dependents are placed?
t
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f i
I/
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1
DEPENDENCY 155
7. Does the State exercise control over institutions for depend-
ents and in what manner is the control exercised?
8. Is there a child placing agency in the community and, if so
what is the scope of its work?
9. Are there institutions in the community which are over-
crowded while others of the same type are not being used to their
full capacity?
10. What effort is being made to return dependent children
or adults to their families as soon as the families are in a position
to care for them?
11. What is being done to rehabilitate families with a view to
placing responsibility for their dependent members upon them?
INSTITUTIONAL EQUIPMENT.
Within recent years facts have come to light which
show a very pressing need for careful supervision of
institutions for dependents. The accommodations are
frequently inadequate, the sanitary provisions a menace
to the health of the inmates and the general care in-
sufficient to meet even the lowest standards of living.
The institutions for children and especially for babies
have a mortality rate of from 50 to 80 per cent, of
their wards and in the care of older dependents the
neglect verges on or actually takes the form of cruelty.
In order to avoid these abuses a careful study of the
interior of each institution is imperative. Annual
reports and publicity are insufficient and frequently
misleading; only the careful inspection of the interior
of the institution and the intelligent scrutinising of
records can be relied upon for accurate information.
An institution that refuses access to its records or its plant
at any reasonable time and without previous notice should
have no right to operate in the community.
As a guide in all such inspections I have outlined
the following questions which may well be used by the
156
THE SOCIAL SURVEY
CHART SHOWING DISTRIBUTION OF FEEBLE MINDED IN MASSACHU
SETTS INSTITUTIONS, WAITING ADMISSION AND IN THE STATE.
From the Report of the Committee on the Protection of the Feeble
Minded of the Massachusetts Society for the Prevention of Cruelty
to Children.
INSTITUTIONAL EQUIPMENT 157
survey organization in the study of the individual
institutions for dependents.
A. Organization.
1. Name of Organization.
2. Address.
3. When organized? If incorporated, when and
in what State?
4. Amount of capital stock if any.
5. Objects as stated in charter.
6. Objects as carried out at present.
7. If a religious institution, what denomination and
under what supervision or control?
8. Are beneficiaries limited to any particular color,
or creed, nationality, marital condition, moral
character, age, sex, etc.?
9. If an institution, what is the capacity for each
type of inmate?
B. Administration.
10. Names of officers president, vice-president,
treasurer, secretary, executive head, chairman
of board of trustees.
11. Names and addresses of directors or trustees.
Length of term.
12. Method of electing each.
13. Number of paid workers (positions held).
14. Training.
15. Number of volunteers (in what department).
16. Are records kept? If so, in what form? (How
complete? Enclose blank copy).
17. If institution, what form of investigation is done?
a. By central agency?
b. By paid or volunteer investigator?
c. By committee of board of managers?
158 THE SOCIAL SURVEY
18. Is the Registration Bureau used for all or only
part of the cases, and if the latter, what cases
are registered?
19. If a children's institution, is school maintained
in the institution, or are children sent to public
school?
20. What is the method of placing children when
this is necessary?
a. Where placed?
b. Under what conditions?
c. Who investigates and by what method prior
to placement?
d. When boarded out who pays cost?
e. What supervision is given after placement
and for how long?
f . Average number of visits.
g. Number of visiting agents.
21. How often did directors or trustees meet last
year?
22. If an executive committee, how often did it meet?
23. If a finance committee, how often did it meet?
C. Resources and Income.
24. Value of real estate owned.
25. " " endowments.
26. " " other assets.
27. Form of endowments.
28. Total assets.
29. Debt or mortgages on real estate.
30. Amount of other outstanding financial obliga-
tions. (State what for).
31. Amount of insurance on real estate, $. . . :
On equipment and other assets, $
INSTITUTIONAL EQUIPMENT 159
32. When does fiscal year end?
33. Actual income and expenditures during year
ending
34. Has the institution drawn on its invested fund
or endowments to meet current expenses?
35. Value of equipment. (Give classification of and
value of each class).
INCOME FROM:
36. Contributions.
37. Endowments.
38. Inmates and other beneficiaries.
39. City.
40. County.
41. State.
42. Sale of products of institution.
43. All other sources.
44. Total income.
45. Collection of funds:
a. Personally, by officers, $
b. By salaried employees, $
c. On commission, $.
d. By correspondence, $
e. By entertainments, $ (By whom
given) .
f. By advertising, $ Cost of adver-
tising, $
g. What per cent, is paid to solicitors?
46. Give names and addresses of persons authorized
to solicit funds.
47. What business checks have been provided when
collectors are used?
Is their full time given to collecting?
160 THE SOCIAL SURVEY
D. Expenditures.
49. Salaries.
a. Supervisor.
b. Teaching staff.
c. Domestic service.
50. Food.
51. Clothing.
52. Maintenance of plant.
53. Heat.
54. Light.
55. Rent.
56. Interest on loans or mortgages.
57. School supplies.
58. Furniture.
59. Other supplies.
60. Cost of collection of funds.
a. Commissions.
b. Other expenditures.
E. Handling of Funds.
61. Are all collections deposited?
62. Are bills paid by check?
63. Who approves expenditures and in what manner
are such approvals given?
64. Are vouchers kept?
65. Are accounts audited, by whom and how often?
F. Budget.
66. Is annual budget made up at beginning of fiscal
year?
67. What will next year's budget be? (Give detailed
items) .
68. Name sources of revenue that are available to
meet such a budget.
INSTITUTIONAL EQUIPMENT 161
69. What special needs of the agency are ex-
pected to be met next year beyond the present
work?
70. Sta.te minimum cost of meeting such need.
G. Co-operation.
71. Co-operation with other organizations as to:
a. Territory.
b. Handling of special cases.
c. Reference of cases to other agencies.
d. Joint conferences on cases.
H. Method of Admission of Inmates or Charges.
72. Investigation by whom?
73. Study of records available in the hands of other
agencies.
74. Medical examination and care (by whom).
75. Mental examination (by whom).
76. Dental examination and care (by whom).
77. Oculist's examination (by whom).
78. Special conditions for admission.
I. Publicity.
79. Willingness to furnish information.
80. Publication of reports and how often.
81. Character and accuracy of report.
82. Educational work done outside the institu-
tion.
J. General Statement.
Statement indicating the alleged reason for the
maintenance of the agency and its distinguishing
character when compared with other institutions of
similar character,
ii
162 THE SOCIAL SURVEY
K. Equipment.
BUILDINGS.
Location of buildings in their relation to :
a. Street conditions.
b. Sewage and water supply.
c. Open spaces.
d. Churches.
Ownership.
a. Owned.
b. Rented.
c. Free rent.
Size of each building.
a. Area occupied.
b. Stories.
Number and use of rooms according to :
a. Floor space.
b. Air space.
c. Window area.
d. Exposure.
e. Use and by how many persons for how long in
24 hours.
f. Methods of ventilation.
g. Wall paper or paint.
h. Possibilities for washing floors and walls and
how frequently done,
i. Ages of persons occupying each room,
j. Sex and color of occupants.
PLAYGROUND FACILITIES.
Front size of yard.
a. Sod?
b. Dirt?
c. Paved?
INSTITUTIONAL EQUIPMENT
163
Rear size of yard.
Sides size of yard.
Equipment of yard.
Fencing of yard.
a. Height.
b. Material.
Nearest park.
a. Name.
b. Distance.
Public square.
Are these used?
Under what conditions?
Roof in use?
a. Needed?
b. Possibility of use?
Suggestions for more space or better use of space.
PKEVENTION AND SAFE GUARDS.
Fire Escapes.
Location
Doors opening
in
out
Staircases.
width
location
material
rail wood or iron
Fire extinguishers.
location
Ropes and other devices.
Fire drills.
organization
frequency
announced
164 THE SOCIAL SURVEY
Location of nearest alarm.
Directions for reaching.
HEATING.
Kind.
Stoves.
Description
Number
By whom controlled
Protection
Location
Steam.
Location of boiler
Control and inspection
Number
Protection
Hot air.
Number of furnaces
By whom controlled
Protection
Location
Fire places.
Number
Location
Protection
Gas, coal or wood
Provision for moisture?
Standard temperature?
Thermometers in all rooms?
By whom inspected?
What secondary arrangement?
Has need ever occurred?
INSTITUTIONAL EQUIPMENT 165
PLUMBING AND FIXTURES.
Well polished?
Evidence of breaks, leakage, etc.?
Any odors?
Regularly inspected by city inspector?
Any tube or temporary gas connections?
BATH ROOMS.
Number of tubs?
" showers?
" washstands?
Special bath room for infants?
Tubs elevated?
Number of tubs and washstands?
Number of housemaids' sinks?
Are tubs scrubbed after each bath?
TOILETS.
Separate rooms for boys and girls?
Number of seats:
Boys
Girls
Urinal?
Paper fixtures and paper?
Tiled floors?
Finish on walls?
Well lighted by windows and ventilated?
Automatic flushes?
Cleanliness.
Disinfectant or deodorant?
SmaJLtoilets for small children?
VENTILATION.
I. Artificial.
What system?
166 THE SOCIAL SURVEY
Size and number of fans?
Temperature of pumped air?
Location of intake?
Frequency of inspection?
When are windows opened?
II. Natural.
Number and size of windows?
Open top and bottom?
How often is air changed?
Location of windows?
Ventilating devices.
Transoms?
Temperature when visited.
Supposed temperature.
Fans for cooling room?
SCREENS.
Throughout?
Condition?
Cleanliness.
Any openings?
Netting or wire?
Folding or complete?
FLOORS.
Bare or covered?
Name covering.
Kind of finish?
How cleaned?
How often?
Disinfectant used?
Dry sweeping?
How often scrubbed?
EFFICIENCY TEST AND CONTROL 167
WOODWORK.
Color?
Condition?
How often scrubbed?
Poverty and Dependency are products of social
maladjustment and their consideration is only second-
ary in a general study of social conditions. The indus-
trial problems, the efficiency of the educational system,
the proper health and housing control, the amusement
facilities and their character and the many aspects of
social life are the determining factors in the production
of poverty and to them the main attention of a survey
should be given. The existence of poverty and misery
should be considered only as an index of the intensity
and extent of social maladjustment.
EFFICIENCY TEST AND CONTROL OF WELFARE
AGENCIES
The multiplicity and variety of welfare agencies
constantly coming into being in every community have
placed a heavy financial burden upon the community
without always giving to the community a fair return
on the investment as in every other field.
In this age of efficiency the charitable efforts intended
to meet the problems arising from individual short-
comings and social maladjustments are coming within
the realm of the efficiency expert. The business man
who assumes the largest responsibility for the main-
tenance of welfare agencies is eager to secure the highest
possible return on his investment in " charity" work.
