v^isr-;^r*^!V-- Clip or Blrmlngbam. Report or tbe l)ou$itid Cotnttilttee» presented to Cbe Council on tbe 3rd 3uip« 1906. ^♦^^-^^^-^^ Birminabani : Percival Jones Limited, Town Hall Printing Offices, 87-89, Edmund Street. Price 2«. 6d. MAC CORNELL UNIVERSITY COLLEGE OF ARCHITECTURE LIBRARY Cornell University Library NAC 1435 .1 .G74B61 3 1924 024 386 546 Citp or Birmingham. Report of (be l>ousiiid Committee^ presented to Cbe Council, on m 3rd 3ulp« 1906. -f4>^4^>-f^ Birmingham : Percival Jones Limited, Town Hall Printing Offices, 87-89, Edmund Street, Price 2a. 6p, The original of tiiis book is in the Cornell University Library. There are no known copyright restrictions in the United States on the use of the text. http://www.archive.org/cletails/cu31924024386546 CONTENTS. Housing Reform Policy — (1) Generally (2) Improvement of existing conditions ... (3) Maintenance of Improvements effected (4) The encouragement of, and assistance in, the provision healthy cheerful houses on the outskirts of the City General work done by Committee Observations on visit to Germany Town Planning — Bournville Berlin Notes on Housing Question by Dr. Schocken Ulm • Letter from Oberburgomaster of Ulm to P. G. Whittall, Esq. Stuttgart Mannheim Frankfort Land Taxes at Frankfort Cologne ... ... Dusseldorf Extracts from " The Preparation, &c., of Official Building Plans Extracts from " Book on Activity of Ulm, &c." Conditions of Sale of Houses built by Ulm Dusseldorf 's New Building Scheme Stuttgart, by the Oberburgomaster Act of 1875, controlling the development of Building Areas " Housing Difficulties," by Miss Octatia Hill Notes on Miss Hill's system of Rent Collecting Development of Suburban Areas, by W. H. Lever Co-partnership in Housing 2, 3 of PAGE and 4 i i 10 14 15 15 24 29 33 40 46 50 55 60 67 80 83 8 97 105 111 115 119 128 The Plans are referred to in the context by their respective numbers. CITY OF BIKMINGHAM. IReport HOUSING COMMITTEE PBESENTED TO THE CITY COUNCIL ON THE 3rd JULY, 1906. members of tbe Committee : *Mi'. Councillor Nettlefold (Chairman.) Freeman. Herrick. William Jones. Lovsey. Pooler. Smith. Sperryn. These gentlemen, together with F. G. Whittall, Esq., formed the Deputation to Germany, which was accompanied by the Medical Officer of Health and the Committee Clerk. PRICE 2/6. ■(Copies can be obtained ,from Mr. W. S. Body, Clerk to the Housin g Committee, Council House, Birmingham.) Your Committee beg to report that in their opinion the time has now arrived when the Council should adopt a complete consistent policy for dealing with the housing conditions in Birmingham. Your Committee have hitherto been doing their utmost to secure the reform of the slums of the City, on lines that have been reported to, and approved by, the Council from time to time. They have long felt, however, that their work should be extended, and after a very careful consideration of the whole subject of Housing Eeform, they recommend that the following policy should be approved by the Council, and persistently carried out. The experience of your Committee is that the question divides itself into three main issues : — 1. The improvement of conditions in the City as already built. 2. The maintenance of improvements effected. 3. The encouragement of, and assistance in, the provision of healthy, cheerful houses on the outskirts of the City. All of these objects should be achieved without unduly or unnecessarily increasing house rents, and without favouring some members of the community more than others. No such policy can be thoroughly satisfactory unless it is capable of being applied to every part of the City where improvement is required, so that eventually the deate-rate of Birmingham may be reduced to at least the same level as that of rural and suburban districts. The Housing Reform policy now submitted for con- sideration is based partly on practical experience and personal observation, and partly on information as to what has been and is being done in other parts of England and on the Continent. The Notes accompanying this Report contain — A. Information obtained* by the Deputation from your Committee which visited Germany last summer, divided for ease of reference as nearly as possible under the following heads : — (a) General. (b) Town planning for existing cities as well as ,! for cities and suburbs to be built in the future, \\i including the creation and provision of parks, small ' open spaces and playgrounds. (c) Cost of streets and open spaces, etc. (d) Municipal land purchase and taxes on the rise in value of land. (e) Municipal house building. (/) Houses owned by the occupiers. ig) Assistance given to private individuals and Public Utility Building Societies willing to provide housing accommodation at a restricted rate of interest on the capital employed. {h) House inspection and rent collecting. (i) Flats versus self-contained houses. (j) Eents and wages. B. Translations from a few of the books and papers collected by the Deputation, together with some explanatory maps. C. Sundry information concerning English attempts and proposals to solve the Housing problem, some of the former of which are already assured successes, and others of which are of so practical and common sense a character * In order to avoid inisunderstandiDge and mistakes, the report of infor- mation obtained in each town has been submitted to the authorities concerned for verification. as to deserve tbe most careful conBideration by thosa endeavouring to formulate a complete and thorough policy of Housing Reform. Your Committee have carefully considered all the materials at their disposal, and now recommend that the following plan of action be adopted by Birmingham on the three main issues cited at the commencement of this Eeport. " IMPROVEMENT OF EXISTING CONDITIONS." 1. A persistent pursuance of the policy, already approved by the Council, of thoroughly repairing existing slums — letting light and air into crowded courts. To this must be added the creation of several small open spaces and playgrounds in the poorer parts of Birmingham. Amendments of the Housing of the Working Classes Act, 1890, more especially for the relief of holders of leases with short terms to run, would greatly facilitate slum reform. Town planning on lines similar to those so suc- cessful in Germany would materially assist the creation of open spaces. " MAINTENANCE OF IMPROVEMENTS EFFECTED." 2. In order to achieve this object, your Committee strongly recommend the adoption by the Corporation of Miss Octavia Hill's system of rent collecting, in accordance with Council Minute 13,782. Your Committee find by experience that improvement of the dwellings does not always result in an improvement of the habits of the tenants ; this latter very desirable reform must of necessity be a slower process than the former, and can only be achieved by patient, personal work such as that so success- fully accomplished by Miss Octavia Hill and her ladies in London. The Corporation cannot force property owners to adopt such a system, but they can demonstrate its immense advantage to all concerned by giving an object lesson in the management of their own houses. The Women Health Visitors have been so generally approved that your Com- mittee recommend with the utmost confidence the adoption by the Corporation of Birmingham of a system of rent collecting which should eventually provide the City with a further number of Women Health Visitors without any additional charge on the rates. So far, Council Minute 13,782 has been neither carried out nor rescinded, due no doubt to an incomplete comprehension of the benefits to be obtained from the plan thereby resolved upon ; and your Committee now recommend that, in accordance with the Report of the General Purposes Committee of October 22, 1901, the management of the Corporation's houses in Milk Street be delegated to your Committee as from the com- mencement of the next municipal year, or from such other convenient time as could be arranged with the Estates Committee, and that the General Purposes Committee be requested to make such alterations in the Instructions to Committees as may be necessary. The property in Milk Street was erected by the Corporation under a Provisional Order of the Local Government Board made in accordance with the provisions of the Act of 1890. When the powers of the Corporation under this latter Act were delegated to your Committee, it was clearly foreshadowed in the General Purposes Committees Eeport already referred to, that the withholding of the management of the Milk Street property from the Housing Committee then to be appointed was only a temporary measure. Your Committee now ask that the evident intentions of the General Purposes Committee of 1901 shall be carried out, so that Miss Hill's system, which has proved so successful elsewhere, may be intro- duced, and an example set by the Corporation which would assist in completing the policy of slum reform already being carried out on lines that have commanded the approval of a large majority of the City Council and a still larger majority of the ratepayers of Birmingham. THE ENCOURAGEMENT OF, AND ASSISTANCE IN, THE PROVISION OF HEALTHY, CHEERFUL HOUSES ON THE OUTSKIRTS OF THE CITY." 3. The present building bj'e-laws prevent the erec- tion of crowded and congested courts like those with which your Committee are now dealing, but they do not provide for the construction of wide main arteries where they are required for through traffic between the centre of the City and its suburbs, and the open spaces now recognised to be necessary in big cities. The most enlightened opinion to-day is that streets in purely artizan residential quarters, instead of being made narrow, and having the houses set back from the road, are often made wider and rnore expensively than is necessary, thereby forcing up house rent beyond the means of those who would be greatly benefited by changing their abode from the centre of the city to districts nearer to the open country, whereas they fail to prevent the erection of jerry-built houses, which are harmful to the people who live in them, and a continual source of expense and annoynnce to the people who own them. The creation of new congested districts without the necessaries of healthy life now going on in large cities can only be prevented so far as our own City is concerned by obtaining power to forbid the erection of any new buildings except in accordance with a general plan for developing all uncovered land within the City boundaries. For the preparation of this plan a Special Committee should be appointed, consisting of representatives from the Public Works, Health, Baths and Parks, Tramways, and Housing Committees, together with an Architect, Builder, Medical man, Lawyer, Surveyor, and Estate Agent to be co-opted by the Council for their special knowledge of Housing re- quirements and land development. This Committee would, in preparing such a plan, allow for the proper laying out of the undeveloped areas, and report their recommendations to the Council with regard thereto. The working of the Town Extension plan scheme has already been described in your 'Committee's Report of October 24th, 1905, and is further explained in the information accompanying this Eeport, more especially in the extracts from " The Preparation and Execution of Official Building Plans," by A. Abendroth. The healthy development of the Gity would undoubtedly !be much assisted if the Council could obtain power to purchase land without, as at present, being obliged to specify ithe exact purpose for which the land is to be used. Your Committee are of opinion that a Corporation -cannot own too much land, provided that it is judiciously purchased. Municipal land could be laid out with open spaces and all other essentials to a healthy, happy ■community, with the additional advantage that any future rise in the value of the land would directly or indirectly go to the ratepayers. The Corporation could then assist private individuals and Public Utility Building Societies, with whose bona fides they were satisfied, to erect at the -lowest possible rate healthy cheerful houses for people with small incomes. The policy of buying land and encouraging •other people to build the houses would enable the Corpora- tion to give a great stimulus to the supply of good, cheap houses on the outskirts of the City, and would thereby benefit a very large number of people. It is now universally recognised to be of the utmost importance to spread the populations of our large cities over a greater area than hitherto, and your Committee are convinced that public money spent on land purchase would effect far more towards ■the solution of the Housing problem than money spent in -any other way. There are already in England Public Utility Building Societies ready to undertake the building of houses -on conditions agreeable to Corporations, and no doubt •others would soon spring up. This policy of the Munici- 8 pality creating ground rents, and directing the development, of building land, on sound, sanitary, and cheerful lines, hafr ■worked most successfully in Germany from the hygienic point of view, without putting a charge on the rates which all classes have to bear either directly or indirectly. If those responsible for carrying out the land purchase policy were, as they should be, in intimate touch with the Tramways Authorities, the benefit to the community and profit for the ratepayers could be greatly enhanced, and house rent kept at a reasonable figure. To obtain the necessary power to enforce Town. Extension plans and carry out a vigorous policy of land purchase, fresh legislation is essential. Your Committee are of opinion that this legislation should be of a general and not a local character, and therefore they do not suggest that the Corporation should be put to the expense of pro- moting a Bill to effect this object. In their opinion it would be equally effective, and avoid all expense, if a Private Bill were introduced. An expression of opinion in favour of such legislation by the City Council of Birmingham would greatly assist the passage through Parliament of such a Bill, and this your Committee now recommend should be given. Another important point in connection with this part, of the Housing problem is the desirabihty of enabling the occupiers of small houses to gradually acquire the houses they live in. The Council will remember that it was with this object in view Mr. Joseph Chamberlain introduced the Bill which resulted in the Small Dwellings Acquisition Act- It has been said that this Act does not achieve its object, but your Committee recommend that the powers of the Council under this Act, which is strictly a Housing Act, should be referred to them for two reasons : — 9 1. They want to make an effoi-t to encourage its- use. 2. If their attempt fails, then the experience gained would enable them to suggest amendments- which would achieve Mr. Chamberlain's object in introducing the original Bill. It is not suggested that the above proposals, if adopted,, will finally solve the Housing problem, but the information accompanying this Eeport shows conclusively that your- Committee are not recommending anything that has not been successful elsewhere, and above all they would point out that the policy they advocate is essentially a common- sense one. It may be found by experience that one or- another of the proposals are not applicable to the conditions in Birmingham ; on the other hand, it is quite certain that, if nothing is attempted nothing will be done. It is only by experiments carefully thought out beforehand that the Council can possibly hope to alleviate the unnecessary miseries of life in Birmingham which are so generally deplored. With regard to the general work of your Committee since its inception in April, 1901, to May, 1906, they submit for the information of the Council the following particulars : — A. Number of Houses rendered habitable with or without notice ... ... 1,132 Number of Houses demolished as un- fit for human habitation ... ... 445 Average cost to the Corporation of each House dealt with (including legal, administrative and general expenses) £2 2s. Od.. B. Number of Obstructive Buildings re- moved ... ... ... ... 77 Average cost to the Corporation of each Building removed ... ... ...£29 Os. Od.. 10 C. Number of Courts opened to the street 41 D. Spaces in congested districts now thrown open by the operations of About your Committee ... ... ... 12 acres. They feel that it is matter of congratulation that so much good has been done to improve the housing conditions -of the poorest classes in Birmingham at such a small cost 'to the Corporation. YISIT TO GERMANY. Your Committee submit the following observations upon the general impressions of the Deputation. House Accommodation. Everywhere the Deputation found the dwelling houses of the artisan classes were in a beautifully clean condition, and that house-pride appeared to be more evident than in England. The Deputation asked to be taken to the poorest •parts of the cities and towns, but in no case did they see any ■of the conditions of filth and dirt in the houses nor of dirty ragged children in the streets that one meets in the lower class districts in Birmingham and other large English cities. Everywhere these conditions of cleanliness of houses and -children and clean, healthy looking people were in some measure due to the great care and thrift displayed by the German working man. The houses themselves appeared to the Deputation to be incomparably inferior to those in English towns, when the amount of accommodation and the lighting, ventilation, and air-space surrounding the house is taken into consideration. Everywhere in the towns the "Flat" system is prevalent, ■producing imposing buildings on either side of relatively wide streets. In this respect the German towns resemble very closely most of the Scotch towns, in many of which the buildings are as high and the streets as wide and as w-ell tlaid out and handsome as those in German towns. 11 Rooms per house. — It will be observed from the figures given below that a much larger number of families in •G-erman towns live in one-room houses or tenements than in England. The following figures from the Berlin Year Book were given to the Deputation as relating to house accommodation in Berlin : — Number of Rooms per House. Number of Houses Percentage of Total Persons. 1 230,206 49-7 2 132,144 28-6 3 52.628 Jl-4 4 21,469 4-6 5 and over 5 26,500 57 Total 462,947 1000 Exactly coiresponding figures for London are given in the table below : — Number of Rooms per House. Number of Houses. Percentage of Total Houses. 1 149,524 14-7 2 201,431 19-7 3 181,542 17-8 4 139,533 13-7 5 and over 5 347,616 34-1 Total 1,019,646 100-0 12 Just as it is impossible to judge of tlie conditions in pro- vincial towns in England from those existing in the metropolis, so those existing in the German Metr-opolis differ from those in the provincial towns. While this is so, everywhere it was evident that the number of rooms per family is considerably less than in our English towns. Ventilation. — A considerable number of the flats in Berlm and other towns appeared to be difficult to ventilate, and thej' nearly approached in arrangement that found in our back-to-back houses. Ligliting. — Again the condition of lighting in certain of the flats which were seen in course of erection in Berlin and some other towns was very much below the standard which is required in this country. The houses or tenements at the back in many of these flats have their windows opening into a " well " surrounded by high buildings which effectually prevent good lighting and ventilation. The Sanitary Arianciemciits did not appear to be of as good a standard as in this country. The total amount of air space around houses is much less than in England, even if the wider roads are taken into- consideration. This smaller amount of air space in the immediate proximity of a house is compensated for by the provision of large parks or woods in or near the towns, these being open to the public and much frequented in the summer time. In several of the towns these open parks are enormous in extent. Restaurants have been provided in them where refreshments for all classes can be obtained. In the centre of the towns there are many smaller parks with restaurants and music, so that while the houses them- selves do not possess much open space, the people who occupy chem spend a large part of their time in summer in the open* air. 13 General arrangement of the Buildings. — The effect of iiown planning in the newer parts of the German towns visited was distinctly in the direction of ensuring the •erection of suburbs which are pleasant to live in and convenient of access. It appeared to have the effect of preventing straggling suburbs, which are difficult to provide with means of transit on account of their sparse population and which require costly roads to be made without much use being made of them for many years. Immediately the development of the extension plan is commenced it becomes possible to contemporaneously develop tramway and railway systems. In this way it appeared to be beneficial to owners of estates, because they did not Tequire to spend money in laying out until just before the time the whole of the estate would be developed. General Healthiness. — The statistics, of the German ^iowns are scarcely comparable with those in this country, because customs differ so much in the two countries, and there are so many influences at work other than housing •conditions in producing high mortality. Speaking generally, the mortality rates for the last five years for which figures are available are as follows : — The United Kingdom Death-rate. The German Empire Death-rate. 1899 18-2 1899 21-5 1900 ... 18-4 1900 22-1 1901 17-1 1901 20-7 1902 16 5 1902 ... 19-5 1903 ... 15-8 1903 20-0 14 As a rule most of the German towns show higher death-rates than corresponding towns in England. The mortality rates from certain diseases such as Typhoid Fever and Diphtheria are also considerably higher. There is a high mortality among infants, amounting to 207 per 1,000, born in the year 1901, as compared with 151 in England during the same year. In presenting this Eeport your Committee take the opportunity of expressing their most sincere appreciation of the courtesy and kindness shown to their Deputation at every place visited in Germany. No trouble was thought too great by their German colleagues to ensure that th& Deputation were supplied with the fullest information possible. TOWN PLANNING — BODUNVILLB. In concluding their report your Committee would call the particular attention of the Council to Plan No. 9. This is inserted with the sanction of the Trustees of the Bourn- ville Estate, and shows that the proposal to plan out suburban areas in order to ensure their proper developmeni is not only a commonsense suggestion but has actually been successfully carried out within a very few miles of Bir- mingham itself. It will be observed that this plan shows the general arrangement of the most completely developed part of the Bournville Estate, and fairly indicates what a healthy suburban district should be like. The open spaces reserved for playgrounds and pleasure grounds are shown in green colour, the parts built upon are shown in red, the parts undeveloped in purple, and the parts reserved for works in yellow. 15 BERLIN. (fl) General. The Deputation visited the Rathaus, and were received' by Herr Gottheiner, Baurat, who exhibited and explained the Extension Plans in force in the City. The following notes on the Housing Question, prepared' by Dr. Schocken, Magist rats- Assessor, were handed to the Deputation. Notes on the Housing Question. — .