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 UC-NRLF 
 
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 FOUNDED BY JOHN D. ROCKEFELLER 
 
 SOCIAL SURVEYS OF URBAN 
 COMMUNITIES 
 
 A DISSERTATION 
 
 SUBMITTED TO THE FACULTY OF THE GRADUATE SCHOOL OF 
 
 ARTS AND LITERATURE IN CANDIDACY FOR THE 
 
 DEGREE OF DOCTOR OF PHILOSOPHY 
 
 (DEPARTMENT OF SOCIOLOGY) 
 
 BY 
 
 MANUEL CONRAD ELMER 
 
 MENASHA, WIS. 
 
 THE COLLEGIATE PRESS 
 
 GEORGE BANTA PUBLISHING CO. 
 
 1914 
 

CONTENTS 
 
 Need of a Comprehensive Social Survey 1 
 
 Classification of Social Surveys 8 
 
 Suggestions for a City Survey 27 
 
 Community Survey 31 
 
 Conclusion 70 
 
 Bibliography 71 
 

 
NEED OF A COMPREHENSIVE SOCIAL SURVEY. 
 
 Every succeeding generation brings with it changes which give it a 
 distinctive mark in history; but no greater achievements are recorded 
 than were accomplished in this country during the past century. We 
 are moving today with impulsive speed. The problems we need to 
 solve are not the ones discussed two or three generations ago. Each 
 day new issues are swept in upon us which must be met at once, while 
 the experience gained in solving the problems of past generations bears 
 upon the new issue only in an indirect way. Aided by the great natural 
 resources of the country, and the inventions which led to our present 
 systems of rapid transportation and communication, we have erected 
 upon places which but a short time ago were almost impenetrable forests, 
 or marshes reeking with malaria, cities which are the homes of millions 
 of people who have come to this country from all quarters of the world 
 seeking to better their condition of life. 
 
 In 1800 only 2V£% of the people of this country lived in cities 
 of over 20,000 inhabitants, while in 1900 over 33% of the population of 
 the United States lived in such cities. Where fifty years ago there were 
 villages and trading posts, there are today cities whose population runs 
 from hundreds of thousands to millions, — cities whose serious problems 
 have multiplied as rapidly as their population. The industrial progress 
 of our country has entirely revolutionized our methods of life. It has 
 resulted in so magnifying and complicating every social, political and 
 economic situation that men have not yet learned how to adjust life 
 to them. The thousands of immigrants have developed in our cities con- 
 ditions which are deeper and of more vital importance than the mere 
 surface problems of housing, sanitation, and economic mal-adjustment 
 generally. They have brought from every country, almost every hamlet 
 in the world, traditions, desires, habits and thoughts of life which are 
 their heritage from past centuries, and which are bound to exert influences 
 upon their new surroundings, which act and react upon each other, 
 and to a perhaps unsuspected degree may determine the type of the fu- 
 ture American. What these forces are, and how they affect the lives 
 of the people when transplanted to this new American soil, can only 
 be observed by the most careful study of all the social activities of the 
 
2 SOCIAL SURVEYS OF I KHAN COMMUNITIES 
 
 people. In short, before it is possible to decide upon an intelligent and 
 constructive method of procedure, a careful and comprehensive social 
 survey of the community under consideration must be made. 
 
 It is only within the last few years that we have begun to observe 
 the terrible waste which is taking place in the process of transforming 
 the products of our natural resources to meet our needs. With the 
 awakening to the situation, there have sprung into existence in every 
 part of the country movements to stop this needless waste. In almost 
 every state commissions have been formed, — the national government 
 has taken a leading part in the movement, and today with the coopera- 
 tion and correlation of the various phases of the movement, the waste in 
 our natural resources is rapidly being reduced to a minimum. 
 
 Seemingly as a result of the agitation for the conservation of our 
 material resources, the people of this country are rapidly awakening to 
 the wasteful and entirely unnecessary leakage in our human resources. 
 They are beginning to see that the waste of material resources is negli- 
 gible when compared with the waste and destruction of the social world. 
 They have begun to see, not only the thousands of unnecessary and pre- 
 mature deaths,— but also that in every community there are lives which 
 are stunted, or idled away because there is no available opportunity to 
 develop them. Human life and human achievement have been all too 
 frequently burdened by the neglect and self-interest of business and 
 industry, and by indifference and ignorance in regard to our political 
 affairs. However, men are beginning to realize that our social insti- 
 tutions have not progressed as have our various industries. Whereas, 
 the institutions affecting our industrial life have combined into great 
 organizations in which every effort put forth is used to the very best 
 advantage, the institutions affecting our social life are largely unorgan- 
 ized, independent and often conflicting bodies. Consequently, the 
 efforts of the social organizations, while frequently of inestimable value 
 in themselves, overlap and in numerous cases counteract each other, 
 and, what is of greater importance, — these competing bodies, in their 
 race to be the first in the same particularly spectacular field of reform 
 work, frequently overlook the real source of the leakage they are attempt- 
 ing to stop. Since this has been the case so long, it is a gratifying sign 
 of progress that at length we are aroused to the necessity of greater in- 
 telligence for the guidance of our well-meant but sometimes misdirected 
 efforts. 
 
NEED OF A COMPREHENSIVE SOCIAL SURVEY 6 
 
 Never before was there a time when there was so general a movement 
 to understand social conditions as now exists. In almost every city of 
 any importance investigations are being carried on in some field or other. 1 
 The organization carrying on the project may be a church making a 
 survey of its particular community, — a civic league making an investi- 
 gation of the industrial situation, — a charitable organization investi- 
 gating the poor quarters of the city, — a department of health making 
 a sanitary survey, — or it may be an intensive survey of the industries and 
 living conditions as carried on in London, Pittsburgh, Buffalo or Birming- 
 ham, Alabama. But whatever the source of the particular movement 
 may be, the number and variety of surveys that are being contemplated 
 and made throughout the country indicate that there is a general demand 
 arising to have some accurate information in regard to existing conditions. 
 
 Here as in all new undertakings, notwithstanding the vast amount 
 of data collected, it is impossible to make the most advantageous use of 
 it; hence, in comparison with the effort expended, very little of lasting 
 value is accomplished . The fault is not so much in the lack of energy, as it is 
 in misapplied energy. And even though the efforts toward a better social 
 understanding are of considerable local importance, the diversity of 
 interests directing the various surveys, and the variety of methods 
 used in making such investigations, tends to materially decrease the 
 value of the data gathered for the general scientific study of society. 
 Nor are these local movements always of the greatest practical value in 
 remedying the community's immediate needs. Too often a group of 
 people, stirred by some particular abnormal feature brought vividly to 
 their attention, begin to agitate along that particular line, without any 
 knowledge of the community as a whole and consequently to little 
 purpose; while if they did their work in collaboration with some already 
 existing agency, the results accomplished would be far greater than those 
 now obtained and would have more lasting value to the community, 
 with less expenditure of time and money. If a complete and thorough 
 survey were made before attempting to inaugurate a reform movement, — 
 instead of trying to stop the stream of social disorders by damming it 
 in its course, — the source of the undesirable and harmful conditions 
 would be discovered and all efforts might then be directed toward the 
 place where they would be of greatest service. In speaking of the neglect 
 
 1 "Spread of the Survey Idea," Paul U. Kellogg, Director of Pittsburgh Survey, 
 1907-09. The Social Survey, Department of Surveys and Exhibits, Russell Sage 
 Foundation, 2nd Edition. 
 
J 
 
 4 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 often shown by agencies in acquainting themselves with the entire local 
 situation before selecting their particular field of activity, Miss Byington 
 tells of one small city which had a tuberculosis relief society with a paid 
 worker on half time who dealt in a year with thirty-seven cases of tuber- 
 culosis. It had no housing committee, and no ordinance compelling 
 sewer connection for the houses, although more cases of typhoid than 
 tuberculosis were reported each year. There was an Associated Charity 
 organization in this place which should have handled both tasks through 
 special committees, but which confined itself to superficial relief work. 2 
 
 The object of a social survey should be not merely to gather all the 
 facts pertaining to the social life of the community; but far more to 
 correlate these facts and to make progress toward the discovery of the 
 underlying causes by which they are molded and their effect upon each 
 other. It should be more than a collection of unwarranted beliefs and 
 current opinions, second-hand information and perhaps a generally 
 superficial, unscientific investigation. A survey sshould help one to 
 know his community sufficiently well to enable him to take a broad 
 comprehensive view of its social conditions. It should disclose facts, 
 their interrelation and bearing, — and the forces within the social group 
 under consideration, which determine its activities. 
 
 In order to be of the greatest possible value, asocial survey must recog- 
 nize all of the activities within the community, — and all of the conditions 
 which in any way have a bearing upon these activities. 3 It cannot be 
 of the greatest worth, and in fact in a strict sense, cannot claim to be a 
 social survey of a community unless it covers as far as possible all phases 
 of the community's life. It must be more than an investigation of the 
 social disorders; it must be a thorough study of the normal social life as 
 well. The existing conditions and activities within the normal life of a 
 group of people, are the most important factors in determining the char- 
 acter of the group. But because the social disorders flare up so vividly, 
 — they are too often given undue attention. Not until we carefully 
 balance the good with the bad are we able to determine what are the real 
 forces effecting the life of the community. Furthermore, it is impossible 
 adequately to study any one phase of the community's life, without 
 
 1 What Social Workers Should Know About Their Own Communities, First Edi- 
 tion; Charities' Organization Department, Russell Sage Foundation. 
 
 * Riley, Thos. J., "Sociology and Social Survey," American Journal of Sociology 
 Vol. 16; Daniels, "Social Surveys, Reasons, Methods, and Results," National Conf. 
 Char. andCorr., 1910. 
 
NEED OF A COMPREHENSIVE SOCIAL SURVEY 5 
 
 giving due weight to all the interrelated activities. 4 In order to study 
 such abnormal social activities as vice and crime, we must have a knowl- 
 edge of the poverty, housing, working conditions, means of recreation, 
 educational facilities and moral and social traditions. Similarly, each 
 of these forms must be studied in connection with other conditions and 
 activities. For example, one cannot understand poverty if studied 
 apart from industry, sanitation, housing, household budget, sickness, 
 family conditions, social customs and methods of poor relief. There is 
 not a problem in the entire field of social interests which can be studied 
 as an isolated problem, if the best results are to be obtained. One 
 cannot make a comparison of the death-rate of two communities 
 without knowing about the races concerned, climate, diet and occupa- 
 tion followed by the majority of each community's inhabitants, — in 
 addition to a knowledge of the general sanitary conditions prevailing. 
 There may likewise be certain factors which affect the death-rate, which 
 are just the opposite of what would naturally be expected. Thus, 
 cities in some of the dry western states, as Arizona and New Mexico, 
 may have an exceptionally high death-rate from tuberculosis, 5 — not be- 
 cause the climatic conditions there aggravate the disease, but rather, 
 because the conditions there are so favorable that many persons beyond 
 hope of recovery go there and die. Hence, the study of disease and the 
 death-rate alone cannot be taken as an accurate measure of the communi- 
 ty's health, any more than can the "plague spots" of a city be taken to 
 indicate its general moral tone. 
 
 The rapid change in the size, the industrial character and the racial 
 makeup of the population of even our smaller towns and cities, makes 
 a study of these social groups of vastly greater importance than we are 
 at first likely to imagine. Generally we connect the idea of social dis- 
 order with large centers of population only, and entirely overlook the 
 very same conditions existing on a smaller scale in our small cities. It 
 is no doubt true that the average person, living in the country at lar<j;e, 
 knows more about the existence of slums in our great cities, than he does 
 about very similar conditions in his own community. We are all familiar 
 with cities where it was thought there was no industrial or housing problem, 
 nor any great necessity for poor relief, yet, where upon making an investi- 
 gation they were astounded at the extent of these problems. One small 
 
 4 Hunter, R., Poverty; Devine, Misery and Its causes. 
 
 * In 1912 the percentage of deaths from tuberculosis was nearly twice as great in 
 Colorado as in New York. 
 
6 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 city in Illinois, of about 4,000 inhabitants, had a charity organization 
 which did relief work in a neighboring city, because it was thought there 
 was no local problem. However, almost before it was realized a colony 
 of about 400 Slavs had grown up in the very heart of the city. Most of 
 them were men without families, who were attracted there by opportuni- 
 ty for labor in a factory located at that place. They crowded together 
 in dilapidated buildings, (a deserted brewery, an old disused hotel and 
 several unused store buildings) in a manner which could hardly have 
 been duplicated in a large city; but the problem was so near home, and the 
 local race and class prejudice was so high, that apparently no interest 
 was taken toward improving their condition. Similar conditions a 
 little farther from home would have been given at least some of the atten- 
 tion merited. Or, take another urban community, a university town, 
 having a population of from 18,000 to 20,000 inhabitants, located in 
 one of the most prosperous regions of the country. There was no organ- 
 ized charity and any agitation for organizing was considered unnecessary, 
 since it was thought there was no need whatever. Finally, the organiza- 
 tion was accomplished, — a paid secretary installed, and in one month 92 
 families were administered to, — in four months 1,042 cases were brought 
 to the attention and care of the organization. A partial survey of the 
 community revealed housing conditions which could hardly have existed 
 in a large city, — a large number of people (in certain sections of the city, 
 practically all) were using water from open wells varying from 7 to 18 
 feet deep, — and the typhoid rate was three times as great as in Chicago. 
 To the amazement of the citizens, practically every form of degeneracy 
 found in a large city was disclosed, which could very easily be handled 
 when once brought to the attention of the proper authorities. In nearly 
 every town there are conditions which are duplicates on a smaller scale 
 of the conditions in our large cities, where they are notorious merely 
 because of their magnitude, yet in proportion to the size of the city, the 
 problem of the small town may be just as great a menace. It is evident 
 that the general social conditions and activities of small communities 
 should be carefully studied, not only because they throw light upon our 
 city problems by showing them up in a more simple form, but rather be- 
 cause they are in themselves of decided importance in the life of the 
 community. Social disorders like physical disorders are bound to grow 
 if not checked. As the social disorders grow, they soon affect, not 
 only the efficiency of the local community, but those who become 
 stunted physically and morally by those conditions, drift toward the 
 slums of the large centers of population, — become a part of the great 
 
NEED OF A COMPREHENSIVE SOCIAL SURVEY 7 
 
 army of periodically dependent or unemployed, or become wards of the 
 state or county in some of its penal or charitable institutions. 
 
 Obviously there is need for social surveys, not only in our large cities, 
 but in middle sized cities and small towns as well, for they are the foun- 
 tain-heads which are sending a steady stream of people to the great 
 centers of population. This stream may include some of the " best 
 blood" of the small community, as is generally stated, — but it also con- 
 tains the worst. That class which is unable to secure a foothold in the 
 country and small town, drifts about from place to place, and finally 
 lands in the slums of the great city. However, in order to do really 
 constructive work, — to secure the best results from the various institu- 
 tions already at work in the community, — to lay the foundation which will 
 serve as the basis for constructive civic development for years to come, it 
 is necessary to make a comprehensive social survey of the community 
 in which we wish to work. We must have a knowledge of the political 
 and industrial situation, of public and private educational, religious and 
 recreational institutions, — in short, to do anything of lasting value, we 
 must know all the general social conditions and activities as a whole. 
 
CLASSIFICATION OF SOCIAL SURVEYS 
 
 In order to make a study of the methods which have been suggested, 
 or which have been used in making a social survey of a community, it 
 is desirable to have some basis for classification. It is difficult to make 
 such a classification with any degree of accuracy not only because of the 
 great number of surveys which have been made, but because of the great 
 variety of schedules used. However, there are some distinctive features 
 which make it possible to arrange the more important surveys into 
 three distinct groups. 
 
 I. The investigations dealing with or relating to some particular 
 phase of community life, such as are usually carried on by charity or- 
 ganizations, housing associations, church federations, vice commissions, 
 and in making sanitary and food surveys. In this class no comprehen- 
 sive schedules are followed. The organization making the survey stands 
 for the solution of some particular problem which is either becoming a 
 menace to the community, or concerning which public sentiment has 
 been greatly aroused. While the surveys following a schedule of the 
 first class may make a careful and detailed study of the particular 
 activities and conditions investigated, the lack of information concerning 
 the interrelated activities and the indirectly conditioning phenomena 
 serves as a decided check upon the constructive effort resulting from the 
 survey. The survey is necessarily not only of less scientific value than 
 if more comprehensive, — but as a rule it does not afford sufficient back- 
 ground for the successful handling of that specific problem. 
 
 II. In the second group we have placed those surveys which consist 
 principally of historical and broadly descriptive monographs of communi- 
 ties. The schedules followed in this group are much more comprehensive 
 than those of the first group, but the viewpoint is largely historical and the 
 field is covered from that angle, hence they do not conform strictly to the 
 term "social survey" as used in this discussion. 
 
 III. The studies and schedules in the third group are of a more or 
 less comprehensive nature, and make an intensive study of several 
 interrelated conditions and activities of the community and of their 
 bearing upon each other, having the definite purpose of bringing about 
 needed changes and increasing the general efficiency of the community. 
 
 Some of the Leading studies of each group are included here, in order 
 to show the chanu Ur of the most typical surveys which have been made, 
 and to indicate the general trend they have taken. It is further hoped 
 
CLASSIFICATION OF SOCIAL SURVEYS 9 
 
 that the need of adopting some uniform, comprehensive scheme of classi- 
 fying social phenomena may be shown, by this variegated collection of 
 schedules. It will be readily admitted that if some uniform basis of class- 
 ification were adopted the scientific value of these numerous investiga- 
 tions would more than outweigh the results obtained by them under pres- 
 ent conditions. 
 
 I. We will first consider a few of the investigations in the first 
 group which are limited as a rule to a study of an individual problem 
 treated very largely as a unit by itself. They will serve to show the var- 
 ious types of investigations that are being carried on, and the difficulty 
 that would attend any attempt to compare the results of investigations 
 of similar subjects because of the lack of uniformity among them. 
 
 Some very excellent surveys have been made of Rural Communities 
 dealing with the situation from various points of view. A typical survey 
 from the Economic viewpoint is the Survey of a Rural Township in 
 Southern Minnesota by C. W. Thompson and G. P. Warber. It touches 
 many of the interrelated economic and social problems as they present 
 themselves to the rural population. Likewise a Community Survey by 
 A. W. Nolan of the University of Illinois, suggests a study of Rural and 
 Village Communities along three lines, 1. Farm and Home; 2. Commun- 
 ity Life; 3. Organization. 
 