In establishing measures of efficiency in business the
standards are so easily determined upon that it is not
difficult to measure the return. In the case of charity
168 THE SOCIAL SURVEY
work, however, this is not true. Inefficient business
carries with it its own destruction. In charity work,
however, inefficiency is more difficult to detect and
may continue at the expense of the public without
hindrance from anyone. It is for this reason that it
is more important to establish standards of measure-
ments of the inefficiency of welfare agencies than it
is in the case of individual business. This efficiency
should be measured along three distinct lines:
1. The efficiency of the giver in selecting the agency
or cause t'o which to give.
2. Efficient services on the part of the agency re-
ceiving the support.
3. The efficiency of the agency in meeting the needs
and problems of the community.
Within recent years, commercial organizations in
the form of Boards of Trade and Chambers of Com-
merce have undertaken the task of separating the
efficient from the inefficient organizations, and are
determining for the business and moneyed people the
channels into which their bounties should flow. There
is a triple motive in this undertaking. The first is the
desire to save the time of the business man in deter-
mining upon his charities. The second is to promote
in the communities the charitable work that is most
efficient and the third is to avoid supporting organiza-
tions and agencies representing movements of question-
able character.
This effort is worthy of attention especially on the
part of the so-called professional social workers who
are daily called upon to consider and assist in the solu-
tion of local problems that are constantly taking on
new forms and requiring new treatment.
EFFICIENCY TEST AND CONTROL 169
In considering the efficiency of any charity or welfare
agency there are three definite lines of thought that
present themselves:
1. The efficiency of methods of work.
2. The use of funds.
3. The need or fitness of the service rendered by
the agency to the community.
All standardizing work so far done in connection
with welfare agencies in this country has been largely
along the lines of improving the efficiency of methods
and in developing modern systems of accountancy.
This may have helped to introduce certain business
elements into welfare work, but it did not add a single
element to the efficiency of these agencies in dealing
with social problems beyond improving service already
in existence. We might call this kind of efficiency an
attempt to crystallize into definite form machinery
handling all existing problems without regard for the
evolution of community needs and social institu-
tions.
The Boards of Trade and Chambers of Commerce
have developed what are called " Endorsement Com-
mittees," varying in their methods of work from
voluntary committees to the most expensive and most
highly specialized Bureaus of Charities as part of the
general undertaking of business organizations.
While we recognize the need for introducing efficient
methods into welfare work of our communities and
while we have no fault to find with the desire of the
financial backers of our welfare agencies to protect
themselves against imposters and inefficient organiza-
tions, which are daily applying to them for assistance,
170 THE SOCIAL SURVEY
we feel that the standards set for efficiency and economy
by the Board of Trade, Chamber of Commerce or a
Bureau of Charities are wholly inadequate to meet the
need which at present exists for sifting welfare agencies
with a view of retaining those most needed and com-
pelling those which are not meeting a real need in the
community to discontinue activities. We make bold
to say that in many instances inefficient agencies
operating in a particular community are entitled to
the most liberal support, while other so-called efficient
agencies with the best kind of accounting systems and
most up-to-date methods of service should be eliminated
from the community by a refusal on the part of the
public to support them. By way of illustration we
might consider a home for immoral girls which has
succeeded in securing a large number of inmates and
which is conducting a model institution as against a
smaller and less efficient organization dealing with
preventive work which endeavors to remove the con-
ditions which make it possible for young women and
girls to lead an immoral life through bad home con-
ditions, poorly supervised dance halls, failure on the
part of the police to control the back rooms of saloons
and other similar conditions. We can readily imagine
the latter organization, owing to lack of funds and the
failure on the part of the public to realize the impor-
tance of removing the causes of immorality among
young girls, being compelled to do its work in a hap-
hazard and inefficient manner. Under these conditions
it could be readily seen how an endorsing agency, by
refusing support to an organization dealing with pre-
ventive measures and giving ample aid to a well con-
ducted institution dealing with immoral girls, would
EFFICIENCY TEST AND CONTROL 171
merely allow the local problem to increase the pro-
duction of institutional care instead of reducing it.
It is essential, therefore, that the endorsing organiza-
tion look upon each agency not as an individual or a
corporation showing results as a unit but rather in its
relation to the broader needs of the community. This
form of endorsement has so far not been recognised
by any of the endorsing bodies in this country, because
of the fact that they have looked upon welfare agencies
as business concerns and have recognised returns for
investments on an institutional rather than on a com-
munity basis. This short cut toward the business
man's efficiency given through the endorsement com-
mittee of a business organization, is bound, we believe,
to injure rather than assist in the solution of the larger
problem which the business men are anxious to relieve
and are endeavoring to solve.
The history of philanthropy in this country is marked
by a very generous response on the part of the giving
public and through this generosity agencies and insti-
tutions of various types have become established.
The usefulness of many of these agencies and institu-
tions has long since become a thing of the past. There
are thousands of legacies in the United States today
involving millions of dollars which are tied up by wills
so narrow in their social conception and so wholly out
of harmony with modern needs that they have fossilized
the path of social reform in this country. The business
man, ignorant of the more fundamental principles of
social reform, imbued with the principle of solid invest-
ments, continues to support agencies and institutions
which should have been allowed to die through lack
of public support. Their continued existence hampers
172 THE SOCIAL SURVEY
more progressive activities of modern social endeavor
which have within recent years become revolutionised
through a better knowledge of society and its com-
ponent factors.
Were we willing to admit that business efficiency is
a standard of social efficiency when applied to welfare
agencies, endorsements are still open to criticism for
reasons which may be stated as follows:
1. The deciding upon the efficient welfare agency
involves an artificial process of elimination of other
agencies on a basis which may be subject to controversy
due to difference in point of view.
2. An endorsement granted on the basis of both
efficiency and usefulness at a given time would be
difficult to revise when such an agency had outlived
its usefulness.
3. The deciding upon or the endorsement of an
agency does not involve the public. Any responsibility
for support and the final backing that such an agency
might get would remain spasmodic, and would not in
any way be necessary to the needs of the community.
4. The competition between agencies will never be
reduced or eliminated through endorsement and the
agency most capable of obtaining publicity and most
active as a soliciting body would obtain the best results.
5 Experimental work which would not be recognised
by a small group of business men representing the
endorsing committee would encounter difficulties at
the outset because endorsement presents the best
excuse on the part of the business men for refusing
to grant endorsement to any enterprise that is not
already recognised by the endorsing body.
EFFICIENCY TEST AND CONTROL 173
In the last analysis the whole problem of endorse-
ment revolves around existing agencies with a view
to separating the desirable from the undesirable. This
policy fails to recognise the fact that these agencies
are not in themselves those designed to meet adequately
and intelligently the problems as they arise from day
to day.
What the community has before it in endorsing
social agencies is not determining upon the efficiency
of particular organizations or institutions, but a meas-
uring of the character, extent and intensity of the
various social problems facing the community with
a view to securing the most adequate service necessary
to meet the problems that exist. To do this a very
careful survey of the community's social liabilities is
absolutely necessary, and this can only be done through
a thorough social survey. When this is done the need for
agencies both in existence and still to be organized
could be clearly determined upon and endorsement
granted upon that basis. Society is not a static unit
but keeps shifting and moving to the shifting changes
of conditions both within and outside of our com-
munities. Institutions are therefore entirely only
temporary means of meeting the situation. In a pro-
gressive community, they may serve their purpose for
a time, but when their usefulness becomes lessened
either by a new method of approach and treatment
or by a complete change of society, these social agencies
should be eliminated or replaced by other agencies
better adapted to existing needs.
It is not advisable for social workers or for the
giving public to assume that endorsements will bring
about efficient social service; all that can be hoped
174 THE SOCIAL SURVEY
for is that they will eliminate a certain number of
agencies, some of which may actually be more useful
than those receiving the highest endorsement on
account of honest accountancy and business ad-
ministration.
From the point of view of progressive social reform,
if we may be permitted the term, endorsement may
render the launching of new movements practically
impossible. It is also true that many social agencies
already in existence, or contemplated, may design to
interfere with the moneyed interests in the community.
Strong representation on the endorsement committee
coming from the moneyed group would withhold en-
dorsement in spite of the highest ideals embodied in
such an institution and regardless of the honest tenden-
cy and actual need for such an institution or agency in
the community.
On the whole, the entire policy of endorsing charita-
ble agencies is one that is bound to present serious
dangers to social work in America unless some check
is provided whereby endorsements would not be granted
on the basis that prevails in business organizations.
How this should be done is a matter that should com-
mand the attention of those sincerely interested in
the constructive handling of our social problems.
CRIME.
WITHIN the last two decades a broad and scien-
tific point of view concerning the causes and
prevention of crime has affected both the law and pub-
lic opinion. Anti-social acts are not looked upon in the
light of injury done to the community or to individuals,
but from the point of view of the causes such as hered-
ity, environment, ignorance and other conditions that
conspire to produce crime. Pedagogy, medical science
and psychology, economic factors and hereditary ten-
dencies are called into co-operation in determining,
not punishment, but methods of treatment of the
criminal that would make of him a useful member of
society and as far as possible remove the causes for
future anti-social acts. In other words, crime has
become a matter of social responsibility in the same
degree in which illiteracy, industrial accidents and
poverty are matters of social responsibility.
The line of distinction between the degenerate, the
socially inefficient and the criminal is not found in
the character of one's action, but in the treatment
necessitated to meet the needs of such individuals, in
order to protect society against them and remove the
obstacles in the way of their useful service to society
and themselves.
Criminal law and the machinery provided for its
enforcement are turning their faces from punishment
and revenge to prevention and reform. Legal pro-
visions with hard and fast lines are becoming humanised
and their application is becoming a problem of expert
175
176 THE SOCIAL SURVEY
knowledge of human nature and social conditions
rather than a matter of learning in the laws. With
these tendencies apparent in many of the modern
methods of dealing with crime it is important to con-
sider the amount of criminality existing in a particular
community from this constructive, economical and
human point of view, with more regard to the inter-
pretation and application than the content of the law.
JUVENILE DELINQUENCY.
Environment.
Juvenile delinquents are offenders under eighteen
years of age and modern practice has evolved a new
and distinct system of dealing with this type of delin-
quent. As a large share of juvenile delinquency is the
result of immediate environmental conditions and as
the offences are usually of a minor character, it is
advisable to deal with conditions surrounding children
which have been shown by experience to be influential
in producing juvenile crime.
The conditions to be considered are generally as
follows :
1. Are children employed in street trades, what is the charac-
ter of the trades, what is the number of children so employed,
their ages, sex, and parentage?