^bout the year 1900 the City Board of Berlin, like all Boards and Governments in Germany, experienced the disagreeable fact that small and cheap lodgings had become extremely rare. The prices for small lodgings were raised to a height that made it almost impossible for workmen, subaltern ofificials, small traders, etc., to pay the rent. The disinclination of the private building speculators to provide for the sudden want had different social causes which may be known to you sufficiently, so that we may pass over them here. Only the measures taken by the Berlin City Board shall be discussed. We shall also not consider what has been done for the homeless poor by public institutions (Offentliche Armenpfiege) . The municipal and pro- vincial magistrates in Germany are obliged to provide for the poor. The Municipal Administration of Berlin began by collecting statistics. By these it was proved that the lack of lodgings had only arisen suddenly and temporarily, since which the number of empty lodgings- had begun to increase, and the number of the home- less poor to decrease. In the beginning -several political parties suggested different projects ; to let land belonging to the town Note* — Throughout this report the German mark has been taken to be equivalent to is., the metre to 39 inches, and the hectare to 2^ acres. 16 -gratuitously or very cheaply; to build small lodgings -at the expense of the City ; to diminish the taxes on the construction of streets ; to tax land in a special manner ; to let the land in such a manner that the iperson who acquires it has the alienable and inherit- -able right to build on it, though the right of property itself is reserved to the original proprietor. This is a form of letting or leasing land well known in England, but little known in Germany. The Municipal Administration could not make up their minds to adopt all of these projects. The dififi- "Culty consisted not so much in the lack of experience in these measures, but in the view taken as to the reason of the scarcity of lodgings. The Administration were of the opinion that it would be better to help those organisations which aimed at providing lodgings in the interest of public welfare. Under the pressure of the want of lodgings, societies and unions had been formed -during the last ten years for the purpose of providing their membeis with healthy cheap homes, excluding ^pecuniary gain. In order that these aims might be successful, it seemed best to give credit and support to those societies. They might then be able to create per- manent institutions of this kind. Until it was proved that private organisations and private men were not able to satisfy the present want for lodgings, the Administration themselves could ■not begin to build at their own risk. The support consisted, as is usual here, in the grant of mortgaged credit. But it needed special care to prevent the possi- bility of single private men having the profit of the facilitated credit, in order that the advantage was not lost to the public. During the last years three unions rhave received such a loan of $00,000 M. (£25,000) bearing interest at about 3 per cent., and due for repay- 17 ■merit in a period of about ninety years. This rate of interest is in our country rather low, especially in con- sideration of the fact that other mortgages have the preference. In exchange the Unions are obliged to present their projects of building to the City Council, to finish the buildings in a fixed time, and to subject themselves to a continual control by the Administra- tion. The rents have to be fixed in such a way that they cover the costs of the interests and the main- tenance of the buildings. The surplus must not be used for accumulating capital, but for making the rents of lodgings cheaper, for improving the lodgings, and for sanitary and beneficiary purposes. The Unions must inform the City Council of their resolutions, the balance-sheet must be approved of, the City reserving the right to acquire the property when the Union is dissolved, also a right of pre-emption. For the immediate benefit of the inhabitants the following rules have been fixed : The tenements are only to be let to the less wealthy inhabitants of Berlin. These must have been living in Berlin for at least five years. The latter condition prevents undesirable elements instead of domiciliated citizens from getting the advantage of the beneficiary institutions. Families with many children are given the pre- ference. The text of the lease contract is subject to the approval of the City Council. Only such under-tenants are to be admitted who act according to the sanitary and moral prescriptions. The special difficulty is to carry through all these different measures by the means of mortgaged credit. However, the register of landed property in Germany may be of service. The inscription in the register gives real force to the obligations. Violating the terms of the contract has as a consequence the paying back of the loan and eventually the forfeiture of the property. 18 By these measures we have succeeded in procuring- healthy and good homes for hundreds of families, and we hope that our success will still increase. Berlin, 2Q July, 1905. Dr. SCHOCKEN, Magistrats Assessor. (b.) Town Extension. The following is a brief account of the method adopted in Berlin in regard to the formation and adoption of Town Extension plans. When proposals for building on undeveloped land are received, or when the Town Council thinks wise, a plan for laying out of the land is formulated. When this plan has once been formulated and finally approved, no buildings can be commenced until the streets have been constructed,, and sewers, etc., laid in accordance therewith. The stages of the making of such plan are : — 1. Undeveloped land. Council officials or the land owner formulate a plan. The plan of the owner has to be passed by the officials. 2. This plan has to be approved by the Council City Parliament and Police. 3. It is then published for four weeks, during; which time any individual (not necessarily a ratepayer) has the right to object. 4. Objections, failing agreement, are submitted to and decided by a Magistrate. 5. The plan has then to pass the Minister of Public Works, who also finally decides the objections rejected by the Magistrate. (Note.— In other places the plan has to go before a local Board of Government, or the President of the Province.) 19 6. It has then to receive the approval of the Kaiser, virhose approval is by no means merely formal. This applies on'y to Berlin, Charlottenburg and Potsdam, where the Kaiser is considerably interested. The Council in making the Extension Plan need not consult with the owners of the land, but if an owner approaches them they generally do so for the sake of amity. Before building, the builder has to obtain the approval of the Police as to the details of construction. The law governing this procedure for the making of an extension plan applies to the whole of Prussia, and was made in 1875. Only exceptionally does this law specifically direct that the Municipality shall make such plans, but, as a matter of fact, by a combination of circumstances, the Municipality is generally forced to do so. Immediately the plan is passed, all development must be strictly in accordance therewith, but the Council may, if they think it desirable, through altered circumstances, vary the plan ; any variations, however, are subject to the same approvals as previously stated. If the Council should not make an Extension Plan, the owners cannot build any dwelling houses on the land con- cerned. Other buildings than dwelling houses they may erect. It was pointed out that as a general rule the builders recognise the benefits they derive from the enforcement of an Extension Plan, which opens up the land to the best advantage for development. An objection by an owner that his property is depreciated by the reason of the making of an E>xtension Plan, is not 20 considered; the only ground of objection admitted for con- sideration is that the plan has not been made to the best advantage of the community. No compensation is paid to an owner in respect of the making of an extension plan except when the new streets interfere with actual buildings, in which case compensation is paid for the buildings destroyed. In many cases the amount of compensation is arrived at by agreement ; and failing agreement, it is settled by process of expropriation. The objections of owners to the making of an extension plan must be definitely settled before the plan is finally approved. All matterSj however, relative to questions of compensation, the price to be paid for the buildings destroyed, etc., need not be decided before the actual construction of any street shown on the plan. The Deputation inspected a detail plan of a suburb in the north of Berlin, which was then under consideration. Some streets had already been made on the area concerned. The plan was originally made in 1862, but the streets then designed were never constructed, and, consequently, no buildings had been erected. Now a new plan has been formulated, or rather, the old plan has been somewhat modified, and open spaces have been provided. The whole of Berlin has been planned in this manner since 1862. The Corporation have no power to stipulate what kind of buildings shall be erected, and the construction of the buildings is governed by the Police Authorities. The guiding principle is that in any new buildings or alterations to old buildings, nothing should be undertaken that would injure or endanger the common good. '21 It was pointed out that intelligent landlords see that it is quite as much to their advantage as to that of the community that virgin land should be laid out on a comprehensive and wise plan, instead of in a haphazard fashion. (c.) Cost of Streets, etc. The land required for the streets is sold by the owner to the Council at its market value, or by process of expro- priation, but when the streets are made, and the buildings are being erected thereon, the Council receives back from the owner the amount expended by them in making the streets. Consequently, in many cases, the owners prefer to give up the land required for the streets, so avoiding unnecessary trouble. The Council purchases the land for the streets only, the owners of the land built on bearing the cost of making the road ; when, however, the road is over 86 feet wide, the Corporation bear the additional cost incurred by reason of the extra width. The Council buys the land which is appropriated for open spaces. Many open spaces have been provided in Berlin, which the Council have purchased. The prices paid were not exor- bitant, and not more than the ordinary market value of the land. Once a plot of land is reserved for an open space, it must always continue open. No land tax is paid on the Parks. NOTE. — With regard to the making of town extension plans difficulties sometimes arise. For instance : If two Municipalities are contiguous, and one of them intends to make a plan which continues into the area of the other Municipality, the law prescribes that they have to come to an agreement. If this cannot be achieved, the case has to be decided by an Official, who for Berlin is the Minister of Public Works. 22 (d.) Land Purchase, Land Taxes, etc. Berlin has just increased its rate on the increased value of land when sold. («.) Municipal House Building. The Council have not erected any working men's dwellings, and the Deputation was informed that at present they do not intend to do so. (h.) House Inspection. The Council have very little power to deal with existing bad houses, except when such houses interfere with an extension plan. («'.) Flats v. Single Houses. The dwelling houses in Berlin are practically all flats ; there being very few self-contained houses, and there are no slums in existence similar to the slums of English towns. Practically all classes of the community mix, and in the ■same set of flats may be seen families of the middle and poorest classes. In Berlin, with the exception of the newest parts, the flats are generally constructed very close together, and, as a result, high and deep buildings, with deep wells for light in the middle, and wide streets, are found. It is, however, now being found that the shallower building sites are con- siderably more healthy, and they are being adopted. A feature of interest is the wide streets which abound in all parts of the city, but it was ascertained that the cost of these wide streets, as long as they do not exceed the width of 86 feet, falls on the building land and sends it up in price. The same condition applies when the land- owner constructs the street, however wide it may be. The natural consequence of wide streets, therefore, is high buildings. ■23 The average price of building land in the outer pirti o the town is about £i i6s.. 6d per yard. One result of the mixing of the classes is that the houses occupied by the poorer classes are better looked after and cleaner than would otherwise be the case. The window balconies are generally profusely decorated with flowers, which give a picturesque effect to the street. (;'.) Rents and W^ages. The average rent in Berlin of working men's dwellings for two rooms and a kitchen in a fiat is from 20 to 24 shillings per month ; other rents are: One-roomed tenement at back, 3/- per week, two-roomed tenement at back, 4/6 per week, three rooms in front, 8/- per week. The water rate is included in the rent, but gas and rates are excluded. No rate is paid on a dwelling house. The ratepayer pays a rate to the Council equal to his income tax paid to the State ; from which it follows that workmen who are ■exempt from income tax to the State are also exempt from the payment of rates to the Council. The average wages of the unskilled labouring class in ^Berlin are about {>^ a month 24 UliWT. [a.) General. The Deputation visited Ulm on the 3rd August, and? were received by the Oberburgomaster and members" of the Town Council and Officials. In Ulm it is considered that the five main points in' connection with Housing are as follows : — 1. Land policy, which means that the town should own as much land as possible. Ulm owns about 80 per cent, of the land within the city boundaries. In this respect Ulm has special opportunities : — (fl) As an old free town it has always owned consider- able land. (b) It holds what land it owns (in some towns in^ Germany it is a practice to sell the land.) It buys land from time to time as opportunity^ occurs. (c) The sale of the fortifications by the Empire, at a very reasonable figure, gave the town a very- large block of land. 2. That the working classes should own their own. houses. 3. The prevention of land and house speculation. 4. The provision of wide arteries for main thorough- fares and narrower side streets for residential purposes. 5. The education of the people to prefer single houses. (b.) Town Extension. The Oberburgomaster of U m informed the Deputa- tion that, in his opinion, Berlin only provided a plan for 25 extension and nothing more ; beyond their building plan one only saw in Berlin what to avoid. Tf it is desired to follow the policy of single houses, then the cost of road making, which in Berlin is excessive, must be reduced wherever possible. In the residential quarters of Ulm, where there is no heavy traffic, the Deputation saw narrow streets cheaply made, which were quite wide enough with the gardens to provide the houses with sufHcient light and air. In Ulm it is found necessary to have wide streets well made for through traffic, but the working class residential quarters do not require such wide streets. The narrow streets meet all the requirements of the particular neigh- bourhood, and, being very much less expensive, materially reduce the rent of the houses, as compared with those on wider and more expensive streets. In all outlying neighbourhoods they insist on having a certain space between each house, and in one case — Kingler Street —the Deputation saw buildings 2^ stories h gh, which had a space between of \ c,^ yards. These houses were chiefly occupied by teachers, officials, etc., and the land was let at 5d. to is. per yard, according to whether it uas front or back land. They are. very anxious to preserve the older portions of the town, and they do not allow their housing policy and building regulations to interfere with the picturesque old parts of the town. This is an idea however which has only recently been introduced. In addition to preserving the beauty of the old parts of the town, they arrange in a general way that wherever new buildings are erected, or alterations to present buildings are carried out, the work shall be in harmony with the adjacent buildings ; and further. 26 in all new streets designed, opportunities are taken, wherever possible, to have curved streets instead of the wearisome long straight streets and square corners on the older building plans. Not only do they control the direction and width of the -streets, but also the arrangement and outside construction of the houses, so far as the artistic effect is concerned. They have practically complete control of the detailed construction of the houses. Being the owners of most of .the land, they are generally aware when owners are about to build, and consequently are able to control the extensions of their Ttown. (c.) Cost of Streets, Open Spaces, etc All open spaces remain in the possession of the town ■for ever. (d.) Land Purchase, Land Taxes, &c. Ulm has made a proht out of its buying and leasing, and is often able to purchase land without borrowing. They are buying and leasing land almost daily. It must be understood, however, that this leasing of -land only applies to the sale for a limited number of years, and in certain cises the Corporation have the option of re-purchase. In Ulm they recognise the injury to the community ■ of land speculation, and therefore have a regulation under which the town has power to buy back the land at the end of loo years at the price they received for it. The price paid by a tenant to the Corporation for land :in a working class neighbourhood is is. per square yard -for back land, and 30s. to 40s. for front land. 27 (Between 1891 and 1903 Ulm purchased 625 acres ot land). They have, in buying and leasing, etc., made a con- siderable profit during the last five years (in fact, a profit •of about ;£2 50,000), and have an increased value on their holdings of ;£i,5oo,ooo. As an example of the way their profit is made, they bought a certain piece of land for 5s. per ^■ard, and after- w irds the Post Office bought it from them at i 5s. per yard. -On another piece of about 50 acres they have made a large profit by selling it to a Railway Company. They paid to the German Government £225,000 for the whole fortifications, and are now negotiating for the ■sale of a tenth part of these fortifications for ;^50,ooo. Until they bought these fortifications they were really unable to extend their boundaries. The German Govern- Tnent insists on there being a certain amount of open space in front of all fortifications, and this is an effectual check to town extension. It was thus necessary to buy the forti fications. The moat is in parts being filled up, on which roads and public gardens are being made, and they expect to make a handsome profit on their purchase. They adopt the policy of offering land cheaply tomanu ■ facturers to induce them to bring their works to the town. The Deputation were told here of the unfortunate ■experience of Stettin. In 1884 Stettin had a chance of buy- ing their fortifications for /"soo.ooo, but would not offer more than ;^2i2, 500. In 1894 the Empire sold a portion of the fortifications for ;^650,ooo, and still had a good deal ■of the land left in their possession. Ulm regards the land policy as the root of the Housing •Question. 28 (e.) Municipal House Building. Ulm builds houses for those who want to own, but not for those who want to rent only. (f.) Houses Owned by the Occupiers. In Ulm the tenant may pay to the Corporation in annual instalments in lieu of rent the cost of buying the land and building the house. The annual instalment is fixed at a sum sufficient to re-imburse the Corporation any annual charge in connection with the property. The Deputation were taken to see buildings erected by the Corporation and sold, as before referred to, to working men. They were all occupied by the owners, who had purchased the land and buildings from the Corporation. They were single houses, and each occupied by one family. Each house, with the land on which it stands, and the garden, cost ^fjoo. The tenants pay for the house and land in 22-| years, though in some cases a little longer time for payment is allowed. In one part of the town, the west, the payments are based on 2j per cent, of the principal, or repayment in 26 27 years — this applies to double houses. In another part of the town, the north, i-J-per cent., or 37-38 years — this applies to single houses. The Council demands 10 per cent, down, and the remainder as above. In some cases the workmen have not enough money saved to pay this 10 per cent, at once, in which case the town arranges for such a tenant to make small payments until the 10 per cent, is reached, when he obtains the owner- ship of the house. He is, however, allowed to live in the house and has to pay rent in the ordinary way until the ID per cent, deposit has been paid. 29 The town will not allow the sub-letting of the houses, and if any tenant desires to re-let, the town immediately buys back the land and the house. The Deputation also inspected a series of double tene- ments sold at a similar cost of jC300 for house and land. These were owned by one man, who had power to sub-let the upper half. Each tenement had two rooms, a kitchen, wood store, cider cellar, and workshop, and each tenant had a share of the garden. The top floor was let at ,^8 per annum, and the bottom floor at £g per annum. The tenants are not allowed to sub-let or re-let. In one of the new districts of Ulm, although the largest families live there, the death-rate is only lo per 1,000. (i.) Flats v. Single Houses. Ulm considers that tenement dwellings are bad, and is ■endeavouring to educate the people to live in single houses. Letter from the Oberburgomaster of Ulm to F. G. Whittall, Esq., Dec. 11th, 1905. In reply to yours of last month, I beg to give you a short ■summary of the vital points regarding the land-purchase policy and the question of housing the working people. The Mayor, and with him the City Council — who consider the housing policy a very important question in as far as it brings with it an improvement of dwelling and also of pecuniary- and moral conditions — are convinced that this ■scheme can only be carried out on a large scale and with the object of creating dwellings owned by the occupiers, if the town itself owns a large freehold property. The main- tenance and the systematical increase of this freehold is much to the advantage of the whole community and assists ;the solution of the Housing problem in all sorts of ways. 80 Not only does the ownership of a big area of land en- able the community to provide parks, lakes, playgrounds,, skating rinks, children's and school-gardens, gardens to be rented by poorer people, etc., but it puts the Council also in a position (i) to influence the style of buildings in social, hygienic, and technical respects, (2) to attract industrial' enterprises which are able to exist and extend, (3) to suppress unsound and speculative companies, (4) to reduce the- land and building speculation by moderating the prices of building-land, and (5) to secure for the community the increased value of the land. Of the whole territory called Ulm— (the rayons of the outerforts have been preserved) — which is 1,126 acres, four-fifths belong to the town and its institutions. The- land bought during the last fifteen years by the town lies chiefly within the inner fortification- wall ; partly outside it, but at a very short distance, therefore within> that region, in which the extension during the next ten years must take place. On account of this and on account of the whole land inside the inner wall being town property the town is in a position to govern and regulate the plans for the future extension of the town. The population is 51,680 and the town Owns 63}^ square yards of land per head of the population. Having all this property, the City Council is- in a position to sell to manufacturers, building-contractors, and especially for the purposeof erecting houses which are to- be owned by workmen, pieces of ground at moderate prices, proportionally to the social and financial position of the buyer. The workmen's houses erected in the east and west on town territory suitable for one or several families, form- now a quarter, in which the environment for healthy and cheap living are given on the largest possible scale and the conditions of the contract under which the houses are built have provided all that, which, in human opinion, will 31 make the houses last for one hundred years. The houses- must be kept in suitable repair for this period ; the owner .cannot draw any profit out of the increase of ground-value, for this goes to the town, which has reserved the right to buy the land back again in every case. The " land- purchase policy " enables the City Council further, to shape the building quarters and streets according to common public requirements and in this way also the development of the town. The land-owning policy removes all obstacles of a private nature, thereby' greatly facilitating the attainment of the end the Council has in view. The prevention of speculation in land sold by the City authorities is secured by a number of rules included in the transfer-contract. These have, up to the present experience, fulfilled their purpose. One important rule is that the land must be built on within a specified number of years, and no other kind of building may be erected on it than that mentioned in the contract. Another rule is, that under precisely stated con- ditions the town has the right to buy the land back again. In these contracts the town has reserved for itself a far- reaching influence over the outside appearance of the buildings. The town is therefore able to arrange for the front elevation of houses that they want in each street. It might be mentioned that the Council endeavours to preserve the mediaeval appearance of the town. This is attained by the fact that in old quarters one may build according to differ- ent rules than in new quarters and, further, that in the case of rebuilding one influences the owner to give the new an appearance in correspondence to the surrounding old houses, and the municipal architects and builders assist the owner with their best advice. Sometimes these endeavours have even been supported by money grants out of the municipal purse, as the common interest in such like old fashioned buildings was sufiflciently great. 