Charities and the Commons: The Pittsburgh Survey, Part II. The Place and Its Social Forces

by Various

MRS. FRANKLIN P. IAMS.

Mrs. Iams, Miss Kate C. McKnight, E. Z. Smith, and other leaders of the Civic Club of Allegheny County, have been among the pioneer workers in housing reform in Pittsburgh.

Cleanliness and good repair of all parts of the house are required. The keeping of horses, cows, pigs, sheep, goats or poultry in tenement houses is prohibited, also the use of any part of a tenement house for a stable or for the storage of anything dangerous to life or health. The keeping of inflammable or combustible material under any stairway in a tenement house is prohibited. The act prescribes fines for violation and makes it mandatory upon the Bureau of Health to employ one or more special tenement house inspectors to inspect tenements and see that the requirements of the law are enforced.

The main points of the law are excellent, but it contains an undesirable feature in placing a premium upon the conversion of existing buildings to tenement uses. There seems scarcely room for question that if the working population of the city must be crowded into multiple dwellings, it is better for it to be into houses constructed and properly fitted for the purpose. But the law encourages the squeezing of three or more families into old, ill-adapted houses, erected for other purposes. A new house may not be built for tenement uses unless it has a separate sink for every suite of rooms, and a water-closet for every suite, or where suites consist of but one or two rooms each, a water-closet for every three rooms; but an old building, not constructed for the purpose, may at any time be made to serve as a tenement house if it has a sink and a water-closet on every floor, regardless of how many families may be occupying the floor, providing only that there is at least one water-closet for six rooms. A landlord may lawfully turn an old dilapidated mill into a tenement as in the case previously cited and provide only two sinks (one in a restaurant) and a yard hydrant for twenty-five families, but if he wishes to build a new tenement for this number of families the law requires him to put in twenty-five sinks.

To aid in the enforcement of the above law there was enacted in 1908 an ordinance requiring all tenement houses in the city to be registered in the offices of the Bureau of Health, and providing penalties for failure to comply.

An act of 1895 established a Bureau of Building Inspection in the city Department of Public Safety. Officials of this bureau are required to examine buildings in the course of construction or alteration, and houses reported in an insecure or dangerous condition. The superintendent and inspectors, as in other cities, are required to be men of practical experience in work connected with building construction, but must not be engaged in such work while holding office. Plans and specifications for all new construction or extensive alteration work must be filed with the bureau, and work of this character may not be carried on without a permit from the bureau, to be granted within ten days, when the plans and specifications conform to law. Where a permit is refused, the party aggrieved may appeal to a commission, to be appointed by the director of the Department of Public Safety, and to consist of three persons, either master builders, civil engineers, or architects; but authority is in no case granted to this commission to set aside or alter any provisions of the act, or to require the issuance of a permit for a building to be constructed otherwise than as required by the act.

Such a fixed law without discretionary powers granted to the building inspecting officials, or to the Bureau of Appeals, is an important safeguard to the community. The experience of New York affords conclusive evidence of the danger of an opposite policy. For example, previous to 1901, the laws applying to New York fixed a limit to the percentage of the lot which might be covered over by a new tenement building, requiring the remainder to be left vacant, in order to provide proper yard and court space for light and ventilation. But the superintendent of buildings was granted power to modify this requirement, and the result was that it was practically nullified. The New York Tenement House Commission of 1900 examined several hundred new buildings erected under the law, in the Borough of Manhattan, and found that only one per cent had the prescribed reasonable air-space. In theory, discretionary powers have advantages in giving a law sufficient flexibility to meet varying conditions, but in practice, where granted to modify reasonable legislation, they place worthy officials in the difficult position of being obliged to refuse,—in opposition to any influence that may be brought to bear,—to exercise discretion plainly permitted to them, and they open to unworthy officials of all grades innumerable opportunities for corruption and unjust discrimination.

In Pittsburgh the specific provisions in relation to details of building construction are incorporated in the main in state laws, but there are also certain city ordinances regulating building construction. Building requirements affecting sanitation and safety in dwellings for one or two families, apart from those enforced by the Bureau of Health and previously referred to, are few in number, although in Pittsburgh the great majority of the population is housed in buildings of this character, making the situation a vastly different one from that in New York, where seventy-one per cent of the families live in multiple dwellings and the proper control of these is the important matter.

ROBERT GARLAND.