2. What legal restrictions are placed upon children employed
in trades and how are these legal restrictions enforced?
3. Are children under fifteen years of age permitted to work
in shops and factories with adults of- the opposite sex and if so
what supervision is used in such places?
4. Is the sale of liquor and cigarettes to minors under police
control and how are the regulations enforced?
5. Are children permitted to work at night in factories and
street trades and if so what are the hours and conditions of labor?
6. Is obscene literature circulated in the city and sold to minors
JUVENILE DELINQUENCY
177
THE PROGRESS OF THE UNADJUSTED CHILD
3M THE COMMUNITY-THROUGH SPECIAL AND LEGAL AGENCIES BACK TO THE COMMUNITY
COM MUNITY
ONE OR MORE OF THESE CONDITIONS CAU5E UNADJUSTMENT
SKAL DEFECTS
StEMINDEDNESS
MUNC INSANITY
VOCATIONALLY
UNPREPARED
STRONG
INTERESTS
NO OUTLET
MORAL MAL-
EDUCATION
SCHOOL
ENVIRON-
MENT
SOCIAL
ISOLATION
SOCIAL
MISPLACEMENT
GANGS ETC.
FAMILY
ECONOMIC
DISTRESS
CONFLICT
WITH FAMILY
IRRESPONSIBLE
PARENTS
[CHARITIES DEPT.f
[POLICE OR s.p.c.c.|
1 TRUANT OFFICER |
I5TER \
"V
IOME5J
>
^-
4^ i
| ATTENDANCE
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1
CHILDREN'S COURT-
__.-5W
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PROBATION |
i
i
i
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V
JUVENILE 1
MSTITUTIONS
i
i
sent here for
DEPENDENC
may also be
TEEBLEMIMDEC
DELINQUENT
TRUANT
r
F
sent here for
EBLEMINDEONESS
mey also be
DEPENDENT
DELINQUENT
TRUANT
sent here for
DELINQUENCY
may also be
DEPENDENT
TRUANT
FEEBLEMINDED
a
t
t
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,
^---^
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1
1
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i 1
AFTER
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aent here for
TRUANCY
may also be
DEPENDENT
DELINQUENT
FEEBLEMINDED
COM M UNITY
- indicate* the various routes the child may take from the time it
iremoved from the community until it is returned to the community.
indicates the points at which the community agencies listed on the next
page could, through clinical cooperation with special and legal agencies,
1 gnOse the cause of unadjustment and in most cases bring about the
:id's adjustment to its own environment.
MRAM SHOWING PROGRESS OF UNADJUSTED CHILD IN NEW YORK CITY. PREPARED
I Miss MILDRED TAYLOR FOR THE JOINT COMMITTEE OF THE UNADJUSTED CHILD
OF THE PEOPLE'S INSTITUTE AND THE NATIONAL COMMITTEE OF PRISONS.
12
178 THE SOCIAL SURVEY
and if so how and where is the literature obtained, do the police
attempt to control such sales, etc.?
7. At what age are minors permitted to enter theaters and
other amusement place, without guardians?
8. Is sex hygiene taught in the public schools and what is the
system in use?
9. What are the public and private agencies providing free
amusements for juveniles and are they so distributed throughout
the community as to be accessible to all children in need of such
amusements?
10. Are the services of a child protecting agency available in
the community and if so what is the legal status, the method of
work and field of activity of such agency?
Although throughout the above list of questions only
problems of environment are considered, the problems
of heredity and the physical condition of juveniles
should constantly be kept in mind in dealing with
individual cases, both before and after offence has been
committed.
JUVENILE DELINQUENCY AND COURT PROCEDURE.
The offences committed by juvenile delinquents, the
number of offenders in institutions, number of repeaters
and many of the crimes committed in adult life depend
upon the methods employed in ' dealing with young
offenders. It is for this reason that considerable at-
tention should be given to the problems of preventing
juvenile crime and redeeming through proper care
those who, owing to various causes, have come under
the care of the courts.
Some of the questions to be considered in this con-
nection are as follows:
1. Number of juvenile delinquents handled in the community
during the year classified by sex, age, parentage, offence com-
mitted and disposition of the case by the court.
JUVENILE DELINQUENCY 179
2. Are juvenile cases treated by the court in special sessions
or together with other cases?
3. Is a particular judge appointed or selected to deal with
juvenile cases or not?
4. Is a probation system in use, and, if so, who is in charge
of the probation work, how many probationers has he or she in
charge and how many paid and volunteer assistants are available?
Do the paid probation officers give all their time to the work?
5. What is the proportion of probationers for the year preced-
ing the survey who have not been rearrested for new offences
and what are the offences for which they were placed on pro-
bation?
6. Do the courts work in co-operation with any private agen-
cies in the care of the children brought before them and, if so,
what is the legal status and work of such agencies?
7. Is privacy a feature in the juvenile court proceedings?
8. Is parental responsibility for the crimes of juveniles pro-
vided for by law and if not does the court take account of parent-
al neglect in treating cases?
9. What institutions are provided for the confinement of juv-
enile delinquents; what is the number of local inmates in such
institutions, what are their offences and penalties?
10. Is the system of indetermined sentence and parole in use
in juvenile courts and institutions and what proportion of juven-
niles so treated have been returned to institutions?
11. What trades are taught in the juvenile institutions and
are they related to industries carried on in the community?
12. Do the institutions for delinquents whenever practical
place their discharged inmates in paying positions and what
have been the results obtained and difficulties encountered in
this work? (Information from Superintendent of Institution and
Board of Directors.)
13. Are truants cared for in institutions for delinquents or in
some separate truant or parental school?
14. Are juveniles detained by the court before sentence is pro
nounced held in penal institutions or in some private or public
detention home especially provided for this purpose?
15. In how many instances are the causes of the offence trace-
able to parental neglect?
180 THE SOCIAL SURVEY
16. What is being done to rehabilitate the home prior to the
return of a discharged delinquent to his or her old environment?
17. Do the probation officers endeavor to connect up families
and the discharged inmates of institutions for delinquent children
with the social agencies of the neighborhood or community?
18. Are mental and physical examinations of each child made
both prior and after commitment?
Answers to the above questions will not only give
a clear idea of the status of the work of rehabilitation
done with juvenile delinquents, but will point the way
to a constructive program of action both along the line
of better methods of treatment of delinquents and
more effective preventive measures.
ADULT CmME.-V'
Unlike the conditions prevailing in the case of the
juvenile offenders, adult crime is extremely difficult
to trace to its cause ; hence the study of causes of adult
crime will not be considered. It must be borne in
mind, however, that not all offences treated by the
courts are crimes although they may be punishable by
law. For the purposes of such a survey as is here
suggested only offences against the person and against
property should be considered, while petty offences
against city ordinances, drunkenness, etc., should as
far as possible be disregarded.
The facts concerning crime and its treatment may
be ascertained in a general way by inquiring into the
following :
1. What is the total number of persons in various prisons
and jails committed in the locality, what are their offences, ages,
sex, nationality in proportion to the population of the locality
and what are the terms they are serving?
2. How many persons are confined because of failure to pay
PLAN FOR MEDICAL EXAMINATION OF PRISONERS.
From Leaflet 32 of the National Committee on Prisons.
182 THE SOCIAL SURVEY
fines imposed upon them by the court and at what rate are fines
paid up through confinement?
3. Are probation, indetermined sentence and the parole sys-
tems in use in the courts and prisons and if so under what con-
ditions are they applied?
4. What officials are in charge of the probation work, what
amount of time are they required to give to their duties, how
many probationers are being cared for by each probation officer?
5. Is a medical and psychological clinic maintained in connec-
tion with any of the courts of the locality and do they examine
all or only special cases?
6. Do prisoners such as drunkards and prostitutes receive
the special medical care they need while in confinement?
7. Are professional bondsmen permitted to operate in the
courts and what are their methods?
8. Are the prisoners in the various institutions taught a trade
and if so, is it suited to the needs of the community and the
prisoner?
9. Is contract labor carried on in the prisons and if so, what
is the character of the goods manufactured; what is the pay
derived from the labor of each prisoner; what does the community
pay for the support of the institution and how much is derived
from the contractor; is the industry a profitable one for the
worker in the free market?
10. Do the prisoners share from the profits derived from the
contracts and if so, to what extent? If not, what amount of
money do they receive at the time of their discharge?
11. Do dependent families of prisoners receive any aid from
the State during the prisoner's confinement?
12. What is the total annual expense for the maintenance of
police, courts, prisons, as well as the total annual loss of property
through crime?
13. What follow up work is being done in the interest of the
prisoners after discharge?
14. Are any agencies available for the temporary care and
relationship that the prisoners need after discharge?
15. What is being done to readjust the prisoner to a normal
social environment wherein he could use his qualities for industry
and leadership under the stimulus of friendly relationships and
a recognition of such qualities as he or she may have?
ADULT CRIME
183
These are practical questions which can easily be
answered. Problems, such as feeding of inmates, the
sanitary conditions of the prison, the isolation of
contagious diseases such as tuberculosis education
of prisoners, etc., may also be considered. A thorough
inspection of the prison and an examination of the
daily routine will be found profitable in ascertaining
the merits and demerits of a prison system.
This ends the task of the survey in so far as the
gathering of data is concerned, and as poverty and
crime are the greatest elements of human and social
waste, it is most fitting that the work of studying the
community should end here and the facts be squarely
faced. In the following chapter we shall deal with
the methods of collating and utilizing the information
gathered.
STATISTICAL FACTS AND THE SURVEY
SOCIETY functions in obedience to definite forces,
the character, relation and dependencies of which
constitute the laws of social mechanics. As in the field
of physical mechanics, so in social mechanics the quali-
tative analysis of the forces at work do not and cannot
be taken as an index of their significance in the function-
ing of individual social institutions or of the whole of
the social order. As in the study of chemistry, so in
sociology, quantitative analysis must be applied in order
to ascertain the differences, changes, relationships,
values, intensity of reaction, etc. In society, qualita-
tive analysis is as essential as it is in chemistry and
mathematical relationships are as exact as they are
in physics or mechanics.
The statistical method is to social phenomena what
quantitative analysis is to chemistry and mathematics
to mechanics. In a word social statistics is the method
of quantitative social analysis.
In order to bring the above discussion closer to our
own daily social experience, let us take an illustration
from one of the most widely discussed social problems,
child labor. If we say that there is child labor in
a given city or state, we are at once aware of a con-
dition that is generally acknowledged to be undesirable,
but no conception of either the extent or intensity
of the problem is conveyed by this statement. It is
only after the test of quantitative analysis or statistical
measurement as to the age of the children at work in
proportion to the total number of children of the same
184
STATISTICAL FACTS 185
age in the community, the hours of work, etc., are
ascertained that the problem can be presented as a
clearly defined, accurately measured condition upon
which action may be based.