32 The "building policy " regulates aUo the height and depth •of old and new buildings as far as hygiene is concerned. A scale has lately been fixed regarding the height, depth and distance apart of buildings. Through this, healthier and more appropriate housing accommodation is procured. These efforts, the creation of parks, playgrounds, etc., the good drainage and the good sanitary arrangements, etc., have resulted in reducing the death rate of the town to a very low percentage. Experience has already assured us that the authorities are on the right road which will ultimately lead to complete rsatisfaction of private as well as of public interests. B3 STUTTGART. (a.) General. The deputation were received by the Oberburgomaster, •some Members of the Town Council, the Superintendent of the Munic pal Office for Public Works, and Mr. L. Stern, whose services as interpreter were very valuable. {b.) Town Extension. The old town of Stuttgart is confined in a long narrow ibasin with steep hills on either side, and thus the extension of the town is very difficult. On the steep hills it is expensive to build, and only houses for the richer people can be erected there. Very few houses for the poorer people have been erected in these positions. Between 1 890-1 goo a building plan was made, and ■one of the principal thfngs aimed at was to preserve the view of the town from the hills. Consequently the buildings were kept as low as possible, and good gardens were provided ■in front of the houses. Long strips of land are also kept open on the lower side -of the roads running along the hillsides. As far as possible the method of building is as follows : High buildings are allowed in the middle of the town, but ■the farther out from the centre so the buildings gradually lessen in height. Low buildings are erected on the hillside, but higher buildings are permitted again when fiat ground is reached, although further out from the centre of the City. In the old town buildings are permitted to be erected without any space between them ; a little way out of the town small spaces between the houses are insisted on, and further out larger spaces. 34 The system of the town extension plan is very similar to that of Berlin, but here they give special attention ta the artistic effect of having very few straight streets, the majority being curved. In this town the Deputation were informed that the ground owners might oppose the adoption of a building plan on the ground that their private interests would be injured. They send in their objections to the Council, who must consider them, and if these objections are rejected (one ground of objection is the depth of the building plots) an owner may appeal from that decision to the Minister of Public Works. The City does not say what is to be built. It only limits the height. Factories are allowed all over the City, except those where disagreeable industries such as soap-making, etc., are carried on. Plan No. 7 shows part of the old town already built on, with surrounding area laid out for building, streets arranged for hut not yet made being coloured yellow. The narrow strips shown represent separate ownerships. Plan No. 8 shows the proposed arrangement of streets in a hilly district. The dotted lines are contour lines showing various^ heights. {c) Cost of Streets, etc The process in this town for making and enforcing a building plan is very similar to that in Berlin. If an owner wishes to build before the street is made he has to give the land necessary for the street. If he does not with to build at once, then the town buys the land for the street ; but here, as in Berlin, the owner repays to the town his proper proportion of the cost of the street when he commences building. ^■%:i-- // ^ a A 1 1 c n Jc- k \\ \" /. i'n g c Gui^m^k^ •- :;{ I (■ vV ll}>^<. ■--«•' %// .5\*r.» ?■ '% ^^ r'/VA/ ■t-\ ^-f- -/; TT-t;- ^'• ii» BVaf? ..t. /^ !i»?^.£?-'' r ^-t^ .^j. ttX*- •;«S :*^ ,./' \L ■*^t lU: ^■EfflC -\^ :^ / c ^. ~:;^_; ..?J " it." -■ s,**-' •^IX f: .-. Aza.o ^"- '/ -^••■fct^ .■*4t;» vV ••-.tl «-\ V •/• .«- ^^ 4-"; :* ^; ti~"A" <. 4. /A-^ :\^ *M:/4' \ I .U i J-T^ ' i.t«4 ■•*»^ "t .^ -■ ..^v .l.^-' --41.<^ Mt ->^^ ^■-. --^n-o^ 1^ V^ (i/: / ^\- J Lt -a^ .•.'..r^ "». :*,. Wy n .^-'^ 4-^. ■y^ ■ *x I'd KS::^ V t*.*i. j\7ii IS ! /i y*^ V A A.v. hy^TT K. ';'*^»- ilff/ 1 f)6S*l I ■ i'. ("< r*--- ' V^ -- -f -V ^"^ ^<, ;tV\ \- >.t .fcw*-N .\ \ N '^r^ ^^-•■/^' P"^' jpWT'rnmTii •t. . ,'* 'IL /■ ,■■■•*-»-,,- .jk*^ :^: t^ I*- ^/ ■/ ^^^ .»«-' U.^ij lllill/ ^.. I i : // #/' / / /;'/ / / ^. V '/|jwTr|^iiffpT^Ti^^ ^jjv '"'H, '<'ml, '■ .. //. /^ ','/-, ^z .---•y N*!»' > >i A >->v 7' ////(' ^\ ^•*v /( Tn. - '>* // -5 ! >-._. =? I'fkv '-^^x^ fcfay/l .\ ^: .•^/'•M r^. r'*y \ .^•^.V)Cf? L NlA-^tJ W //, ^^.*' 'Sf W ^ ^^^,^ ^5^ I ' TAa^ Mm ^^^^^^,^£0 No. 7 ALLDAY Ltd , L:th . BIRMINOHAM No. 7 ALLDAY Ltd., Lith , BIRMIHeHAM •■{L\>\c)\iai\ No. 8 AUDAY Ltd . Lllh . BIRMIN8HAM No. 8. ALLDAY Ltd . lith . BIRUINBHAU 35 The town cannot insist on an owner building, but can, before building is actually commenced, insist on streets being cut in accordance with the plans approved, where they think it necessary. They find that building generally follows their action. One of their principal reasons for insisting on the cutting of a new street before applications for building are made is that the surrounding districts require direct communication. It is found in Stuttgart that the owners generally give the land required for street making, which saves the trouble of buying and then charging back on adjacent building sites. No person can prevent the streets being cut as soon as the town thinks it desirable, i.e., as soon as public interests demand the means of communication, etc. If an owner declines to treat, then the town expropriates the land necessary for the street. {d) Land Purchase, Land Taxes, &c. In Stuttgart a very diiTerent policy to that of Ulm is in vogue. Here they do not hold land, and the Oberbur- gomaster is very strong in his opinion on this point. He does not agree with the Ulm policy, although he says that special circumstances exist with regard to that town. Stuttgart does not own land, except in the way of streets, public buildings, and parks. The Deputation were informed that the land purchase policy was the subject of continual discussion in Germany, and the Oberburgermeister gave his reasons for considering it wrong for the Corporation to speculate in land : — I. He thought the purchase of land by Corporations would force up the price by leaving less on the market. 36 2. If the land goes down in price the city would lose. 3. The origin of the land purchase policy is that cities used to own land, and during the last thirty years have sold it at much less than it is now worth. If, on the other hand, the land had gone down in value after the Corporation sold, so much the worse for the buyer. 4. Stuttgart agrees that a city should keep the land it owns, provided that means holding the land for the best price, but disagrees if it means holding it for ever. In their opinion it is unreasonable to connect land reform with the housing question. 5. When a town buys land the price is sent up by their demand. Example : Stuttgart bought land for a slaughter-house. The price of this land went up, and also the price of the adjacent land. 6. In his opinion it is also wrong to buy land in the country. The price of land is already very high in places some way out of Stuttgart. 7. In his opinion there are no places in existence like those talked of by land reformers, namely, places where land is low in value, which might be bought by the Corporation, and would quickly go up in value. In new parts of the town the land on which poor people live is less in value than in the old parts. For the rich people, on the other hand, land in new parts of the town is dearer than land in the old. On Sunday, August 6th, the Deputation were driven round jsome of the outskirts of Stuttgart where a large estate had been bought up by a syndicate, and was being sold at a profit in small plots. This was an instructive commentary on the Oberburgomaster's arguments against the policy of Municipal land purchase. 37 {e.) Municipal House Building. Stuttgart does not favour Municipal House Building, nor wish to enter into competition with private builders. The Oberburgomaster informed the Deputation that nearly all the large towns in Germany agreed with the policy adopted in Stuttgart. The town has constructed a few workmen's dwellings. This was done for two reasons : — 1 . To give a lead to private enterprise as to the class of house the Corporation wished to see erected. 2. To test the value and the practicability of the Corporation Bye-laws. The Oberburgomaster stated that the attempts of a Municipality such as Stuttgart to provide houses for the working classes would result in it having to bear a financial burden, which would be altogether beyond its capacity. A small Municipality, with less responsibilities, might be able to undertake a little. They were of opinion that Municipalities should encourage private companies, etc., to aim at bettering the housing conditions of the working classes generally. The town do not wish to do this work themselves, and they endeavour to make wise regulations and workable bye- laws to assist the work of others where possible. The only single town in Germany, so far as the Ober- burgomaster knew, where they have adopted the Muni- cipal House Building policy to any extent, is in Hamburg. Here special circumstances existed. Hamburg suddenly had to demolish a large number of damp and crowded cellar dwellings, and in order to meet the sudden want of houses thereby created they had to build, but the Deputation were 38 informed that the result was not satisfactory. Hamburg had no idea of continuing this work ; they only built these houses when the house famine suddenly arose. It is con- jectured that in future they will leave such work to private enterprise. The Oberburgomaster said that in his opinion if the Municipality competed with the private builder^ the builder would stop building The result of their Municipal House Building operations has not been satisfactory. (/. ) Houses Owned by Occupiers. Stuttgart has not adopted any policy in regard to this matter, and there is at the present time a surplus of houses in the city. (§-.) Assist Public Utility Societies. The Municipality offers no special inducements for the building of workmen's dwellings. This work is chiefly undertaken by private companies. {h.) House Inspection. In Stuttgart they have a Municipal register of all the houses in the town. The Department having this register in charge publish a list of all the houses in the town that are to let ; the house-agents do not have to advertise. People of all classes read the list, and then apply direct to the Municipality for further information. This official register is equally valuable to rich and poor. In Stuttgart there are about 120 honorary lodging Inspectors. These Inspectors have no special qualifications : they are public-spirited citizens, elected by the town to look after the welfare of the poorer classes. 39 All the houses are systematically visited. The town is divided into districts, and each Inspector is respon- sible for visiting a certain district. The Inspectors' duty is to report to the Housing Office of the Municipality any necessary repairs, extra windows required, etc., and also cases of overcrowding. The Housing Officials then decide whether to visit or not. When the tenants and landlords refuse to do what the Housing officials decide is necessary, the Police take the matter up. It is estimated that house owners are in various ways saved about ;^5,ooo per annum by this system of house inspection, in addition to which the housing conditions of the poorer classes are of course very greatly improved. (»'.) Flats v. Single Houses. In one of the suburbs of Stuttgart (Ostheim) the tene- ment system is now adopted, though originally the suburb -commenced in 1870 with mostly single houses. 40 MANNHEIM. (a.) General. The Deputation were received by Burgomaster Martini at the Rathaus. A peculiarity of German land holding is much in- evidence in this town. A great proportion is held in long narrow strips containing one acre, and nearly every strip is held by a different person. It was particularly pointed out to the Deputation that in mapping out their town the Municipality had not dealt with it in individual areas or suburbs, but had endeavoured from the beginning to take a comprehensive view of the future needs of the town. For many years they made no building plans, but recently had started to do so, and were dealing wirh the- town in this way. Their procedure is somewhat different to that of other towns, in so far that they make a greater point of keeping their plasis confidential until the time is ripe for the same to be carried out. Their contention is that, if a plan is once made public and then it is desired to alter the streets to a different direction, the Municipality would have difBculty with the- property owners. The property owners would say : " You have published a plan for making streets, we have paid a high price for certain land because you said that this land would be on a principal street and have valuable frontages,- now you have altered your original plans, and this land is not nearly so valuable as we expected it to be, you must pay- us compensation." 41 It is also pointed out that if plans were published, the Municipality might be required to make, at a considerable cost, streets not immediately necessary, and buildings might be scattered in all directions. They are anxious to induce and not restrict the settle- ment of manufactories in the town, and they let ground to manufacturers as reasonably as they can, and generally make things as easy as possible for them. Amongst other provisions for factories there are railway lines leading from goods stations to the factories, so that goods may be loaded on to the trucks at the works, thereby saving trouble and expense to the manufacturers as well as - the Municipality. [b.) Town Planning. The town is divided into three zones : — 1st Zone. — In this zone the owners are not allowed to- build on more than 60 per cent, of the land, except in the case of the oldest parts of the town, where 75 per cent, is allowed. No spaces are insisted on between the houses, andi buildings of five stories are allowed. On corner plots buildings are allowed to cover go per- cent, of the land. 2nd Zone. — Here only 50 per cent, of the land may be built on, and small spaces between the houses are insisted' on, except in the main streets. Buildings of four stories are permitted, and 75 percent., of corner plots may be built upon. ^rd Zone. — In this part of the town they restrict buildings to 40 per cent, of the land. Blocks without spaces are allowed on main thoroughfares, but in other cases spaces between each building muet be provided. 42 In this zone owners are not allowed to build without -spaces between the houses unless they have special per- mission, whereas in former times they were not allowed to build with spaces between without permission. Buildings may be three stories high, and 60 per cent, of corner plots may be built upon. Erection of Manufactories. — In Mannheim they pay special attention to the setting aside of parts of the town for the erection of manufactories. (c.) Cost of Streets, etc. Also see {g). The cost of the parks goes indirectly on to the building ■site, anrl increases the rents of the houses. Those who cannot afford to live near a park go else- where, but those who can help to bear the cost. {(1.) Land Purchase, Land Taxes, &c. Mannheim has bought a great deal of land, the prices paid being from 3d. to 3s. per square yard; in some special cases as much as 6s. or 7s. was given. They buy as -opportunity offers, and obtain land when prices are low. They have sold some plots for building. They have power to exchange land where necessary, and the Deputation were told of an instance where land was exchanged in connection with the .Municipal slaughter house. The Municipality were unable to purchase- the land lor its extension, consequently they exchanged a piece of their own land for the purpose, and thus attained their object. When once the Municipality possess land they are very careful how they part with it. For instance, the Deputation were informed that a large manufactory employing several thousand hands wished to buy land from the Municipality. If it had been sold to them it would have only realised 43 iour or five shillings per yard, and of course in a very ^hort time have greatly increased in price. The town would not therefore sell the land, but ofTered to lease it for 50 years, the land of course reverting to the town at the end -of that time. The company would not take this lease, and the town is convinced that the company chiefly desired to purchase the land on account of the increased price it would realise as the town developed. The town has power to buv a certain quantity of land ■every year, and about i^i 0,000 a year is spent or invested in this way. It is the practice to buy more on the out- skirts than in the centre of the town. Land is not purchased with the object of selling at a profit, although, as a matter of fact, a small profit on sales is ■actually made. They buy with the principal object of stop- ping land speculation, and by owning so much land they are able, when owners force up the price to a fictitious figure, to bring it down atjain by throwing a lot of land on the market at a cheap price. At the same time, they are always able to sell their land at a better price than they gave for it. [For instance, they buy in some cases at fd. or 6d. per square yard, and in fifty years' time they can sell the same land at 50s. per square yard] . The rise in value goes to the community instead of to individuals. When selling land they reserve the right to buy same back in a certain time at a fixed price. On the north-eait of the town, by the junction of the Neckar and Rhine, a considerable quantity of land is reserved for manufactories, with proper provision of water- ways and railways. No dwelling houses are permitted to be erected in this quarter. 44 The land belongs to the Municipality, who are nego- tiating for the purchase of further land in the same neighbourhood which they intend to deal with in a sim lar manner. They have also several other districts which are reserved for the erection 0(f manufactories, and such districts are always chosen with due regard to water and railway facilities. (e.) Municipal House Building. The Municipality have built a few houses in the neigh- bourhood of their Slaughter-house for the people engaged there, but find their employees prefer to live in houses by themselves, and not with their fellow workmen. The town, therefore, has had the houses built for th's purpose for a long time unlet, and have reduced the rents two or three times, and now, after being vacant a con- siderable time, the houses are let. In the opinion of the Burgomaster this has been a very unsatisfactory experience for tihe town. Beyond thi? there is no municipal house building in Mannheim, but the Municipality do all they possibly can to assist the private builder by leasing land for the erection of workmen's dwellings as cheaply as possible. The Municipality own another small colony of houses in a different part of the town. These houses were originally built by a Society, which, however, failed and the town bought them. They are ."^o badly built as to be practically untenantable, and are at present let at one-third their original rent. It is very probable the Corporation will have to pull them down as a large amount would have to be spent to put them in good condition. 