 In Germany the Minister of the Interior, and the " Verein fur Social- 
 politik" made some rural investigations, which were likewise along 
 economic lines, without much attention being given to any other phases 
 of life, although there was some attempt to show the interdependence 
 of the economic and all other social activities of rural communities. 1 
 
 The Bureau of Municipal Research of New York City has carried on 
 many very successful administrative surveys in cities of varying sizes. 
 The organization was founded and financed by public spirited citizens 
 of New York City and was started primarily to examine into the efficiency 
 and make an analysis of the administration of their own city. The 
 success of the Bureau from its very beginning, resulted in its experts 
 being called upon by cities in other parts of the country to work in 
 connection with local bodies, among them being Atlanta, Georgia; 
 Milwaukee, Wisconsin; Portland, Oregon; Toronto, Ontario; and many 
 smaller cities. The lines of inquiry especially emphasized are, 1. Or- 
 ganization, 2. Financial methods, 3. Assessment, collection of taxes, 
 accounting, etc., and 4. Highways, sewers, buildings and other utilities. 2 
 
 1 Schriflen des Verein fur Social politik, XXII, 1883. 
 
 1 See Bulletin No. 43, May 16, 1914, New York Bureau of Municipal Research. 
 
10 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 For several vears the Board of Public Welfare of Kansas City, Mo., 
 has been carrying on a series of systematic investigations. At first 
 these investigations did not fit into any definite scheme to be followed 
 for a period of years. The personnel of the Board, however, was com- 
 posed of men who kept in close touch with the city's conditions, — and 
 accordingly investigated problems apparently most needing attention. 
 In 1913 this Bureau published a Social Prospectus of Kansas City, 
 drawing its conclusion in part from the reports given from time to time 
 of its investigations, and in part from special studies made especially 
 for this Prospectus. The work of the past years had revealed the fact 
 that some basis for work extending over a period of years must be reached. 
 Hence, this survey was prepared, not to be presented as a thorough 
 study, "but as a mere preface to a vast amount of research work necessary 
 to the comprehensive understanding of a field so extensive and impor- 
 tant as this." This city was divided into districts based upon their 
 special characteristics, and a general statement made concerning popula- 
 tion, nationalities, industrial agencies, social forces (meaning thereby, 
 churches, clubs, charities, social settlements, schools, etc.), educational 
 advantages, recreative, charitable, and corrective agencies. 
 
 The Civic League of St. Louis has made housing investigations cover- 
 ing the interior and exterior condition of houses. Their investigation 
 also included general facts in regard to the community, but no complete 
 survey of the communities investigated was made. In connection with the 
 civic league, the School of Social Economy of Washington University, 
 carried on investigations of Amusements, Recreation, Dependents, Delin- 
 quents, Infant Mortality, Child Life, Milk, Tuberculosis, Accident and 
 Relief, Economic Family Conditions. No definite comprehensive system 
 was followed in these special investigations. The problem decided upon 
 was one apparently most needing investigation. 
 
 Investigations have been carried on in about 100 cities by the Bureau 
 of Social Service of the Board of Home Missions of the Presbyterian 
 Church in the United States of America. Their work consists of a study of 
 social conditions, with recommendations how to meet those conditions; 
 although the greatest emphasis is placed upon the study of the movements 
 of the population for the purpose of determining the characters of church 
 enterprise required to meet the future as well as the present. Their 
 survey blanks and charts were used in connection with the investigations 
 carried on by the "Men and Religion Forward Movement." 
 
 Classes in the University of Missouri, under the direction of W. T. 
 Cross (General Secretary of the National Conference of Charities and 
 
CLASSIFICATION OF SOCIAL SURVEYS 11 
 
 Correction), used the following outline for a social survey of a city of 
 about 10,000 inhabitants. 1. The people (genesis and racial makeup, 
 social institutions, social stratifications.) 2. The static physical condi- 
 tions of existence (environmental distribution of wealth and ownershipof 
 property, housing, pure air, water and food, health and sanitation, physical 
 setting of the population otherwise.) 3. Dynamic conditions of existence. 
 (A. Work — hours and wages, control of labor, accidents, factory in- 
 spection, labor of women and children, cost of living; B. Culture — 
 schools, industrial education, truancy, playgrounds, organization of 
 children, libraries, other cultural institutions, relations of religious 
 activities.) 4. Social control. (Laws and ordinances.) 
 
 During the early part of the present year (1914), Mr. Cross, assisted 
 by Mr. R. H. Leavell, made a rapid survey of Springfield, Missouri, 
 the object of which was, "to point out the principal community needs; 
 to indicate practical methods for meeting these needs; to make clear the 
 existence within the city of abundant resources for the reorganization 
 and development of agencies of betterment." The survey was greatly 
 limited by time and necessary funds. Hence, no attempt was made to 
 make any detailed investigations, but rather, to outline a constructive 
 policy to be followed for a period of years. 
 
 One of a series of studies undertaken by the different departments 
 of the Civic Federation of New Haven, was an Industrial Survey of a 
 New Haven District made in 1912-13. The purpose of this study was to 
 secure reliable data in regard to 1. Earnings, 2. Expenditures, and 3. 
 Living Conditions of a group of working people of New Haven. While 
 the general nature of the investigation was similar to the "Stock Yards" 
 budget study, it was much more rapid and less detailed and accurate. 
 
 Some of the ablest investigations carried on in this country are those 
 conducted by Hull House and by the School of Civics and Philanthrophy 
 of Chicago, who cooperate in much of their work in this line, and who also 
 do work in connection with the United Charities and other welfare 
 agencies of the city. The leaders of this work keep in close touch with 
 the life of the communities studied, and hence the investigations gener- 
 ally apply to some problem which is of vital importance to the district. 
 If an investigation is made of a community which is less familiar, no 
 special inquiry is made without first having as comprehensive knowledge 
 as possible of the general background. First, a study is made in the 
 library, of all similar inquiries which have been made, as well as the 
 methods followed in the investigation of similar subjects. Next, the 
 
12 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 field is visited and through interviews with individuals and by visiting 
 institutions and neighborhoods, an idea of the problem as it presents 
 itself is secured. This work preliminary to the study of a specific problem 
 is a recognition of the need of a general survey of a community before 
 making any special investigation. 
 
 A special type of Survey, designated as "Sanitary Surveys," but 
 covering the general situation, is being made by Mrs. Caroline Bartlett 
 Crane. Her work first attracted attention when she had charge of a 
 Unitarian Church in Kalamazoo, Michigan. She has made investigations 
 and submitted reports of over fifty cities large and small, in various 
 parts of the United States. These surveys are not very detailed or scien- 
 tific, but are rapid investigations of certain features of the community's 
 activities which bear directly upon the city's health. They often serve 
 as an "eye-opener" and pave the way for a more detailed and more 
 comprehensive study. 
 
 In 1910, the board of health of Springfield, Illinois, under the super- 
 vision of Dr. George T. Palmer, made what was perhaps the best as well 
 as one of the first extensive sanitary surveys carried out. Inspectors 
 from the Department visited every house in the city with instructions 
 to gather the following data: 1. The location of each shallow well. 
 2. The location of each privy vault or cess-pool. 3. The number of 
 sewer and water connections for sanitary purposes. 4. The general 
 sanitary and physical condition of each house. From the data thus 
 obtained, there was prepared a sanitary map of Springfield, ten by twelve 
 feel in size and showing every house by number, every vacant lot and 
 piece of business property and all schools, churches, and public institu- 
 tions. The map also showed all wells, vaults, watermains, and sewers. 
 There was also an investigation of milk and restaurants. Following the 
 example of Springfield, several other cities have undertaken similar 
 sanitary surveys. Aside from the great local value attached to this 
 survey was the general effect it has had upon the question of surveys. 
 The making of a survey was looked upon as a gigantic undertaking 
 as was the case in Pittsburgh and London, — which could not be attempted 
 without a large working force, and great resources. Springfield showed 
 what could be done at a minimum cost, and largely with the working 
 force of departments already organized. The work there has, however, 
 not ceased with it- firsl success. It is realized that t His. is merely a 
 beginning. A comprehensive survey is in progress in Springfield at this 
 time. 
 
CLASSIFICATION OF SOCIAL SURVEYS 13 
 
 An investigation of wages and family budgets was carried on in the 
 Chicago Stockyards District (April 1, 1909-April 1, 1910), by John 
 C. Kennedy and others, under the direction of the Board of the Univer- 
 sity of Chicago Settlement. In order to discover the least wages that 
 will support a family in that district, the family budgets of 184 typical 
 stockyards families were gathered. First, a schedule was prepared 
 covering all the points about which information was desired. This 
 included, I. Composition of Family, covering age, sex and nationality 
 of the different members; II. Income; III. Expenditure for, a. food, 
 b. clothing, c. carfare, d. education and reading, e. laundry and repairs, 
 f. furniture and furnishings, g. fuel and light, h. insurance, i. health, 
 j. dues, taxes, etc., k. recreation, 1. miscellaneous; and IV. Hous- 
 ing conditions. Next, a large number of families were persuaded 
 to keep systematic accounts of their incomes and expenditures. About 
 400 families were persuaded to keep accounts, of which 272 kept their 
 accounts long enough to be made use of by the investigators. Of the 
 272,-88 were rejected as being unsatisfactory, leaving 184 families from 
 which the statistics were tabulated. The period covered by these 
 accounts ranged from 9 weeks to a year. Over 75 per cent of all were 
 kept for a period of six months or more. 
 
 While the survey was limited to a comparatively narrow field, the 
 investigation was very intensive, and carefully conducted. Every possi- 
 ble attempt was made to correct inaccuracies, and to reduce budgets 
 taken at different seasons of the year to a unit basis. This survey is one 
 of the best of its kind ever attempted, although according to statements 
 of the principal investigators, it is neither as intensive in regard to the 
 qualities of the commodities used, nor as extensive as would have been 
 preferred if more time and greater resources had been at their disposal. 
 However, for all practical purposes the budgets represent the actual con- 
 ditions prevailing in the stockyards district, as far as income and ex- 
 penditures are concerned. 
 
 The Lawrence Massachusetts Survey. In 1852 Daniel A. White gave 
 to trustees a considerable tract of land, the proceeds of which should go 
 toward providing a course of lyceum lectures, and " to promote the moral, 
 intellectual and Christian advancement and instruction of the inhabi- 
 tants of the town of Lawrence." In 1910-11 the trustees secured the 
 assistance of Mr. F. H. McLean, then of the Charity Department of the 
 Russell Sage Foundation, to plan a survey of Lawrence. Robert E. Todd 
 was secured to conduct the examination of housing conditions and Pro- 
 
14 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 fessor Sanborn conducted the Health Examination. The funds for the 
 work were limited, hence it was decided to make only a partial survey, and 
 do that thoroughly. Housing and Health were thought to be the phases 
 most directly affecting all of the inhabitants, and hence these together 
 with a study of topography and physical characteristics were made the 
 basis for the study. These matters were thoroughly investigated. 
 The milk supply of Lawrence was traced to its very sources on the farms 
 throughout New England. Suggestions were made regarding the dis- 
 posal of garbage, fire-protection, building regulations, control of milk 
 supply, and duties of the Board of Health and the Building Inspectors, 
 and an organization was formed to carry on the propaganda for the 
 attacking of those evils which the investigation revealed. One of the 
 significant features of this survey is that it is not proposed that this shall 
 be the end of investigations, but that this is merely the beginning of a 
 comprehensive study of Lawrence " all along the line of living and 
 economic conditions." 
 
 II. The Studies mentioned in this group bear a somewhat close 
 relationship to Social Surveys. While they do not make as intensive 
 investigations of conditions as those mentioned in the first group, they 
 note the condition and development of several individual and related 
 subjects and note their effect upon the community. 
 
 The most extensive in this division is Booth's Life and Labors of the 
 People of London, a work which required seventeen years for its prepara- 
 tion. The subject matter is divided into four Volumes dealing with 
 poverty, five with education and seven with the religion of the people of 
 London. The work is summarized in a statement of Mr. Booth's in 
 which he says, "My object has been to attempt to show the numerical 
 relation in which poverty, misery, and depravity bear to regular earn- 
 ings and comparative comfort, and to describe the general condition 
 under which each class lives." In this work he describes the people, 
 "as they exist in London under the influence of education, religion and 
 administration." This work has done much to inspire others to under- 
 take the work of making Social Surveys, and it is perhaps to this fact, as 
 well as to its value as a great collection of data concerning the living 
 conditions of the people of London, that it owes its value. Its practical 
 worth, though not its scientific value, has diminished by the length of time 
 spent in its preparation. Any period of time as long as that required 
 in the preparation of this survey is certain to bring great changes in the 
 living conditions of a city. 
 
CLASSIFICATION OF SOCIAL SURVEYS 15 
 
 B. Seebohm Roantree, made several detailed investigations of pov- 
 erty in cities of Southern England, along lines similar to Booth's study 
 of London. 
 
 Culture Agencies of a Typical Manufacturing Group, by John M. 
 Gillette is an interesting monograph of an industrial community in South 
 Chicago. It is especially of value in that it touches practically every 
 phase of social facts which an investigation might bring to light and 
 regards it in the light of its relation to its ethical effect upon the 
 community. 
 
 Warren H. Wilson has prepared an historical monograph of Quaker 
 Hill. It is divided into three general divisions, viz., The Early Quaker 
 Community, The Period of Transition, and The Mixed Community, 
 after it had received and assimilated outsiders. In general the treatment 
 of the subject corresponds with Professor Giddings' Classification in his 
 Principles of Sociology, e. g., 1. Social Population, 2. The Social Mind, 
 3. Social Organization, 4. The Social Welfare. 
 
 Mr. Wilson has likewise prepared a pamphlet containing twelve 
 studies of community problems for the use of any organizations that 
 wished to become better acquainted with the social conditions of the 
 community in which it existed. The problem studies taken up are, 
 I. Population, II. Economic Problems, III. Poverty, IV. Class Distinc- 
 tion, V. Labor Unions and Labor Problems, VI. Recreation, VII. The 
 Saloons, VIII. The Day of Rest, IX. The Young People, X. Immigration, 
 XL Christian Leadership in Public Life, and XII. The Community 
 Church. This Schedule has been prepared chiefly for the use of churches 
 and religious organizations, and is perhaps the best along the line in 
 which it has been developed. 
 
 In the study of Manhattenville (Columbia studies in History, Eco- 
 nomics, and Public Law, Vol. 35), H. B. Woolston treats the community, 
 1st, in relation to its Historical Development, 2nd, An analysis of its Pop- 
 ulation, 3rd, The Social Temper, 4th, Economic Conditions, 5th, Vital 
 Tendencies, 6th, Movements of the Population. 
 
 The Study of an American Town, by J. M.Williams, the Sociology of a 
 New York City Block, by T. J. Jones, and A Hoosier Village, by N. I. Sims 
 are historical monographs of communities developed very largely accord- 
 ing to the classification of a community made by Professor Giddings. 
 While their treatment of the subject matter differs somewhat in its details 
 the general form adopted is more definitely a study of the historical 
 development of the social activities and conditions of the community, 
 than a survey of the present status. 
 
16 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 A monograph of a somewhat different character is the Social Problem 
 at the Chicago Stockyards, prepared by Charles J. Bushnell, 1902. 
 This study gives a detailed statement of some of the social conditions of 
 the Stockyard community, as compared with the wealthier Hyde Park 
 community. Some of the most evident weaknesses of the industrial 
 situation are pointed out, and a course of action suggested for the ameli- 
 oration of the unsettled social and industrial conditions prevalent. 
 
 III. In this group we have included two general types of material; 
 a. schedules and studies descriptive of the methods of social surveys; 
 and b. reports of survey findings. There are many excellent studies 
 which are not mentioned, but the best as well as the most typical are 
 here. Many of these surveys have resulted as an outgrowth of some 
 special study, from which it was learned that a comprehensive study of 
 the community was needed if permanent results were to be obtained. 
 a. Schedules. 
 
 In order that a knowledge of the social conditions of municipalities 
 may be made known to the people who constitute them, and to help 
 obviate unnecessary overlapping of the activities of the various municipal 
 and private ameliorative agencies of English towns, the British Institute 
 of Social Service has proposed the following classification of the fields of 
 inquiry, which shall include not only the problems; but likewise the agen- 
 cies doing ameliorative work: 1. Health; 2. Sickness, Physical and Men- 
 tal Defects; 3. Housing; 4. Education; 5. Mental, Moral and Physical 
 Improvement; 6. Thrift; 7. Relief of Poverty and Unemployment; 
 8. Correction and Detention. 
 
 It is interesting to note that this movement had its origin in the 
 realization that in order to cope successfully with any problems, as 
 thorough a knowledge as possible must be had of related problems and a 
 cooperation of the agencies doing ameliorative work. "If the problems 
 of poverty are to find a scientific solution it seems essential that some 
 estimate shall be made of the assets in order that a comprehensive view 
 may be had of the forces dealing by various means with the necessities 
 of the situation." 3 Cheltenham, Aldham, Birmingham, Bolton, Halifax, 
 Haddenfield, Liverpool, Manchester and Reading have very comprehen- 
 sive directories of information in regard to local charities and welfare 
 agencies. 
 
 In 1911, the Cities Committee of the Sociological Society of London, 
 made the following suggestion: "Before proceeding to the preparation of 
 
 » Progress, October, 1907. 
 
CLASSIFICATION OF SOCIAL SURVEYS 17 
 
 a town-planning scheme, it is desirable to institute a preliminary local 
 survey to include the collection and public exhibition of maps, plans, 
 models, drawings, documents, statistics, etc., illustrative of the situation, 
 historic development, communications, industry and commerce, popula- 
 tion, town conditions and requirements, etc." It was held that while 
 a "passable town-planning scheme," might be obtained without a pre- 
 liminary survey and exhibition, — the best possible cannot be expected. 
 The following general outline was suggested as a basis for surveys which 
 would admit of adaptation and extension to the individuality and special 
 conditions of each town and city: 1. Situation, topography and natural 
 advantages; 2. Means of communication, land and water; 3. Industries, 
 manufacturies and commerce; 4. Population; 5. Town conditions; 
 
 6. Town-planning. 
 
 A pamphlet which is announced as being "a practical scheme for the 
 investigation of the structure, problems and possibilities of rural, village 
 and other communities from the point of view of the church and its work" 
 has been prepared by George Frederich Wells in which the idea is em- 
 phasized that to secure permanent results the investigation must be 
 scientific and must be more or less uniform in the various communities 
 investigated. The scheme indicates that if the correct measure of any 
 particular activity in a community is to be obtained, knowledge must be 
 had of associated activities. The studies suggested are: 1. Community 
 and its population; 2. Economic and Industrial Conditions; 3. Civic life 
 and community organizations; 4. Recreation; 5. Education; 6. Religion 
 and church life; 7. The pastor; 8. Interchurch relations; 9, Evangelism; 
 10. Institutional church work; 11. Federation of Rural Social forces; 
 12. Ultimate social and religious needs. 
 