The statement of a condition without quantitative
facts makes possible divergent and confusing opinions
subject to interpretation dependent upon the experi-
ence, point of view, personal interest, knowledge or
ignorance of those dealing with the facts. Statistical
measurement reduces all personal differences of point
of view to one common denominator, expressed in
numerical form which is as near conveying the same
concept to all as the human mind has been able to
devise so far.
It is true that since the inception of the application
of the statistical method to the measurement of social
phenomena much has been perpetrated upon the
public which, under the guise of accurate mathemati-
cal tabulation, served selfish ends and by distorting
and misinterpreting social facts. This misuse of the
method should, however, not be taken as representative
of either the actual or potential value of statistics as
a method of social analysis, any more than it is just
to attribute to the study of chemistry the destructive
effects of modern explosives as employed in warfare.
Honesty of purpose in statistical interpretation is as
necessary as it is in any other field of science, and
misuse that is made of statistical interpretation in
misguiding or in misinforming the public is as much
the fault of the ignorant public as it is despicable in
the statistician who takes advantage of it.
Throughout this book we have asked numerous
questions. Many of them involve the use of the
186 THE SOCIAL SURVEY
statistical method of study and represent a wide range
of differences, changes, relationships and dependencies
of social forces upon which will have to be built up a
picture of the static functioning of society or individual
communities and from which will be devised plans for
dynamic action that will yield returns of a constructive
character and in harmony with social facts.
It is not possible within the scope of this work to
go into the details of the statistical methods as applied
to society. All that could be justly expected is to
point out the need for its use and refer the reader to
the bibliography which gives a list of what are at
this time considered the standard works on the statis-
tical method in the hope that the surveying forces will
venture into the study of some of these books prior
to undertaking the task of tabulating, correlating and
interpreting the information gathered in the course
of the survey.
Many attempts have so far been made to reduce
the technic of statistical tabulating to simple rules
for the tabulation of material. The following may
be cited as points representative of such rules: 1
1. There usually should be as many different tables
as there are distinct groups of statistics to be compared.
2. There should be as many separate headings as
will properly emphasize the main facts and tendencies
shown by the statistics while those whose main
columns are to be compared should be adjacent to each
other.
3. There should be precision in the stating of titles
and sub-headings of all tables.
J. King, Elements of Statistical Methods, p. 119.
STATISTICAL FACTS 187
4. There should be a practically perfect form of
table before any statistics are entered.
5. There should be, whenever tables are large, in-
stead of solid horizontal lines of figures and rules, after
every fifth line or so, a blank line as a guide to the eye.
6. There should be accuracy as to every item and
figure in all the tables a check on the original entries,
the totals (by adding items both in vertical columns
and in horizontal lines), the percentages (by adding
together to see that the sum equals 100 per cent), and
all arithmetical operations.
It seems to the writer, however, that these rules
are more useful to the trained statistician than to the
lay public. The large amount of survey work done in
this country and the printed reports based upon these
surveys will be vastly more useful as guides in the
planning of tables and tabulation of material than any
of the abstract rules that may be devised by the ex-
perienced statistician.
In tabulating social facts it should be remembered
that the interdependency of these facts is frequently
so close that it is preferable to begin with very complex
tables involving many factors in order that such com-
parisons as seem to indicate nothing of significance
may be eliminated after rather than before they are
tested. Simplicity of tabulation is valuable only in
so far as it represents the synthetic essence of previous
tests of comparative data and the elimination of those
which do not represent significant social differences.
If, for example, the mortality rate from tuberculosis
seems to be the same for both the foreign and native
born, we are justified in presenting tabular, statistical
data regarding the mortality rate from tuberculosis
188 THE SOCIAL SURVEY
for the population as "a whole. Such statistics, however,
would be overlooking an important social element if
they were not first tested as to the existence or absence
of such a difference in the mortality rate.
The survey has an important place as an educational
force. We must not forget, however, that simplicity
frequently involves an approximation rather than an
accurate statement of fact and the function of the
survey is to grasp the whole complex social machinery
of society first and reduce the explanation of this com-
plex machinery to its simpler terms only as its com-
plexity is difficult for the public to understand.
If throughout our investigation we remember that
the descriptive generally fails to convey the same idea
to persons of differing temperaments, education and
experience, and that, for the sake of accuracy, wher-
ever possible a terminology that expresses facts in
measurable terms must be used we shall have come
nearer to perfection in the truthful statement of facts
than through any other means.
SOCIAL LEGISLATION AND THE SURVEY.
THE task of completing the social survey is insepar-
able from a careful and thorough examination of the
many federal, state and municipal laws that determine
the conduct of the people and their relation to the
social and political institutions under which they live.
The surveying forces will find that there is hardly a
field of social or economic endeavor which is not affected
in almost every phase by regulations and control pro-
vided by one of the three governmental authorities
the federal, state or municipal government, or by all
combined. No social problem can be understood with-
out a knowledge of the laws affecting it.
It is impossible within the scope of this work to
undertake an analysis of all the phases of social legisla-
tion that must be considered. As the social facts are
ascertained the legal aspects of the problem will reveal
themselves and the law enforcing agencies will not
fail to furnish the details of the law with such sugges-
tions for changes and improvements as experience in
the course of the performance of their official duties
may indicate.
When the social survey is completed and the mass
of legislation provided for the control of existing evils
has been subjected to careful analysis, it will be found
that the status of the laws may fall into one of the
three following classes:
1. Legislation adequate with adequate provision for
enforcement.
189
190 THE SOCIAL SURVEY
2. Legislation adequate without provision for en-
forcement.
3. Neither legislation nor enforcement provisions
adequate.
When legislation is found inadequate, the usual
practice is to endeavor to obtain legislation purporting
to meet the needs. The draughting of such legislation,
however, is frequently left to legally minded legislators
or attorneys who are not familiar with local conditions
and local needs, who have not studied -the history -of
legislation upon the subject to be dealt with and who,
in many instances, find it most convenient to copy the
laws of other states or municipalities as the most
expeditious way out of a difficulty which would other-
wise involve much study and deliberation. The result
of this practice in the securing of legislation has been
a struggle between contending forces for compromises,
not in the interest of the community as a whole, but
in the interest of contending private interests. The
speculative builder opposes adequate housing legisla-
tion, the liquor interests have a well organized lobby
to defend their interests and to oppose social legislation
affecting them, the railroads are controlling factors in
social legislation and manufacturers employing child
labor do not hesitate to oppose all legislation affecting
the industrial welfare of children.
The result of this struggle for social legislation has
been the creation of a great mass of laws consisting
of half measures granted as a compromise between
social justice and powerfully organized self interest.
The survey should do away with this type of legisla-
tion. If the facts are available and the need is clear,
no compromises should be necessary. The laws should
SOCIAL LEGISLATION 191
be framed not as the last legislative word of some
distant community echoed in our midst, but as the
expression of immediate local needs. Those who have
dealt with legislation know that there is no science of
law, but there is a scientific method of legislation and
this method depends upon an accurate knowledge and
intelligent use of social facts.
That the time for a new era in social legislation is
dawning is evident in many of our states and municipal-
ities.
The function of the political representative in legis-
lative bodies in this country is slowly becoming reduced
to the activities of a clearing house of public opinion
and the numerous state and national organizations,
like the Child Labor committee, are at work upon the
broad social problems which have been within recent
years the province of legislative enactment and are
framing and urging laws which neither emanated from
nor in any way concerned the legislator. This type of
social legislation, prepared by leaders in highly special-
ised fields is a step in the direction of superseding
parliamentary deliberation by scientific study and the
formulation of laws in harmony with social needs and
sociological principles. The recent developments along
the lines of initiative and referendum legislation further
emphasize the passing of the day of parliamentary
legislation.
It is characteristic of law to deal with effects and
disregard causes. Our penal codes are the best ex-
amples of suctf conglomerate masses of social impres-
sionism and medieval absolutism and our housing and
other social legislation bear the marks of a distorted
social vision which is wholly ignorant of social factors
192 THE SOCIAL SURVEY
and deals with evils not as the expression of many
concurring and diversified factors, but as the evil itself,
the removal of which can be socially accomplished by
restrictive, direct regulation and legislation.
Experience shows that the respect for law is not depend-
ent upon its social value, but upon the manner in which
its application affects the individual upon whom its
enforcement has a direct bearing.
The social function of law is not social control alone.
Its purpose has in this respect been confused with its
requirements and where the problem of controlling
evils has received the attention of the public and its
agents, the legislators, the result has been a series of
prohibitions which, in many instances, have tended
to aggravate evils by affecting those whose protection
we seek in a manner wholly contrary to the intent of
the law. We find, for example, that strict housing
laws may reduce building enterprise and raise rents;
that food regulation increases prices; that compulsory
education may increase congestion in schools and lower
efficiency; that child labor laws increase dependency;
etc. These, however, are necessary legislative pro-
visions which have come to be recognised as the pre-
requisites of civilised countries. What we have failed
to recognise is the fact that each legislative enactment
must fit into a broader fabric of a legal system that
will meet all restrictions with sane, economically and
socially well balanced laws, these will promote and
stimulate conditions in society which will reduce the
need for restrictive legislation to a minimum and pro-
mote positive conditions which will make child labor
unnecessary, bad housing uneconomical for the owners,
dependency impossible through proper insurance laws
SOCIAL LEGISLATION 193
and school crowding beyond the need of any com-
munity.
We have enough negative, prohibitory legislation
in most communities; much of it reveals complete
ignorance of the fundamentals of the mechanics of
social action and still more lacks harmony with actual
needs which it is intended to meet.
The survey furnishes a broad basis for scientific
legislation that would promote positive action and
guide the conduct of the people along positive con-
structive lines that are creative of desirable social
conditions rather than prohibit action that is injurious
to the social order. To create a stimulus toward right
action rather than the prohibition of wrong doing is
the positive task of the law.
THE FACTS AND THE PEOPLE.
'T^HE equipment for social thinking which our public
-* schools are prepared to give to their pupils is
meagre, inaccurate, abstract and antiquated. The
survey presents the first opportunity for changing and
improving the equipment that the average citizen
brings from his public school education by affording
at least in some fields complete, accurate and up-
to-date information for intelligent social thinking.
