A specific housing study was undertaken as one feature of this Relief Survey in order to ascertain the extent and character of the destruction of homes, to review the efforts made to furnish temporary shelter, and the policy and methods followed in the administration of the relief fund for building purposes. Some effects of the disaster upon the applicants were studied and the results recorded.
An attempt was also made to combine with the more specific study a consideration of the social status of each family, the occupation and earnings of the breadwinner and of other members, and certain facts relating to race characteristics and to rent expenditures. The investigation was begun in August, 1908, by a force of field workers who during the following three months made visits to the families and from personal interviews and corroborating inquiry obtained all or part of the information desired. The time intervening between the fire and the close of the study was therefore about two and one-half years. Though the city was by no means entirely rebuilt at the time of the study there was a demand for and a supply of labor which was in a large measure normal. Those who had received aid from the relief funds to rebuild had had time to consider what their permanent housing policy should be and, in the majority of cases, had made determinate plans.
The general plan of the study was to secure information for three specific periods: for the time immediately preceding the earthquake, when it was assumed that conditions were normal; for the interval between the disaster and the time the applicants built and occupied their new homes, when conditions were abnormal; and finally, for the period covered by the investigation, when most of the applicants had been living for some time in their new homes, and when conditions were again relatively normal.
Easy access was had to the fairly complete minutes of the various committee meetings, and to the numerous and well-arranged letters of instruction written by those who had charge of the housing work. Records had been kept of every case aided, showing the nature, extent, purpose of the grants, and the date at which the relief was given. This material, together with reports of the auditor of the Corporation and extensive files of newspaper clippings, was available for this study.
2. RETROSPECTIVE
There was delay in carrying out any comprehensive plans for housing because, as has been told,[168] emergency needs had first to be met, and because when the complex relief organization had taken shape, rehabilitation was halted by the action of some of the eastern donors to the funds. Another delaying element was the expectation that the national government might be persuaded to place large deposits with local banking houses, which might become available, on easy terms, for building purposes.[169] To this end a delegation of San Francisco citizens visited Congress to discuss the plan with the members. After careful consideration by financiers and those socially interested, the plan was decided to be impracticable.
[168] See [Part I], [pp. 22] ff., [69] ff., and [99]. In [page 69] ff., just noted, have been incorporated some of the facts gathered for this distinctive study. See also Original Housing Plan, [Appendix I], [p. 394].
[169] For account of the proposed $10,000,000 building fund, see Charities and the Commons, June 16, 1906.
When the Department of Lands and Buildings began to work it needed large quantities of lumber, but private interests had quickly purchased, at the excessive prices asked, the large supply which had been brought to the city. The Department was obliged at the beginning to secure from outside firms an option on 3,000,000 feet of lumber and a proportionate number of shingles. The option was secured at reasonable terms and the lumber was speeded to the city by steamers; but so great was the demand for teamsters that men had finally to be brought from nearby cities and towns to transport it to the building sites. Many planing mills had been destroyed, and those running were so crowded with private orders that the Department to avoid great delay had to erect two planing mills. These mills caused a saving not only in time but in expense.
The difficulty of securing reliable contractors was increased by the number of private orders received by the local firms, so that additional contractors had to be secured from adjacent cities. The expense of construction was increased still further by the abnormal prices asked for labor. The destruction of deeds and other evidences of title; the difficulty and expense of re-surveys; the perplexity in trying to locate building sites because of the uncertainty as to whether certain parts of the city would in the future be used as business or residence sections; the tardiness of insurance adjustments and the repudiating of liability by not a few companies,—these factors combined to retard the work and increase the cost of building.