 A method of analysis for the study of a community has been prepared 
 by Professor Giddings, which has served as the basis for the preparing of 
 several monographs elsewhere mentioned. The analysis is based upon 
 the following outline: 1. The Place; 2. The Group, historical; 3. The 
 Group, physical; 4. The Group, psychological; 5. The ways of satisfying 
 desire or want; 6. The Group struggle for existence and advantage; 
 
 7. Social pressure; 8. Social self-control; 9. Organization of the Group; 
 10. Results of Group formation and Group struggle. 
 
 Le Play in his Workingmen in Europe, (Ouviers Europeans), gives a 
 method of observation in which the elements of observation are analyzed 
 with mathematical precision. He built up a system which became very 
 widely known as the Le Play Method, and was the basis for a large 
 
 /t 
 
18 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 number of monographs. It does not appear, however, that the 
 monographs published since the death of Le Play have enlarged the 
 field of Social Science. His followers did not seem to have the power 
 to the degree possessed by Le Play of passing from observation of specific 
 cases to a general view. The method furnished by him treated almost 
 entirely with the family. It did not grasp Society as a whole. M. de 
 Tourville noting the value as well as the imperfection of the Le Play 
 Method, attempted to coordinate the interrelated social facts and 
 develop a means of analysis which would serve as a guide for further 
 studies. He divides social facts into five classes, which he based 
 around the family as follows: 1. Society at Home; 2. Society Abroad; 
 3. Action of Foreign Society Upon It; 4. History of Society; 5. Rank 
 of Society. 
 
 M. Cheysson (Vol. V. Am. Jour. Soc.) has prepared a schedule to be 
 used in writing a monograph dealing with the history of a community 
 and its present economic, religious and ethical conditions in a manner 
 similar to Le Play's treatment of the family. He divides it into two main 
 divisions: 1. An Historical Introduction, treating of the demographic, 
 the economic and the social history of the community: 2. Analysis of 
 the present conditions of the community, as affected by its population, 
 industries, economic conditions, religion and ethics. 
 
 In An Introduction to the Study of Society, by Small and Vincent, 
 there is suggested a method for the study of a community which is the 
 one followed in The Study of Culture Agencies of a Typical Industrial 
 Group, by John M. Gillete, and An Analysis of a Western Town, by 
 Arthur N. Dunn. It is one of the most comprehensive outlines published, 
 and includes the following: 1. Natural conditions; 2. Artificial Arrange- 
 ments; 3. Population; 4. Distribution; 5. Grouping; 6. Institutions; 
 7. Municipal Government; 8. Instability of Sociability; 9. Ecclesias- 
 tical Institutions; 10. Educational Institutions; 11. Esthetic Institution; 
 12. Entertainments and Amusements; 13. Local Communication; 14. 
 Authorities; 15. Psychical Conditions; 16. Punitive, Reformative and 
 Ameliorative Institutions; 17. Abnormal Conditions; 18. Institutions 
 of Vice and Crime. 
 
 A "Conspectus of the Social Situation, as given in the present state 
 of achievement and in unsolved technical problems," presented by 
 Professor Albion W. Small in his General Sociology, correlates the various 
 phases of social achievement and emphasizes the fact that no considera- 
 tions of any social situation is true which does not give due weight to 
 
CLASSIFICATION OF SOCIAL SURVEYS 19 
 
 all the interrelated factors. It divides the field into the following 
 grand divisions: I. Achievement in Promoting Health; II. Achievement 
 in Producing Wealth; III. Achievement in Harmonizing Human Rela- 
 tions; IV. Achievement in Discovery and Spread of Knowledge; V. 
 Achievement in the Fine Arts; VI. Achievement in Religion. 
 
 In 1894, Professor C. R. Henderson prepared a pamphlet entitled, 
 Catechism for Social Observation which contains an analysis published for 
 the comprehensive study of a community. It contains suggestions for 
 an analytical study of three groups: 1. The Individual Family; 2. A 
 Village; 3. Large Towns and City. The general topics are — a. The 
 Environment; b. Social Relations of the Community, Natural and Con- 
 tractual; c. The Arrangements and Activities of the Community as a 
 whole. The subdivisions of this general classification are similar to 
 those suggested in the appendix to Professor Henderson's later publica- 
 tion, Social Elements, viz.: 1. Physical Environment; 2. Source of the 
 Population; 3. The Buildings of the Town (past and present); 4. The 
 Works of the Town for the Wealth, Convenience and Comfort; 5. In- 
 dustries and Commerical Organizations; 6. Institutions of Culture, 
 Regulative Agencies, Churches; 7. Philanthropic Agencies; 8. Institu- 
 tions of Vice and Crime, Punishment and Correction; 9. Institutions of 
 Positive Progress. 
 
 Knowing One's Own Community, a valuable publication by Carol 
 Aronovici contains besides a schedule for making a survey, many 
 valuable suggestions for carrying it into practice. The schedule takes 
 up: 1. The Character of the Community; II. Geographic Situation; 
 III. Government; IV. Industries; V. Health, (dealing with mortality 
 and morbidity, and housing); VI. Education; VII. Welfare Agencies; 
 VIII. Poverty; IX. Crime. Dr. Aronovici suggests that, as far as possi- 
 ble, every phase of community life should be covered by a survey, but if 
 limitations of time or working force necessitates the selection of specific 
 problems, these lines of investigation should be carefully determined before 
 beginning the investigation, or as summarized by Dr. Aronovici: "Stated 
 in brief, a survey must follow lines which are of a practical character and 
 must have in view tangible improvements which are easily understood 
 and most generally desired." 
 
 Similar to the above mentioned publication, is the pamphlet, en- 
 titled What Social Workers Should Know About Their Own Communi- 
 ties, by Miss Margaret Byington, Associate Field Secretary of the Charity 
 Organization Department of the Russell Sage Foundation. While it 
 
20 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 is not a definite plan for a social survey, it suggests very comprehensively 
 the facts which should be known for the purpose of doing effective charity 
 or philanthropic work. The different lines of inquiry are treated from 
 a legislative and practical point of view. The order in which they are 
 taken up are: I. The City; II. Community Problems (A. Housing, 
 B. Health, C. Industrial Problems, D. The Immigrant, E. Children, 
 1. Child Labor, 2. Schools, 3. Clubs, 4. Amusements, 5. Juvenile de- 
 linquents, F. The Courts, Drunkenness, Non-Support and Desertion); 
 III. The Agencies for the Relief and for the Improvement of Social 
 Conditions, A. Agencies not primarily philanthropic, B. Philanthropic 
 Agencies, 1. Public outdoor relief, 2. Care of homeless men; private 
 relief, 3. The organization of charity, child caring, care of the sick, 
 defectives, the aged. 
 
 b. Reports of Survey Findings. 
 
 The rapid influx of Polish people into Buffalo, New York, created a 
 special problem for that city. There grew up within a comparatively 
 short time, a colony of over 80,000 of this particular group of foreigners, 
 compelling Buffalo to recognize them and deal with the conditions 
 attending growth. The Buffalo Survey of its Polish population (1909- 
 1910) is of particular interest since it is the first survey started on the 
 initiative of a city itself. Under the direction of Mr. John Daniels, 
 the following studies were taken up: I. The History of the Polish Popu- 
 lation of Buffalo; II. Their Economic Progress; III. The Industrial 
 Condition of the Masses; IV. Living Conditions; V. Immorality and 
 Crime; VI. The Rising Generation and the School Question; VII. 
 Retarding and Constructive Factors; VIII. Synthesis and Exhibition 
 of Results. 
 
 In the suggestions and exhibits made in bringing the results of the 
 Survey to the public, Industrial and Domestic education was made to 
 stand out as the underlying and central need. After the benefits of this 
 special survey were observed it was decided that as soon as the necessary 
 support could be obtained, a survey of which this was a mere beginning 
 would be extended over the entire city, and the fields of investigation 
 extended to include more of the social activities of Buffalo. 
 
 A Social Survey of Lowell, Massachusetts, by George F. Kenngott 
 is one of the best examples we have of a general study of an industrial 
 community. While it does not cover all of the conditions and social 
 activities of the community in an exhaustive way, their interrelation 
 and general effect upon the activity of the group is shown, and the most 
 
CLASSIFICATION OF SOCIAL SURVEYS 21 
 
 crying needs of the community are brought out by the study of family 
 budgets, and close observation of the activities of the various institutions 
 of the city. The topics considered are The Population, — Housing of 
 Operatives, — Health, — Standard of Living, — Industrial Conditions, — 
 Social Institutions and Recreation. 
 
 In 1912 A Bureau of Economy and Efficiency was established in Mil- 
 waukee to engage in a municipal survey, along the lines of the Pittsburgh 
 Survey, but on a broader scope. This survey was to have two principal 
 sections, first, a study of the social and economic conditions within the 
 city, and second, a study of the economy and efficiency of municipal 
 departments. The Social Survey inquired into the conditions of living 
 in the city. Studies were made of health and sanitary problems, housing 
 conditions, accidents to workmen, standards of living, and kindred sub- 
 jects. The Efficiency Survey inquired into the organization, adminis- 
 tration, accounting, finance, business practice, construction and operation 
 of work performed by the departments of city government, and, worked 
 out economical and efficient business systems for these departments. 
 The Social Survey was not an exhaustive investigation intended to expose 
 conditions or to furnish material for social philosophy, but a means of 
 measuring the efficiency or discovering the inefficiency of city govern- 
 ment. The investigation of housing conditions for example, was simply 
 an investigation of the extent to which the existing laws were enforced. 
 If they were not enforced, the Efficiency Survey must determine why they 
 were not enforced and how they could be enforced. The social investi- 
 gation discovered actual conditions; the efficiency 4 investigation 
 determined means and measures for dealing with them. 
 
 A quick diagnosis of the Civic conditions of Scranton, Pennsylvania 
 was made in 1913 by the Century Club of Scranton under the direction 
 and supervision of the Department of Surveys and Exhibits of the Rus- 
 sell Sage Foundation. The purpose of this study was to indicate some 
 of the problems to be considered in a future study. Reports of various 
 subjects were made, which consisted of a general statement of the situa- 
 tion and an enumeration of the matters which should be studied in more 
 detail. The topics covered in this manner were: I. Community Assets; 
 II. Education; III. Public Health; IV. Civic Improvement; V. Better- 
 ment Agencies; VI. Recreation; VII. Taxation and Public Finances; 
 VIII. Working Conditions and Relations; IX. Delinquency. 
 
 The Department of Survey and Exhibits of the Russell Sage Founda- 
 
 4 See New York Bureau of Municipal Research. 
 
22 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 tion has for sometime past engaged in two kinds of field work in making 
 surveys. The one has been a quick diagnosis of local conditions showing 
 the need of a longer and more intensive survey. Enough local facts are 
 gathered to indicate the main lines of investigation which should be taken 
 up later. The other type of survey has been to gather enough local facts 
 to enable the making of a program to extend over several years; it is 
 endeavored to enlist public support in the carrying out of the program; 
 and to clearly point out the problems which need thorough or continuous 
 investigation. 
 
 Possibly the most widely known of all American surveys is the Pitts- 
 burgh Survey (financed by the Russell Sage Foundation), which, to use 
 the words of one of the workers, "Was a rapid fire investigation at close 
 range." Professor Daniels in the Report of Conference of Charities and 
 Corrections, 1910, says, "Of Social Surveys, the Pittsburgh Survey must 
 be regarded as the powerful prototype and forerunner. But those who 
 directed the Pittsburgh Survey, would be the first to urge that the com- 
 prehensive and complete survey is yet to be made. In Pittsburgh it was 
 deemed wise to sacrifice comprehensiveness to concentrated power of 
 attack upon certain excrescences and enormities in the Pittsburgh situa- 
 tion." The Pittsburgh Survey confined itself chiefly to a study of the 
 industries and living conditions of the working people. The phases 
 dealt with were the people, housing, water and typhoid, labor situation, 
 school system, civic improvement, cost of living, health, industrial acci- 
 dents, social institutions and children. 
 
 The feature of the Pittsburgh Survey which has given it such wide 
 recognition has not been the magnitude of the task as much as the fact 
 that results were obtained by its disclosure of the need of improving 
 conditions investigated. It was shown that the problems need not be 
 considered insurmountable simply because the situation was of enormous 
 proportions. 
 
 In PHI a survey was made of Birmingham, Alabama, under the 
 direction of Shelby M. Harrison. This city is located in the coal and iron 
 district of Alabama, and has grown up rapidly without any planning or 
 direction. Experts were secured to make studies of special problems 
 such as Civic Conditions, Sanitation, Industrial Problems and Children. 
 This study was also extended to smaller communities in the neighborhood 
 of Birmingham, reports of which were published in The Survey for 1912. 
 
 The Syracuse Social Survey conducted by Shelby M. Harrison, like 
 all of the investigations carried on under his direction, constitutes the 
 
CLASSIFICATION OF SOCIAL SURVEYS 23 
 
 most advanced form of social survey. First a quick study of the city was 
 made. Then under the direction of specialists in the respective fields, 
 the following problems were taken up: I. Health and its Conservation; 
 II. Housing of the Unskilled Work People and the Poor; III. Betterment 
 Agencies; IV. Foreign Population; V. Juvenile Delinquency; VI. 
 Civic Improvement; VII. Labor Conditions; VIII. Sewage Situation. 
 The special lines of inquiry taken up depending of course upon 
 the recommendations made from the preliminary survey of the city. 
 This is generally conceded to be the most practical method of making 
 special investigations. 
 
 The Newburgh Survey which consists of reports of limited investiga- 
 tions (1912) of social conditions in Newburgh, New York, is one of the 
 best as well as most typical of the investigations carried on by the Depart- 
 ment of Surveys and Exhibits of the Russell Sage Foundation. Special- 
 ists in the various lines made investigations and prepared reports upon 
 phases of the community's, social conditions and activities and suggested 
 possible changes and improvements. The various fields investigated 
 were: I. Public Schools; II. Health; III. Housing; IV. Delinquency; 
 V. Library; VI. Recreation; VII. Charities; VIII. Industrial Conditions; 
 LX. Municipal Administration. While these various problems were 
 investigated under the direction of experts and specialists from the 
 Department of Surveys and Exhibits, Russell Sage Foundation, much 
 valuable aid was received from volunteer organizations and individuals, 
 in making the investigations and in preparing the Exhibits showing the 
 gist of the Survey. The subjects taken up in the survey were decided 
 upon becaus'e of special interest in them or because there was evident 
 need for a change in conditions. The reports of the survey consist of the 
 facts and recommendations of the investigators. Action based upon 
 these reports was left to local initiative. 
 
 Only the barest outline has been given of the leading schedules 
 which have been suggested and the methods used by individuals 
 and by organizations in making these investigations and surveys. It is 
 hoped, however, that this has been sufficient to show, 1st, the need of a 
 comprehensive scheme to be the basis of all investigations, and of social 
 or civic undertakings for a period of years; and 2nd, that it has empha- 
 sized the need of a more uniform classification of phenomena if the data 
 collected in these numerous investigations is to have any permanent 
 value. 
 
 The scope of a social survey will depend upon the purpose for which the 
 survey is carried on and will be largely influenced by the amount of moral 
 
24 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 and financial backing, — as well as the specific problem which is the main 
 object for starting the investigation. There may often be uncontrollable 
 factors which interfere with the carrying out of a comprehensive survey, 
 and which may necessitate the concentration of all efforts upon some 
 specific problem. Indeed, this is most probably the best method to 
 follow, where the community to be investigated is a very large city. 
 However, if such surveys are to be of any value beyond the immediate 
 communities in which they are made, they should fit into some larger 
 scheme of classification in order that the results obtained by one investi- 
 gation may be compared with the results of similar investigations carried 
 on in other communities. 
 
 The necessity of a uniform system of municipal accounting has been 
 recognized for a long time. In 1907 the United States Bureau of the 
 Census began an intensive study of this question, although many private 
 commercial organizations and Public Utility Associations had done much 
 toward standardization of certain branches of municipal accounting many 
 years before this. The United States Bureau of the Census has not de- 
 vised any system of accounting, but it has arranged a uniform system for 
 the classification of receipts and payments set forth by schedules which are 
 being used by an ever-increasing number of cities in the United States 
 and Canada, as the basis for their accounting system. Since the range 
 of activities and conditions covered in a survey is so extensive, the need of 
 a uniform system of making social surveys becomes even more apparent 
 than in the matter of municipal accounting, and the greatest efficiency 
 cannot be obtained unless the entire field is mapped out, and the correla- 
 tion of the different phases noted, by means of a comprehensive schedule. 
 Even though only a partial survey is made, it should at least cover all 
 phases of the activity which is being investigated, the details should be 
 properly grouped and made to fit into the general scheme of a comprehen- 
 sive social survey. 
 
 While no one of the schedules as mentioned above includes a study 
 of all phases of community life, yet there is embodied in these various 
 schedules practically everything which would be taken up in a complete 
 community survey, although the different subdivisions are not grouped 
 under the same general headings. In the classification proposed below 
 we have attempted to include all the conditions and activities which should 
 be considered in making a complete survey. These are arrayed under 
 eight general divisions: 
 
CLASSIFICATION OF SOCIAL SURVEYS 25 
 
 A. Introduction. 
 
 B. Natural Physical Conditions. 
 
 C. Population: 
 
 I. Density and Distribution of Population. 
 II. Nationality. 
 III. Domestic Life. 
 IV. Vital Statistics. 
 
 D. Social Conditions and Activities, Relating to the Health, Conven- 
 ience and Comfort of the Community: 
 
 I. Housing. 
 II. Public Utilities. 
 III. Diseases and Health Measures. 
 
 E. Wealth and Industry. 
 
 I. Distribution of Wealth. 
 II. Industrial Activities. 
 
 a. Study of Individual Industries. 
 III. Transportation and storage. 
 