The problems that the surveying forces will meet,
however, will not be in the accumulating of valuable,
accurate, concrete facts but in so interpreting and
presenting these facts as to meet the requirements of
the narrow gateways of the ordinary understanding
of the average citizen, without losing sight of the pos-
sibilities that the concrete possess as a means of arous-
ing interest by stimulating the imagination. To many
the revelation of facts and conditions under which
they are living and which are thriving in the very
shadow of their homes, will have the effect of the dis-
covery of a new world the mysteries of which they
have just realised. It is like exploration along
the lines of the third dimension of a world which ha s
heretofore only made itself known to them in two di-
mensions.
In preparing the material for public consumption
with a view to building up public opinion along the
lines suggested by the findings of the survey, recog-
nition of certain definite factors is imperative. These
factors are as follows:
194
THE FACTS AND THE PEOPLE 195
1. The average mind has a limited power for con-
centrated attention. This requires all statements of
facts, in whatever form they may be presented, to be
condensed within the limited compass of a single effort
of mental concentration.
2. Interest in American communities fags quickly
and the educational processes designed to bring the
survey facts before the public and keep attention
focussed upon them must be designed to present in
progressive order varying phases of problems with
emphasis upon new angles that would hold the in-
terest of the people by the constantly new mysteries
that the facts reveal.
3. The citizen body must be made to realise a pro-
prietary interest in the community and must be given
credit for it with no less force and ingenuity than
is customary in showing how they are cheated and
how little they get for their money.
4. The stratification of the population along econom-
ic, social and cultural lines represents strata of value
concepts. In other words, while in the accurate
measurement of certain evils a common denominator
expressed numerically conveys to all the same numeri-
cal content in terms of social values, each stratum of
society has its own concept. The task of the surveying
forces in presenting their results and conclusions is
to recognise these differences in value concepts and
give each class of society a vision of the situation that
would lead to the same general conclusions without
distorting the facts and at the same time recognising
the point of view and concept of each class.
5. While the facts themselves should not be clogged
with superfluous explanatory text, a little imagination
196 THE SOCIAL SURVEY
in the presentation of such facts is frequently helpful
in intensifying the vision of the myopic public. The
following statement that appeared in the U. S. Bureau
of Education Bulletin 20 for 1913 regarding illiteracy
in the United States is both imaginative and true to
the facts. "In double line of march, at intervals of
three feet, these 5,516,163 illiterate persons would
extend over a distance of 1,567 miles. Marching at
the rate of 25 miles a day it would require more than
two months for them to pass a given point."
6. The survey is not only a means of creating a civic
mind by popular education. The scientific method
applied in the collection, classification and interpreta-
tion of social facts has a value far beyond its utility
as a means of popular civic education. It reveals
fundamentals upon which a comprehensive program
can be outlined and the technic with which it is to
be carved out is stated. It also contains data of
scientific value upon which a positive science of
Applied Sociology must eventually be built in this
country. In presenting the survey findings, therefore,
this last but wider use of them should be recognised.
The recognition of this higher phase of the scientific
utility in survey work is bound to raise the standard
of survey work above its present rather low level of
dilletantism.
In the foregoing discussion, I have endeavored to
lay down some broad outline suggestions as to the con-
siderations to be kept in mind in the educational
campaign that should follow the survey in order to
stimulate social thinking on the basis of ascertained
social facts. The channels through which such a cam-
paign should find expression and the types of publicity
to be used will now be briefly considered.
THE FACTS AND THE PEOPLE 197
THE REPORT.
In our effort to popularize survey facts we frequently
confuse their scientific character as an instrument for
the shaping of a constructive program and developing
a technic of efficient service with their educational
value in stimulating social thinking among the masses
of the people. The survey report, containing the exact
data presented in scientific form, using every possible
method of interpretation that the social sciences,
statistical method, and legislative experience place at
the command of the surveying forces, should be used.
It should be a document that will stand the test of
science even at the risk of becoming technical.
Whether such a report is ever published and dis-
tributed to the general public is of little import. Its
value is not to be looked for in the effect that it would
have upon the public but in the clear vision and ac-
curate concept of existing conditions that it would
give to those actually at work upon the program and
those who are to constitute the leadership in carrying
it out. While the public wants plausible aphorisms,
the endurance test of a reform movement must be
found in scientific interpretation of facts.
PEOPLE'S PUBLICITY.
Separate and distinct from the general survey report,
the preparation of campaign material is perhaps the
most difficult task. The statement of facts in plausible,
accurate and epigrammatic form requires serious
thought, a knowledge of the habits of thought, the
traditional methods of approach to local problems, the
factional differences between the citizens, the social
and political history of the locality. The use of recog-
198 THE SOCIAL SURVEY
nised religious teachings, the universally accepted
moral precepts, the patriotic phraseology of the day,
the innate sense of justice, the taxpayer's desire for
a return upon his investment in public enterprise, the
feeling of responsibility towards children, resent-
ment against being fooled and cheated, are all psychic
factors upon which the publicity for the education of
the people should be founded. They are social forces
that constitute valuable assets in the work of stim-
ulating social thinking and the educational campaign
of the surveying forces should use them whenever they
can be made to serve the ends to be attained. The
forms that the information for the general public may
take may be various.
I. Report Abstract.
Very frequently when the newspaper publicity of
the survey has been such as to give reason for the
belief that the general public has been aroused to a
keen interest in the results of the investigation, a brief,
epigrammatic, clear and simple pamphlet containing
the striking essentials of the findings with telling illus-
trations will be found valuable. In order to give this
publicity, a letter forecasting the receipt of the pam-
phlet should be sent to each voter or resident who is
to receive one, explaining briefly the relation of the
recipient to the community and survey. This would
add a personal element to the printed page that would
assist in making it more effective.
II. The Press.
No newspaper can afford to overlook good publicity
material. The brief survey report prepared for the
people as an abstract can be expanded and used in the
THE FACTS AND THE PEOPLE 199
daily press with the best of results. Charts, photo-
graphs and even simple statistical tables may often
be used over a period of days and. weeks, or in a special
edition of the newspapers, with educational results
that would be valuable in arousing public opinion to
the local needs and to intelligent thinking as to the
plans to be pursued.
The newspaper reading habit in this country would,
in many communities, justify the preparation of a com-
plete series of charts, photographs, and statistical tables,
dealing with local conditions and conditions elsewhere
by way of contrast to be published in serial order
in the newspapers instead of displayed in an exhibition
room. The piecemeal manner of display in the press
may in some cases be found more effective if shown
continuously, consistently and over a considerable
period of time, than a bewildering exhibit which taxes
the attention, memory and intelligence of the average
visitor.
EXHIBITS.
Experience has shown that an exhibit in order
to be effective must be prepared with skill and knowl-
edge of the various facilities for presenting material
in graphic form. Tests of the effect of certain types
of display upon the attention and memory have been
made by experts in the field. These tests have been
found of inestimable value in the preparation of such
exhibits.
Recent years have witnessed excellent work in the
field of social exhibits. The Russell Sage Foundation
and many other philanthropic as well as commercial
agencies have developed a technic of social exhibits
200 THE SOCIAL SURVEY
that is very effective in the attainment of educational
results.
Amateur social exhibits are, in the opinion of the
writer, of little value. The services of an expert in
the field are imperative in order to make the exhibit
effective and where the services of an expert are not
available other less costly means of publicity should
be employed.
While large, complex exhibits are impractical where
expert service is not obtainable, there is every reason
to believe that a few charts attractively drawn and
striking photographs in limited number relating to a
given subject or problem could be used effectively
in window displays, libraries or school rooms or any
other public places. These displays should relate to
one subject at the time and to one subject only.
THE PUBLIC FORUM.
The discussion of public affairs in this country,
except in their broadest possible aspects, takes place
only during periods preceding election and relates to
issues far removed from the every day knowledge and
interest of the people. The social survey deals with
public affairs which are within the scope of every day
life and experience and touch vitally the interests of
the average citizen. The public school lecture hall,
the church pulpit, the labor union meeting, the club
auditorium, the monthly meeting of men's and women's
organizations and even the rather uncertain, sensation-
hungry crowd of the street corner are suitable channels
through which social survey information can and
should be set forth. No platform, no group activity,
should escape the influence of the survey campaign.
THE FACTS AND THE PEOPLE 201
Wherever people come together to talk and think on
issues of common interest, the findings of the survey
should have a large place in the deliberations.
THE PUBLIC SCHOOLS.
The teaching of history in the public schools has
just reached the promising state where our pedagogs
are convinced that the methods employed in the teach-
ing of this subject are inadequate and ill-suited for
the purpose for which the subject finds a place in the
school curriculum. In the teaching of civics, a more
or less new element in our public school education, we
find that the mechanism of government is given vastly
greater importance than duly belongs to this aspect
of trie subject and that although government and social
institutions in general are changing, shifting and con-
stantly readjusting themselves to new conditions and
needs, the mass of civic teaching renters about the
mechanical processes of government without a standard
of either efficiency or fitness. Instead of teaching
civic ideals and their relation to society as a dynamic
force, we are accepting the teachings of the so-called
statics of the State and its activities.
The survey furnishes an excellent basis for the
vitalizing of civic teaching in our public schools and
may furnish standards of judgment of the efficacy of
social institutions which every true American should
know or at least should be capable of understanding.
Careful study of a local survey should furnish not only
the basis for a syllabus to be used in the teaching of
civics in the public schools, but should enlist the interest
and service of many pupils in civic activities, a service
that will furnish the practical experience necessary in
202 THE SOCIAL SURVEY
the preparation of a responsible and practical citizen-
ship.
THE Civic PAGEANT.
As a last and perhaps a crowning expression of the
findings of the survey, the civic pageant may be called
into play. This method of civic education through
pageantry is neither new nor impractical. In the last
analysis the pageant is the rehearsal of historic and
civic facts by the use of the most striking essentials
of both the historic and the civic developed, and -ar-
ranged with sufficient art and symbolising the tradi-
tional ideals of the community to make their appeal
to the masses through every means at the command
of mass co-operation and artistic faithfulness to the
dominant ideals of the period and conditions represent-
ed. The survey being an intensive analysis of the
social and civic life of the people furnishes vast stores
of material that can be used in focusing social ideals
upon existing conditions.
It is true that the mere mass co-operation in the
production of a pageant has great social and civic
value, but it must be recognised that a pageant that
can be made to express social needs and symbolise the
social ideals and forces available for their realisation
will render a service that will add dramatic force and
a conscious recognition of social needs.
ASOCIAL PROGRAM.
social survey is a process of qualitative and
J- quantitative analysis of our social environment
both in the past and in the present in order to make
possible the visualising and the actual creation of
practical Utopias. Without the Utopian vision of
the surveying forces and without the inspiration that
comes from a vision of the future the main purpose
of the survey is destroyed.