45 (gr.) Assist Public Utility Societies. In ordinary cases the cost of making the streets falls on the adjoining land, but if a builder erects houses for the working classes he does not have to contribute towards the cost of making the street ; in return for this concession the Municipality insist on having an undertaking that the rent of the houses so built shall never be higher than a certain sum, and must approve the plans. The result of this, as may be imagined, is not satis- factory; the builders and owners will not submit to these restrictions. They cannot sell houses with such restric- tions, and they consequently prefer to pay the cost of street making and to have a free hand. (;'.) Wages, etc. The Municipality have a regulation in force under which they are obliged to pay not less than 3/- per day to labourers and unskilled workmen. They do pay in some instances as much as 4/- for a certain class of labourers. There are old and otherwise partially incapable work- men employed upon street work, etc., who are paid from 2/9 to 2/1 1 per day. There is a continual conflict between the authorities and the labour party as to rates of wages. The price varies in different towns, but ever since the National Insurance Societies became general in Germany wages have steadily risen- 46 FRANKFORT. (a.) General. In 1871 the population of Frankfort was 90,000. In 1905 it was 330,000. It was formerly merely a mercantile centre, but manufactories have taken up a large part of the town, and at present it is one of the wealthiest towns in Germany. The Municipality is now endeavouring to deal with the difficulties of housing the working class population which has so rapidly increased. In Frankfort stringent regulations with regard ta the building of new houses exist, and for the last 40 years these regulations have been rigidly put in force, and this has prevented the construction of underground dwellings, back-to-back houses, etc. The area where bad houses exist is now very small. Many of the buildings that were used for dwellings have been turned into offices, and a great many have disappeared by the laying out of new lines- of communication, etc. In the line of the new streets there were many bad houses which cost a great deal in compen- sation. These reforms were carried out entirely by the Muni- cipality without special legislation. A large proportion of the population, 335 per thousand,, live in one or two roomed houses or tenements. Cellar dwellings are gradually disappearing through the construc- tion of new streets, etc. (b.) Town Extension. One of the most striking points is that new streets are not laid out by private builders. This is done b}i the Muni- cipality, and a plan is made, not for the convenience of the landowners, but entirely according to the interests and needs 47 of the whole of the inhabitants. The Municipality can make the streets as wide or as narrow as they like. They have some streets 165 to 198 feet wide, some 33 to 66 feet wide, and some only 50 feet wide. The power to lay and construct new streets gives the Municipality the right to determine in which streets front gardens are to be placed, in which streets trees are to be planted, and what manner of pavement shall be laid down on the road and footway. Of course, the streets are all named by the Municipality. As the laying out of the streets is entirely a matter for the Municipality, they do not make plans tor single blocks of land only, but they provide for a very remote future, and they thus plan the extension of the town as far as it is at all possible to foresee future needs. These plans are open for public inspection. Anyone concerned is invited to inspect the same, and they can object to the plans if they have any valid reason for so doing. If objections are made, which is not very often, the County Council has to decide on the case, and generally it decides in favour of the town. The town has full liberty to make such plans as it thinks fit. It makes small plans for small areas and larger plans for larger areas which include the smaller. The Deputation inspected one plan which had lately been approved. Nearly all the streets on the plan were lined with trees, and large parks and playing grounds were arranged for. They also inspected a large plan which had been made by the Municipality for the extension of the town to meet the probable needs of the next hundred years. In the suburbs they have provided for very wide main routes for tramways and for electric railways. It was clearly seen that they were endeavouring to prepare for all future needs of the town so far as it was possible for the present generation to do so. 48 A great deal of the land in Germany is held by- persons in single narrow strips, and the Deputation in- spected a plan showing this. From time to time the Municipality have bought these single strips of land as ■opportunity arises, and with the idea of consolidating their holding for the good of the town. It is obvious that in making an extension plan the value of many of these small holdings after the plan is made is small, and quite useless for building purposes. To get over this dififi- culty the Municipality adopt a system of redistribution ■of the land amongst the owners concerned after the plan is made, and by this means each owrier receives land propor- tionate in area and value to that which he held previous to the plan being made. This at one time was purely an arrangement between the Municipality and the owners, and was not carried out by law. If any of the owners declined to fall in with the arrangement the Municipality could not proceed w'Xh the work. The Municipality have now obtained a special Act for this purpose, by which they are empowered to make a redistribution of the property if one- half of the owners concerned agree (that is, if such owners possess one-half of the area in question). The accompanying Plans, numbered i and 2, will ■explain what is done : — Plan No. I shows land in Frankfort divided up into several ownerships before redistribution is made. Plan No. 2 shows the same land after red stribution with the scheme of streets made regardless of ownerships. After the streets and open spaces have been planned -out, a calculation is made as to what percentage of the total land is now available for building sites. Each owner then receives back a plot of land of a proportionate amount to his -original holding, taking into account the positions of old and new plots. 49 For instance, supposing it is found that three-quarters •of the total land is available for building sites, then each owner receives back a plot of land equal in amount to three- quarters of that of his original holding, provided the new position is no more and no less valuable than the old one. The. sites returned to owners are settled as far as possible in accordance with the situation of their former plots. The new plots, although smaller, are often more -valuable than the old plots, owing to their being available for building, whereas probably the old plots were not. The town controls the height as well as the number of the storeys in each new house. The town is divided into three districts. In the inner town they have to deal with existing ■conditions, and practically with no works of new construc- tion. Houses may be built 65 feet high and contain five ■storeys. On any given site not more than three-quarters may be built on. In the outer town the heights of the buildings must not exceed the widths of the streets. The outer town is sub- divided into two zones (outer and inner) . In the inner zone buildings must not have more than four storeys, including the basement. In the outer zone only three storeys are permitted, and where the streets are narrow only two storeys. The town reserves special districts for dwelling-houses, for factories, and for mixed classes of buildings. By their regulations it is made impossible for any work- shops to be erected in the quarters reserved for dwelling- houses, and in factory quarters dwelling-houses are excluded as much as possible. 50 (c.) Cost of Streets, Etc. It was pointed out that the Municipality could not do the work already described at all satisfactorily if they were not empowered to expropriate the property required for streets. They are empow^ered to expropriate all land needed for laying out streets, and are not obliged to seek permission of any special authority. It is, however, not often necessary to go to this extreme. In most cases the landowners give up by arrangement the land required. It is recognised that the land so developed immediately becomes suitable for building and much more valuable. Building is only allowed on such streets as are sanctioned and laid oiit according to the building plan, and the Municipality have full powers to deal with land- owners in this respfect. The owners of land adjoining new streets repay to the Corporation all the cost of forming the street, and they also have to pay for five years maintenance. (d.) Land Purchase, Land Taxes, &c. When new areas have been laid out, the Municipality have no power to compel the owners to build. That is to say, they have no direct means to do this, but they have an indirect means by a system of taxation. Frankfort has the right to tax land, and this is done by levying a tax, not on the income but on the capital value of the land. The following will explain the method of taxation referred to : — I. If more than 20 years have elapsed since the last transfer of : — 51 (a.) Covered Land. 20 to 30 years since last transfer i % on price obtained. 30 to 40 „ „ „ i\% „ „ Over 40 „ „ „ 2 % (b.) Uncovered Land. 10 to 20 years since last transfer 1% on price obtained. 20 to 30 30 to 40 40 to 50 50 to 60 Over 60 2% 3% 4% 5% 6% Note. — These taxes are not levied if the land has not realised more than the price at the last transfer, plus the legal costs on transfer. 2. When less than five years in the case of. covered land or ten years in the case of uncovered land have elapsed since the last transfer, taxes are levied as follows : — If the profit realised be — 30 to 35% above the last selling price, 5% of the increase. 35 to 40% „ „ 6% 40 to 45% „ „ 7% 45 to 50% „ „ 8% 50 to 55% ,. „ 9% 5 5 to 60% „ „ 10% Over 60% the tax rises 1%. for every 5% rise in the value or profit realised to a maximum of 25%. No taxes are levied when the rise in value or profit does not amount to 30% on the last selling price. This system of taxation is based on an endeavour to be just, and also to keep taxation as simple as possible. •» The price of land has not gone down as people expected. 52 Building regulations have restricted the use of land, and thereby caused a shortage. The Municipality already own, in conjunction with charities under their control, about lo per cent, of the total town area. In addition to the land inside the town, the Munici- pality also possesses a large forest containing about 8,000 acres. They possessed land from very old times, and endeavour to increase, by purchase, their land and property year by year. They have power to purchase land for any purpose whatsoever without asking the consent of the Government. The Municipality do not sell land, and have power to buy as much as they are able to pay for. Some of the Municipal land is taken up by public buildings, a great part is used for streets, parks and public places, and the remainder is held as public property. (g.) Municipal House Building. The Municipality only provide dwelling-houses for their own employees, and leave the erection of dwelling-houses for the working classes to private enterprise, which has provided all that have been required. On their own houses they make no profit and no loss. They have not found any particular difficulty in getting their employees to live in Municipal houses, and about one-tenth of them are housed by the Municipality. (g.) Assist Private Enterprise. They assist in various ways private enterprise. Some companies have erected many hundreds of dwelling-houses in Frankfort. These companies undertake to make only a certain percentage of profit and in some cases the rent is fixed by the town. 53 T^iey have experienced no difficulty in encouraging Building Societies to build houses. The Societies have appreciated the efforts of the Municipality and built many houses. This is, no doubt, partly due to the Mayor and other members of the Council being Chairmen and Directors of the Building Societies. (h ) House Inspection. The Municipality have no official system of House Inspection at present, but they are endeavouring to arrange for this by means of legislation giving them power to appoint Inspectors. There is a Society for looking after small house property on very similar lines to Miss Octavia Hill's, which — 1 . Acquires and sells property and erects buildings. 2. Arranges leases and tenancies. 3. Grants and takes up loans, takes over securities and guarantees rents. The Society began in a small way and made losses for the first few years. These losses have since been made up, and its operations are now steadily increasing both in popularity and extent. There is also in the same City a Public Utility Building Society, on the Board of which is Burgomaster Dr. Varren- trapp and other public men. This has been assisted by the Local Authority and has produced satisfactory results. The dividend is restricted to 4 per cent., and any surplus goes to the erection of new houses. Another Society fnanages a Dwellings Bureau, where those who have houses to let and those who want to rent houses apply for information. In the year 1904, the demand on this Society for one- roomed houses was four times the supply (554 enquiries, 133 tenements available). 54 The demand for two-roomed tenements was six times the supply (3,042 enquiries, 518 tenements available). The demand for three-roomed tenements was twice the supply (1,475 enquiries, 739 tenements available). Of four roomed houses there were 412 available and only 348 required. (j.) Rents and Wages. The minimum wages of unskilled workmen are 20s. per week. These unskilled workmen would probably have to pay from 20s. to 25s. per month for two or three rooms and a kitchen. The Municipality has adopted a system of cheap tram fares for workmen living in the suburbs. Under a Small House Society there are 131 houses let at an average rent of 5s. 3d., whereas bad tenements used to cost 6s. gd. There are many houses as low as 3s. 6d. or 4s. 6d.per week. A fourth floor fiat seen by the Deputation consisted of three rooms and a place for food. Rent ;£20 8s. per annum. A clerk was living there whose salary was about ;£'iSoper annum. There are some workmen's flats for men with wages of 20s. per week ; and for 14s. per month two rooms can be obtained. There are kitchen, baths, and other accommoda- tions common to all the tenants, and for those who joined a co-operative society a nurse is available in case of sickness ; coals and other necessaries are bought wholesale. 55 COLOGNE. {a.) General. Cologne was originally a Roman Colony, and was •strongly fortified. From very early days until quite recently fortifications have been continually reconstructed. In 1880 the old fortifications were taken away and new fortifications built, and now it is intended by the Authorities to remove these fortifications, which are practically obsolete. As has been pointed out before, on a certain space in front of all fortifications no buildings are allowed, and this practically stopped a sensible extension of the town. When the fortifications are removed, the Municipality intend to offer the ground for building for all classes. The total area of the town is 27,800 acres, about ■one-tenth of which is owned by the town. It was stated that this was the largest area belonging to any one Municipality, so far as actual developed land was -concerned. The Municipality built houses for working men in the -country, but these were not popular because they were so far out. They chose a position some distance from the town because the land was much cheaper; but did not provide means for getting backwards and forwards cheaply and -quickly. There is a State railway all round the^town, which is -connected with the harbour. (3.) Town Extension. The Municipality exercise strict control as to the class -of buildings which are erected on their properties, and •they reserve particular sites for the erection of manufactories. 56 There are very large collieries near the town, and small railways are made to connect these collieries with the manu- facturing districts. The Deputation were shown an extension plan which is being projected, showing the proposed development of two- suburbs. Here also, the law allows no houses to be erected until the streets have been made in accordance with the plans made and approved by the Municipality, but they frequently come to an agreement with an owner which enables him to construct his houses at the same time as the- streets are being made. They also make "redistributions" of land, but they can only do it by agreement with the owners, Frankfort being the only town which has a local law to enforce this- process of redistribution. Cologne hopes to obtain such a law, as they find it very difficult at present to carry out this redistribution without compulsory powers, and unless the land is redistributed it is extremely difficult to carry out their town extension plans. As in other places described, the town is now divided into building zones. In the first zone 25 per cent, of the land must be left unbuilt upon, and buildings may be four storeys high. In the second zone, until lately, only 35 per cent, is insisted upon, and buildings may be four storeys high. In the third zone not more than 50 per cent, of the land may be built on (until lately 35 per cent.) and the buildings may be only three storeys high. In the fourth zone al o, not more than 50 per cent, of the land may be built on, and the buildings may be only three storeys high. In the special zone 57 which has been reserved for the erection of villas, 65 per- cent, of the land must not be built on, and the buildings- may be only two storeys high. Some members of the Deputation driving out into the country saw we 1-grown trees on the sides of the roads, which had evidently been planted when the roads were first made. (c) Cost of Streets, Etc. The law makes the property owners pay for making the streets but does not force them to pay for the parks, neither can the town make property owners provide the parks, but their laws enable them to conduct their negotia- tions in such a manner that the property owners shall bear the cost of providing an open space in connection with the building operations. The Deputation were shown one part of the town, in which the property owners had given up a large piece of ground for a park. When the Municipality have difficulty in getting the property owners to provide parks, they immediately buy up the land required and also adjoining land. The rise in value in the adjoining land when it is required for building pays for the cost of the park. Other things being equal, building land near a park is more valuable for residential purposes than other land further away. {■-!.) Land Purchase, etc Cologne has adopted the land purchase policy and the profits made are spent in obtaining more land. There are two large funds specially set aside for the purposes of the poor, and for the purchase of land. Both, these funds are invested in land. 58 In the year 1880 the town bought the inner ring of the fortifications from the Empire at a cost of ^600,000, and immediately laid out a street which completely encircled the town. Some of the land they used for parks and some they sold. They have made a profit on the whole tran- saction, which profit is again being used to buy more land. Originally the State used to demand one per cent, of the value of building sites when land or houses were sold, and the town took one per cent., making two per cent., ■later the town took two per cent.', making three per cent, •on all sales. The principle is the same as adopted in Frank- fort, but the detail conditions are rather different. The town is empowered to value the land, and if the owner does not agree the value is settled by arbitration. Once this is done, it is of course easy to calculate the Increased value when the land next changes hands. The difficulties in obtaining this power, which only applies to Cologne, were very great. (e.) Municipal House Building. The Municipality have erected sixty houses for working men. They were erected entirely for their own employees in connection with the gasworks, tramways, slautrhter-houses, etc. (g.) Assist Public Utility Building Societies. Other workmen's houses are being built by outside Societies, and the Municipality make a point of giving as many facilities as they possibly can to encourage these Societies to provide the necessary accommodation for the working classes. Municipal land is granted to them on favourable terms. 59 Money is lent up to 80 per cent, of the total cost. At ■Cologne it was pointed out to the Deputation that every Province has a large fund, which it manages itself, and which is used for the benefit of the poorer classes. This provincial fund is used among other purposes for building workmen's dwellings, and the Trustees of the fund lend money at 3 per cent, for this purpose. The town itself does not lend money for this purpose but it guarantees to the Trustees of the provincial fund the repayment of the money which has been borrowed from that fund. {h.) House Inspection. When a dwelling is objected to as insanitary and becomes vacant, it cannot be relet without the permission of the police being first obtained. Thej' do not appear to have the power to make a Closing Order and turn the tenant out. Inspecting officials give verbal instruction and advice re overcrowding. 60 DUSSELDORF. (a.) General. At the beginning of the last century Dusseldorf was quite a small town, but since the demolition of the fortifications the town has rapidly extended and improved. It is close to Westphalia, the Black Country of Germany, but, unlike districts near our own Black Country, is a very pleasant city to live in, due to its far-sighted policy of town planning wisely carried out. Rich men from Westphalia, who used to go further afield for their residences, now come to Dusseld jrf to live. The population has doubled in the last 20 years. (&.) Town Extension. In Dusseldorf ihey recognise the necessity of construct- ing both wide and narrow streets. Wide streets, being the main lines of communication, are laid out with trees and ornamental gardens running down the centre, and narrower more cheaply constructed streets are cut where traffic is not so great. In these narrower streets the buildings are not per- mitted to be so high as in the wider thoroughfares. In the inner town, buildings are permitted to the height of 63 to 66 feet and may be four storeys high ; they are only permitted to build higher houses where the street is a wide one. In the outer town they only permit buildings to be 49 feet high and to contain only three storeys. They have also districts for the erection of better class villas and there only two storeys are permitted. The question is now being considered of allowing four storeys in the outer town, but if that is done, the Municipality will insist upon a larger nart of each building site being left open. 61 In the inner town only two-thirds of any building site may be covered with buildings. In the outer town only one-half the site may be covered; in the part reserved for villas it is proposed to allow only two-fifths of the site to be covered. Within the city boundaries of Dusseldorf there are a lot of small villages, at some distance from the centre, with regard to which no complete extension plan exists. There are main arteries running from one to the other, and also to the city. There are other villages much nearer to the centre of the town, which are practically one with the town, and these are dealt with in the town extension plan. Special districts on the outskirts of the town have been reserved for the erection of factories. The prevailing winds come from the west and south- west, and, therefore, factories are not allowed on those sides of the town. They do not make complete plans for the whole city ; they make a general plan and settle main arteries, and leave the smaller districts until they are ripe for development. The Deputation were shown several extension plans, showing the development of new areas, and it was pointed out that the Municipality are particularly directing their attention to the formation of curved streets instead of the old-fashioned straight streets. They consider they formerly made many of their streets too wide, but now recognise that only the main thorough- fares should be wide and the side streets narrower. 