 F. Group Relationship. 
 
 I. Political: 
 
 a. General Situation. 
 
 b. Organization. 
 
 c. Taxes. 
 
 d. Legislative Restrictions and Regulations. 
 
 e. Courts. 
 
 II. Ameliorative, Reformatory and Punitive. 
 
 a. Child Care. 
 
 b. Charities. 
 
 c. Outdoor Relief. 
 
 d. Homeless men. 
 
 e. Defectives. 
 
 f. Other agencies. 
 
 g. Juvenile Delinquents, 
 h. Adult Crime. 
 
 III. Recreation and Amusements. 
 
 a. General Situation. 
 
 b. Playgrounds. 
 
 c. Athletics. 
 
 d. Dance Halls and Theatres. 
 
 e. Clubs. 
 
26 SOCIAL SURVEYS OF A URBAN COMMUNITIES 
 
 f. Saloons. 
 
 g. Holidays, 
 h. Summary. 
 
 G. Education: 
 
 I. Public Schools: 
 
 a. Scope. 
 
 b. Administration. 
 
 c. Efficiency. 
 II. Private Schools. 
 
 III. Libraries. 
 
 IV. Music and Art. 
 V. The Press. 
 
 VI. Higher Education. 
 H. Religious Activities. 
 
SUGGESTIONS FOR A CITY SURVEY. 
 
 Plan A . 
 
 There are so many conditioning elements which enter into and modify 
 a city survey, that no hard and fast rule can be laid down as the only 
 method of conducting it. However, a general scheme may be suggested 
 which can be developed according to the local situation. 
 
 The very first requisite for making a survey is adequate financial 
 backing, without which it would be folly even to commence the work. 
 Hence, some local organization or responsible individuals must be inter- 
 ested and willing to bear the necessary expense entailed. 
 
 When it is evident that a survey will be properly financed and backed 
 by interested parties, the first thing to be done is to secure some person of 
 broad experience in social work to spend a week or ten days in the com- 
 munity making a quick diagnosis of the local conditions, and at the end 
 of that time to make a report outlining a plan including the phases of 
 community life which require special emphasis, and the method of 
 procedure to be followed. 
 
 When this has been done, the next step will of course largely depend 
 upon the recommendations made by the preliminary survey. Several 
 methods however depending upon the financial resources might be 
 adopted. 
 
 a. After the preliminary investigation by a first class man has been 
 completed, an expert in each line might be commissioned to make a 
 quick diagnosis and report in his particular field, each specialist putting 
 in from two to six weeks at the job. This series of reports would give a 
 basis for a program which could be followed for several years, and 
 would include, 1. Practical measures which could be instituted almost 
 immediately, 2. Steps for manufacturers and others to take voluntarily, 
 which would have to be secured through a campaign of social education, 
 3. Governmental or other changes to be sought, and, 4. Action which 
 would need to be taken on a large scale by the city, and would necessitate 
 the appropriation of special funds. 
 
 b. After the preliminary survey, instead of securing experts to make 
 investigations along their special lines, get one trained investigator with 
 considerable experience who will work for a longer period, in the case of a 
 large city for a year, or a year and a half, and have him cover the entire 
 field of inquiry with the aid of a staff of paid assistants, supplemented by 
 
28 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 volunteers. Of course, if funds are limited, and the organization sup- 
 porting the survey is willing to do most of the work, the expenses may be 
 cut flown to a minimum, although it is best not to depend too much 
 upon volunteers, even after the preliminary investigations by an expert 
 has been made, and the method of procedure adopted. 
 
 One item should be very carefully provided for in making a survey of 
 a community, namely, publicity. Sufficient funds should be reserved 
 to get the findings before the public. Preliminary reports can be brought 
 out consecutively in the newspapers, which should be enlisted in the 
 interest of the movement. Here, however, never-ending discretion 
 must be used, since an untimely or unwise report may do harm which 
 will more than counterbalance the benefits of the survey. Every house- 
 hold in the city should be reached with the chief elements of the findings 
 and the recommendations, in a simple but very graphic manner, while a 
 strong committee to make known and to create enthusiasm in the inves- 
 tigation and in the suggested measures, by means of newspapers, civic 
 exhibits, etc., is indispensable if the highest success is to be reached. 
 But no public reports should be made, except for a definite purpose, 
 until all facts are obtained and tested. 
 
 In giving these suggestions, we have had in mind a rather large 
 community- However, should a survey of a small community be made, 
 the same general course would be followed, except that instead of requir- 
 ing several weeks of an expert's time for making the preliminary survey, 
 perhaps only two or three days would be required. Likewise, the funds 
 might make it impossible to secure the services of a trained worker for 
 conducting the entire survey. Nevertheless, the survey may be success- 
 fully carried on under the leadership and direction of some intelligent 
 and deeply interested citizen. 
 
 Sources of Information. B. 
 
 The labor connected with the making of a survey will, to a very large 
 extent be determined by the ability of the workers to find the most 
 reliable, the most comprehensive as well as the most accessible sources 
 of information. Conditions will vary in different communities, and much 
 will depend upon the skill and ingenuity of the worker; however, there are 
 some general sources of information which we shall mention. 
 
 a. Official Statistics. 
 
 1. The census reports of the State and the Federal Government 
 which alternate every five years. 
 
SUGGESTIONS FOR A CITY SURVEY 29 
 
 2. The report of the Health Department should furnish the neces- 
 sary information needed concerning births, marriages, deaths, etc., 
 but it will very often fail to do so. 
 
 3. Crime statistics are best secured from the court records, the 
 records and reports of prisons, the reports of the State Board of Charities, 
 or similar organizations, and the reports of special commissions dealing 
 with crime. Likewise much valuable material may be obtained from 
 judges, court, probation and police officers. 
 
 4. For industrial statistics use the Federal Census, the report of 
 the Factory Inspector, the Commissioner of Labor, the State Census and 
 the reports of other official bodies, such as employment bureaus, boards 
 of trade, etc. 
 
 5. Educational Statistics may be secured from the Federal Census, 
 School Census, local school reports, report of the United States Com- 
 missioner of Education, and State Commission of Education, as well as 
 through personal visits to schools, inspection of their books, and ques- 
 tioning of teachers and superintendents, etc. 
 
 All these official reports may be obtained directly through the depart- 
 ments or from local representatives. 
 
 b. Unofficial Statistics. 
 
 1 . Reports and records of Philanthropic Agencies. 
 
 2. Pay rolls and reports of the various industrial establishments. 
 
 3. Letters to all local labor unions, and interviews with labor 
 leaders. 
 
 4. Letters and personal interviews with all the leading establish- 
 ments. 
 
 5. The reports of private commissions and other private agencies. 
 
 6. The reports of banks and insurance companies, business agen- 
 cies, and transportation companies. 
 
 c. Legal Information. 
 
 1. Federal Statutes. 
 
 2. General laws of the State. 
 
 3. Special State Laws relating to the particular locality, or similar 
 localities. 
 
 4. City Charter, and City Ordinances. 
 
 5. Board of Aldermen, Health Board, Police Rules and Regulations. 
 
 6. Regulations formed by the various departments in accordance 
 with the powers vested in them by law. 
 
 7. The exact wording of the law should be obtained in every case. 
 
 d. General Information. 
 
30 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 There is much information which cannot be obtained from any official 
 sources, but which must be derived from investigations of actual condi- 
 tions. But before any such investigations are undertaken it is well to 
 have consulted all persons who come in contact with those conditions, 
 such as officials, and social workers. In this way the work will be greatly 
 lessened, by interesting a large circle of persons who are informed on the 
 questions to be investigated, and who may be able to point out means of 
 securing the desired data without extra work or delay. 
 
 The matter of collecting and properly interpreting statistics is of the 
 utmost importance and can hardly be over-emphasized, since carelessly 
 selected or inaccurate data may defeat the entire work of the survey. 
 If volunteer or inexperienced workers are used, never ceasing care must 
 be observed or fatal errors will slip in. Four rules suggested by Quetelet, 
 for obtaining statistical data, sum up briefly the chief sources of error: 
 
 1. Never have preconceived ideas as to what the figures are to 
 prove. 
 
 2. Never reject a number that seems contrary to what you might 
 expect, merely because it departs a good deal from the apparent average. 
 
 3. Be careful to weigh and record all possible causes of an event, 
 and do not attribute to one what is really the result of a combination of 
 several. 
 
 4. Never compare data which have nothing in common. 
 
COMMUNITY SURVEY 
 
 A . Introduction 
 
 As a foundation for any social investigation one must have some 
 general idea of the city or community as a whole. Its character, whether 
 industrial, composite or residential, will be a very important fact in 
 determining the method of procedure. Each community has a distinct 
 individuality which is the result of its history, its early inhabitants, the 
 causes and method of growth; and is influenced by the predominating 
 nationality, and by the traditions and customs which the various factors 
 have developed in the community. The prevailing attitude toward 
 civic improvements, special interest in some particular subject and the 
 attitude and composition of the local official bodies must all be considered 
 as well as of private organizations and individuals who may either help 
 or hinder the work of the survey. 
 
 1. Is the community to be surveyed, a chartered city, a ward, a 
 village, or a town, if none of these, what kind of unit? (Often when 
 some special problem is studied it can be more advantageously done by 
 taking a limited district than by taking the community as a whole. See 
 Kansas City Surveys.) 
 
 2. What is the general character of the community, residential, 
 commercial, manufacturing, industrial, or composite? 
 
 3. What were the important causes that led to the founding and 
 subsequent growth of the early community? 
 
 4. Give nationality and chief characteristics of the people who made 
 up the early community. 
 
 5. Trace the industrial development of the early community. 
 Has its growth been steady or intermittent? Has there been any recent 
 marked change? 
 
 6. a Is the industrial, political, and social situation controlled by 
 the descendants of the first settlers or by more recent arrivals? 
 
 6' Influential individuals of the past? 
 c' Significant events of the past? 
 
 7. What local social problem is of especial interest to the community 
 before the beginning of the survey? 
 
 8. a' Can you depend upon cooperation of public officials in making 
 the survey? 
 
 b' Can you depend upon the support of the press? 
 
32 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 9. Is there in the community, any group of men or women who are 
 willing to bear the responsibility and are capable of taking up the work 
 of the survey in a devoted and intelligent manner? 
 
 Information concerning the above questions may be obtained largely 
 by going over newspaper files, talking with well-informed citizens, 
 business men, old residents, ministers, priests, teachers, etc., and referring 
 to the various city and census reports. 1 
 
 B. Natural Physical Conditions (Geographical). 
 
 The geographical conditions of a community are generally recognized 
 in making a survey of a community as being of great importance, and one 
 of the very first factors to be considered. For, while the geographical 
 conditions are fixed, and are very little changed by the activities of men, 
 except in such matters as deforestation, drainage and the irrigation of 
 arid regions, the activities of a community, its industrial character, its 
 inhabitants, its growth and life, depend largely upon its geographical 
 location, its climate, natural resources and character of surrounding 
 country. 2 
 
 1. Give the location of the community to be surveyed. 
 
 a'. Its area, b'. Topography, c'. Source of water supply, d\ 
 Natural drainage, and e'. Natural scenic advantages. 
 
 2. a'. What are the economic resources of the vicinity? Its soil and 
 products, water power, mines, quarries, forests, fisheries? 
 
 b\ Are the natural resources of a permanent nature? If they are 
 failing, what is the reason? 
 
 c'. Are important natural resources monopolized? 
 
 3. Is the community near any large water front, on any natural 
 highway, or is communication with the rest of the world obstructed by 
 mountains or other barriers? 
 
 4. Are there other geographic or climatic conditions in your com- 
 munity which seem to be important factors in the social situation? What 
 gives them their importance? 3 
 
 In addition to the sources suggested above for obtaining information 
 concerning the locality, these questions may be answered by referring to 
 
 'Sec: What Social Workers Should Know About Their Own Community, by Miss 
 Byington, p. 7-8; Knowing > i omntunity, Aronovici, p. 9. 
 
 : See: E. C. Hayes, "Effects of Geographic Conditions upon Social Realities," 
 Am. Jour. Soc. May, 1914; Semple and Huntington, Pulse of A ia. 
 
 3 Knowing One's Own Community, Aronovici, p. 11. Report of the Cities Commit- 
 tee, Soc. Society (London, Eng.), on Town Thinning, 1909. 
 
COMMUNITY SURVEY 33 
 
 the United States Geodetic Survey Department, Soil Surveys, Agricul- 
 tural Department, and Census Reports, other publications of the state 
 and federal departments, and by consulting local engineers. 
 
 C. Population. 
 
 The population of a community is to a very great extent dependent 
 upon the geographical conditions in which it lives. The development 
 of some of the natural resources, as coal, iron, oil, or drainage, and irriga- 
 tion, as well as advantageous commercial locations, may determine the 
 settling of large groups of people, often of newly arrived immigrants, in 
 congested areas in which there is bound to develop social conditions 
 which retard and often seem to counteract all efforts for social improve- 
 ment. 
 
 I. Distribution and Density of Population. 
 
 1. a'. What is the total population of the community? b'. What 
 is the average number per acre? c'. Are there especially congested areas? 
 Where? Apparent reason? d'. Number per acre? 
 
 2. What per cent of the population of the community have come 
 from other localities within less than five years? . 
 
 3. Is population increasing, decreasing, or stationary? 
 
 4. What causes tend to increase or decrease population? a'. 
 Immigration, b'. Ratio of births to deaths. 
 
 5. What number of families have moved to other places in the 
 past year? 
 
 6. What has been the rate of growth of population for past five 
 census periods? 
 
 7. Identify quarters of the city in which are assembled people 
 of distinct social character (racial, industrial, religious, degenerate, com- 
 mercialized vice, criminal). 
 
 8. a'. Do such quarters in any case correspond with political 
 wards? b'. Causes of such localization? 
 
 9. How is the residential distribution of the people affected by 
 street railroads, by steam railroads, by location of industries, topography, 
 land values, and rents? 
 
 10. Make statistical summary of data obtained. 
 
 It is often well in making a survey of a large community to divide it 
 according to special population groups, since at times there are specific 
 problems peculiar to individual localities. Maps should be made of these 
 communities indicating their difference in character. (This method was 
 
34 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 successfully followed in a survey made at Urbana, Illinois [the report of 
 which is not published]. A section of the city, which had approximately 
 1,000 inhabitants, was of distinctly different composition than the city 
 proper, although with the exception of two or three families, this group 
 was distinctly American. While the city is a university town, and the 
 county seat of a very wealthy agricultural community, here is an isolated 
 group which was almost entirely industrial, 240 out of a total of 285 adult 
 males being employed in the Big Four car shops, and in brick yards. 
 Their interests and many of their social activities were largely localized, 
 while there was a general feeling that the city proper neglected them. 
 If civic improvements may be considered an index, this feeling was not 
 without foundation.) The federal and state census reports will be the 
 principal sources of information, although local official records and 
 school census will likewise aid materially. Much of the most valuable 
 data, however, will be secured by personal investigation. 
 
 It is usually difficult to obtain accurate statistics concerning the popu- 
 lation. The records of the board of health are often incomplete, births 
 are not registered, deaths improperly registered, and population figures 
 between census years are often merely an approximation which depends 
 upon someone's point of view and may be exaggerated or diminished 
 accordingly. However, an investigation may lead to a more careful 
 record of vital statistics, which in itself would be worth the effort. The 
 following study involves merely the general considerations of the problem. 
 Further details will readily suggest themselves under each question. 
 II. Nationality. 
 
 1. Number of entire population, by age, sex, and nationality. 
 
 2. What nationalities are on the increase? b'. On the decrease? 
 c\ Is the cause local? 
 
 3. a'. Approximate number of immigrants by nationality, who 
 arrived during the last two years? b\ Number unmarried, over 20 years, 
 by age and sex? c'. Number of children below five years? 
 
 4. Average marriage age, by nationality? 
 
 5. What per cent of the population have both parents of the same 
 racial stock? 
 
 6. What organizations are there which help in the proper distri- 
 bution of immigrants? Are they organized for commercial purposes? 
 
 III. Domestic Life. 
 We are ever confronted by new problems which seem almost insur- 
 mountable — because their very solution will bring about an entirely new 
 
COMMUNITY SURVEY 35 
 
 order of things. Modern economic conditions are developing new- 
 domestic problems. Labor formerly done in the homes, is now being 
 done in great industrial establishments, making it necessary, where 
 the husband cannot earn enough to support the family, for the 
 wife to go abroad and secure work. Where formerly each family lived 
 in its own house, great numbers are now crowded into one building,* which 
 destroys, or at least weakens the "home spirit" and on the other hand, 
 because of a constant change of residence, prevents the growth of a 
 community spirit, which formerly existed. 
 
 Instead of spending the hours of recreation in the home, the young 
 people are often from necessity compelled to go out upon the streets to 
 spend their leisure, and while the home used to be the great molderof 
 characters, since it provided for all the spare time of the child, it has 
 become in many cases, merely the place where some of the meals are 
 eaten, and where the sleeping hours are spent. In short, the new condi- 
 tions have raised the age of marriage; it has changed the industrial 
 character of the home; weakened the home spirit; and lessened the influ- 
 ence of home life in the development of the child. 
 
 1. Has the commercial or industrial life of the community any 
 observable effect upon domestic life? 
 
 2. Is anything done to develop interest in the improvement of 
 home conditions of laboring people? 
 
 3. a'. What is the ratio of divorce to marriage in the community? 
 b'. Among what races is divorce the most prevalent? c'. Most 
 frequent grounds for divorce? Has the church any influence on the 
 question of divorce in this community? 
 
 4. What are the state laws regarding non-support and desertion? 
 
 5. Has a deserter ever been brought back to this state by extra- 
 
 6. Number of men paying for support of families by order of the 
 
 dition? 
 
 court? 
 
 7. What do homes in the community offer for cultural improve- 
 ment and enjoyment? (See Recreation) 
 
 8. For lodging houses, see Housing. 
 
 9. Labor of women and children. 
 
 10. School attendance and other cultural activities, see Educa- 
 
 tion. 
 
 11. Religious Activities, see Religion. 
 
36 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 IV. Vital Statistics. 
 