While fundamentally the survey takes its inspiration
from the possibilities for reconstruction and readjust-
ment of institutions, agencies and human relationships
on a basis that is true to the facts revealed, the most
difficult task in the carrying out of a constructive
social program is to be found in the elimination or
destruction of organizations, institutions, agencies,
practices and methods which have become part of the
present only through the influence of the past. The
conservative citizen will be filled with regret and will
become fearful of the astounding task of destruction
involved in the re-organization of the existing agencies
necessary in order to meet our needs revealed by the
new vision gained through the survey.
In the protracted effort to achieve results the radical
elements in any social force bound upon recon-
struction and re-organization will be shocked if not
wholly destroyed by the great mass of inert people
whose social ideals do not extend beyond their daily
bread of tomorrow and those whose personal interests
are inseparable from a social order in which the measure
203
204 THE SOCIAL SURVEY
of their economic success depends upon respect for
the existing order.
In setting forth a constructive program of social
reform we must not fear, therefore, to soar high and
set the pace that the most Utopian vision and the high-
est ideals may suggest as long as the evidence points
in that direction. No great social reform can be brought
about by a check upon the imagination and high regard
for the past except as it contributes its share towards
the foundation of the future. Our school histories do
not teach us the little steps in the history of a country
or a community or a people. They bring before us the
great vision and the great creative forces that have
marked the revolution in the evolutionary development
of the state ; they dwell upon the epoch making periods
which were marked by destruction of the past and the
establishment of better order. Those who most cherish
our present institutions are foremost in praising the
heroes of the past who have had the courage and the
vision and the leadership to undertake the destruction
of the established institutions and the building of
new ones.
If the survey is to bring about results and if the
people are to be moved and inspired into a broad and
lasting improvement of existing conditions and the
destruction of evils, they must be given a great vision
of the future, they must be inspired with the realisation
of the great power that is within them to create a new
and better order, they must be aroused with dynamic,
practical ideals that will see the past and the present
as the stepping stones towards a more thoughtful
progress. The potential power for such progress among
the people can be judged, however, only by the quality
THE SOCIAL PROGRAM 205
of social ideals they promise; and the survey should
serve to formulate such ideals.
The futility of endeavoring to outline a constructive
plan of improvement for communities without the
specific diagnostic information which the survey must
gather is apparent. The widely diversified efforts in
the direction of social improvements in this country
and the experience of the world in many fields of social
endeavor are at the disposal of those endeavoring to
lay out a program of social action. How this experi-
ence of other communities and the dictates of the local
conditions should be used in shaping such a program
will depend entirely upon the preparations made by
the surveying forces by way of educating public opinion
on the basis of existing conditions towards a compre-
hensive and constructive program.
The first difficulty in the way of such a program will
undoubtedly be the existing social agencies, sometimes
under the leadership of public spirited citizens and
professional, if not wholly socialised, social workers.
The scrapping process to which every industry subjects
its machinery with the advance in methods of produc-
tion is difficult of application in the social field. Machin-
ery is not handicapped by tradition, its product is
too quickly subject to interpretation in terms of finan-
cial return, while institutions and social agencies are
the expression of social ideals; their efficacy in meeting
the changing social needs is not and frequently cannot
be measured adequately in terms of measurable social
values to the community. That the scrapping of
existing but inefficient or inadequate agencies is the
first prerequisite of a constructive social program is
evident from any of the scores of surveys already
206 THE SOCIAL SURVEY
carried out in this country and the attempts towards
reform that have been made in consequence of the
facts ascertained.
A social survey should, therefore, embody not alone
the scope of the service to be rendered but a translation
in concrete terms of the static cost of existing agencies
and the dynamic values to be secured by the suggested
changes. The public must be clear as to the difference
between the immediate investment involved by a
particular undertaking in the field of social improve-
ment and the ultimate return or saving to the com-
munity upon this investment. In other words, the
difference between primary investment and actual cost
must be made clear through the use of social account-
ancy that would show assets and liabilities of the old
system as against the proposed changes.
Communities have certain individualities which
must be recognised in all social progress. In the field
of medicine we have come to recognise the psychic
factors as of momentous importance in the treatment
of disease. In the social field there is a well differen-
tiated social psychology which can and should be
ascertained and recognised in the forming of a social
program. The rate of progress of a community,
whether that be determined by revolutionary changes
in social life, the change in the character of the popula-
tion and its rate of increase, its social environment as
found in the neighboring communities, are all factors
to be considered in the building of a constructive plan.
Under no circumstances should a social program be
proposed that is based upon borrowed ideals and experi-
ence unless they are in harmony with the spirit of the
people and are felt and understood by them. Imitative
THE SOCIAL PROGRAM 207
social reform that fails to take as its foundation the
local facts not only as to condition but as to capacity
of the people to foster and realise such ideals is detri-
mental to social reform not only in a given community
but throughout the country as a whole.
The wide scope that a complete social program must
embrace is frequently beyond the social and economic
resources of the community surveyed and may prove
so overwhelming as to handicap all progress. It is
important under these conditions to choose only some
of the most pressing and most flagrant problems and
attempt to formulate a program on the basis of the
facts ascertained in relation to these problems. Such
a choice makes possible a greater concentration of
effort and facilitates the educational work that is re-
quired in preparation for the campaign of reform. In
the choice of such problems consideration should be
given to the type of people that makes up the bulk
of the population upon whom the carrying out of the
plans would depend and the extent to which the facts
relating to this problem would lend themselves to
popular interpretation and discussion. This should
not be taken to mean that a piecemeal program is the
most desirable. It must be recognised, however, that
communities like individuals must be pressed into a
" reform frame of mind" by degrees and that the first
steps should be taken cautiously. The full program
should be constantly kept in mind as a background
upon which each separate change and improvement
should be built in a broad and coherent way.
In placing the program before the public it is not
only unnecessary but quite inadvisable to include the
technical details of change beyond the broad outlines
208 THE SOCIAL SURVEY
upon which the people can be depended to pass intel-
ligent judgment and for which they can make them-
selves responsible both socially and financially. The
intricacies of the technic involved in the actual carrying
out of the program should be ascertained and their
cost measured in terms of results to be accomplished,
but the public mind should, as far as possible, be spared
the task of determining their meaning and value.
That a program comprehensive, true to the facts
and suitable for local needs, will involve a redistribu-
tion of responsibilities and radical changes in the
machinery for the social control of human activities
must be admitted. It is, therefore, of the utmost
importance to recognise the necessity for taking the
people into the confidence of the surveying and reform-
ing forces so that such social control as may be needed
for the reshaping of local conditions and the removal of
social problems may come from the people and con-
stitute an enlightened self control bent upon an en-
lightened self interest.
The superimposing of investigation and the grafting
of reforms that fail to recognise the masses of the people
as the controlling factor in the accomplishment of
results fails to recognise the true purport of the survey
as a means of creating and inspiring civic and social
ideals and will produce neither permanent nor far-
reaching results in a democracy.
APPENDIX
SOURCES OF INFORMATION.
A large share of the labor connected with the gather-
ing and organizing of the material of a social survey
depends upon the ability of the workers to find the
most reliable, the most comprehensive and the most
accessible sources of information.
The main types of information aside from the direct
individual investigation of specific conditions, may
be divided into groups as follows: Statistical Data,
Legal Provisions, Application of the Law by enforcing
bodies, Finances and Methods of Administration and
comparative data relating to other communities.
A. Statistical Data. Statistical data may be secured
from official and unofficial sources. The main official
sources are as follows:
a. State and Federal census, taken every ten
years and alternating each other by five years. Many
States take a census.
b. For records concerning births, marriages, deaths
etc., the reports of the Health Department should
furnish information. The Bureau of the Census also
publishes the figures concerning the deaths and causes
of deaths in the United States, at least for the States
in which the registration of deaths is required. These
are valuable for the purposes of comparing local con-
ditions with conditions elsewhere.
c. The court records, the records and reports of
prisons, the reports of the State Board of Charities,
and the reports of special commissions for dealing with
14 209
210 THE SOCIAL SURVEY
crime, are the best sources for statistics on crime. The
Federal Census publishes the statistics on crime every
ten years and they are particularly valuable for pur-
poses of comparison.
d. For industrial statistics use the Federal Census,
the report of the Factory Inspector, the Commissioner
of Labor, the State Census and the reports of various
bodies dealing officially with industrial conditions such
as employment bureaus, boards of trade, etc.
e. Statistics on education may be found in the
Federal Census, School Censuses, reports on School
Attendence, Illiteracy, etc., and also in the local school
reports, the reports of the United States Commissioner
of Education, the State Commissioner of- Education
and the publications of special commissions on educa-
tion or subjects having a relationship to education.
Aside from the official reports considerable valuable
information can often be obtained by letter. Officials
are generally very glad to give information concerning
their department and are eager to respond to public
interest in their work. If the letters are clear and the
questions to the point, few officials would refuse to
answer them promptly and accurately.
The Federal and State reports may be obtained
either directly through the departments or through the
local representative who can see personally that the
documents are sent to the proper destination.
Before other steps are taken in most matters relating
to the securing of statistics it is well to consult the
State and Federal Censuses.
A. Unofficial statistics on social problems may be
derived from the following sources:
SOURCES OF INFORMATION 211
a. Reports and records of philanthropic agencies.
b. Pay-rolls and reports of various industrial
establishments.
c. Reports of private commissions and other pri-
vate investigating agencies.
d. Reports of banks and insurance companies.
e. Reports of business agencies.
B. Legal information based upon Federal, State and
local legislation may be obtained by consulting the
following :
a. The Statutes of the Federal Government.
b. General Laws of the State.
c. Special State Laws relating to the locality or
to all localities of the same class.
d. City Charter.
e. City Council Ordinances, Board of Aldermen
and Health Board and Police Department Rules and
Regulations.
f . Regulations formulated by various departments
in accordance with powers vested in these departments
by law.
In case persons with legal training are not available
for this work, it is advisable to communicate with the
Secretary of State, City Solicitor, City or Town Clerk,
Heads of Departments, etc. for the purpose of obtain-
ing the exact wording of the laws, and if the laws have
been secured by the committee, it is advisable to sub-
mit them to the above officials for 'purposes of veri-
fication. In many States the State Library has a
Legislative Reference Bureau which can furnish ac-
curate information on legislative and administrative
matters concerning the State or the municipalities of
the State.
212 THE SOCIAL SURVEY
C. The methods of organization and administration
of various public departments, although provided for by
law, are often complicated and the law so interpreted
as to make an understanding of the functions and
methods of the departments difficult. It is well, there-
fore, to consult heads of departments, commissioners,
executive secretaries of various boards and other
officials as to the actual workings of the departments.
The annual reports of such departments should always
be secured and examined for the purpose of formulating
definite questions to be asked before consulting the
officials.