62 Their main streets are principally 66 feet wide, the next width being 48 feet, in which case they generally insist on having front gardens five feet wide, which can be thrown into the street at a later date if required. In the main arteries they provide, as in other towns, a promenade down the centre of the street, which is generally- planted with trees. In some cases they make streets as narrow as 33 feet only, but this is only where there is very little traffic. The object of making the streets as narrow as possible is to- keep down the price of building land. They have tried to introduce a similar system of redistribution as is in force in Frankfort, and are endeavouring to get the same compulsory power with regard thereto. All the land which is held in these peculiar narrow strips is outside the town, and they are endeavour- ing by special means to get these strips consolidated, but it has to be done voluntarily, and cantankerous landowners make it very difficult. As a rule the town does not find much difficulty in coming to agreement with the landowners with regard to the town extension plans, but if they are unable to come to agreement, the matter is referred to a hig^her authority a^ in bther places. Heip, as in other towns, anybody interested may object to the plan, and may make objections for the reasons already stated. It was pointed out, however, that an owner usually makes two objections. In the first place he states that he wants more open spaces than are provided, and in the second place he states that the plan is not made to advantage, but to the depreciation of his holidings. It is 63 readily recognised that the first objection is raised in order to obtain popular support, whereas the second is his real reason for opposing the plan. (c.) Cost of Streets^ etc. Attempts have been made to introduce a policy of only charging half the costs of streets and sewers on to the adjacent building site in order to encourage still further the- development of the new districts of the town, but so far these efforts have not been successful. At present the Municipality pay the cost of anything beyond 85 feet wide. (d.) Land Purchase, etc In Dusseldorf, the town buys land and sells it at a profit if possible, although many of the people in the town disap- prove of this. These people maintain that instead of selling at a profit they should sell as cheaply as possible, but it is- not thought that even this policy would stop, to any degree, land speculation. In tbe opinion of the Corporation of Dusseldorf it is not wise to sell town land even to encourage house building without the right of pre-emption or adequate security- against speculation. Area lSj067 acres; ot oimed by tomiKwitMniitown bounds aorecM. ^: outside town boundaries 41 Q aores; public 70 aore8« ^96 tafee plwrited at?eet%^ ayeaues and sqi 43i milea in J.engtfe and containing 14,500 trees. During the year ending March, 1905, they made a profit out of their municipal land on revenue account of over ;^i8,000, and are now applying to the State for power to borrow another ;^500,000 for the purpose of buying, more land. 64 («.) Municipal House Building. The Municipality have built a few houses. They -recognise that neither the State nor the town could do nearly enough in this direction, and they fear that their building operations may deter others from building. They have no lack of people in Dusieldorf who are willing to build. The II unicipal houses erected at Dusseldorf do not make a profit^ but are supposed to pay interest and sinking fund. The tenants of municipal houses have a guarantee that rents will not be raised, and there is no provision for loss incurred by a rise in the rates or an increase in the cost of repairs. Town land is let to building societies below its value. Here again they were providing small-rented houses for low-waged people, instead of raising the wages to meet the higher rents. (/.) Houses Owned by OccbpiERs. , They have started in Dusseldorf what they term a " Mortgage Bank." They have provided a fund of ;£'2 5,000 which is specially devoted to enable the working man to buy his own house. The Corporation advance 60 per cent, of the value of the house and charge 3J to 4 per cent, for repayment, to which is added ^ per cent, by way of sinking fund. (g.) Assistance given to Public Utility Building Societies and Private Individuals. There is a Society in Dusseldorf which has been pro- moted for the improvement of the dwellings of the poorer people. It is assisted by the State and also by the town, but it does not build nearly so many houses as are required. 65 The Society prefers to build principally for officials with •s mall incomes, and if it were not for private enterprise, there would not be nearly enough houses for the working classes in Dusseldorf. There is another Society, the Aders Trust (also assisted by the town), which has in trust a sum of money, left by a philanthropist, for dealing with the Housing problem. The income earned is used for erecting houses. The Society now houses 1,357 persons. The Society borrows money at a low rate of interest, and the town guarantees for them the repayment of the loan. Besides assisting the Society in this way, the town has also assisted them by letting land on very favourable terms. The Building Societies in Dusseldorf have done a great ■deal, but not nearly so much as has been done by private enterprise. {h.) House Inspection. When a house is unhealthy it is the duty of the police to turn the people out and have the house attended to. For this purpose it is not necessary for them to go before a magistrate. The tenants have a week or a fortnight's notice, and this is considered plenty of time for them to find a new house. The Municipality have not adopted the policy of doing away with bad houses, they have only concerned themselves with the erection of new buildings ; the other matter is left in the hands of the Police. They have not got the same system of house inspection here as is in force in Stuttgart, but they have a certain number of Inspectors whose business it is to examine and report upon the condition of the houses. 66 (i.) Flats v. Single Houses. In Dusseldorf only the richer people live in single houses. The poorer classes, with a few exceptions such as the Aders Trust houses, live in flats. (;.) Rents and Wages. The Deputation were informed that the unskilled labourer earns from 3/6 to 3/9 per day, and he pays about 24/- per month for two rooms. In addition to these two rooms he has a little kitchen and washing place. The skilled artisan's wages average from 3/9 to 5/- per day, and he pays about 36/- per month for three rooms. The Deputation visited some flats 30 years old, built by the Hoagen Zollern, one tenement above the other. The accommodation for 17/- per month was three rooms, attic, and cellar. The Deputation visited a house which was one of a series occupied by skilled workmen. This house was very nicely kept, as were apparently the rest of the series. There were well-kept gardens four yards in width between each block of four houses. The houses had been cheaply built on cheap land, but no profit was made out of them. 67 EXTRACTS FROM "THK PREPARATION AND EXECUTION OF OFFICIAL BUILDING PLANS," BY A. ABENDROTH. How an Official Building Plan originates. Most small places find it difficult to make up their minds, and often delay too long, to prepare a comprehensive building plan of what the r existing streets and squares ought to be, and also of the uncovered land within the city boundaries. The matter is usually strange to them ; and therefore the local authorities object to undertaking a work in which they are nearly always dependent on the opinion of experts from a distance, and on the ability and honesty of those entrusted with the preparation of the plans The existing books on town extensions are usually unknown to the local officials, or else give no clear instruction how, without the co-operation of a practised expert, to overcome most easily the difficulties that lie between them and their goal. The opportune moment for the preparation of a compre- hensive town building plan. Guiding Principle I. — For the energetic development of a town, the following conditions are requisite : — (a) The necessity for constructing new lines of communication (b) The introduction of special local trading and manufacturing businesses ; (c) The fact that a place becomes prominent as a health resort ; or {d) Is in the proximity of a rapidly growing town. 68 It is unnecessary to explain that various of these causes may work together. No argument is necessary to show that haphazard building will ultimately become very bad indeed for the community. It dissipates the strength of the people, and makes difficult in a constantly increasing degree the com- munication between valuable blocks of land which lie between those roads and streets which have been con- structed, and on the site of which buildings have been put up, without any thought whatever of a complete and com- prehensive plan. Townships or cities that have, as it were, a different plan for every road, result in a want of system which is highly prejudicial to the inhabitants of the neighbourhood. Later on, when it is necessary to put these mistakes right, the cost to the community is very great. The most opportune moment for the preparation of a plan is when the number of new buildings threatens to exceed the average of the last three years. Under these circumstances the law says that a building plan must be prepared which not only deals with the buildings in, and arrangement of, the inner part of the town, but also arranges for the development of sufficient land round the town to enable the community to double iiself without being forced to live too thickly on the ground. The extent of a Building Plan- Guiding Principle II. — The building plan must include the whole town and its immediate neighbourhood, and must not restrict itself to any one district. It is only a comprehensive and general plan that ensures the develop- ment of a town in a uniform and orderly manner. Preparation of the necessary plans and drawings. Guiding Principle III. — The plan which is to serve for the settling of main arteries must agree with the ordnance 69 map, and with the estates inventory, so that it may be recognised, when published, as a reliable description of the place. The ordnance map must be examined to see whether it fulfils these conditions before the building plan proposal is prepared. Completion of the working drawings. Guiding Principle IV. — Even when the ordnance map seems to be geometrically correct and sufficient, it must nevertheless be compared and measured up by a qualified land surveyor in all the details concerning the local conditions that are important to the building plan. Urgent procedure. Guiding Principle V. — A resolution of the local authority is necessary, which, recognising the urgency of the case, shall empower their leaders to hasten the necessary steps, and shall place at their disposal a sufficient sum of money for the work. Building plan commission. Guiding Principle VI. — In every district where a building plan is to be prepared a commission must be chosen which shall as far as possible consist of lawyers, architects, surveyors, land surveyors, men conversant with the tech- nical points of owning land, and men connected with com- merce, as well as members of the local authority. The most important points in the preparation of a general building plan are : — (i.) Consideration of Public Hea'tk. Principal streets should as a rule not have a gradient of more than i in 40, and side streets i in i 2. Streets must not be made narrower than the height of the buildings on either side. The plan should be divided into zones. In the 70 zones lying farthest from the centre buildings must not be put so close together. There should also be districts assigned for various purposes, such as : — 1. Residential districts. 2. Villa districts. 3. District for small houses. 4. Manufacturing districts, business districts, and so forth. In order to keep down the cost of streets, which finally falls on the adjacent building sites, it is recommended that front gardens should be arranged for where the street traffic and general business does not necessitate so wide a street. These gardens can, if necessary, later on be thrown into the street without compensation. At the same time, it is obviously unwise to have front gardens facing north. The question of cost is specially important in the small house districts, where it is desirable to obtain healthy and pleasant houses at the lowest possible rent. Consistent with natural causes, it is clear that the small house district should be some way out, and be connected with the manu- facturing and business district by means of a cheap and efficient system of trams, etc. The small house district as well as the residential ■district should be so arranged as not to be injured by the smoke and drainage of the manufacturing districts. The local authority should do what it can to keep down the cost of erecting small house property. A large number of small open spaces should be provided, so that there is at least one within a few minutes' walk of the house of every child in the city. Streets in these small house districts must be made as cheaply as possible, carriage-way, 5^ to 8 yards wide, foot- path, about 3 yards wide. 71 Macadam for the road, and stones with gravel for the footpaths. (2.) Convenience for Traffic. Traffic will not go along streets that are not con- veniently planned. Radial arteries to neighbouring districts should be connected by means of wide streets going round the town, except where such streets are prohibitive in cost. (3.) The Artistic Appearance. It is wearisome and inartistic to have long, straight streets. Open spaces shou'd not have a street running through them, but should be on the side of a street instead of through the middle, so as to make them more quiet and restful. (4.) The desirability of making the most of the land within the city boundaries^ both with regard to individual plots and also with regard to the land in the City as a whole, must be always borne m mind, and receive the most careful consideration so far as is consistent with the three other main requirements m.entioned above. Streets for traffic must be arranged so as to avoid excessive rise in value of the adjacent building sites. Land speculation in towns is a two-edged sword. It has undoubtedly great advantages for the development of the town, and is necessary to hasten such development. With this, as with all other enterprises, competition increases business, and makes the public freer. With regard to land speculation, it is often forgotten that there is included in the speculation price the total cost of making the land suitable for building, whereas the price of the land of the original owner (before being redistributed) is often quite as high, without including this cost. 72 A building plan is the most economical both for the landowner and for tenants. It should fit in as far as possible with existing conditions, and should not follow artistic ideals except when this can be done without serious disadvantages. 1. Building plans with excessive artistic motives out of sympathy with the locality are, as a rule, not economical because — {a.) They make it impossible for the landowner to secure for himself personally the advantage accruing" from land made suitable for building. (b.) As a rule an excessive land speculation arises. (c.) These building land prices make houses much dearer, to the disadvantage of the whole community. 2. With reference to this excessive attention to- theoretical principles, it is economically necessary with larger town extensions, where not only practical motives must be considered but also artistic ones, to settle definitely only on the most important principal streets and places^ and as far as possible to take care that these only affect the larger lots of land, and do not touch smaller properties. Parks and gardens which are only laid out to beautify the town should, as far as possible, be arranged for on Cor- poration land. 3. With the exception of cutting streets through the middle of an old town, which are necessary in order to provide essential short cuts for traffic, one should npt follow too much the theoretical principles of arteries and long streets, but should consider in the first place as far as possible the locality as it is. Then, and not until then, should one endeavour tO' perfect the plan so arrived at from the point of view of beauty, and endeavour to make it fit in with the require- ments of the traffic that are to be expected. Carl Henrici, in a speech at Aachen on the i6th January, 1903, said it is not economical to arrange sites and the necessary wide streets for building without first being quite certain whether other requirements are satisfied, and being quite clear how the dividing up must be done in order best to meet the desired object. It is not economical to make streets any wider in any- particular quarter of the town than is required for the traffic expected there. It is not economical in constituting the building sites t& CTO far beyond what is required for the character of the district concerned. It is further not economical to divide the building land in a way that results in building sites- which are unsuitable for building. It is not economical to plan uneven land in such a way as to necessitate streets with steep inclines and declines that might have been avoided ; and above all it is not economical to cause any expenses which can be avoided, never mind whether these expenses fall on the local authority, or directly or indirectly on the inhabitants. The further from the centre of a city buildings are and the further apart, the more traffic diminishes, and so also the necessity for wide streets ; and only in exceptional cases where we are concerned with streets which lead from the centre of the city to other cities, or to important recreation places where the public collects on holidays, or to other points of attraction and importance, is there Any necessity to arrange for an extra wide street. 74 The fixing of the general Building Plan. The general Building Plan -proposal. Guiding Principle VII. — The general town building -plan requires obviously the most careful work of trained tech- nical and reliable men well acquainted with the locality. Sketches and preliminary studies of individual districts as well as of the whole town must be made and must be •examined and exhaustively discussed. The specialist entrusted with the preparation of the final plans cannot commence until the commission is quite clear as to what the general plan shall contain. That is to say, the final plan so far as the commission and the Magis- trates belonging to the local authority are concerned. The following are the principal things to provide for : — 1. Public streets, squares, and footpaths. 2. Railways. 3. Public buildings. 4. Private buildings. 5. Public parks. 6. Forests. 7. Open spaces. 8. Public sheets of water. Contents of Description accompanying Report. 1. Introduction, containing a concise account and ^statement of the most prominent reasons for requiring a building plan. 2. References to the traffic in the different parts of the plan (necessary for the above mentioned radial ring and •diagonal streets and for traffic meeting points). 3. Satisfaction of the hygienic requirements, height 75 ;above high and low water. Direction of the residential -streets. Construction of open spaces settled upon, etc. Statement as to the water supply and drainage. 4. Artistic consideratioris. 5. Considerations concerning the ownership of land and the construction of streets. Taking into account in •order of their importance building corners that are to be -settled upon. 6. Reference to the working bu Iding plans with clear •explanations so that the division of the separate pieces of land adjacent to the network of the streets and the local markings may be learned from these plans. When the general proposal has received the consent of the local authority and the police, the next thing to be -done is to inform those adjacent interests which are con- nected directly or indii^ectly with the scheme. The first step towards getting the plans settled. First Publication. Guiding Principle VIII. — After ths necessary legal agreement with all the parties interested has been •obtained, then begins the actual work of getting the plan settled. It is, however, well to point out that the authority, from the moment that its resolutions to settle the building -plan proposal have been passed, is justified with reference to this decision to forbid any new building proposal or .alteration of old buildings thereafter that interferes with the proposals of the plan. Certificate of the First Publication of the Plans. Guiding Principle /JS".— After the first publicafon of ■the first general building plan is finished, notes must be made upon the plan that it was laid out for everybody's 76 inspection from till and that this was done in the manner customary to that place. All objections to the plan, so far as they were not at once put on one side, must be registered. The beginning of the Working Plans. Guiding Principle ^.--The general plan with all those objections not put on one side then comes up for decision, which proposals are to be taken as justified and which as unjustified, and then comes the time for the preparation of the working plans. The publication of the Working Drawings. Guiding Principle XI. — When the general building plan has been altered in accordance with the objections admitted, and working drawings agreeing in every particular therewith have been made, then this will be noted by the Corporation and the Surveyor on the plans, and then the second publication of the plans takes place. The final, formal settlement of the Building Plan. Guiding Principle XIL — When the second publication is finished, and after this — together with what has taken place— is officially noted on the plans: then we get the further regulations of the law which are necessary to a formally approved building plan. The carrying out of the official Building Plan. Under section 12 of the Imperial Master Act (the main Act governing town planning) it can be decreed that no buildings can be erected on any streets or parts of streets which are not completed according to the building bye-laws for the public traffic. Local Bye-laws with regard to Building Plans. Guiding Principle Xlll. — The carrying out of the formally settled building plans depends essentially on 77 ■sections 12 to 15 of the Iinperial Master Act. It must be accepted by the Land Registry Office or the County Council. The amount of work caused by the carrying out of a building plan is very much increased or diminished according to the plan proposal and its settlement. If, for in tance, only the most important traffic streets are settled, then the authority can make the later settlement of other streets dependent on the uniform proposition of all con- cerned, together with an immediate undertaking of these people to give up their claim for damages of any sort should any street be carried out differently to expectation. Nothing can be charged for the laying on of water. The cost of necessary measuring and unsuccessful law cases -falls on the owner. If mistakes are made in carrying out the work, by which increased cost occurs, the adjacent owners cannot refuse to meet them. Guiding Principle XIV. — (a.) The redistribution of land on streets that have already been regulated, only applies to a single block, or to blocks which have to be separated from those adjoining them. Street land does not come into the question. {b.) In the case of street cuttings, only those pieces of land directly touched by the street cutting are redistributed. The street land is deducted in accordance with the plan. {c) The opening up of larger building sites and the land redistribution inseparable from it spreads over one or more -principal streets, and on all of these blocks with their surrounding streets which touch the principal streets. The most advantageous redistribution boundary is generally the centre line of a street; but in the case of already -existing streets which have only to be widened, then' the previous building line is the best boundary. • 78 It must be carefully decided when a redistribution of land is to be carried out whether it happens in regulated or unregulated streets, and also vice versa in the case of building land on regulated streets, whether the same value- must be taken for all positions, just as in ordinary- circumstances it is incorrect to classify differently various pieces of land that are going to be opened up. Guiding Principle XI^.