 1. What is the average marriage age in the community? 
 Average marriage age of unskilled laborers? 
 Average marriage age of skilled laborers? 
 
 Average marriage age of salaried persons? 
 
 Average marriage age of professionals? 
 
 Number of childless families after three years married life? 
 
 Number of families with one child after five years married life? 
 
 Number of persons unmarried and over 20 years of age? 
 
 2. Is there any local influence which tends to raise or lower the 
 marriage age? 
 
 3. Annual birth-rate by nationality per thousand of population? 
 
 4. Annual death-rate per thousand population, during the last 
 five years? 
 
 5. Annual death-rate per thousand children under five years? 
 Under one year? 
 
 6. What is the annual death-rate, by nationalities, for the past 
 five years? 
 
 7. Give the annual death-rate for each of the more prevalent, 
 preventable, and contagious diseases, as — occupational diseases, indus- 
 trial accidents, tuberculosis, typhoid, measles, diphtheria, scarlet fever, 
 pneumonia, and intestinal diseases, for each ward, and for city as a whole? 
 Show distribution of deaths from different diseases on map. 
 
 8. Make statistical summary of all data under "Population." 
 
 D. Social Conditions and Activities, Relating to the Health, Convenience, and 
 Comfort of the Community* 
 
 I. Housing. 
 The housing conditions of a community affect practically every 
 aspect of its social well-being, and is one of the most important factors in 
 determining the health and morals of the community. In making a study 
 of the housing conditions it is necessary first, to be thoroughly familiar 
 with the existing laws and regulations affecting the condition and methods 
 of construction of houses and tenements, and the extent to which they 
 are enforced. Likewise, there should be more or less familiarity with the 
 housing conditions of other communities similarly located. Most medi- 
 um sized American cities have very meager housing laws, and hence it is 
 often necessary to secure legislation of some sort before the simplest 
 
 4 See, Henderson, C. R., Social Elements — Appendix. 
 
\s 
 
 COMMUNITY SURVEY 37 
 
 official action can be secured. There was a case in a medium sized city 
 in Illinois, which illustrates this point. A case of typhoid was found in a 
 family which came to the attention of the United Charities of that city. 
 The attending physician traced its origin to the cellar, where there was 
 a seepage through the thin brick wall, caused by a defective sewer pipe. 
 The landlord paid no attention to complaints, and the city authorities 
 did not feel that they had power to act. It was not until the matter 
 was about to be referred to the State Board of Health that any action by 
 the landlord could be obtained. Merely getting ordinances passed, 
 however, without sufficient machinery to see that they are enforced is 
 almost worse than no laws whatever, hence if any legislative action is 
 obtained, provision should likewise be made for efficient inspection and 
 enforcement. 5 
 
 a. Industrial tenements and rooming houses. 
 
 1. a'. Do any industries furnish houses for their employees? 
 b\ Are they individual cottages? c'. What is their character? 
 
 2. a'. Character and management of boarding houses. Number, 
 location and character of lodging houses? b'. Number of lodgers in each? 
 c\ Amount of bed room space per lodger? d'. Are there night and day 
 shifts in any? 
 
 3. a'. Number of hotels and rooming houses? b'. Regulations 
 concerning them? c'. Are they enforced? By whom? 
 
 4. Are there any rooming houses provided by philanthropic 
 agencies? Capacity? Condition? 
 
 b. Private houses and tenements. 
 
 1. What are the requirements regarding, — a'. Light and ventila- 
 tion of halls and rooms? b'. Vacant spaces in yards or courts? c'. Surface 
 water? d'. Sewer connections? Shallow wells and other sources of water 
 supply? e'. Indoor closets? f. The use of cellars for living purposes? 
 g'. Fire escapes? 
 
 2. Are there any special provisions for new or remodeled houses 
 and tenements? 
 
 3. a'. What is the number of inspectors of each department? 
 b'. Plumbing, wiring, housing, etc.? 
 
 6 Housing Reform and A Model Tenement House Law by Lawrence Veiller, N. Y. 
 Charities Publishing Comm., 105 E. Twenty-second Street. What Social Workers 
 Should Know. Miss Byington. Labor and Administration, by John R. Commons 
 contains a Dwelling House Score Card, which has been found to be very efficient, 
 since it serves to standardize reports made in a house to house investigation. 
 
38 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 4. Do they inspect on their own initiative, at stated times or 
 only on complaint? 
 
 ^ 5. a'. Have the inspectors the power to vacate unfit houses? 
 b\ Method of procedure? 
 
 6. a'. What was the number of violations last year? b'. Nature 
 of the violations? c\ Action taken? d'. Disposal made of them? 
 c. Special Questions for House to House Investigation. 
 
 1. a'. What are the general surroundings of dwelling place, size of 
 yard, or court? b'. per cent of lot covered by building? c'. In what con- 
 dition is it kept? 
 
 2. a'. Is there surface drainage? b'. Is live stock kept on the 
 premises? c'. If so, under what conditions. 
 
 3. a'. Do inhabitants show any degree of pride in the appearance 
 of their dwellings? b'. Are they encouraged to do so? 
 
 4. Is air poisoned by fumes, gases, dust or smoke from factories, 
 railroads, or marshes? 
 
 5. a'. Number of rooms per family? b'. Number in each family; 
 number of adults; number of children? c'. Floor space per family? d'. Are 
 boarders or roomers taken to help pay rent? 
 
 6. Give general type of building. 
 
 7. Has the building sewer connections? If not, disposition made? 
 
 8. a'. What per cent of apartments have toilet facilities in com- 
 mon with others? b'. What is condition of plumbing? c'. Type of toilet 
 ventilation? 
 
 9. a'. Number of outdoor closets? b\ In what condition kept? 
 c'. Number using them? d'. Are they connected with sewer? 
 
 10. a'. What is source of water supply? b'. By how many persons 
 used? 
 
 11. a'. Are buildings well lighted and ventilated? b\ Number of 
 dark or ill ventilated rooms and halls? 
 
 12. Is cause of their being dark and ill ventilated due to nearness 
 to other buildings, aid shaft, or interior room? 
 
 13. Number poorly lighted and ventilated rooms, i. e., having 
 window space less than 20 per cent of floor space? 
 
 14. Are there any cellar or basement dwellings? Number? Condi- 
 tions? 
 
 15. a'. What is the general condition of cleanliness? b\ Is it 
 due to carelessness of inhabitants? 
 
 16. Are tenements or lodging houses properly provided with fire 
 escapes? 
 
COMMUNITY SURVEY 39 
 
 17. Summary of questions under preceding head: a'. Number 
 of houses examined which are seriously defective? b\ Number of 
 families in each? c'. Number of persons affected? d'. Number of children? 
 e'. Number of cellar and basement dwellings? V. Number of buildings 
 which cover 50% of lot? 75%? g'. Badly kept yard and surroundings? 
 h\ Number of families having one room? Two rooms? Three room-? 
 Four rooms? i\ Number houses without sewer connections? k\ Lack 
 of proper toilet facilities? Water supply? 1'. Light and ventilation? 
 m'. Lack of fire escapes? 
 
 18. How do old and new tenements compare in the light of this 
 investigation? 
 
 19. Is the erection of new buildings properly regulated by 
 building laws? Compare with laws of other cities. 
 
 20. What special needs has this investigation disclosed? 
 II. Public Utilities. 
 
 The rapid development of public utilities and their proper manage- 
 ment and control is becoming of ever increasing importance. Formerly 
 keeping up the highways and bridges was the extent to which a town was 
 compelled to go. To this was soon added sewage and garbage disposal, 
 the water supply, fire protection, lighting of streets, the problem of local 
 transportation and control of street traffic. In fact municipal life has 
 become so complicated and so dependent upon the services of these 
 various utilities that the failure of any one to function properly will 
 affect the life of the entire community, and may result in untold hardship. 
 
 Before taking up the study of the Public Utilities it is well to become 
 thoroughly familiar with the different forms of control adopted in different 
 states of the Union, notably, Massachusetts, New York, and Wisconsin, 
 and the methods used by the leading American cities as well as the 
 methods followed in European countries. 6 
 a. Streets and Local Transportation. 
 
 1. Condition of streets? a'. Types of paving? b'. Mileage of each? 
 
 2. a'. Under what legal and municipal conditions are new st nets 
 
 8 Control of Public Utilities, see: 
 Proceedings of Political Science Association, 1910; 
 Proceedings of X at' I Mun. League, 1910. 
 
 Annals of t lie American Academy of Soc. and Pol. Sci., May. 1910. 
 Meyers, B. H., American Pol. Sci. Review, 1911. 
 Baker, Mun. Engineering and Sanitation. 
 Fairlie, J. A., Municipal Administration, ch. II. 
 Goodhue, Municipal Government. 
 
40 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 laid out? b'. Are existing streets properly located? c'. Is their width 
 adapted to their use? d'. Is there street parking? 
 
 3. Character of bridges; viaducts; grade-crossings? 
 
 4. Method and frequency of street cleaning, sweeping or flushing? 
 
 5. a'. Are the ordinances referring to streets applied to alleys as 
 well? b'. Are they enforced? 
 
 6. Kind of local transportation facilities? a'. Are facilities ade- 
 quate and satisfactory? b'. Municipal or private? 
 
 7. If privately owned, terms of franchise contract? 
 
 b. Sewage and Garbage Disposal. 
 
 1. a'. Is there an adequate sewer system? b\ Does it cover all 
 parts of the community? c'. Make map of community showing extent 
 of system. 
 
 y/ 2. Is there an ordinance with respect to connecting all buildings 
 with sewer? To what extent enforced? If not enforced, why not? 
 v 3. What disposition is made of the sewage? 
 
 4. a'. If there is a disposal plant, type and method of conducting 
 it? b'. If not, does disposition of sewage in any way endanger the water 
 supply? 
 
 5. Does city collect garbage? a'. Method? b'. Frequency? Cost? 
 
 6. a'. If city does not, how is it disposed of? 
 
 7. Are alleys and backyards kept free from refuse? 
 
 c. Water, Fire protection, Light and Heat. 
 
 1. a'. Source of public water supply? b'. Municipal or private 
 plants? c'. Consumption per capita? Meter or flat rates? Extent of each? 
 d\ Sanitary character of water? (B — 1 c'.) 
 
 2. Is there adequate fire protection? Compare with that of other 
 cities. 
 
 3. Do water mains go to all parts of the community? 
 
 4. Number of houses not connected? 
 
 5. a'. What is the number of open or shallow wells? b'. Number 
 unprotected from surface drainage? c'. Other wells? 
 
 6. Make map showing location of all objectionable wells aRd out- 
 door closets in the city. 
 
 In the survey of Urbana, Illinois, mentioned above, it was found that 
 while the city has an excellent water system, a portion of the city, gener- 
 ally known as East Urbana, received little of its benefits, — in fact, the 
 mains extended along but one side of it, thus depriving them of practically 
 all fire protection. An investigation of the water supply revealed the 
 
COMMUNITY SURVEY 41 
 
 following: Shallow open wells 124; bored wells 8; city water 13; Of 
 these 17 wells were considered unfit for use at the lime this investigation 
 was made, but it was said that in the spring of the year it was usual for 
 some of the wells to "go bad." This same investigation revealed 142 
 privies and water-closets unconnected with the sewer, and only 5 houses 
 had modern plumbing. In spite of these conditions, people were sur- 
 prised at the high annual death-rate from typhoid. 
 
 7. a'. What means of public lighting are there? b\ Are plants 
 owned by the city or private companies? 
 
 8. How does cost of light compare with other cities? 
 
 9. a'. Are there any public or municipal heating or power plants? 
 b'. Extent used? 
 
 d. Other Utilities and Improvements. 
 
 1. a'. What are the facilities for handling and distributing mail? 
 b\ Are needs of city adequately supplied? 
 
 2. Is telegraph service good? 
 
 3. a'. What per cent of families use the telephone? b\ Is there 
 more than one system? 
 
 4. a'. What public buildings, markets, public baths, comfort 
 stations, hospitals, in the community? Value? Location as to convenience 
 and appearance? Adaptation to use? b'. In what condition are they kept? 
 c\ Are there any in process of construction? 
 
 5. What centers in community whose purpose is to add conven- 
 ience, comfort and beauty? 
 
 6. What efforts are made to improve the general appearance of 
 the city? 
 
 7. Are telephone poles, unsightly lampposts, etc. tolerated? 
 
 8. What provisions are made for tree planting, parking, etc.? 
 There are various kinds of public utilities which have not been men- 
 tioned here, since they are not as prevalent as those above noted; but the 
 investigation of which should be based upon the general considerations, 
 which were suggested in some detail above. The course to be followed 
 in making the investigations consists in : 
 
 1. Conference with officials and employees of the particular utility. 
 
 2. Survey of its activities, transactions and records. 
 
 3. Detailed study of, a', operating processes, b'. business trans- 
 actions, c'. accounting, d'. administration, e'. organization. 
 
 4. Study of the mechanical and technical work performed. 
 
 5. Operating performance and efficiency. 
 
 6. Making of report, with suggestions for reorganization, im- 
 
42 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 provement of plant, as well as any failure to meet the needs of the com- 
 munity. 
 
 III. Diseases and Health Measures. 
 
 1. a'. What is death-rate by wards for past five years? b\ Appar- 
 ent cause of excess in any ward? 
 
 2. a'. Is it more prevalent among certain racial groups? b'. Any 
 apparent reason? 
 
 3. Number of cases of each contagious disease reported or known 
 within past two years? Make chart of principal diseases on basis found 
 among different nationalities. 
 
 4. a'. What quarantine measures are used? b'. Diseases not 
 quarantined? 
 
 7 5. Do physicians and midwives report all births? Are mid wives 
 licensed? What precautions are taken against Opthalmia Neonatorum? 
 
 6. a. What epidemics have there been in the last five years? 
 b'. Number affected? c'. Number who received free treatment in hospi- 
 tals or dispensaries? d'. For what disease? 
 
 7. Has recurrence of epidemic from same cause been prevented? 
 If any disease has been especially prevalent, what seems to be the cause? 
 
 8. a'. Medical inspection of schools? How adequate? b'. Number 
 of children absenting themselves from school during the past year because 
 of illness? Number of days lost? 
 
 9. Has school been closed on account of epidemics? 
 
 10. a'. Number of cases of illness discovered among school 
 children by medical examiner? b'. Nature of illness? c'. Number of cases 
 of tuberculosis found among children? 
 
 8 11. a'. WTiat other measures are taken regarding health inspec- 
 tion in the community? (See Sewage and Garbage.) b'. What are the 
 state regulations regarding sanitation in industrial establishments? 
 
 9 12. Is there special need of health education among the people at 
 large in regard to care of homes. 
 
 7 For information write to "The Committee on the Prevention of Blindness," 105 
 E. Twenty-second Street, New York City. 
 
 8 Note especially the laws of New York, Massachusetts and Illinois on Factory 
 Sanitation. They are among the best in the United States. 
 
 * Much may be done toward improving health conditions in a city by campaigns 
 for health. Possibly as much has been done in this line in Chicago (See Health Bulle- 
 tin) as in any city in the country. Cooperation of all the different organizations possi- 
 ble working h;md in hand with the Health Department is sure to decrease any prevail- 
 ing evil. Individuals must be educated to observe rules of health, and cooperation of 
 public must be secured to enforce laws. 
 
COMMUNITY SURVEY 43 
 
 13. a'. What regulations are there concerning food and milk 
 inspection, etc.? b'. Water supply (B — 1 c\) 
 
 10 14. a'. Is health department a separate department or a subdi- 
 vision of another department? b'. Is there need of separate departments? 
 c'. Compare local conditions with other cities. 
 
 15. What has been done to increase knowledge of the care of 
 health? (See Chicago Health Bulletin.) 
 
 16. Is there need of a more rigid enforcement of laws regarding 
 the reporting of all forms of contagious diseases? (See California and New- 
 York Regulations.) 
 
 17. What work has been done by the various societies for the 
 prevention of disease? 
 
 18. Is fumigation required after tuberculosis cases? 
 
 19. a'. Are death reports and especial causes discussed in the 
 daily press? b\ Do they attract attention? (See 1-9 above.) 
 
 20. Summarize and Chart data obtained from queries 1 to 10 
 
 E. Wealth and Industry. 
 I. Distribution of Wealth. 
 A knowledge of the distribution of wealth in a community is one of the 
 most valuable assets of a social worker, since upon the matter of income is 
 based much of the community and individual welfare. The social status 
 of a community is so dependent upon the economic status, that in an in- 
 dustrial community where income resolves itself into wages and steadi- 
 ness of employment, a study of those items will give one more insight into 
 social conditions than any other single study could reveal. Much of the 
 data required may be secured from reports and records of philanthropic 
 agencies, pay rolls, and reports of various industrial establishments, 
 banks, insurance companies, and other sources mentioned in connection 
 with the different studies already suggested. 
 
 1. Is there much poverty in the community? 
 
 2. Is the proportion of persons without any property increasing 
 or decreasing? 
 
 3. a'. What is the per capita wealth of the community according 
 to tax valuation? According to estimate? b'. How great are the extremes 
 of wealth? 
 
 4. a'. What per cent in gainful occupations or heads of families 
 have an income of $5,000 or over per year? b'. Of $2,500? c\ Of SI, 000 
 
 10 "The Inefficiency of Municipal Health Departments," by Dr. G.T. Palmer, The 
 
 American City, August, 1911. 
 
44 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 to $2,500? d'. Of less than $1,000? What per cent have an income of 
 $15 per week or less? 
 
 5. Classes of common labor most numerously represented, and 
 wages of each? Proportion of each? 
 
 6. Per cent of families who are aided by charity and who are 
 habitual debtors? a'. How many families own their homes? b'. Number 
 who rent? c'. Per cent of each? 
 
 7. Is the tendency to own homes on the increase or decrease? 
 
 8. a'. What is the average value of individually owned homes? 
 b\ Per cent free from mortgages? 
 
 9. a'. Are there building loan associations? b'. Conditions? 
 
 10. a'. Per cent of people earning salaries who own homes? 
 b'. Per cent earning wages? 
 
 11 11. a'. What are the chief causes of poverty? b\ Is there any 
 effort being made to rectify them? 
 
 12 12. How does the cost of living (fuel, rent, light, water and food) 
 compare with the rate of wages? 
 
 13 13. a'. How do these conditions compare with similar communi- 
 ties in other parts of the state? b'. With similar communities in other 
 states? 
 