D. Cost of maintenance and the use of funds is so
important a factor in a survey that the examination
of receipts and expenditures should be made whenever
possible by a person familiar with the handling of
accounts.
For the expenditures of the State, county and city,
the budgets which are almost always published should
be studied with a view to discovering whether the
records are kept up to date, in a scientific and accurate
manner; whether funds provided for one type of work
are used for other and unauthorized purposes; whether
proper evidence of legitimacy of the various expendi-
tures is required; etc. In all this work the reports of
the department and examination of the accounts kept
in the office should form an integral part of a cost
survey.
In the case of private agencies most of the informa-
tion desired in connection with the best organized
work will be found in the annual reports. The methods
applied to the public offices should be applied to the
private agencies whenever possible.
SOURCES OF INFORMATION 213
E. General information not to be found in reports
or from consultation with officers and workers will
in all probability have to be derived from investigations
of actual conditions. Before undertaking such inves-
tigations, it is most desirable that all the public officials,
social workers and officers connected with the various
agencies in the community, and the persons who,
through their occupation or interest have had occasion
to come into contact with the conditions to be examin-
ed, should be consulted. Such consultation will reduce
the work by securing the interest of a large circle of
well-informed persons who may also point out ways
of getting at the facts without difficulty or delay.
F. Only through comparison with conditions in
other communities can a clear idea of local conditions
be formed. It is important, therefore, to study reports
of surveys relating to other communities in order to
ascertain to what extent the surveyed community falls
below the standard of other similar communities.
This can be done by a study of the two or more hundred
surveys that are now available in printed form, the
titles of which are printed in the bibliography of this
book.
SOCIAL AGENCIES OF NATIONAL SCOPE.
( This is a partial list of agencies in a position to advise and
assist in the carrying out of a Social Survey. )
American Association for Labor Legislation, 131 East 23d St,
New York City.
American Association for Study and Prevention of Infant Mor-
tality, 1211 Cathedral St., Baltimore, Md.
American Public Health Association, 755 Boylston St., Boston,
Mass.
American Social Hygiene Association, Inc., 105 West 40th St.,
New York City.
American Unitarian Association: Department of Social and
Public Service, 25 Beacon St., Boston, Mass.
Boys' Club Federation, 1 Madison Ave., New York City.
Committee for Immigrants in America and National American-
ization Committee, 20 West 34th St., New York City.
Committee of One Hundred on National Health, 203 East 27th
St., New York City.
Committee on Provision for the Feeble-Minded, Empire Build-
ing, Philadelphia, Pa.
The Federal Council of the Churches of Christ in America:
Commission on the Church and Social Service, 105 East
22d St., New York City.
The Joint Commission on Social Service of the Protestant
Episcopal Church, Church Missions House, 281 4th Ave.,
New York City.
National Association for the Study and Prevention of Tuber-
culosis, 105 East 22d St., New York City.
National Child Labor Committee, 105 East 22d St., New York
City.
National Committee for Mental Hygiene, 50 Union Square,
New York City.
National Committee on Prisons, Columbia University, New
York City.
National Committee on the Protection of Feeblemindedness,
Empire Building, Philadelphia, Pa.
215
216 THE SOCIAL SURVEY
National Consumers' League, 289 4th Ave., New York City.
National Federation of Remedial Loan Associations, 130 East
22d St., New York City.
National Federation of Settlements, 20 Union Park, Boston,
Mass.
National League of Women Workers, 35 East 30th St., New
York City.
Playground and Recreation Association of America, 1 Madison
Ave., New York City.
Charity Organization Department: Russell Sage Foundation,
130 East 22d St., New York City.
Department of Child Helping: Russell Sage Foundation, 130
East 22d St., New York City.
Society of Sanitary and Moral Prophylaxis, 105 West 40th St.,
New York City.
BIBLIOGRAPHY.
The bibliography presented in this book lays no claim to
completeness, nor has the selection of books been made with a
view to presenting a complete bibliographical list on any given
subject.
BIBLIOGRAPHIES.
HANMEB AND KNIGHT. Sources of Information on Recreation.
Russell Sage Foundation, Rec. 136.
REYNOLDS, J. B. Civic Bibliography for Greater New York.
Russell Sage Foundation.
SELECT LIST OF WORKS RELATING TO CITY PLANNING AND
ALLIED TOPICS. New York Public Library, 1913.
GENERAL READING.
ALLEN, WILLIAM H. Efficient Democracy. Dodd, Mead & Co.,
New York, 1908.
BEARD, MARY RITTER. Woman's Work in Municipalities.
Appleton, New York.
BRECKINRIDGE, SOPHONISBA P., and ABBOTT, EDITH. The De-
linquent Child and the Home. Russell Sage Foundation,
New York.
DEVINE, EDWARD T. The Family and Social Work.
Misery and Its Causes. MacMillan, New York, 1913.
Social Forces. Survey Associates, New York.
The Spirit of Social Work. Survey Associates, New York.
ELY, R. T. Property and Contract in Their Relations to the
Distribution of Wealth. New York, 1914.
FORD, JAMES, PH.D. Co-operation in New England: Urban and
Rural. Russell Sage Foundation, New York.
GRAY, B. KIRKMAN. Philanthropy and the State. P. S. King
& Son, London, 1908.
HENDERSON, C. R., and Others Modern Methods of Charity.
New York, 1904.
HOLLANDER, J. H. The Abolition of Poverty. Boston, 1914.
217
218 THE SOCIAL SURVEY
HOWE, FREDERIC C. The City the Hope of Democracy. Scrib-
ner's, New York, 1909.
HUNTER, ROBERT. Poverty. New York, 1905.
KING, CLYDE LYNDON. Lower Living Costs in Cities. Apple-
ton, New York, 1905.
KING, W. I. Wealth and the Income of the People of the United
States. New York, 1915.
LAFARGE, PAUL. The Evolution of Property. London, 1894.
LEE, JOSEPH. Constructive and Preventive Philanthropy. New
York, 1902.
MACDONALD, ARTHUR. Man and Abnormal Man, Including a
Study of Children. Washington.
McDouGALL, WILLIAM. An Introduction to Social Psychology.
Luce & Co., 1909.
MANGOLD, GEORGE B. Problems of Child Welfare. MacMillan,
New York, 1914.
MONEY, L. G. C. Insurance versus Poverty. London, 1911.
NEARING, SCOTT. Income. MacMillan, New York, 1915.
PATTEN, SIMON N. The New Basis of Civilization. New York,
1907.
RICHMOND, M. E., and HALL, F. S. A Study of Nine Hundred
and Eighty-five Widows Known to Certain Charity Organ-
ization Societies. New York, 1910.
ROWNTREE, B. S. Poverty: A Study of Town Life. London,
1902.
SEMPLE, E. C. Influence of Geographic Environment. New
York, 1911.
SQUIER, L. W. Old Age Dependency in the United States: A
Complete Survey of the Pension Movement. New York,
1912.
THOMPSON, J. J. Social Insurance. Chicago, 1914.
WARD, LESTER F. Applied Sociology. Ginn & Co., Boston,
1906.
WARNER, AMOS G. American Charities. Thomas Y. Crowell &
Co., New York, 1894.
STATISTICS.
BAILEY, W. B. Modern Social Conditions. New York, 1906.
BIBLIOGRAPHY
219
BOWLEY, A. L. An Elementary Manual of Statistics. London,
1910.
BRINTON, WILLAED C. Graphic Methods for Presenting Facts.
New York, 1914.
ELDERTON, W. P. and E. M. Primer of Statistics. London,
1912.
GIDDINGS, FRANKLIN H. A Social Marking System. Quarterly
Publication of the American Statistical Association, June,
1910, Vol. XII.
KING, W. I. The Elements of Statistical Method. New York,
1912.
MAYO-SMITH, RICHMOND. Statistics and Sociology. New York,
1896.
NEWSHOLM, ARTHUR. Elements of Vital Statistics. London,
1899.
U. S. CENSUS BUREAU. Mortality Statistics, 1913.
Prisoners and Juvenile Delinquents. Bulletin, 1910.
Statistical Atlas of the United States, 1914.
Thirteenth Census: Abstract with supplement for your own
State, 1910.
Abstract with supplement for your own State, 1910.
U. S. CHILDREN'S BUREAU. Birth Registration. Washington,
1914.
Handbook of Federal Statistics of Children. Washington,
1914.
WEBB, A. D. New Dictionary of Statistics. London, 1911.
YULE, G. U. Introduction to Theory of Statistics. London,
1911.
LEGISLATION.
COMMONS, JOHN P., and ANDREWS, JOHN B. Principles of
Labor Legislation. Harper & Bros., New York, 1916.
ELKUS, A. I. Value of Investigation as a Basis for Social
Legislation. Survey, 34: 81, April 24, 1915.
GRAY, H. Economics and the Law. American Economic Re-
view, 5: Sup. 3, March, 1915.
HANMER, LEE. Recreation Legislation. Russell Sage Founda-
tion, New York, Rec. 106.
HART, HASTINGS H. Juvenile Court Laws in the United States.
Summarized. Russell Sage Foundation, New York.
220 THE SOCIAL SURVEY
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Vigilance Needed to Secure Social Legislation. Survey 35 :
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222 THE SOCIAL SURVEY
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224 THE SOCIAL SURVEY
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15
226 THE SOCIAL SURVEY
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BIBLIOGRAPHY 227
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228 THE SOCIAL SURVEY
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230 THE SOCIAL SURVEY
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BIBLIOGRAPHY 231
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232 THE SOCIAL SURVEY
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BIBLIOGRAPHY 233
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234 THE SOCIAL SURVEY
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236 THE SOCIAL SURVEY
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240 THE SOCIAL SURVEY
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242 THE SOCIAL SURVEY
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BIBLIOGRAPHY 243
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244 THE SOCIAL SURVEY
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BIBLIOGRAPHY 245
PATERSON, N. J. Playgrounds and Organized Public Recrea-
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PROVIDENCE, R. I. Recreation Survey of the City of Provi-
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LEISURE GENERAL LITERATURE.
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The Survey, June, 1915, to July, 1916.
These articles discuss the theatre as an institution of com-
munity life. They deal especially with the motion picture,
with non-professional and community drama, the folk theatres
of various lands, sumptuary regulation and censorship, the
status of commercialized drama, and the American pageant.
The articles are as follows:
1. Back of Our Footlights: The Half -Forgotten Social Func-
tion of the Drama. (The theatre in social history.)
June, 1915.
246 THE SOCIAL SURVEY
2. Before Our Footlights: The School-Meaning of the Motion
Picture Showmen. (The theatre, and especially motion
pictures, considered as a problem of regulation.) July,
1915.