— In the case of opening up- building land, the land required according to the plan for streets and open spaces must be deducted from the total amount. The percentage of the total amount left available- for building must be ascertained, so that each of the original holders shall receive back the same percentage of their- original holdings. Footpaths and areas of a public nature are to be reckoned as the property of the private owners. The building land left is to be given to the original owners- as near as possible to where their previous land was. The street land is handed over to the authority. If, however,, land is not likely to be used for building for some time, then the street land may be left for the use of the adjacent owners without charge until such time as it is wanted. Thoroughfares must be settled according to the economical! requirements. Sections 7 and I2i of the Imperial Act. (7) In the case where only a single ownership is affected' by the settlement of a building plan, then publication of plans is unnecessary. It is only necessary to inform the- andowner concerned. (13) Compensation for taking away land or restricting its use in consequence of the building plan can only be^ granted in the following cases : — I . When pieces of land intended for streets and open spaces are given up for public traffic on demand . of the authorities. 79 2. When street or building lines cut existing buildings,. and the land has to be cleared up to the new building line. 3. When the building line of a new street cuts land' that is unbuilt upon but is suitable for building,, and which at the time of the settling of thr new plan was suitable on an already existing street which had been passed for public traffic and building. Compensation will in all cases be granted on account of land intended for streets and spaces, and also in those cases m which a restriction of the land occurs in con- sequence of the settlement of one of the building lines. In all such cases the owner can insist upon the whole of the- land being taken, if so much of his land is taken that the- remainder is not suitable for building. 80 Extracts from a Book on the Activity of the Town of Ulm in connection with Housing Accommodation FOR Working Men and Low-paid Officials (Houses acquired by those who live in them), by Ober- burgomaster Wagner. Preface. Amongst German towns Ulm, and the village of Lambrecht in Bavaria (3,600 inhabitants), are the only two that have for several years done their best to build working men's houses for the tenants to acquire, under the restric- tions that they are not allowed to resell, thereby preventing speculation. These efforts have given these two places a certain amount of experience in the matter. The result of our attempt to satisfy the demand for a large building for employees of. the city cannot be called satisfactory. A block, three storeys high, containing twenty- one roomy tenements, was built, and the rents fixed at a low figure, but only about half of the building is used by those for whom it was intended, and it is found that the collection of a large number of families under one roof results in friction and quarrelling between the housewives, which often brings their husbands into collision with each other. This experiment having failed, the town decided to build no more flats, but a Company was formed in July, 1 89 1, call d the Housing Union of Ulm, and joined by working men as well as capitalist . This Company restricted its dividends to 4 per cent., the surplus being used for improvement of existing houses, or for acquiring or building others, and in general to improve all the housing conditions of the city, with the exception of a certain amount that was allowed to be put to reserve fund. This Company built flats which, of course, suffered from the disadvantages inseparable from that class of dwelling. 81 Later on the Corporation itself undertook the erection, ■first of double houses and then of single houses, not to be let in the ordinary way, but for men willing and able to gradually purchase the house they live in. This departure 4ias had two most satisfactory results : — (i.) People have been educated up to the great advantage of single houses over flats. (2.) The tenants take great pride and pleasure in keep- ing their houses and gardens clean, tidy, and in good repair, because "it is their own property." The following is a short description of the double houses tuilt by the town and gradually acquired by the tenants. Two rooms, kitchen, scullery, sanitary convenience, front garden, cellar, woodshed and garden, 5s. per week. The same accommodation with three rooms instead of two and slightly larger area, 6s. per week. A larger size, 8s. per week. The houses and the land are not sold outright, but revert to the town at the end of a certain term (100 years), and in certain cases the town buys them back at the price paid. One of the conditions is that if the tenant sublets without the written permission of the Corporation, his house reverts to the Corporation. Relative proportions between streets, front gardens, <;ourt yards, and back gardens, to the land built upon . — Buildings ... ... ... 20 per cent. Streets, with front gardens... 30 .Streets only 17 „ Front gardens only 13 „ Gardens and courtyards ... 50 ,, These proportions ensure a sufficient amount of light and air for every house. 82 Although the town of Ulm has spent a great deal of money during the last few years in pulling down oW buildings, cutting new streets and widening others, as well as for other municipal purposes, the rates in Ulm are lower than in any other city in Wurttemburg, owing to the satisfactory financial results of their Municipal Land Pur- chase policy. During the last twelve years they have increased the- land belonging to the town to the extent of 450 acres, which has cost them about ;£io,50o, that is, rather over £20 per acre. Land belonging to the Corporation is let or sold on certain conditions, amongst which is the right of the Cor- poration to take back at the price paid land that is not used for the purpose specified when it is bought. By this and other means they have successfully prevented land specula- tion, and thereby made much easier the solution of their Housing Problem. When the town bought the land on which the fortifica- tions were built they raised a special tax on the owners of land just outside the fortifications to cover the increase in value of this land owing to its being rendered available for building by the removal of the fortifications. Duties of the Local Authority. (i). Settlement of town extension plans for the largest possible building requirements and of building regulations- in different zones. (2). The maintenance and increase of the quantity of land owned by the community. (3). Taxing of the increment in value of land. 83 (4) Regulation, of building of dwellings for working men and employees, especially single houses for people with small incomes. (S). Arrangement and perfection of traffic facilities for the outer portions of the city and suburbs, and if necessary taking over the management of the means of traffic. (6). Erection of lodging houses for workmg men and domestics. Conditions of Sale of Houses built by the Municipality OF Ulm, and sold by thf.m to the Working Classes. In drawing up these conditions the town had specially the following points in view : — 1 . Dwellings to be for the poorest classes only. 2. Preference to be given to those having large families. 3. The prevention of house speculation. 4. The prevention of rises in house rents and damages to house property. Summary of tke chief points in the agreem.ent. 1. The town to erect for the buyer a house on the plot bought according to the plans passed. The buyer to repay by instalments the costs shown in a scheme approved by the Building Court. 2. A cash payment of 10 per cent, of the land purchase money and building cost. The remainder to be paid with interest at 3 per cent, and 2\ per cent, for sinking fund. Payments to be made quarterly. Buyers in arrear to pay 4 per cent, interest after the first month. Extra payments to 84 expedite the repayment of the total amount. During illness payment may be suspended. The debtor is provided with an explanation of the conditions of repayment. 3. When the debt is reduced to 50 per cent, of the valuation the buyer may cease paying off, but the Town Council reserve the right to raise the interest to the amount which it has to pay for loans taken for workmen's dwellings from the Insurance Institutions. 4. The amount then becomes a mortgage on house and land. 5. Occupation of the house begins as soon as the buyer satisfies himself as to its construction, etc., but the handing over of the house only takes place when the money is completely paid. 6. The buyer has to pay rates and fire insurance. 7. The buyer has to pay costs of sale, stamp duty, etc. 8. The fencing of the garden has to be paid for by the buyer, but is carried out according to the instructions of the town. 9. Relates to ownership of party walls. 10. Buildings to be kept in good condition and repair, and the owner must not refuse to obey the instructions of the town authorities in this respect. Without the permission of the Town Council no important alteration of a building can be made, nor must it be pulled down. The Town Council reserves the right to inspect the house at any time. 1 1 . The town reserves the right to buy back, and may enforce this right under certain conditions as follows : — (a) In case the debtor or his heirs are behind with payment for more than half a year without having first obtained permission. 85 {b) In case the owner or his heirs want to part with the house before the lOO years are expired. (c) In case the owner lets the dwelling in spite of written warn ng at a rent which goes beyond the highest fixed by the town. {d) In case the owner accepts a new mortgage without the sanction of the town. {e) In case the debtor does not himself live in the house. (/) In case he refuses to fulfil the duties mentioned under No. lo. (g-) In case he damages the dwelling purposely or from negligence. {k) In case of Bankruptcy. {{) In case of paragraphs Nos. 14 and 1 5 below. The exercise of the right to buy back in case of (c) to («') can be made within 100 years from date, and not only in the period mentioned in the Civil Code. 12. The amount for repurchase is fixed by a valuation commission in such a way that the same price is used as a basis for the purchase of the plot of land as was put down at the time of building the house and for the house also. To this is added the amount of increment in value, if any, or the amount of depreciation, if any. From this is deducted also any sum still owing by the owner to the town. 13. The valuation commission to be composed of town officials chosen by the Town Council, technical experts chosen by the house owner, with the President of the Fire Insurance Commission of the town of Ulm as President. If the owner does not appoint his experts the Town Council can nominate them. 86 14- The house owner is not allowed to take lodgers without the permission of the Town Council. If this is infringed the Council has a right after written notice to repurchase. 15. Special permission of the Town Council is required to use the whole or part of the premises for trade purposes. The owner binds himself not to use the premises ior trade nor to lease nor rent them for this purpose. In case of breach of this clause the Town Council may repurchase, or the owner may be required to pay a fine up to ^lOO, and this penalty has to be insured by a mortgage under the buying arrangement. 16. The town reserves the right to buy back front garden plots under the conditions of section 497 of the Civil Code. Also, in the case of its requiring these for wholly or partly widening the street, (a) The repurchase is at the price of shillings per square yard ; (b) the owner cannot claim any damage for having spent money on his front garden, but has the right to remove the plants and railings, etc. 17. The town has the nght^in case of sale, etc., by the debtor or his heirs to demand cash payment of the unpaid amounts in lieu of repurchase. 18. Spaces between dwelling houses are only to be used for erecting small and easily removable buildings. 19. The use of the front gardens for vegetables is only permitted as far as the bye-laws allow. Clothes drying is not permitted. 87 DUSSEIiDORF'S New Building Scheme, by C. Geusen, Dusseldorf. In the year 1884, a comprehensive scheme for the ex- tension of the town of Dusseldorf was drawn up, sufficing ■for a population of 600,000 people and covering a building area of 6,000 acres, allowing of an average density of 100 persons per acre. Even though the population should not 'n the time estimated reach 600,000, yet it seeme^ ad- visable to make a scheme of the above-n med dimensions. Both the earlier building and town extension schemes brought out in the years 1831 and 1854, which had areas of 248 and 940 acres, were soon proved to be too small ; especially after the adoption of the scheme of 1854; during the following decades, the town grew beyond the limits of the scheme, and streets and. localities sprang up without an uniform plan of town extension. The suburbs of Flin- gern in the East, Oberbilk in the South-East and Unterbilk in the South, grew very quickly, and there was a danger that, without the timely adoption of one of theschemes which included these p'aces, there would arise unsatisfactory con- ditions with regard to traffic and building in their neigh- bourhood. The Act of 1875, regulating the making of streets and highways, expressly encouraged the framing of schemes of town extension, while the prospective alteration of the plans for the railways in and near Dusseldorf at the end of 1 870, and again at the end of 1 880, gave further grounds for the formation of a comprehensive scheme. The development of Dsiiseldorf has progressed differ- ently from that of other fortified towns ; while such towns, as a rule, grew round about the earlier fortifications in concentric 88 fashion; in the case of Dusseldorf new quarters sprang up- having no organised connect on with the walled portion of the town. Thus, to a certain extent, unorganised develop- ment follows from the fact that there is no highway of any importance, except that from the mountainous country to- the East, leading into the centre of the town. In Diissel- dorf we do not get those radiating streets running from the centre to the outskirts of the town, connected later by roads running more or less parallel with the fortifications, which form natural boundaries for the building zones in the- newer parts of a town. The boundary streets of both the earlier schemes {i.e., 183 1 and 1854) have now become- thoroughfares in the extension scheme of 1884, and it remained for the latter scheme to afford a solution to- the difficulty of connecting these newer quarters, whichi were badly connected, one with another, so that they might become coherent sections of the complete scheme for' developing the town. Upon the basis of this general scheme special building- plans were prepared for those areas remaining open ini which only the main outlines and ideas of the principal scheme were adhered to ; the large circular streets (Ring- strassen) were, however, adhered to as marked out in the- scheme, although with some partial modification in the- working out. In the elaboration of these separate plans the opposite fault has been committed to the mistake made in' the earlier schemes. In the earlier schemes too little care was taken to provide adequate communication between the separate districts of the town, and too little regard was had to the street traffic. On the other hand, with regard to the- scheme of 1884 and its separate plans for developing each, district, it may be said that too great attention has been paid to street traffic. The result of this is that the arrange- ment of buildings in various districts is sometimes- sacrificed to the plans for traffic. The too great regard. 89 paid to the requirements of traffic led to the arrangement of numerous diagonal streets, so that there would often he- five or more streets meeting atone point, and thus in many cases there followed the adoption of a bad position and faulty shape for public squares. It has, however, been found as the town developed that quite a number of these diagonal streets can be omitted without detriment to the traffic, and we have also by these means avoided other disadvantages which arise from the crossing of the diagonal streets forming sharp corners with the streets they meet. These disadvantages are as follow : —When streets cut each other great empty spaces are formed which spoil the appearance- of the town and unnecessarily reduce the amount of land available for building, in addition to which numerous acute angled corner building sites occur which are expensive to deal with, as well as producing inconvenient buildings when dealt with. These considerations have given occasion for the re- modelling of the existing building schemes. Diagonal streets should only be constructed as future traffic causes a demand for them, and even then only those should be allowed which serve as thoroughfares for traffic from the outskirts to the centre of the town, and between the different quarters of the town. Moreover, it should not be looked upon as necessary that every vehicle and pedestrian in every street should be able to go in a straight line to their destination. Further, the aspect and form of the public squares should not be made dependent on where streets happen to cross each other, neither should they be merely widened spaces at these points ; they should be spaces independent of the crossings, spaces determined upon in the scheme. They should be now what they always were in earlier times if they are to fulfil their proper function, «.«., to form resting places in the traffic of a town, and also to- afford space for the erection of monuments. Open spaces- 90 properly placed and well laid out, which date from earlier times, are still to be seen in Dusseldorf. Plans Nos. 3, 4, and 5 show, side by side, the schemes used up to the present, and the newly proposrd schemes ioT the separate quarters of the town. Before discussing the separate schemes the following remarks may be made regarding some points in common between them. The diagonal streets needed for purposes of traffic are provided in the new schemes, though it would not always be held necessary that they should follow a direct course. The roads already in existence are retained as far as ppssible in the formation of the new streets, and the boundaries of various ownerships of land were wherever possible made use of for new streets. The number of streets crossing each other are restricted to two wherever it appears practicable, the open squares are ■so placed that they are not crossed by busy streets, but are situated on one side of them, and contain the fewest possible 'breaks in the fences that enclose them. Acute angled street crossings are in many instances avoided by giving a curved direction to the streets; this was the natural result of utilising the existing roads. All the streets in the new schemes, with the exception of those which are later to be occupied by business houses, have front gardens of at le^st 16 feet in depth. The streets without front gardens are made wide enough to allow of a promenade in the middle. The value of front ■gardens from the hygienic and from the aesthetic point of view need not be enlarged upon here ; it may be objected against them that, where they are not regarded by the building regulations as spaces to remain open, they will make the buildings dear, and that they will be badly tended. a) loci o qi^cfier C, ail in ^ffiM Bttmuuag b) / b) Residential quarter North-East Diisseldorf. a) New Building Plan, b) Old BuUding Plan. No. 3. AUOAf iM., tM., enmimHAH. Fri«dh4>e} O Fn^JJutf / / B lOO "JO Residential quarter of North Dusseldorf. a) New Building Plan, b) Old Building Plan. No. 4, AUDAr iM, ut*., BumweHAu. Sidtdt Vblks^eirien ,\. Residential quarter of South Dusseldorf. a) New Building Plan, b) Old Building Plan. No. 5 ALlOdr LU., Lith., aiHMINOHAII. 