 14. a'. Per cent of laboring people who have deposits in bank? 
 Total deposits in savings banks, average amount per depositor? b\ Is 
 there a Postal Savings Bank? c\ Extent patronized? 
 
 15. Are there any organizations which loan money to workers on 
 their notes at reasonable rate of interest? Tell what they are, and their 
 methods. 
 
 16. Total amount of money transmitted to foreign countries 
 last year? 
 
 II. Industrial Activities. 
 Facts concerning the industrial activities of the community may be 
 secured to some extent from employers of labor, labor leaders, and from 
 the board of trade, or chamber of commerce as well as from magazines 
 
 11 See Poverty by Robert Hunter. 
 
 12 For study of family Budgets see Study of Chicago Stockyards Community by 
 J. C. Kennedy and others. Standard of Living Among Workingmcn's Families by 
 R. C. Chapin, Charities Publishing Company, New York and Chicago. Cost of 
 Living by Ellen Richards. A Living Wage Samuel Gompers, The American Fcdera- 
 tionalisl, April, 1898. 
 
 15 Wages in the United Stales Scott Nearing. "Legal Minimum Wage in the U. S." 
 by A. M. Holcombe, Am. Econ. Rev. Vol. 2, Fabian Socialist Tract, No. 128. 
 
COMMUNITY SURVEY 45 
 
 and newspapers. Likewise some states have departments of labor from 
 which a certain amount of data may be obtained. However, the inves- 
 tigator must carefully check up all data received from these various 
 sources and bureaus, and supplement it by data obtained by individual 
 investigation. 
 
 a. Control of Industries. 
 
 1. What are state laws governing age limits, hours, conditions 
 and kind of industries in which women and children may be employed? 
 Compare with laws of leading states. How enforced? 
 
 2. What legal restrictions are placed on tenement industries? 
 (See Holden v. Hardy 169, U. S. 366; Otis v. Parker 187, U. S. 606; re 
 Jacobs 98 N. Y. 98, 103, 112-114. Cases seem to show that legislature 
 cannot get away from prevailing economic status.) 
 
 3. a'. Are age certificates required in this state? b\ Number 
 issued in community last year? c'. Number exceptions to the law allowed? 
 Reasons? 
 
 4. a'. Number of prosecutions for violation? b'. Number of 
 convictions? 
 
 5. Are records kept and reports made to a state department? 
 
 6. Compare industrial laws of your state and community with 
 those of others. 
 
 7. How do the general labor conditions compare with those of 
 other communities? 
 
 8. a'. Has work been suspended during recent years because of 
 strikes and lockouts? b\ Number of industries and workers affected? 
 
 9. What have been the results of the more important strikes in 
 last few years? 
 
 10. Give number and type of trade unions, employers unions, 
 protective agencies, etc.} 
 
 Concerning each of the above: a'. Dues, amounts, and methods of 
 grading collection? b'. Accounts properly kept? Reports published? 
 c'. Affiliated with any other organization? Is work duplicated by any? 
 d'. What insurance features? Educational? e\ Method used by each to 
 improve conditions? f. Do unions seem to increase or to diminish effici- 
 ency of laborers? g'. What has been the effect of local labor union on 
 wages, Sunday labor, and sanitary condition of laborers? h'. How are 
 unions in general regarded by community? Is label demanded on goods? 
 
 b. Specific questions for individual industries. 
 
46 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 1. a'. Value of plant? b'. Value of output? c'. Could the capital 
 for supplying the required machinery be supplied by workers themselves? 
 
 2. a'. Total number of employees? b'. Number of nationalities? 
 c'. Number of men, women, children? d'. Number married, (men, 
 women)? e'. Per cent skilled? Unskilled? 
 
 3. Average wages of each class? 
 
 14 4. Extent that labor in this industry is seasonal, casual, or per- 
 manent? 
 
 5. What is average number of days worked by skilled? Unskilled? 
 
 6. a'. What opportunity does it give for training or advance- 
 ment? b'. Is apprentice system in vogue? 
 
 7. a'. Is there a pension fund? b'. Accident insurance? c\ Profit 
 sharing? Type of each (compare with German and English systems). 
 
 8. What are the methods for obtaining work? 
 
 9. a'. What are the hours of work? b'. Number days per week? 
 c'. Overtime, if paid? 
 
 10. What is the maximum and minimum amount of employment 
 offered in this industry? 
 
 11. What are the general conditions under which labor is carried 
 on? a'. Is fire protection adequate? b'. Machinery safeguards? c'. What 
 is the condition of lighting in the place of work? d'. Is there proper ven- 
 tilation? e'. Are women and children segregated from men? f. Are there 
 proper toilet facilities? 
 
 12. What is the existing attitude between laborers and employ- 
 ers? Is there any arrangements for deciding disputes? 
 
 c. General Summary. 
 
 1. a'. What are the manufacturing industries in this com- 
 munity? b'. Number of operating establishments in each industry? Total 
 employed? 
 
 2. Number of other businesses such as banks, stores, restaurants, 
 livery barns, hotels, post office, telegraph and telephone, and express 
 
 u Of even greater importance than the rate of wages paid, is fluctuation in the 
 demand for labor by industrial establishments. Not only does seasonal labor materi- 
 ally affect the income, but the community life becomes unstable, thriftless, and 
 changing. 
 
 Unemployment in the U. S. Final Rep. of Industrial Com. 
 
 Problem of the Unemployed, Hobson. 
 
 Encyclopedia of Social Reform. 
 
 Reports of U. S. Bureau of Labor. 
 
 Report of Mayor's Commission on Unemployment, Chicago, 1914. 
 
COMMUNITY SURVEY 47 
 
 companies, railroads, offices of professional men, etc.? Total employed? 
 
 3. a'. Total output and total capital employed in all manufac- 
 turing industries? b\ In other industries? 
 
 4. Give, if possible, the total number, and average wages of each 
 of the following classes: a'. Men, skilled, unskilled, b'. Women, skilled, 
 unskilled, c'. children, d'. What is average number of days per year, 
 each class is employed? 
 
 5. What lines of work are carried on by laborers aside from 
 regular employment? 
 
 6. What is the maximum and minimum amount of employment 
 offered by all employment giving agencies in the citv? 
 
 7. What is the total number of persons in the city dependent 
 upon employment? How do these two items compare? 
 
 8. a'. What per cent of people seek employment elsewhere? 
 b'. Are they forced to do so? Is there a free employment agency in the 
 city? 
 
 9. What effect has scarcity or over supply of labor on commun- 
 ity? 
 
 10. Extent of growth of various industries in the last ten years? 
 
 11. a'. Have any new industries been developed or old ones 
 bought out, suspended or absorbed by larger concerns in the last ten 
 years? b'. Have industries absorbed been bought out by local competitors 
 or outside interests? 
 
 12. What is the legal or financial connection between any of 
 the industries? 
 
 13. To what extent are industries owned by outsiders? 
 
 14. Does method of taxation have an effect on establishment of 
 new industries? 
 
 15. Are industries dependent on each other's products? 
 
 16. Extent to which manufacturies are carried on in tenements 
 or other buildings not adapted for industrial purposes. 
 
 17. a'. What products are manufactured in "sweat shops"? 
 b'. Under what conditions? c\ Wages? d'. To what extent are children 
 employed in them? 
 
 III. Transportation and Storage. 
 
 1. WTiat railroad lines pass through the city? 
 
 2. a'. Give number, capacity, etc. of warehouses, elevators, and 
 cold storage plants. Are they adequate and convenient? b'. Include 
 map of the chief lines of transportation and communication. 
 
48 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 3. a'. To what extent is this a distributing center? b'. Commodi- 
 ties chiefly shipped? 
 
 4. a'. What places of importance are within easy distance? 
 b'. Does this enable men to pass to or from adjacent cities for daily work? 
 
 5. What water connections has city? a'. Are there any regular 
 steamship routes? b'. Number of lines and routes? Number and size of 
 vessels? c'. Where to? d'. Size and number of docks? Dock equipment? 
 
 6. How does the freight and passenger service compare in cost, 
 convenience, and speed with that of the railroad? 
 
 7. How do the rates of steamships and railroads on fuel, lumber 
 and food supply affect the local prices of these necessities? Compare 
 prices of staple articles with prices in other communities which do not 
 have the same transportation facilities. 
 
 F. Group Relationship. 
 I. Political. 
 In many cities there is already established a Bureau of Public Effici- 
 ency, a Civic League, or similar organization whose purpose it is to keep 
 in touch with the local political situation. Where this is the case many 
 phases of the problem have been thoroughly studied and the cooperation 
 of such organizations is essential in obtaining the best results. In fact 
 in all phases of survey work, one of the very first things to be done is 
 to get in touch with existing organizations in order to correlate the work 
 already done by various bodies. 15 
 a. General Situation. 
 
 1. a'. Is community a political unit? b'. Has it a special or gen- 
 eral charter? c'. What changes in the charter in the last fifty years? 
 (See A— 1 a'— d.) 
 
 2. What are the requirements for voting? 
 
 3. What race or nationality has the largest number of voters? 
 Do they usually vote as a practical unit? 
 
 16 See — Reports of the Chicago Bureau of Public Efficiency. 
 
 How to start a Survey of your City's Business Methods, by W. H. Allen, (Director 
 of N. Y. Bureau of Mun. Research). 
 
 The Am. City, Vol. 8, p. 252. 
 
 Plans and Methods in Municipal Efficiency, by B. M. Bastall, Bulletin No. 1, 19, 
 Milwaukee Bureau of Economy and Efficiency. 
 
 Knowing One's Own Community, by Carol Aronivici, p. 12-13. 
 
 American Civic Association — 913-914 Union Trust Bldg., Washington, D. C. 
 
 Municipal Administration by D. O. Decker, The Nrwburgh Survey, p. 89. 
 
COMMUNITY SURVI \ 49 
 
 4. Has there been any change in the last twenty wars in nation- 
 ality having largest vote? 
 
 5. a'. What was the number by nationality, of applicants for 
 their first naturalization papers in the last five years? b*. Number 
 refused? c'. Number who applied for their second papers in the last five 
 years? d'. Number naturalized citizens who voted at the last national 
 election? 
 
 6. What appears to be the party choice, by nationality? Is there 
 any special reason for this? 
 
 7. What are the chief political parties? What factions within 
 political parties? Relative strength of each party? 
 
 8. What businesses, social classes, moral or patriotic, motives, 
 or specific interests are influential in each party? 
 
 9. What other political organizations? Character, methods, and 
 influence? 
 
 b. Local Political Organization. 
 
 1. a'. Frequency of local elections? b'. Methods of nominating 
 and voting? c'. Form of ballot? 
 
 2. a'. What is the type of local municipal government? b'. Num- 
 ber of elective officers? c'. Are they elected by wards or at large? 
 
 3. a'. Are there ward leaders? b'. What is their character, busi- 
 ness, connection with public works, public offices, political affiliations? 
 c'. What is the result of their efforts? 
 
 4. a'. What is the power of the mayor? b'. What are the depart- 
 ments in local government? Make chart showing lines of authorities in 
 local government. 
 
 5. Number of workingmen on council? a'. Lawyers? b'. Number 
 of officials representing special interests? 
 
 6. How do the commissioners receive their appointment? 
 
 7. a'. Do the departments publish separate reports? b'. Form 
 of publicity used by departments? c'. Who determines form? 
 
 c. Taxes: 
 
 1. a'. What is the tax rate? b'. How is it determined? Legal 
 limit? 
 
 2. a'. What is the number of tax payers on real estate? b'. Per- 
 sonal property? c'. Laws governing assessments? d'. How does assessed 
 valuation compare with census valuation? 
 
 3. a'. Total amount of all revenue for the last fiscal year? 
 b'. Total expenditures? 
 
50 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 4. a'. Must city borrow money to pay current expenses? b'. Has 
 it reached borrowing limit? 
 
 5. a'. What is the total indebtedness of the community? b\ 
 What large improvements have been made in last five years on borrowed 
 money? 
 
 6. a'. How is city budget made up? b'. Is there public discussion 
 of its items? 
 
 7. What is the method of accounting in use? 
 
 8. a'. Is there a special school tax? b'. What is it? c'. Has it been 
 increased in the past ten years? d'. Result? 
 
 9. What was the total amount appropriated for schools, for 
 sanitation, and health, for streets and civic improvements in past year? 
 Make chart showing proportional amount used for the various public 
 activities. 
 
 10. a'. What taxes are paid by the six highest tax payers? 
 b'. Which of these are corporations? 
 
 11. a'. What municipal body has power of appropriating and 
 distributing funds? b'. Are requests upon the budget made openly and 
 published, or privately to the appropriating body? 
 
 d. Legislative Restrictions and Regulations. 
 
 1. What is the state law governing the sale of liquor? 
 
 2. a'. Is there local license or no license? b'. Number of saloons? 
 
 3. Terms of granting and revoking license? 
 
 4. a'. Is there a "saloon limit" for schools and churches? b'. 
 What are the local regulations? c'. Are they enforced? d'. If not, what 
 is the reason? 
 
 5. Are bawdy houses permitted or tolerated? (See F III f 7 a* 
 b' c'.) 
 
 6. a'. What legislation affecting the morals and health of the 
 community at large was passed by the council in recent years? b'. What 
 provisions were made for enforcement? Are laws effective? 
 
 7. a'. What are the state or city regulations of labor, housing, 
 industries, etc. b'. Who is responsible for their enforcement? c'. Are 
 they properly enforced? 
 
 8. If results are still unsatisfactory, what suggestions have you 
 for improving conditions in general? 
 
 9. What active voluntary activities in the interest of temperance 
 and morality are there? 
 
 e. Courts. 
 
COMMUNITY SURVEY 51 
 
 1. a'. What are the different courts in your city? b'. Jurisdiction 
 of each? 
 
 2. a'. Are judges and magistrates appointed or elected? b'. 
 Time? c'. Qualifications? 
 
 3. What court controls drunkenness, vagrancy, disorderly con- 
 duct, non-support? 
 
 4. What powers and what options has a judge in cases arraigned 
 on such charges? 
 
 5. a'. Number of convictions in court last year for drunkenness, 
 vagrancy, disorderly conduct, non-support, crimes against property, 
 against persons? b'. Disposition made of them? 
 
 6. Number first offenders? 
 
 7. a'. Is there adult probation? b'. Indeterminate sentence? 
 
 8. How long is prisoner detained before brought to court? 
 
 9. Is there proper separation of the sexes and of first and minor 
 offenders at the place of detention? 
 
 10. What was the number of arrests and convictions, by nation- 
 alities, in the last year? 
 
 f . Juvenile Court. 
 
 1. Are all cases under sixteen brought there? 
 
 2. Does it deal with dependents, truants, and child labor offen- 
 ders? Has Juvenile Court jurisdiction over adults connected with 
 juvenile offenders? 
 
 3. a'. Are any cases of juvenile delinquents transferred to the 
 regular court records? b'. If they are, why? 
 
 4. Is there a separate detention home for juveniles? 
 
 5. a'. Is the child's condition of life investigated and made a 
 basis for judicial decisions? b'. Are full records kept? 
 
 6. Is the juvenile court separate, or is it connected with some 
 other court? 
 
 7. a'. Where and how are cases heard? b'. What difference is 
 made from the ordinary method of procedure? 
 
 8. a'. Are there probation officers? b'. Number? c'. Are they 
 paid or volunteers? d'. Are they connected with some private institu- 
 tion? 
 
 9. a'. Number of delinquents handled last year? b'. Age, sex, 
 parentage? 
 
 10. a'. Number fined? b'. Number put on probation? c'. In 
 institutions? d'. Dismissed? 
 
52 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 11. Is there a society for the prevention of cruelty to children? 
 
 12. a'. What is its relation to the court? b'. What constitutes 
 cruelty? c'. Neglect? 
 
 13. For what reason does a court sanction the removal of children 
 from their parents? 
 
 It may not be possible in all cases to secure accurate information on 
 the various questions suggested, in fact it will probably be found, espe- 
 cially in smaller cities, that records are so loosely kept and such unbusi- 
 nesslike methods are followed by the city officials, that very little more 
 can be done than to reveal the absolute lack of efficiency. 
 
 A study of the court system has been included under the political 
 activities since the administration of Municipal affairs is so closely related 
 to its judicial system. It will be found that much better and more 
 accurate data may usually be obtained in this department of the local 
 government than in any other. 
 
 II. Ameliorative, Reformative and Punitive. 
 
 In every community there are numerous organizations which have for 
 their purpose the amelioration of the social ills of the group in which they 
 are located. While the benefits of these various bodies cannot be over- 
 estimated, there is often a woeful lack of efficiency. One of the most 
 common reasons for lack of efficient work is in their lack of cooperation. 
 Likewise, there are many poorly organized societies which have for their 
 aim the elimination of some social ills, but do not consider their relation to 
 other evils or to the general life of the community. As a result of this the 
 remedies advocated are frequently nothing better than make-shifts, and 
 are applied to the effects, rather than to the causes of the evil. 
 
 a. Child Care. 
 
 1. a'. Number of children from this locality cared for last year 
 by institutional agencies? b\ Placing out agencies? c'. Other agencies? 
 
 2. a-'. What was the cost to public funds? b'. To private funds? 
 
 3. a'. Number of children from this locality admitted by insti- 
 tutions, public or private, for feeble-minded, crippled, abandoned, or 
 orphaned children? b'. Arc institutions adequate for local needs? c'. Con- 
 ditions for admission to each institution? 
 
 4. a'. What is the cost of maintenance? b'. Auspices under which 
 it is carried on, and number of inmates of each? 
 
 5. a'. Number discharged from each in last five years, who have 
 become self-supporting? b'. Number who were followed up after dis- 
 charge? 
 
COMMUNITY SURVEY 53 
 
 6. a'. Are children placed out in families? 1)'. If so how is family 
 
 chosen, and what control is had over the family afterward^ 
 
 7. a'. What control does the state have over each institution? 
 b\ Is there proper inspection? See also questions under Physiological 
 Conditions, Education, Juvenile Courts, Recreation, and Domestic Activ- 
 ities. 
 
 b. Charities. 
 
 1. a'. Is there an organized charity association? b\ Number 
 paid workers? Have they received special training? c'. Do they know 
 how to make an intelligent investigation leading to constructive plans for 
 the betterment of families? 
 