3. Censorship in Action. (A description of American legal
censorships.) August, 1915.
4. The Learned Judges and the Films. (The legal origin of
censorship in English history; the present legal status
of censorship in America. Analysis of the Supreme
Court's decision upholding compulsory censorship.) Sep-
tember, 1915.
5. Censorship; And The National Board. (A critical exam-
ination of the origin and results of the National Board
of Censorship of Motion Pictures.) October, 1915.
6. Anthony Comstock 'Liberal. (An interpretation of Com-
stockism, with a biography of Anthony Comstock. The
psychology of impure-mindedness. ) November, 1915.
7. The Theatre of Tomorrow. (The American commercialized
theatre; the North Dakota Little Country Theatre; an-
alysis of the theatre as a phase of community relation-
ship.) January, 1916.
8. A Film Library. (The constructive solution of the problem
of motion pictures.) March, 1916.
9. For a New Drama. (Description of European experiments
in the organization of the theatre. German, French,
Danish, Belgian, Irish, Emanuel Reicher in America.)
May, 1916.
10. The Stage, a New World. (Analysis of American Adven-
tures toward the New Theatre. A program for the
future.) June, 1916.
11. Caliban by the Yellow Sands. (The Shakespeare Celebra-
tion renewed against the background of American
pageantry.) July, 1916.
GULICK, LUTHER. Exercise and Rest. Russell Sage Foundation,
Rec. 76.
Folk Dancing. IUd., Rec. 118.
HANMER, LEE. Athletics in Public Schools. Ibid., Rec. 72.
BIBLIOGRAPHY 247
HUBBABD, H. V. The Size and Distribution of Playgrounds and
Similar Recreation Facilities in American Cities. Pro-
ceedings of National Conference on City Planning, 1914.
LANGDON. Celebration of the Fourth by Means of Pageantry.
Russell Sage Foundation, Rec. 114.
LEE, JOSEPH. Play in Education. New York, 1915.
MACKAYE, PERCY. The Civic Theatre in Relation to the Re-
demption of Leisure. Mitchell-Kennerley, New York, 1912.
MEBO, E. B. American Playgrounds. The Dale Association,
Boston, 1909. Out of print.
PERRY, CLARENCE. The Community Used School. Russell Sage
Foundation, Rec. 83.
Evening Recreation Centers. Ibid., Rec. 85.
The High School as a Social Center! Ibid., Rec. 138.
How the Social Center Promotes Reform Movements. Ibid.,
Rec. 131.
How to Start Social Centers. Ibid., Rec. 125.
The Real Snag in Social Center Extension. Ibid., Rec. 137.
The School as a Factor in Neighborhood Development. Ibid.,
Rec. 142.
Social Center Features in New Elementary School Architec-
ture. Ibid., Rec. 120.
Unused Recreational Resources of the Average Community.
Ibid., Rec. 104.
Wider Use of the School Plant. Ibid.
WARD, E. J. The School Center. National Municipal League
Series. Appleton, 1915.
Social and Civic Centers. American Unitarian Association,
Bulletin No. 23.
MENTAL HYGIENE.
SPRINGFIELD, ILL. Care of Mental Defectives, the Insane, Alco-
holics in Springfield. W. L. Treadway. Department of
Surveys and Exhibits, Russell Sage Foundation, New York,
1914.
WASHINGTON, D. C. Mental Defectives in the District of Co-
lumbia. E. 0. Lundberg. U. S. Children's Bureau, Wash-
ington, 1915. Publication No. 13.
248 THE SOCIAL SURVEY
BARR, M. W. Mental Defectives Their History, Treatment
and Training. Philadelphia, 1904.
DUGDALE, R. L. The Jukes. New York, 1910. 4th ed.
DARD, H. H. Feeblemindedness. MacMillan, New York,
1914.
U. S. CENSUS BUREAU. Insane and Feebleminded in Institu-
tions. 1910.
WILLIAMS, EDWARD HUNTINGTON. The Walled City: A Story
of the Criminal Insane. New York, 1913.
INDUSTRIAL CONDITIONS.
NEW HAVEN, CONN. Industrial Survey of a New Haven Dis-
trict. H. P. Fairchild. Civic Federation, New Haven, 1913.
SPRINGFIELD, ILL. Industrial Conditions in Springfield. L. C.
Odencrantz and Z. L. Potter. Department of Surveys and
Exhibits, Russell Sage Foundation, New York, 1915.
TOPEKA, KAN. Industrial Conditions in Topeka. Z. L. Potter.
Ibid., 1914.
INDUSTRIAL CONDITIONS GENERAL LITERATURE.
ABBOTT, EDITH. Women in Industry. New York, 1910.
ADAMS, T. S., and SUMNER, H. L. Labor Problems. New York,
1905.
BOLEN, G. L. Getting a Living. New York, 1903.
BUTLER, ELIZABETH B. Saleswomen in Mercantile Stores. Bal-
timore, 1909. New York.
DAWSON, W. HARBUTT. Social Insurance in Germany. London,
1912.
FRANKEL, LEE K., and DAWSON, MILES M. Workingmen's In-
surance in Europe. New York.
HENDERSON, C. R. Industrial Insurance. Chicago, 1911.
KELLOR, F. A. Out of Work: A Study of Employment Agen-
cies. New York, 1904.
MACLEAN, A. M. Wage-Earning Women. New York, 1910.
REPORT OF MASSACHUSETTS COMMISSION. Minimum Wage
Boards. Boston, 1912.
MORE, L. B. W&ge Earners' Budgets. New York, 1907.
RYAN, J. A. A Living Wage. New York, 1912.
BIBLIOGRAPHY 249
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250 THE SOCIAL SURVEY
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INDEX
ADVICE,
AIR,
AMERICANIZATION,
ANNUAL REPORTS,
ART,
ASSIMILATIVE ENDEAVOR, 31
BELGIUM, 99
"Boons," 90
BUDGET, 48, 212
CASE RECORDS, 24
CHECK AND BALANCE, 12
CITY PLANNING, 89
Civic :
Pageant, 202
Teaching, 201
CLASSES, 3
COMMUNITY CENTRE, 129
"Economics," 149
Health, 107
CONSULTATION, 213
CRIMINALS, 175
Treatment of, 180
DEPENDENCY, 153
Facts Concerning, 153
DIAGNOSIS, SOCIAL, 23
DISCRETION, 19
EDUCATIONAL AGENCIES, 142
Private, 142
Status of, 143, 144
EFFICIENCY, 25
ENGINEER, SOCIAL, 19
ENGINEERING, SANITARY, 78
EXCHANGE OF EXPERIENCE,
26,27
PAGE PAGE
13 EXHIBITS, 21
34 FACTS, INTERPRETATION OF, 194
56 FINANCES, 45
212 FOLK ARTS. 128
125 FOOD SUPPLY, 37
GOVERNMENTAL FACTORS, 91
GRAFT, 50
HEALTH SURVEY, 76
Morbidity, 77
Mortality, 76
HOTELS, 85
HOUSES, ROOMING, 85
HOUSING,
Availability of Capital
for, 96
Conditions, 80
Reform, 81
Survey, 81, 85
HUMAN ACHIEVEMENT, 3
Resources. 2
Waste, 103
INDUSTRIAL BALANCE, 67
Establishments, 104
Migration, 67
Progress, 91
Safety, 69
INDUSTRY, 58, 60
Types of, 58
INSTITUTIONS:
Administration, 157
Budgets, 160
Equipment, 162, 163, 164,
165, 166
Publicity, 161
253
254
INDEX
PAGE
Resources and Income, 158
Supervision of, 155
JUVENILE DELINQUENCY, 176
Prevention of, 178
Rehabilitation of, 179, 180
LABOR:
Demand for, 63
Distribution of, 72
Organizations, 72
Problems, 72
Supply of, 39
LAND, 97
Use, 97
Speculation, 97
LAWS:
Building, 101
Compulsory Insurance, 69
Enforcement of, 102
Function of, 192
New York and Massa-
chusetts, 105
Positive Task of, 193
LEGAL INFORMATION, 211
LEGISLATION :
Analysis of, 189
Scientific, 191
Social, 190
LEISURE, 41,42,110
Assets and Liabilities, 114
Commercialized Facili-
ties for, 115
Co-operative Organiza-
tions, 117
Negative Use of, 110
Philanthropic or Semi-
philanthropic institu-
tions, 116
Positive Use of, 110
PAGE
LIBRARY, 121
LIGHT, 36
LOCAL GOVERNMENT, 44
MASSES, 3
MEDICINE, PREVENTIVE, 78
MILK SUPPLY, 14
MUCKRAKER, 1
MUNICIPAL :
Administration, 88
Loans, 49
NATURAL RESOURCES, 98
NOISE, 39
ODORS, ' 39
OPPORTUNITY, 4
ORGANIZATIONS, 10
PEOPLE'S INSTITUTE, 130
POLITICAL ACTIVITY, 14
POPULATION, 28, 88
Nomad, 64
Non-Taxpaying, 47
POVERTY, 149
Causes, 152
Relief, 151
PRESS, 119
PRISON INSPECTION, 183
PUBLIC LECTURE FORUM, 120
RADICALS, 1
RUSH SEASONS, 64
SCHOOLS, 131
Administration, 139
Buildings, 105
Census, 132
Efficiency, 140
Exceptional Child, 136
Needs, 139
Parochial,- 134
Placement of Children, 137
Private, 134
INDEX
255
PAGE
Sanitary Condition, 105
Service, 139
Vocational Training, 138
SEGREGATION, 33
SENSATIONALISM, 15
SOCIAL CONSCIOUSNESS, 20
Ideals, 205
Institutions, Scrapping
of, 205
Liabilities, 174
Mechanics, 184
Program, 203
Psychology, 206
Service, 6
SOCIALIZED PLAN, 34
STOCK TAKING, 5
STREET LAYOUT, 51
STATISTICAL DATA, 209
Interpretation, 185
Method, 184
Tabulation, 186, 187
STATISTICS, UNOFFICIAL, 210
Social, 184
Vital, 22
PAGE
SUFFRAGE, 55
SURVEY, 17
Campaign Material, 197
Exhibits, 199
Report, 197, 198
TAXING POWERS, 46
TRANSIT FACILITIES, 99
UNEMPLOYMENT, 68
WASHINGTON PLAN, 52
WELFARE AGENCIES, 145
Classification, 146
Efficiency of, 147
"Endorsement Commit-
tees," 169
Problem of Endorse-
ment, 173
\VELFARE WORK, 71
"WHITE WAY," 41
WORKERS, 18
WORKERS AND COMPENSA-
TION, 61
F
N0\
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