91 •especially those belonging to flats. The first objection can be at once disposed of, by allowing building on the front gardens to a certain length of front and a certain depth without reckoning this as part of the building site; in that ■case owners must not complain if, later, on account of unexpected increase of traffic, these gardens should have to be sacrificed and used to make a footpath, entailing the •demolition of these extra buildings that obstruct the new footpath. Considering the great importance of the front garden, the second objection can be answered without "hesitation; the police will have instructions to enforce proper attention to them. One of the chief advantages of the front garden is that the width of the actual street may be brought to the narrowest limit demanded by the traffic. In fixing the width of the streets in the new schemes, there is nowadays a more careful distinction made between different classes of streets. Streets are classified into— (i) housing streets ; (2) streets with moderate traffic ; (3) streets with a great deal of traffic, due to their being main arteries. (i) For streets which only serve the purpose of •dwelling-houses a width of abont 1 6 feet is allowed for horse road, sufficing for the easy passage abreast of two vehicles. If the width of the two footpaths together be made equal to the width of the horse road, there is a total width of about 32 feet for street and footpaths. So that, counting the 16 feet of garden on each side, there is a distance of about 64 feet between the house fronts. In those quarters of the town where no building plans apply, only houses of two storeys high will be allowed, so as to prevent the erection of high buildings. In many cases the width of streets for dwelling-houses alone could be reduced still more. A breadth of 29 feet between the two sides of the 92 street, 16 feet for the horse road, and 16 feet 6 inches for each footpath, would be sufficient ; and if no permission were given to build on the space allowed for gardens, a depth of about 10 feet would suffice for gardens in such streets. So there would be a total of about 49 feet between the building lines. In the further cutting up of the larger blocks of building land, these smaller dimensions might be suitable, but for the streets which are already fixed, the higher measurements seem more desirable. (2) The streets with only a moderate amount of traffic have a width of 49 feet, of which half is given to the two footpaths and half to the horse road. (3) Streets with a large amount of traffic have a width of at least 64 feet, 32 feet for the horse road, and i6 feet for each of the footpaths. The new building schemes exhibit considerable depar- tures from what is customary, especially the earlier, so much favoured ; regular and symmetrical forms given to open spaces have already disappeared. The regularity and symmetry of these plans looked all right on paper, but they were trouble- some for the carrying out of building operations, by reason of their many sharp corner sites ; they produced unenjoy- able buildings and made it difficult to find one's way. It cannot be said that the formation of open spaces such as, for example, that opposite to Friedhof in Oberbilk, Plan No. 5b, would have appeared necessary or natural as the scheme developed itself. The following remarks have yet to be made concerning the separate schemes. The district to be opened up, according to the scheme shown in Plan No. 3, is to be a quiet residential quarter ; as are also the adjoining quarters to the north- 98 •east, beyond Jan-Wellem-Strasse (outer Ringstrasse) and the south-west. The disposition of the streets as given by the -old scheme, with its numerous diagonal streets and unsuit- able places, took too little account of this intention, viz., to make these residential quarters; an alteration was therefore determined upon. The Grafenberger Allee, bordering the district to the south, is the highway to the town from the mountainous country, and has a very large traffic; the street forming the boundary to the north, the Graf Recken- strasse, is quite new, and serves as the street along which traffic passes to the town park or wood (Stadtwald), but heavy through traffic will not go along this street. A •connection between these two boundary streets by means of diagonal streets is therefore not absolutely necessary for the purpose of traffic, but a connection is made by the Hans- Sachs-Strasse, which takes a curved direction. For the -greater part of this new district, open or detached building is chosen, as has already been done in the quarter on the north-east boundary, and where it has been determined to build spaced fronts in a block the following rule is strictly adhered to, viz., that only those may do so who have front gardens, and that if a block of buildings is close built upon •one side the opposite side shall also be close built, so that the back buildings of one set of houses shall not be seen by those opposite through the spaces which have been left. ■Only in the case of deep blocks, which will presumably later on be divided up by the cutting of more streets, is this rule allowed to lapse. The block in the South-East of the district is still ■occupied by a number of factories and can only be included ■in the building scheme when these are removed. The block fronting the Grafenberger Allee between Hans-Sachs Strasse and Sohnstrasse forms a large private park, which, so far as can be seen, will not be used for building. 94 In keeping with the contemplated higher class of build- ings which will be built in the whole quarter, the streets- will be made wider and the front gardens deeper than is- determined upon in the other two schemes. Plan No. 4 shows the district lying to the North of the town traversed by the main road to Duisberg (Kaiser werth- er-Strasse) having as boundaries the Rhine and Ross-Strass& leading to the Nordfriedhof. The old scheme contains a. number of diagonal streets which are not necessary for traffic, but which are the cause of a number of ill-shaped open spaces and acute-angled blocks. The chief diagonal thoroughfare must be retained in any case, as it is the direct road for large numbers of inhabitants to Nordfriedhof, and also because the direct course of the road, cannot well be altered ; this direct course, too, is not without its attractive- ness, as the centre line of the street points straight to the lately-built dome of the Palace of Arts in the Exhibition Grounds. In order to give a varied and pleasant aspect to the street, its several parts are formed on different plans. The large new street on the West boundary of the district will, in the future, be the chief street on the Rhine Embank- ment, and will form a continuation of the newly restored Kaistrasse of the old town. The blocks of buildings, some of which are at present too large, will be cut up into smaller building lots by narrower streets whose position will be proposed by the owners of the lots in the block. The alteration shown of the old scheme on Plan No. 5 became necessary because a new street from the precincts of Oberbilk to the town hospital, which is in course of erection,, had to be constructed. Also the foundation of a new church on a piece of ground on the Werstener Strasse which was- presented to the parish rendered an alteration desirable in order to bring the church into better relationship with the 95 surrounding rfetwork of streets. And also the street connecting with Oberbilk has been directed in a straight line to the administrative buildings of the hospital. The appearance of the streets has varied in outline, and in the middle portion it has the favourite lentil-shaped for- mation. The new church is brought into connection with three stree s, in spite of which it stands sideways to the prin- cipal thoroughfare, and there is only a small street to the north of it in which the houses for the officers of the church, will be built. This street upon the north side of the church will in the future be made somewhat broader, giving room for front gardens when the parishioners have acquired the land lying on the north of the Fruchtstrasse, as is their intention. The building plan shown on Plan 3 is already for- mally adopted, and the opening of a number of streets in this district be expected shortly. The new schemes on Plans- Nos. 4 and 5 are still under examination ; the objections- raised are only with regard to details whose alteration would not affect the character of the schemes as a. whole. The new schemes cannot satisfy all the demands of the newer principles of town construction. Those engaged in the actual work of preparing building schemes will often realise the truth of the saying, "There are so many things to think of all in one moment." A building scheme can only make a compromise between the claims of traffic, building aesthetics, and economy. Certainly the elaboration, would be much more interesting, and the solution of the problems brought forward would be more satisfactory, if,, on the drawing up of the schemes, the spaces for public buildings and other large and important works, and the 96 ■probable form these would take, were known. This is only very exceptionally the case. The sites of churches are never known beforehand, for they are very often presented to the prospective congregations ; so that it is only seldom that the churches can be brought into comfortable relationship with the streets, and this is shown in one of the plates. In spite of certain objections to the form of the new schemes, it must be granted that they are more suitable for the buildings, and will produce a town of better form than the old schemes. 2s^0TE. — Plan No. 6 is of the northern part of Dusseldorf, and shows the area already btiilt upon, with a scheme for laying out and developing the suburbs adjacent thereto. An explanation of the various colours will ■be found at the bottom of the map. ::;rv<'": v^Ie ^^^^ Jfemme <'^l l« I te}uU\ CApeOtstr / / N \ S(*\ y\~ nnutfrei vJ/lSclunti ■'IUngofe\ '/RHf) BoMf ^^c/mU r^rJ'6 Villa :t ;' .»«« vi^^l^ a:»: e Aa< -^j ' Id »*/< .*•. ^. \j?o v^ * c y Mopsci^aieh >ri)i£n_ \ '^ KS^^ \'mMm^w*m'k'-^': / , L-nAmal I I agrAUl 39€r I htf 1VZ/a \OAcr*X(W ,* i V -■\ 'CoUmie ■^ J^t, 'Ib^ J~^<^. Qtlth%\Tn y /Wir '^/i/orOr^-^. T/iM! X Zifgtlwrri '^> IM^^jf"*''' ,RpJ^^ V«/to ^•t^:^ -T !■- <<■ 'I' ■;v^ 'Z-V v^- t^'l/-- / /• ^ ^V. // I -I \^ .^ \ A \ / I :e. X -XJ -25. / ■A DiLirSfMhiuhlf / lA-: /, it\ ef^ A^ ^. /y .\ V ,W --'•- , ^^ rlmrO Forest FOREST mmi^'f' No. 6. PLAN SHOWING NORTH HALF OF DUSSELDORF. The Streets coloured Blue and Brown have been decided upon under the Town Extension Plans, but are not yet made. Blue being Streets that are to be planted with trees with open spaces at intervals. Brown Streets without trees. The other open spaces are coloured Green, except the Forest and the Cemeteries, which are left Black. />L!DAf Ltd. L:th Blh»IH(,HAU FOREST )WING NORTH HALF OF DUSSELDORF. wn have been decided upon under the Town Extension Plans, but are not yet made. >lanted with trees with open spaces at intervals. I Green, except the Forest and the Cemeteries, which are left Black. AUDAV Ltd., Lith., BlftUINeHAU. 97 STUTTGART. (Contributed by the Oberburgomaster). {b) Town Extension. The town of Stuttgart is situated in a comparatively narrow valley, going from south-west to north-east ; the hills, on either side of this valley, being rather steep. In the mouth of this valley, towards the north-east, there is a large royal park ; the consequence of this situation is that the extension of the town meets with particular difficulties because most of that part of the valley, which is somewhat flat, is already covered with buildings. Therefore it is necessary to make use of ths hill sides for building; but it is obvious that building, as well as making streets, is particularly expensive on these hill sides. It is, however, possible to arrange for lovely views from the houses on the hillsides and, to a certain extent, also from the streets. Between 1 890-1900 a large general plan for town exten- sion was prepared, that is to say for a net of streets going all •over that portion of the town which is not yet covered with buildings. The principal aims of that plan were to maintain the beauties of the landscape by establishing the principle that on certain large tracts of land no buildings should be allowed. Another object of the plan was to prohibit the close building of houses outside the old town, but to leave spaces between the different houses, and to ■enlarge these spaces the farther the houses are situated from the centre of the town. It was also prescribed that the height of the houses ought to be reduced according to their distance from the centre of the town ; but later on these principles were considered by many people to be erroneous, and it was thought that by lowering the houses and by wasting the ground resulting from the spaces between the 98 houses, the cost of building, and consequently house rents, were increased. In addition to these objections the town extension plan was also attacked for regulating building in a way too unifornn and too strict, and for producing aspects of streets unsatisfactory from an artistic point of view because of their monotonous and tedious nature. The new system adopted and practised actually consists in making streets conforming to the topography, in making- slightly curved even those streets that are running on fiat ground in order to give the town a more pleasing aspect^ and in creating quarters consisting only of cottages on the hillsides. The idea is to have here principally dwellings for the wealthiest part of the population, because only somewhat expensive buildings can be erected here. Here buildings are kept lower, usually limited to the height of two storeys. The houses must also be kept at distances of about 33 to 45 feet from each other, and in many cases building is not allowed on the lower sides of the streets in order to offer to the passers by a clear view over the town. With the exception of the hillsides, higher buildings, the height of which corresponds with the breadth of the streets, may be erected everywhere, and even without spaces between, or only with small spaces of 10 to 16 feet. Care of light and air is assured by the fact that spacious courtyards must be left uncovered by buildings behind the houses. By this distinction between cottage-quarters and ordinary lodging-quarters, that are inhabited by the less wealthy people, we believe on one hand to have upheld the aesthetic and sanitary interests, and on the other to have taken into account the economical state of the popula- tion, in so far as facility is given as much as possible for the erection of cheap lodgings. 99 For further details on this question refer to the book pubhshed by the Municipality of Stuttgart concerning town extension. (c) Costs of Streets. The legal dispositions which we have at Stuttgart oblige the land-owner as soon as he desires to build, to cede to the town without indemnity the land that is required for making streets. If the land-owner does not build, the town buys the necessary tract of land from the land-owner, but imrrediately the latter is going to build he must give back to the town the money he received for that tract of land. In most cases the land-owners cede the land of their own free will and without indemnity when the street is to be made. Every land-owner who is going to build must observe the established plan for the making of streets, and the rather exact bye-laws published by the municipal'ty to complete the plan and assure its execution. A further obligation o the land-owner who is going to build is, besides giving up land, to dig or to fill up the land that is required for street making, which is along- side his property. If a land-owner refuses to cede the land required for making a street which the municipality declares necessary, that land is taken from him by compulsory purchase ; the value is fixed by law, and when this has been done it is transferred to the town. In addition, every land-owner, whether he is building or not, is obliged to make and keep in a good state the sidewalk running along his property. (d) Land Policy and Purchase of Land. The Deputation were given a full explanation of the reasons why the town of Stuttgart does not, — as it is claimed by many people, especially by the "Association of German Land Reformers "—buy a considerable amount 100 of land in order to build itself small lodgings, or to sell it for that purpose to private people or to companies. The reasons of this negative attitude may be summed up as follows : — The price of land in the surroundings of the German towns has risen considerably in consequence of the extraordinary growth of the population, and of the many buildings which this growth has necessitated. Building to such an extent has created a strong demand for land, and the supply does not always correspond to that demand. The price of land, of course, goes up when there is a strong demand and a small supply. The town, by purchasing land without wanting it for directly practical needs, i.e., withdrawing more land from the market, is simply making matters worse, for it is increas- ing demand, and making prices go up still more. These reasons are not mere theoretical considerations, but the town of Stuttgart has actually had this experience when it was obliged to buy land for constructing a slaughter-house and a cattleyard. These experiences have induced the town of Stuttgart to buy land, and to increase the stock of land belonging to the town as much as possible, so as to avoid the necessity of paying high prices for its own future needs, especially for the erection of public buildings. But the town of Stuttgart does not believe that by the purchase of land it might contribute even a little to make cheaper that land which is required and employed for lodgings for poorer people, or, as is generally said, to fight against specu- lation. On the contrary, it is convinced that as soon as the town appeared on the market to buy more land than it required for the satisfaction of its own needs, it would only make prices go up without diminishing speculation in any way. The Oberburgomaster thinks that the ideas and aims of the so-called land reformers are just only in so far as the vacant land in the neighbourhood of large towns ought to be taxed, not only in proportion to its agricultural 101 production, but also in proportion to its value for sale. Further, the question should be considered whether the town ought not to claim, as a tax, a part of the increased value which is realised at the sale of such land. {e) Municipal House Building. The town of Stuttgart has" erected a certain number of houses for working people, on the one hand in order to have a true and exact idea of the effects, especially the financial effects of its own bye-laws concerning building, on the other hand in order to create, for private enterprise, a model of reasonable and practical institutions. But Stuttgart considers it impossible, and also far too dangerous from the financial point of view, either to undertake the whole supply of lodgings for the less wealthy classes of the population or even to enter into a continual competition with private contractors. The Municipality is convinced that it is fulfilling its task better by encouraging private enterprise and by facilitating building by reasonable and practical building laws. At the same time it is supporting, by differ- ent means, such Building Societies of public utility which endeavour to erect small lodgings for the less wealthy people. The Oberburgomaster thinks that the community cannot supply the whole want of small lodgings, as the community builds at a higher cost and takes more time than a private contractor, and this reason alone would make it impossible for the town to fulfil such a heavy task with the necessary quickness. As far as the Oberburgomaster knows, Hamburg is the only large town in Germany where the Municipality has erected small lodgings to a large extent. But Hamburg was compelled to do so by an extraordinary situation. The town found it necessary to demolish a good number of houses containing very bad lodgings, and felt obliged to replace them. Otherwise the expulsion of a considerable part of the population from the old demolished 102 houses would have extraordinarily increased the demand for lodgings to a disastrous extent and would have increased the evil they were fighting against. (/) Single Houses belonging to Workmen. There is at present in Germany a tendency to enable workmen with a moderate income to acquire the self- contained house they live in. This kind of habitation is, in most parts of Germany, not in accordance with the habits of the people, for the Germans prefer to live in large tene- ment houses. The municipality of Stuttgart has been led by experience to the conclusion that living in single houses is considerably more expensive than living in flats. The town, thereforej believes that this tendency is not practical and has no chance of being realised so tar as concerns the less wealthy classes of the population, without taking into con- sideration the fact that, as a rule, the workman does not remain long enough in the same place to justify him buying a freehold house. ig] Supporting Private Enterprises. The town of Stuttgart is endeavouring to assist as much as possible private building enterprises that are useful to the community. Lately it supported the " Society for the welfare of the Working Classes " by a loan of four millions of marks at a low rate of interest (3 per cent.), when this Society decided to pull down and rebuild a con- siderable part of the " old town." As a rule it endeavours to promote building enterprise of general utility without discouraging private building enterprises. (k) House Inspection. The town of Stuttgart has paid more attention to the inspecting and letting of dwellings than any other town in Germany. It has established a housing office with a threefold task : 103 1. To observe and take notice of the conditions which may have a bearing upon the housing market in order to give the necessary hints to builders as to the people's requirements. A complete list of all dwellings is kept. 2. To advertise in the official daily paper of the town all dwellings that are to be let, giving a most detailed description, price, etc., in order that every one looking for a dwelling can at any moment and without any cost get a complete list of all such dwellings, and in this manner can select in the easiest manner possible the one suit- able for himself. In order to accomplish this every houseowner is compelled to notify the Housing Committee every time a dwelling is rented or becomes empty and for this purpose is supplied with official forms. 3. Last, but not least, topreventnuisances in dwellings and particularly to discover sanitary deficiencies wh'ch would indicate that the town officials should take a hand in inspecting such dwellings and to prevent their being overcrowded. For this purpose about 120 honorary lodging in- spectors are appointed. Of these, every one knows his district so well that he is aware of all those lodgings in which the possibility either of great sanitary deficiencies or of overcrowding is likely to exist. Lodgings which are well kept are not visited nor their owners troubled, while all ■other lodgings must be periodically inspected by the lodging inspectors. It does not come within the rights of the lodging inspectors to give orders in regard to lodgings, they simply make their report to the housing office indicating which, in 104 their opinion, require the interference of the authorities. As soon as such a report is made the housing office convinces itself o'. the condition or of the overcrowding of such dwelling. If it finds that official interference is necessary, after consultation with the health officer or the technical officials that are at his disposal, it orders the changes necessary to remove their objections. Such orders, when not complied with by the owners of the house, are enforced by the police. (i) Flats .and Single Houses. It has been pointed out under (/) that, in by far the greatest part of Germany, single houses only come into con- sideration with the wealthiest part of the populations. The Society for the Welfare of the Working Classes, which in Stuttgart has done a great deal to satisfv the demands for lodgings of the less wealthy, and of the activity of which the Deputation personally convinced, itself by inspecting the colony at " (.)stheim;" has, based upon its experience, gradually changed its policy from bu Id- ing self-contained houses to building flats not only in order to comply with the prevailing custom and the wishes of the population, but because it can at the same time offer for the same amount of money a great deal more as regards room and comfort in flats than in self-contained houses. 105 ACT PASSED IN 1875 FOR CONTBOLIiING THK DEVBIiOPMENT OF NEW BUILDING AREAS AND THE DEVELOPMENT OF OLD ONES IN TOWNS AND RURAL DISTRICTS IN PRUSSIA.. 1. The street lines and building lines for the laying out or changing of streets in town or country places are to be fixed by the council, with the consent oi the local police authorities^ corresponding to the public requirements- The local police authorities may demand the fixing of building lines if they consider the same to be necessary. " Street," in the sense in which it is used in the previous- paragraph, includes the road and the footpaths. The street building lines as a rule form at the same time the building lines, that is to say, the limit beyond which no building must take place. For special reasons, however, a building line varying from the street border line may be fixed, but the two lines must not at the most be more than lo feet apart. 2. The fixing of building lines may be done for separate streets or parts of streets, or according to the foreseen needs of the near future, by drawing up- plans for larger areas. If, in consequence of great destruction, by fire or other events, it is a matter of re-building whole quarters of the town, then the communit}^ is bound to quickly resolve whether and how far a new building plan is to be drawn up for the quarter in question, and in that case to effect the immediate drawing up of the- new building plan. 3. When fixing the bordering lines the furtherance of the traffic, safety from fires, and the public health are to be taken into consideration, and it must also be seen, that no disfigurement of the streets and squares is caused. 