 2. a'. Are records carefully kept? How? b'. Is there a confiden- 
 tial exchange with other agencies? Number consulted? c'. Is aid given 
 from society's funds, or is outside help interested in each case? d\ To 
 what extent is aid received from outside sources? 
 
 3. Are there any volunteer friendly visitors? Advisory commit- 
 tees? Other active promoters besides paid workers? 
 
 4. a'. What is the number of independent benevolent organiza- 
 tions? b'. Under what auspices? c\ Sources of income? 
 
 5. a'. Do any of them receive state aid? If so, number receiving 
 aid? Amount received? Under what conditions? b'. Does the state have 
 full control in compelling them to live up to state regulations for such 
 institutions? d'. Is authority enforced? 
 
 6. a'. What is the number of paid workers? b'. Volunteers? 
 
 7. a'. Is relief given to certain classes only? b'. On what princi- 
 ples is it given or withheld? 
 
 8. a'. Amount of money used last year? b\ Number relieved? 
 c'. Records kept? d'. Is there any formal or informal exchange of infor- 
 mation between these agencies? 
 
 9. a'. Number of inmates in the almhouses last year? b'. What 
 was cost of maintenance? 
 
 10. a'. Are there any restrictions concerning admission or re- 
 lease? b'. Is record kept of repeaters? 
 
 11. a'. Are there any feeble-minded or insane inmates? b'. Are 
 children admitted? c'. Is there a hospital ward for the chronic cases? 
 
 12. Is there any volunteer visiting committee? 
 
 13. Is there a home for the aged? 
 
 14. a'. Number of inmates? b'. Terms of admission? 
 
54 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 15. Are efforts made to determine fundamental causes of poverty 
 and to prevent them? What seem to be the chief causes of poverty? 
 
 c. Outdoor Relief. 
 
 1. a'. Is there public outdoor relief? b'. By municipality, county 
 or both? 
 
 2. a'. How is overseer appointed in each? b'. Duties, salary, etc. 
 
 3. a'. What is the annual appropriation? b'. By whom made? 
 c\ Basis? 
 
 4. a'. Is home of each applicant visited? b\ Are references out- 
 side of the family regularly consulted? What is the standard of need and 
 of relief? Is there a diet standard; a housing standard, etc.? 
 
 5. a'. What is the number of families and of individuals receiv- 
 ing aid last year? b'. Age? c'. Sex? d'. Nativity? e'. Occupation, of the 
 head of each family affected? 
 
 d. Homeless men. 
 
 1. a'. Is there any adequate provision made for homeless men? 
 b'. Are homeless men generally referred to organized charity society? 
 If so, treatment followed? c'. Is there a municipal home with a proper 
 work test, or is police station still used as a lodging house? 
 
 2. Is there any real attempt made to get work for the men? 
 b\ Is there a farm colony? c'. Conditions prevailing there? d'. Does it 
 tend to reform its inmates? e'. Does it lessen vagrancy? 
 
 e. Defectives. 
 
 1. a'. Is admission to proper institutions secured for deaf, blind, 
 epileptic, feeble-minded, and insane individuals? b'. Are there institu- 
 tions for the care of any of these classes in community? c'. Is there pro- 
 vision for the accommodation of all needing care? 
 
 2. Is there any special treatment for inebriates? 
 
 3. a'. Do individuals in the incipient stages of mental or nervous 
 diseases receive expert clinical treatment? b'. Is there any agency 
 which takes over the after care of patients discharged from insane hospi- 
 tals? c'. What efforts are made to make insane partly self-supporting? 
 
 4. a'. Number of hospitals? b'. Number free beds? c'. Classes 
 of cases admitted? d'. Sources of support? e'. Amount of state, county, 
 or city subsidy or subscription? 
 
 5. Is there a convalescent home? 
 
 6. a'. Diseases treated in dispensaries? b'. Number of each 
 kind? 
 
 7. Is there a system of visiting nurses? 
 
COMMUNITY SURVEY 55 
 
 8. a'. What provisions are made for prevention of tuberculosis? 
 b'. For incipient? c'. Convalescents? d'. Incurables? 
 
 9. Are there any fresh-air schools or dav camps? 
 
 10. Are there any diseases for which no provisions are made? 
 f . Other Welfare Agencies. 
 
 1. a'. Give number, and name of fraternal orders in community? 
 b'. What charitable work is done by them outside of their own 
 membership? 
 
 2. a'. Women's clubs? b'. Number? c'. Object? d\ Member- 
 ship? e'. Committees on social work? 
 
 3. a'. Businessmen's clubs? b'. Do they cooperate for improve- 
 ment in housing conditions, police, sanitation, etc.? 
 
 4. Ministerial association? Does it take active part in improve- 
 ment of civic conditions? 
 
 5. In as far as any of the following concern themselves with wel- 
 fare work (aside from education, recreation, industry, and religion, 
 already mentioned), give details of each: a'. Settlements; b'. Y. M. C. A. 
 c'. Y. W. C. A.; d'. Trade unions; e'. Labor unions; f. employer'.- 
 union; g'. Boys and girls clubs, etc.; h'. Churches. 
 
 6. Is there any institution which gets in touch with the prisoner 
 before and after his release? 
 
 7. a'. Give number of industrial establishments maintaining a 
 lunch room, baths, a meeting room, club room, playground, settlement 
 houses, social secretary for girls or other welfare agency? b'. Character 
 of each of these? 
 
 8. a'. Is there a pension fund connected with any? b'. What 
 are the conditions? c'. Is free medical aid given? 
 
 9. What is the amount paid victims of accidents by manufac- 
 turers, insurance societies, charity organizations, lodges, mutual aids, 
 etc., in the last two years? 
 
 10. What movements for public betterment and social service 
 are needed in the community? 
 
 Crime and Its Treatment. 
 The subject of crime and its treatment has received much scientific 
 study during the past two decades. While crime has always been looked 
 upon as an abnormal condition of society, as anti-social, the offender of 
 social rules and regulations is no longer looked upon as being inherently 
 vicious, but rather as a victim of causes, such as heredity, environment 
 and ignorance, which united in causing crime. This new attitude toward 
 
56 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 crime has brought about a change in the manner of dealing with offen- 
 ders. The first method of dealing with offenders was retribution, or 
 vengeance, but with the growth of civilization the attitude became one 
 of deterrence or repression. The present attitude tends toward reforma- 
 tion and prevention. This change in the type of punishment has been 
 greatly influenced by : 1. The great industrial development, which has 
 caused a greater interdependence and consequently a better under- 
 standing of people living in different planes of society; 2. Republican 
 ideas of liberty as given by Montesquieu, Rousseau and Locke; 3. New 
 notions of the cause of crime were developed; 4. Change in the attitude of 
 religion toward crime; 5. A new classification of society opening the way 
 for an equity of administering the law. 
 
 Sources of data: 1. Examination of the original records of convictions 
 for juvenile, police, county and supreme courts; 2. Inquiry from judges, 
 court, probation and police officers; 3. Examination of evidence as to 
 truancy (see Education); 4. Personal investigation for verification of 
 records concerning licensed saloons; and, 5. Make map of district show- 
 ing distribution of offenders, juvenile and adult, and location of saloons, 
 and other public commercialized places of recreation. 16 
 a. Juvenile Delinquency (See Juvenile Courts). 
 
 1. a'. Offences for which juveniles were charged during past 
 year? Number of each? b'. Give locality and surroundings where juvenile 
 delinquencies are most prevalent? 
 
 2. a'. What per cent of delinquents are first offenders? b\ Re- 
 peaters? c'. Boys? d'. Girls? e'. Number at each age? 
 
 3. a'. Does there seem to be any relation between juvenile 
 delinquency and lack of playgrounds or other adequate means of recrea- 
 tion? b'. Lack of proper supervision of schools, playgrounds, etc.? 
 
 18 Is Crime Increasing? 
 
 See Criminal Statistics of the United States, Robinson; 
 
 "Investigation and Crime," Hounvich, Am. Jour. Soc. 1912; 
 
 The Criminal, Havelock Ellis, p. 369; Crime and Social Progress, Hall, Ch. I; 
 
 Responsibility for Crime, Parsons. 
 
 Classification of Criminals: 
 
 See Criminal Man, Lombroso; The Criminal, Ellis, Ch. I; Dependents, Defectives 
 and Delinquents, Henderson, C. R., p. 219. See also, Punishment and Reformation, 
 by F. H. Wines; Anthropology and Sociology in Relation to Criminal Procedure, by M. 
 Parmalee; Correction and Pretention, edited by C. R. Henderson; The Young Male- 
 factor by Travis; Garofolo, Criminology; Tarde, Penal Philosophy; Making the Criminal 
 by Russel and Rigby. For reports of investigations see surveys mentioned in classi- 
 fication above. 
 
COMMUNITY SURVEY 57 
 
 c\ Congestion? d'. What is their physical condition (of juvenile offen- 
 ders)? Their mental condition? 
 
 4. a'. What per cent have both parents living? b'. Per cent 
 having mother only? c'. Per cent having father only? d\ Per cent having 
 neither? e'. Per cent illegitimate? f. Per cent parents divorced? 
 
 5. What are the general conditions of their homes? 
 
 6. a'. Number who have regular employment? b\ Skilled? 
 c\ Unskilled? 
 
 7. a'. Are children employed in the street trades? b'. Character 
 of the trades? c'. Number employed in each, by sex, age, and nationality? 
 d\ What legal restrictions are there? e'. Are they enforced? 
 
 8. Are children allowed to work at night in factories or street 
 trades? 
 
 9. a'. Are children under fifteen allowed to work with adults of 
 opposite sex? b'. What supervision is there of such places? 
 
 10. a'. Is the sale of liquor and tobacco to minors under police 
 control? b'. Is it enforced? 
 
 11. a'. Is obscene literature circulated? b'. Where obtained? 
 c'. Do police attempt to control such sale? 
 
 12. a'. What is needed to improve conditions? b'. What efforts 
 are being made? 
 
 b. Adult Crime. 
 
 1. a'. Crimes and misdemeanors for which persons were convicted? 
 Annual number convicted for each class? b'. Age? c'. Sex? d'. Parentage? 
 
 2. Number of convictions for each 1,000 population? 
 
 3. a'. Number and condition of Municipal, Police, or City lock- 
 ups? b'. Number of inmates? Condition of cells? Ventilation? I> there 
 over-crowding? Is medical attention given? Is work provided for prison- 
 ers? 
 
 4. Number of inmates in county jail? What attention is given the 
 care of convicted persons? Are convicted and unconvicted persons kept 
 together? What is the condition of cells? What kind of work is done by 
 prisoners? Are there any classes, or is instruction of any kind given? 
 
 5. a'. Is there a state prison or reformatory in the community.'' 
 b'. What influence has it on community? 
 
 6. a'. Are parole and indeterminate sentence in use? b\ Under 
 what conditions applied? c'. Are there probation officers? d'. Number? 
 
58 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 e'. Time devoted to work? f. Number probationers cared for by each? 
 g'. Do drunks and prostitutes and diseased persons receive the special 
 care they need when in jail? 
 
 7. Are there fines or jail sentences for prostitutes? For keepers 
 of disorderly resorts? Number of each convicted? 
 
 8. a'. Are professional bondsmen allowed to operate in court? 
 b'. What are their methods? 
 
 State Institutions. 1 . a'. Are prisoners taught a trade while confined? 
 b\ Is it one which will be of service when they are released? 
 
 2. a'. Is contract or lease system used? State use? Piece price? 
 b\ What goods are manufactured? c'. What pay is received for each 
 prisoner? 
 
 3. a'. Is the institution self-supporting, if not, cost to com- 
 munity? b'. What amount is received from the contractors? 
 
 4. a'. Do the prisoners receive a share in the profits? b'. How 
 much? c'. If not, how much money are they given on their release? 
 
 5. Is any effort made to secure employment for discharged 
 prisoners? 
 
 6. Do dependent families of prisoner receive state aid while 
 prisoner is in confinement? 
 
 7. What is the total cost for the maintenance of police, courts, 
 and prisoners, as well as the loss through the crimes committed. ' 
 
 8. Is that expense equaled by amount expended in creating 
 conditions which will lessen crime? 
 
 III. Recreation and Amusements. 
 
 A recreation survey must take in consideration not merely the exis- 
 ting forms and opportunities, but like a survey of every other form of 
 activity, it should seek out the possibilities and resources offered which 
 are now neglected. In many cities the problem of recreation was hardly 
 considered until quite recently. As a result, the city has grown up in a 
 compact mass with no provision for playgrounds. Parks may be pro- 
 vided, but often these are at such a great distance from the most thickly 
 populated sections of the city, that it is possible for only a small propor- 
 tion of the inhabitants to patronize them. Even in some small cities 
 many schools are without playgrounds, and where they are provided for 
 they are without any equipment or supervision. In addition to the 
 outdoor recreation places, both free and commercialized, are the indoor 
 amusements. The dangers attending some of these are far greater than 
 
COMMUNITY SURVEY 59 
 
 those attending outdoor amusements and the need of supervision is 
 correspondingly greater. 17 
 
 a. General Situation. 
 
 1. a'. What are the principal recreations thai engage the leisure 
 
 of the population of your community? b'. Which of these are commer- 
 cialized? c'. W r hat agencies are there which provide recreation for young 
 people without profits? d\ For workingmen? e'. For working women? 
 V. What is cost of such recreations and amusements? g'. How arc neces- 
 sary funds secured? h'. Are these advantages made use of by the majority 
 of those for whom they are intended? 
 
 b. Playgrounds. 
 
 1. a'. What regular playgrounds are there? b'. Area?c'. Amount 
 of supervision? d\ By whom maintained? e'. Estimated number usin^ 
 them? 
 
 2. a'. Extent that unimproved lots serve as playgrounds? 
 b'. What use is made of the streets for playing ball, roller skating, 
 coasting, etc.? c'. Attitude of the police regarding use of streets? d'. Are 
 streets used by children dangerous? e'. What per cent of people have 
 no other place for recreation, than streets in vicinity of homes? 
 
 3. a'. Are schools provided with playgrounds? b'. Can they be 
 used in summer and after school hours? c'. Are they supervised? d\ 
 Are games part of the work of public schools? e'. Have moving pictures, 
 dramatic performances, etc., been introduced into the public schools? 
 
 4. a'. What free park facilities are provided by public or private 
 agencies, or both? b'. Cost of maintenance? c\ Amount of supervision? 
 
 17 For information concerning the study of recreation, see: 
 
 "Reports of Committee on Amusement Resources of Working Girls," 119 B. 
 19th Street, New York City. 
 
 "Playground and Recreation Association of America," 1 Madison Avenue, New 
 York City. 
 
 "International Committee of Y. M. C. A." 124 E. 28th Street, New Y or k City. 
 
 "National Committee of Y. W. C. A.," 125 E. 27th Street, New York City. 
 
 Recreation Survey of Milwaukee, Wisconsin. 1912. 
 
 Knowing One's Community, Carol Aronovici. 
 
 What Social Workers Should Know, Miss Byington. 
 
 The Newburgh Survey, Russell Sage Foundation ("Recreation Opportunities." 
 by J. L.Potter). 
 
 Community Study, by Warren H. Wilson. 
 
 "The Playground Survey" by Henry S. Curtis, American Jour. Soc. May, 1914. 
 
 "The Sociology of Recreation" by J. L. Gillin, Am. Jour. Soc. May, I'M } 
 
 Playgrounds and Recreation Centers, R. E. Rainwater, University of Chicago Press, 
 1914. 
 
60 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 Equipment? d'. Are they located where needed? e'. Fare from congested 
 districts, f. What is the general moral standing of the various parks? 
 g\ Are there free concerts held in parks, playgrounds, and schools? 
 h\ What is average number of children using parks? i'. Average atten- 
 dance of persons using the parks at the various seasons of year? 
 
 5. a'. What commercial amusements are there? b'. Where 
 located? Price of admission? c'. Do they have a desirable influence on 
 patrons? d'. Do they have beer gardens and dance halls connected with 
 them? 
 
 c. Athletics. 
 
 1. a'. What athletic fields are there in the community? Games 
 played? b'. Public or private? c'. Nature, extent? d'. How controlled? 
 e'. What proportion of the people may use them? V. Are the fields used 
 by the public open every day in the week? g'. If not, what is the reason? 
 
 2. What are the gymnasium facilities in the community? a'. Free 
 to public, location, class using them? b'. Open to public for fee, location, 
 amount of fee? c'. Open to members only, class admitted to membership, 
 dues? 
 
 3. a'. Give number and type of pool and billiard halls, bowling 
 alleys, skating rinks, etc., in the community? b'. Under what auspices 
 are they run? 
 
 4. Is intoxicating liquor sold in connection with any of these 
 places? 
 
 5. By what element of the population is each one patronized? 
 
 d. Dance Halls and Theaters. 
 
 1. a'. Give number of dance halls in community, b'. By whom 
 controlled? c'. Are they run under police supervision? d\ Is liquor sold 
 in connection with any of them? e' General moral standing? 
 
 2. a'. Do any clubs, organizations, etc., give dances which are 
 open to the public at stated intervals? b'. What is the character of these? 
 c\ Class of the population which patronizes them? 
 
 3. a'. Give number of theaters: a'. Where regular drama is 
 played? b'. Vaudeville houses? c'. Burlesque houses? d'. Moving pic- 
 ture shows? 
 
 4. a'. What is the capacity of each? b'. Average weekly atten- 
 dance of each? c'. Class of patrons received by each? d'. Most popular 
 type of entertainment offered, and the moral influence of each of the 
 above? e\ What remedies would you offer any or each of them? 
 
COMMUNITY SURVEY 61 
 
 5. a'. What are the state laws and city ordinances governing 
 play houses and dance halls? b\ Who is responsible for their enforce- 
 ment? c'. Are they properly enforced? 
 
 e. Entertainments and Clubs. 
 
 1. a'. Are there any public lecture courses given? b'. By what 
 organizations? c'. Character? d'. How attended? 
 
 2. a'. Are there any regular public concerts given in the com- 
 munity? b\ Under whose auspices? c'. What type of concert is most 
 patronized? d'. Does music play an important part as means of recrea- 
 tion in the community? e\ Are there any local musical organizations? 
 Type of work done? Membership? 
 
 3. a'. Are there any local dramatic clubs? b'. What kinds of 
 productions are selected most frequently for public entertainments? 
 c\ Membership of such clubs? 
 
 4. a'. Are there any boys and girls clubs? b'. In connection with 
 Settlements? With Libraries? With Institutional Churches? Number? 
 Membership? Average attendance of each? c\ Is the object of the vari- 
 ous clubs anything besides being purely recreational and entertaining? 
 d'. Under what auspices is club carried on? e'. Requirements for admis- 
 sion? 
 
 5. What clubs are for young men and young women? b'. Num- 
 ber? c'. Membership? d'. Character of club? e'. Is membership drawn 
 from any special class? 
 
 6. What seems to be the most popular recreation of the various 
 clubs? 
 
 7. What is most popular recreation of young people of com- 
 munity? 
 
 8. What particular amusements and entertainments are approved 
 and which condemned by the churches? How do the denominational 
 standards differ? 
 
 f. Saloons. 
 
 1. a'. Is community license or no license territory? I)'. If li 
 ratio of number of saloons to population? c'. Method of obtaining license? 
 
 2. Are saloons located in resident, tenement, or factory 
 
 districts? 
 
 3. a'. Are rooms rented in connection with saloons? b'. Arc 
 women or children allowed to enter saloons without restrictions? 
 
 4. a'. To what other regulations are saloons subjected? b'. How 
 and by whom are regulations concerning saloons enforced? 
 
62 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 5. What is the attitude of the various denominations to the 
 saloon and to drinking customs? 
 
 6. a'. Are the meeting places of labor unions, fraternal orders, 
 other societies, connected with saloons? b'. Have they a ladies' parlor? 
 c'. Is there evidence of gambling? d'. By what class are saloons chiefly 
 patronized? 
 
 7. a'. Are houses of prostitution allowed or tolerated? (F I d 5) 
 b'. Segregated? c\ Is solicitation on the streets tolerated by the police? 
 
 g. Day of Rest. 
 
 1. a'. What forms of business are conducted on Sunday? b'. Any 
 unnecessary? c'. Number of persons employed? 
 
 2. a'. What commercialized recreation on Sunday? b'. Is there 
 any effort to close places of recreation? Why? 
 
 h. Summary. 
 
 1. What is the total amount paid out by the city for recreation, 
 as compared with the amount paid for fire protection, courts, and police? 
 
 2. What proposals have you for the improvement of recreation 
 facilities in your community? 
 
 G. Education. 
 
 Education is the one activity which is universally recognized as the 
 most powerful agent in molding the character of the community. There 
 is perhaps more interest taken in this phase of the social survey than in 
 any other single subject, since there is no other agency in the community 
 which is of such general concern, and which touches so many people in 
 such a direct and effective manner. 
 
 Under the general head "Education" we have included, public 
 schools, private schools, libraries, music and art, the press and higher 
 education. 
 
 I. Public Schools. 
 
 In making a study of the public schools of a community, general 
 factors to be considered are: 
 
 a. Scope, dealing with the educational needs of the community from 
 the point of view of the number of people trained, the extent to which it 
 meets the needs of the community and the enforcement of the require- 
 ments of compulsory education. 
 
 b. Administration, dealing with the character and organization of the 
 administrative body, expense of maintenance, budget making and 
 accounting system used, and general policy of the Board. 
 
COMMUNITY SURVEY 63 
 
 c. Efficiency, dealing with the type of work done by the schools, tin- 
 facilities for handling the number attending, medical inspection, vacation 
 and evening schools, industrial and vocational training and general 
 efficiency of the teaching force. 
 
 In order to make a really efficient educational survey, the services 
 of a person familiar with school room administration is necessary. Much 
 of the data will be secured by: 
 
 1. A study of the State school laws. 
 
 2. Examination of the character and organization of the local 
 administrative body. 
 
 3. Special detailed reports of the School census. 
 
 4. Personal visits to the public schools, inspection of their 
 records, and questioning of teachers and pupils. 
 
 5. Reports from State Inspector. 
 
 6. Truant officer, and general inquiry. 
 
 Reports of similar studies may be obtained from the Department of 
 Surveys and Exhibits, and the Division of Education of the Russell Sage 
 Foundation, 130 E. Twenty-second Street, New York. 
 
 a. Scope. 
 
 1. a'. What is the total number of persons of school age in 
 community? b'. Total number in school? 
 
 2. a'. Number of children of school age who are out of school 
 and at work? b'. At what are they chiefly employed? (E II c) c'. Num- 
 ber in school employed outside of school hours? 
 
 3. Total number of illiterates in the community, by age, sex, 
 and nationality? 
 
 4. Number of foreign born who can neither write nor read the 
 English Language? 
 
 5. a'. What number of children leave school before they finish 
 the fifth, sixth, seventh, and eighth grades of school? b'. Per cent that 
 finish the first, second, third, and fourth year of high school. 
 
 6. What are the state laws governing school attendance? 
 
 7. a'. Is there a truancy department? b'. How is it maintained? 
 c'. Methods of work? d'. Has it legal backing? e'. Number of officers? 
 
 8. Do officers receive daily reports from the schools? 
 
 9. Is a card index of all children of school age kept in order to 
 trace any who are missing at the beginning of the school year? 
 
 10. a'. What is the number of cases investigated last year? 
 b\ Number taken to court? c\ Number sent to truant school? 
 
64 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 11. a'. What disposition is made of habitual truants? b'. Are 
 parents ever fined for permitting truancy? 
 
 12. Does officer visit and has he power to take into court pupils 
 who are truant from the parochial schools? 
 
 b. Administration. 
 
 1. a'. Are members of the school committee appointed or elected 
 at large by subdivisions? Number? b'. Salary? c'. Term? 
 
 2. a'. What active committees and what sub-committees? b\ 
 What have they accomplished? 
 
 3. a'. What is the total expense of public education? b'. Whence 
 is money derived? 
 
 4. In what proportion is the money divided between teachers 
 salaries, school maintenance, repairs, and construction? 
 
 5. Is accounting up-to-date and efficient? 
 
 6. a'. Are books furnished free to pupils? b'. What system of 
 buying and distributing books in use? 
 
 c. Efficiency. 
 
 1. a'. What is the capacity of the different grades? b'. Number 
 of children in each? 
 
 2. a'. Is overcrowding common? b'. What is the average number 
 of pupils per teacher? c'. Are any ever rejected or unclassified for lack 
 of room? 
 
 3. a'. Special provisions for cripples, feeble-minded, backward 
 and weakly children? b'. What is the method of committment? 
 
 4. Are there special classes for foreign children? 
 
 5. a'. Is there medical and dental inspection of the schools? 
 b\ How often are physical tests made? c'. Frequency of eye and ear 
 tests? (D III) d'. Is there moral instruction and supervision of play- 
 grounds? 
 
 6. a'. What is number of school nurses? b'. Number of school 
 visitors? 
 
 7. a'. Number of pupils who repeated their grade last year? 
 b'. What, in opinion of superintendent, is the cause? c'. What was the 
 per cent of increase of cost, due to repeaters? 
 
 8. a'. Are there vacation schools? b'. Evening schools? c'. How 
 long open each year? d\ Subjects taught? e\ How advertised? f. Are 
 they used by foreigners? 
 
 9. a'. Number of kindergartens in the public schools? b'. Num- 
 ber private kindergartens? c'. Are kindergartens maintained in the 
 poorer districts? 
 
COMMUNITY scrvi V 65 
 
 10. a'. Are manual training and domestii taught? b' In 
 
 what grades? c\ Subjects? d'. Are these subjects pari of the school 
 curriculum or optional? 
 
 11. a'. What trades are taught? b'. Length of courses? 
 
 12. a'. What industrial or private schools are maintained in the 
 community by either public or private organizations: j b\ Capacity? 
 c'. Work done? d'. Efficiency? e'. Cost of maintenance? i". Source of 
 income, etc.? 
 
 13. a'. Number of graduates who have gone into local indus- 
 tries in the last ten years? b'. Is there any effort to adjust local school to 
 local needs? 
 
 14. a'. What are the requirements for teachers' certificate- in 
 each grade? b'. Salary? 
 
 15. a'. Are school reports issued regularly, and do they deal with 
 distribution of expenditures, appointments and change of teachers? 
 b'. Do they deal with truancy, school population, number of pupils 
 dropped from rolls, repeaters, and absences, with comprehensive evi- 
 dence of the needs of the school? 
 
 16. Are there facilities and rules for reporting classroom condi- 
 tions? 
 
 II. Private Schools. 
 
 The investigation of the private schools consists in a study of those 
 schools which do work parallel to that done by the public schools, in 
 regard to efficiency as compared with the public schools, and the 
 extent of the field covered. While the investigation of the work of 
 the other private schools as Y. M. C. A., institutional churches, settle- 
 ment houses, etc., will consist principally in the scope of their activity. 
 
 1. a'. Are there any parochial schools in the community? 1>'. 
 Number? c'. How maintained? d\ Capacity? e' Number of pupils? 
 f\ Of teachers? 
 
 2. a'. Is the work done the same as that covered by public 
 schools? b'. Does the public school inspector have jurisdiction over 
 them? c'. Is the work of as good quality as that done by the public 
 schools? d\ Are foreign languages spoken? 
 
 3. Have the teachers qualifications equal to those of public 
 school teachers? 
 
 4. a'. What other private schools are there? b\ Give details 
 concerning them? 
 
66 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 5. a'. What is the number and type of educational classes in 
 Y. M. C. A. and Y. W. C. A.? b\ What is the attendance? c\ Subjects 
 taught? d'. Class fees? e'. Are the classes limited in numbers? f. What 
 groups usually join? 
 
 6. Are there any special funds provided by any of the industries 
 for the betterment of the community at large? 
 
 7. a'. What organizations are maintaining a lecture course? 
 Nature? b'. How well is it attended? 
 
 8. a'. Are there any social settlements in the community? b\ 
 Nature of their work? c'. How maintained? d'. Are they located where 
 needed? e'. What are their chief educational facilities? 
 
 9. a'. Are churches doing education work outside of parochial 
 schools? b'. If so, under what conditions? 
 
 III. Libraries. 
 
 1. a'. What is the number of libraries in the community? 
 b\ Number of books? c'. Of readers last year? d'. Hours of service? 
 
 2. a'. Are poorer districts provided with library facilities? 
 b'. How far from most distant point to a public library? 
 
 3. a'. Conditions under which books are loaned? b'. What is 
 method of distributing books to settlements, schools, etc.? 
 
 4. Are there private collections at the disposal of the public? 
 Number, kind, etc.? 
 
 5. Are books on special subjects, notably those pertaining to 
 local industries, kept on reserve for workers and students? 
 
 6. Are notices of new books and other library facilities published 
 regularly? 
 
 7. Have libraries juvenile departments? Story hours? 
 
 8. a'. Are exhibits held and public lectures given in the library? 
 b\ Do librarians actively aid readers in securing information? 
 
 IV. Fine Arts. 
 
 While music and art have a more or less indirect educational influence 
 upon a community, the effect of these factors are none the less evident. 
 The music that finds its way into the best homes is often times positively 
 degrading, not so much in its direct influence as in the fact that it tends 
 to weaken the finer sensibilities. In spite of all encouragements, the 
 degradation of musical taste among large sections of people, indeed among 
 a vast majority, is a cause for serious concern, and any movement or 
 influence which tends to work in the upward direction deserves all the 
 recognition and support it is possible to give. 
 
COMMUNITY STJRY1.Y 67 
 
 1. What advantages has community in lines of art and music? 
 
 2. a'. Are there any clubs or organizations devoted to music or 
 art? b'. Number, membership, requirements for admission, work carried 
 on? 
 
 3. a'. Are there any schools of music and of art? b\ ( rive details? 
 c'. Character and amount of music and art taught in the public schools? 
 
 4. a'. What is the number of private teachers? b'. Approximate 
 number of persons studying? 
 
 5. a'. Are any regular concerts given? b'.Typeof music furnished? 
 
 6. Are efforts put forth by any organization to educate the 
 public to an appreciation for the best in music and art? 
 
 7. Are there any museums or art exhibitions? b'. Give details? 
 
 V. The Press. 
 
 1. a'. What is the number of local newspapers? b'. Arc there any 
 printed in a foreign language? c\ What language? Circulation of each? 
 
 2. a'. Are the newspapers in sympathy with civic improvement? 
 What paper takes the lead in reform movements? How are its efforts 
 received? b'. Are they controlled by any special interests, or arc they 
 entirely independent? 
 
 3. What magazines are most read? 
 
 VI. Higher Education. 
 
 1. a'. Is there any college, normal school, or university in the 
 community? b'. If there is, under what auspices? c' Give capacity, cost 
 of maintenance, number enrolled, character of work done, general 
 effect upon community. 
 
 E. Religious Activities. 
 While the efforts of the churches and various other religious societies 
 have always been directed primarily toward the social and moral better- 
 ment of society, the work of the church in regard to definite community 
 welfare work has usually been a spasmodic or temporary uprising to 
 fight some definite evil. Consequently there has always been a lack of 
 concerted action on the part of the churches. If a definite policy is once 
 arrived at the difficulty arising from lack of cooperation will be lar. 
 overcome. 18 
 
 18 See "Sociological and Religious Survey of Seventy American Cities" the Presby- 
 terian Board, 156 Fifth Avenue, N. Y. 1912. 
 
 "Digest of Social and Religious Survey of Bristol," Public Library, Bristol, 
 Conn. 1912. 
 
 Community Study by Warren H. Wilson. 
 
 Survey for Rural Communities. George F. Wells. 
 
68 SOCIAL SURVEYS OF URBAN COMMUNITIES 
 
 1. What is the number of churches in your community? 
 
 2. a'. What denominations, creeds, or sects, do they represent? 
 b'. Any other organizations in community, which supplement the church 
 but which are not connected therewith? 
 
 3. a'. What organizations in the community are competing 
 with the church? b'. What is the ethical influence of these bodies? c\ 
 Could churches cooperate with them, or are they opposed to the funda- 
 mental principles for which the church stands? 
 
 4. Are there separate churches serving particular nationalities? 
 
 5. a'. Arc churches united on all civic questions? b'. If not, on 
 what do they agree and disagree? c'. Why? d\ Which are active with 
 regard to civic improvement? 
 
 6. a'. Is there favor in the community toward church federation? 
 b'. What could be done in the community with united churches that 
 could not be done now? c\ Why is it impracticable now? 
 
 7. a'. Is there opposition to the church in the community? 
 b\ On what grounds? 
 
 8. a'. Is there a ministerial association? b\ Membership? 
 c'. Object? d'. Does it include all the ministers of the community? 
 e\ Does it take an active part in civic movements? f. In prevention 
 of disease? g\ In social and moral prophilaxis? 
 
 9. To what portion of the community do churches feel they owe 
 obligation? Do they avoid poor districts? 
 
 10. a'. What methods are used to attract the different members 
 of the community? b'. Are there classes or groups in the community 
 which are not reached by the churches? c'. Describe them. 
 
 11. What additions and changes are needed in the religious 
 activity in your community? 
 
 12. a'. What work are the churches doing outside of their 
 regular religious services? b'. Do their activities extend to those who seem 
 most in need of them, or to their own members only? c'. Do churches do 
 any training for actual social work? d'. Do all the churches cooperate 
 with the charitable societies? If any do not, why not? e'. In what lines 
 are the churches and organizations of the community making the most 
 marked success? 
 
 13. a'. Do differences between churched and non-churched and 
 between denominations correspond to social differences? b'. What atti- 
 tude do the workingmen take toward the church? c'. If unfavorable, why? 
 
COMMUNITY SURVEY 69 
 
 14. a'. Membership of the Y. M. C. A. and Y. W. C. A.? 
 b\ Number reached by their activity? c\ Nature of their activities 
 religious, social, and other weekly meetings or lectures? d'. What classes 
 do they reach? e\ Are there any classes which they do not reach? Why? 
 
 15. a'. What is the total membership in the community of 
 churches and of other organizations which have for their object the 
 religious and moral betterment of the community? 
 
 16. a'. Are they united in their efforts to rid the town of the 
 saloon, in its present form? b\ What is being done to create the interest 
 of its patrons in other things (by Y. M. C. A. institutional work of 
 churches, etc.)? 
 
 17. What survivals are there of superstition, magic, belief in 
 luck, animism, ghost-theory and taboo? 
 
CONCLUSION 
 
 When the social survey of a community has been completed; when 
 the data concerning the various conditions and activities have been 
 gathered and the situation in all its complexities has been thoroughly 
 analyzed, the real work of the survey has just begun. For if nothing 
 results from the labor expended in the gathering of all this information 
 concerning the living conditions and activities the effort put forth in 
 making the survey will be worse than wasted, — it will serve as a deterrent 
 to any future work of this kind. The real problem connected with such 
 a study consists in the formulation of a constructive policy for the com- 
 munity, in all its various aspects, which will serve as the basis for a pro- 
 gram of development extending over a long period of years. 
 
 Since cities vary so greatly in their general composition and charac- 
 teristics, no single scheme of survey can be drawn up so as to be equally 
 applicable in detail to all communities, but, unity of method is necessary 
 for clearness and is indispensable for comparison of conditions. Without 
 some uniformity, the data gathered in an investigation would lose all of 
 its future comparative and scientific value. The scheme here proposed 
 is framed only as a basis which may well be modified when applied to 
 widely diversified communities without destroying its worth for making 
 comparisons and for drawing general conclusions. 
 
 It has been the purpose of this paper, first, to show the need for 
 comprehensive social surveys of urban communities, both large and 
 small, which will serve as the basis for constructive civic development 
 for years to come. Second, to classify the various surveys and investi- 
 gations which have been made, and indicate the need for a uniform system 
 of surveys in order that the benefits, the successes and the failures of 
 studies carried on all over the country might have a basis for scientific 
 comparison, and so that the data gathered would have permanent value. 
 Third, the plan of a comprehensive scheme of surveys, with some sugges- 
 tions concerning its application and for securing the necessary informa- 
 tion. 
 
BIBLIOGRAPHY. 
 
 General Theory: 
 Branford, V. V. 
 
 "The Sociological Survey" {The Sociological Reviav, April, 1912). 
 Daniels, Professor. 
 
 "Social Surveys, Reasons, Methods and Results," National Conference, Cluirities 
 and Corrections, 1910. 
 Devine, E. T. 
 
 Misery and Its Causes, MacMillan Co., 1909. 
 Fairlie, J. A. 
 
 Municipal Administration, The MacMillan Co., 1901. 
 Giddings, Franklin H. 
 
 Inductive Sociology, New York, 1901. 
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