106 Therefore care has to be taken that the streets have suffi- cient breadth, and that a good connection of the new "buildings with the already existing ones is made. 4. Each fixing of bordering lines (paragraph i) must contain an exact description of the building plots and parts •of building plots affected thereby, and must also indicate the level, as well as the intended drainage of the streets and squares in question. 5. The consent of the local police authorities (para- graph i) can only be withheld if the interests to be guarded by the police so demand If the Local Authority is not ■satisfied with the refusal, then, on their demand, the District Board decides the question. The same authority (district board) decides on demand of the local police authority about the question of requirements, if the local authority refuses to comply with the request of the local police authority. (In town districts and towns belonging to a land district of more than 10,000 inhabitants the country board takes the place of the district board, and in Berlin the Minister of the Public Works.) 6. If the plan of the intended fixing (see paragraph 4) -is for a fortress, or if public rivers, high roads, railways, -and stations are included, then the local police authority has to take care that the authorities affected thereby are allowed plenty of time to protect their interests. 7. After the consent of the local police authority or the district board has been obtained, the local board has to publicly display the plan for everyone's inspection. The way in which the latter is to be done has to be announced as usual in the locality, with the remark that objections against the plan are to be sent to the local authority within a definite ;period, to be stated exactly, of not less than four weeks. 107 If it is a question of fixing only single plots, then a ■communication to the land owners concerned, instead of the public announcements, will sufifice. 8. The district board has to decide about the objec- tions raised if they are not settled by a conference between the local authority and the complainants. If no objections are raised, or if final decision is come to about the objections then the local board has to draw up their plan definitely, and to place it for everyone's inspection, and to make it publicly known how this will he done. 9. If several places are interested in the fixing of bordering lines, then a discussion has to be arranged Isetween the respective local authorities. The district council decides upon points about wh ch no agreement has been come to. 10. Any fixing of bordering lines, be it made before or after the issue of this law, can only be cancelled or changed in accordance with the conditions stated above. 4 For the fixing of new building plans, or for the •changing of already existing ones, in the towns of Berlin, Potsdam, Charlottenburg, and their adjoining surround- ings, the Royal consent is required. 1 1 . The owners of the ground may be prohibited from new building and changing of buildings beyond the border line from the day on which the publication demanded begins. At the same time the community obtains the right to take away from the owner the ground decided -Upon for streets and squares by the fixed street lines. 108 12. It may be fixed by local statute that dwelling^ houses must not be erected which have exits to the streets or parts of streets which are not yet ready for public traffic and building, according to the building police regulations of the locality concerned. The loc&l statute has to fix the detailed regulations within the limits of the general regula- tions laid down in this Act, and must obtain the sanction of the district board, of the county board, and in Berlin of the Minister of Home Affairs. Any objection raised against the decision of the district board can be laid before the provincial council within a definite period of twenty-one days. After confirmation being made, this statute is to be published in the usual local way. 13. Compensation for the restriction of the right of building according to the demands set out in paragraph 12 cannot be claimed, and compensation for the withdrawal or the limitation of the ground ownership, due to the settle- ment of building lines, can only be asked for in the following cases : — (ij If the ground required for streets and squares is ceded for public traffic on demand of the community. (2) If the street and building line affects existing building'5, and if the property is laid open to the new building line. (3) If the line of a new street that is to be laid out affects a property unbuilt upon, but suitable for building, which at the time of the fixing of this line is situated in an existing street and is ready for public traffic and building, and if the building takes place on the line of the new street. The compensation is granted for the land required for streets and squares. Also, in cases of No. 2, where it is a matter of limitation of 109 the land in consequence of the fixing of a building line differing from the street line, compensation is granted for the land which might have been, but is not allowed, to be built upon. In all cases mentioned above the owner may demand that the whole of the land be taken over by the local authority, if the latter is affected by the street line •either wholly or in so far that the remaining ground is no longer suitable for building purposes according to the local building police regulations. The term ground property is to be understood in this section as meaning each ground property that adjoins and is part of the same ownership. The compensation is to be paid by the community .within whose district the property in question is situated. It may be fixed by local statute that in laying out a new street or in extending an already existing one, if such are intended for building purposes, as well as in building on streets or parts of streets already existing, but at present unbuilt on, the laying out, the construction, the drain- age, and the lighting arrangements of the street are carried out by the builder or by the adjoining owners. The adjoining owners cannot be called upon for these •obligations for more than half the width of the street, and if the street is wider than 84 feet, for not more than 42. In making up the costs, the cost of the total street •expenses and the upkeep have to be calculated together, and to be charged to the owners in proportion to the length of their border touching the street. The more detailed regulations must be settled by a local Jaw guided by the general law quoted above, section 12 ±>eing always borne in mind. 110 In Berlin the regulations of December 31st, 1838, are to be followed until a local law has been passed. Para- graphs 16, 17, and 18 cancelled by the law for the general management of land. 19. All the general and special legal regulations contra- dictory to the regulations of this law are hereby cancelled. All regulations of the building statutes officially set out, all other police regulations and local statutes which are not in accordance with the regulations of this Act^ hereby become invalid. 20. It is the duty of the Minister for Commerce (tor public works) to attend to the administration of this Act. Note. — This Act has been amended and added to by the Act of 1876. Ill Reprinted from " The Daily Chronicle." HOUSING DIFFICULTIES. NECESSITY FOR WISE MANAGEMENT AND PERSONAL. INFLUENCE. By Miss Octavia Hill. May I address a few words to your readers on the- housing problem, in order to draw attention to the fact that in many cases the evils in particular areas do not call for reconstrucLion, but for wise and firm management? It is important to realise this fact, because there is a danger that small houses may be swept away in the desire for rebuilding where rebuilding is not called for. In such small houses the poorer tenants can be accommodated at low rents which are impossible after large building expenses have been incurred. Moreover, such houses are far better fitted for the less- disciplined tenants than block-buildings. It is these less- disciplined people who form the main difficulty in the problem. A Lesson from Notting Dale. Perhaps I may best illustrate this point by reference to- the district of Notting Dale, frequently mentioned in the Press of late, and where we are ourselves at work. Four years ago a friend purchased the leases of seventeen houses in a street there, and put them under our care. We found them in the hands of middlemen, who let them in furnished rooms, often by the night, to tenants whose refer- ences CQuld not be taken up ; and the standard of cleanliness, order and morality was what one might expect, and what 112 "has been mentioned in the Press. It was this class of trade, and this system of no-management in the hands of ignorant middlemen, which produced the state of things described, and which obliged Mr. Charles ' Booth to depict the area by a black patch amid the large spaces of red and yellow that •nark the homes of the well-to-do. A second cause of deterioration of the dwellers there was precisely the neighbourhood of these very people designated ■as " well-to-do " ; but who, as a rule, are so very ignorant of the effect of their action on their neighbours as to scatter among them indiscriminate and uncertain gifts. It was not the state of the houses which had caused the ■evil. The street is very wide and airy, and is composed of nice little six-roomed houses with good yards at the back. The sanitary authorities had kept up the appliances well, and had insisted on frequent cleansing ; so that, though the place was swarming with vermin and polluted by its inhabitants, we found comparatively little to do in structural alterations. In fact, I feel that the houses lend themselves particularly -well to just the work which will gradually raise this class of tenant, and which meets their needs. Clearing Out the Middleman. Our first duty was to remove the middlemen and to •enter into direct relation with the tenants. We introduced as managers, coming into almost daily communication with the tenants, a group of educated and high-principled ladies. The dirty furniture was removed, and the people were encouraged to provide their own. In this way, the rent being lower for unfurnished rooms, families could take two rooms for the same rent as one,, thus mitigating the crowding. The closets, wash-houses, and yards were supervised; the drunken and rowdy inmates were, in a measure, both influenced and restrained, and the quiet poor were protected, •encouraged, and gradually raised to better conditions. These 113 -small houses with rooms light and good-sized as things go, -and which can be let to a small number of tenants with wash-house and yard in common, lend themselves well to the ■class of tenants most difficult to raise and provide for. No large expenditure in building has been incurred. Value of Personal Influence. Rebuilding almost necessarily involves smaller rooms and ihigher rents. The floors of two rooms are let at 5s. to 6s., and there are a few small rooms let at is. 6d. Three or four iamilies, who are set on quiet, are able to occupy a house, and are not forced into contact, as in a block, with a number of less self-controlled neighbours ; yet the fact that there are 'three or four in a house using yard, washhouse, and staircase in common, makes an excellent reason for that personal supervision so essential to order and cleanliness which we ladies are able and glad to provide. Rebuilding is quick, clearance is quick ; but this tindividual and detailed work necessarily takes time; nor is iits effect easily discerned when looked at by the cursory visitor or newspaper reporter. In my experience it is thus individually and gradually that this class of tenant can be raised, and among the means for their improvement I should rank as almost the most rpotent the silent influence of those quiet and righteous •families among themselves who can be protected and en- ■couraged to live near them. I quite accept the descriptions given of much that goes -on in the street. I should be the last to palliate the sense of Ihorror and shame that such things should exist among us; -my own fellow workers often come back awed by the weight •of evil there ; but I would point out that it is not, in this -neighbourhood, the houses which are in fault ; but the :government of them and the lives of the inhabitants. 114 Remaining Plague Spots. May I add a few words as to the measures needed to- carry such reforms further ? The control of seventeen houses in a long street does not entirely secure order in the street, and though we have been able through the help of friends to add during the last four years nine more to the original seventeen, and to purchase- eighteen at the further end also, which were not so bad, but were likely to become so, there remain many over which we have no control whatever. These are centres of disorder,, and tell heavily against those we manage. The f:rst point in any effort for further reform'^ would be to get control of these. The short leases form one element of difSculty, and the- ground landlords should be approached. Indiscriminate Almsgiving. The law affecting the management of the public-houses in the district should be enforced. Evidence as to the- conduct of these should be obtained and acted on. Indis- criminate giving should be avoided, and wiser action taken- by the charitable. These people are not poor as a rule ; they spend enormously in drink ; they pay double rent, if it be exacted nightly, rather than half the amount if they have to keep it for a week ; the men often will not work, but live upon their wives. All this is perpetuated by foolish almsgiving. I am working in South London far from the- well-to-do, and I do not find there nearly as many thriftless, shiftless people, nor one-tenth as many lying drunk on their doorsteps on a Bank Holiday as I found when I went to Netting Dale. This is a heavy responsibility for the donors- to beggars and impostors. It is inadvisable to stigmatise a neighbourhood with such names as " Modern Avernus." The drunkards and the fighters are much in evidence; it is they who make the- 115 impression if you enter the street on a Saturday night ; but in the houses themselves, out of sight and quiet, are respect- able little homes, gentle and industrious widows supporting their families, unobtrusive men returning to happy, well- conducted homes; and everywhere about among them managers set on their encouragement and protection, eager to give them extra appliances, or start their children in good work, determined lo secure decency and order for them. I do not wish to praise these ladies ; they are the last to desire it ; they feel such work their duty ; but I do say that it is to such influences in such a street, to such detailed supervision by those representing the owners, that a group of rowdy people in the district in which they dwell can, so far as my experience goes, alone be redeemed and set in order. NOTES ON MISS HILL'S SYSTEM OF RENT COLLECTING TAKEN FROM HER PAMPHLET "HOMES OF THE LONDON POOR." 1. The chief feature of Miss Hill's system is that the rents are collected by ladies ; and Miss Hill gives the following reasons why ladies are so successful in this work : — (a) They are accustomed to household needs and arrangements. (b) They are generally careful of details. (c) The wife is the person who pays the rent, and is at home to see collectors. {d) Ladies are more familiar with all that makes home comfortable for family life and children. 2. One of the principal things is "sympathy with the tenants " and a close contact with their daily lives. 116 3- On acquiring the control or possession of a new- block of property, the houses are overhauled and repaired, and the position and character of the tenants are closely observed. • 4. Tenants who will not pay rent, or who lead clearly immoral lives, are ejected. These rooms or houses which they vacate are immediately cleansed, distempered and painted. Those of the remaining tenants who show signs of or a desire for improvement, and appreciation of attention, are allowed to remove into the renovated rooms or houses, and thus each remaining room is attended to. 5. No sub-letting is permitted, and no incoming tenants are allowed to take a decidedly insufficient quantity of rooms. The elder girls of the tenants, or older women, are employed in cleaning any passages, etc., for which the landlords are responsible, and for this work they are paid. It is within the authority also of the landlord to insist on the cleanliness of the outhouses, staircases, etc., and also to look after the cleanliness of the rooms themselves. 6. Miss Hill has hitherto found such properties pay a very safe four per cent, on capital invested, and at the same time a fund for the repayment of capital is accumulating. In some cases five per cent, is earned on the capital invested. 7. This interest is realised after spending a liberal allowance for repairs. Each property is allowed a certain amount per year for repairs, and if this amount is not all spent, the surplus is used for providing such appliances as the tenants themselves desire. It is therefore to the interest of the tenants to keep the expenditure for repairs as low as possible. This is calculated to restrain the wanton damage common among the tenants of the lower class. They are careful to avoid injury to the property, and are useful in finding economical methods of repairing, even doing some repairs of their own accord. 117 8. In connection with the buildings in several neigh- bourhoods a large assembly room has been built, or a large room set aside for gatherings, libraries, etc., and social gatherings are held there at different times for both sexes, and for young and for old. 9. Advantage is taken during the weekly call for rent to have a little quiet and unobtrusive conversation with the tenant, and although most landlords find a difficulty in approaching the tenants in any other way than purely as ten- ants. Miss Hill has after a short time been able to enter into the family questions and troubles, and willingly gives advice on and sympathy to all matters concerning the household. 10. All the tenants are numbered, not merely counted, but known individually, man, woman, and child. They are known at their best and at tlieir worst. 1 1 . The tenants are never allowed to involve themselves in debt for rent." Now and then they are supplied with employment to enable them to pay it, but this is in no way held before them as likely to be done, and every effort is made to develop a sense of independence. 12. Attention is paid to the children. Games and ground are in some cases provided for them, and a general interest taken in their welfare and happiness. 13. Only in extremely exceptional cases is pecuniary help given, and then only through and in co-operation with organised charity, the principle adopted being that it is infin- itely better to give work than either money or goods, and it being most important that the manager should not be an almoner. 14. Each tenant is treated as a man or woman with their own view of life, and is left free to fulfil such views, the aim of the worker being rather to bring a man or woman to a point of considering and judging right. 118 15- One of the results of this work is that instead of being met on the doorstep with a rent book and half a week's rent, with further entry denied, a warmer welcome is extended to the collector of the rent, who naturally enters the room, and in nine times out of ten sits down for a little chat. The result of Miss Hill's method is that landlords are continually giving her more property to manage (the Eccle- siastical Commissioners handed over to her a year or two ago a further 22 acres of houses), and tenants are always on the look out for "bouses under the ladies." *The question is often asked — how does Miss Hill manage to avoid any arrears of rent ? The answer is — firm but friendly insistence generally brings the rent. When tenants find they have to pay rent for the house they live in, they bestir themselves to earn the necessary money. Miss Hill s lady assistants have many ways of helping them to do this, such as employing them to do repairs to the houses, employing the elder girls to cle'an the staircases, etc., etc., but one of the chief causes of success is that the influence brought to bear long before misfortune overtakes the tenants enables them to meet it when it comes. Miss Hill's tenants do not get into straits so easily as the tenants of those landlords who take no interest beyond collecting the rent. It is impossible to explain in writing the thousand devices adopted by resourceful people for giving sympathetic assistance to those who require to be taught to help themselves. Suffice it to say that ladies trained by Miss Hill do succeed in collecting their rents almost in full, and this with nothing but good results for the tenants, who are also their friends. 119 Extracts from a Paper read by Mr. W. H. Lever (Port Sunlight), at the Sheffield Housing Conference, October '^th, 1905. DEVELOPMENT OF SUBURBAN AREAS. This being a Conference of Local Authorities on the Housing Question at which a discussion is to take place on " The Development of Suburban Areas," it is reasonable to assume that we must confine ourselves strictly to the point of view and range of possibilities and powers already obtained or •obtainable by Local Authorities, and that we ought to avoid all schemes of development having for their main object the making of the largest possible commercial profit regard- less of health and overcrowding — in short, not what will pay the best in cash, but what will pay the community the best in improved vitality, health, happiness and social well-being of men, women, and children — the only real possession a city, town, or country can be enriched by. In doing this we ought not to be unmindful of the fact that rates and taxes, local and Imperial, are already strained to the point of hindering the progress and development of the country. Sound finance is at the root of all solid wel- fare work, and therefore we must so arrange our scheme that whilst avoiding the will o' the wisp of cash profit advantages we do not get caught in the barbed wire en- tanglements of increased burdens on the already over- burdened ratepayer. It has been said that God made the country and man made the town ; then let u,s, in development of suburban ■site areas, approach nearer to the ideal of the country. 120 Man is a social being, and loves the companionship of his- fellow-man, and will even put up with overcrowding to the- point of ruining his health rather than live a lonely life. There is no reason why, in the suburbs, he should be called' upon to either give up companionship or live under un-- healthy conditions. Suburban areas can so easily be made liveable and healthy. We need not take up much of our- time in proving by statistics that life in suburbs is infinitely more healthy than in towns — the death rate for suburban areas is 12 to 14 per 1,000, as compared with 20 to 26 per 1,000 in the centres of towns and cities where no over- Crowding exists, and the death rate mounts up to 40 to 50 per 1,000 in the most congested areas. It is not desirable to- quote statistics from what are now called Garden Cities, because these are new communities full of young life, and^ neither the death rate nor bir h rate statistics are yet on a normal basis. Sufficient for our purpose, and more valuable,, because normal and reliable, are statistics taken from returns relating to the whole country ; but if .the figures of Garden Cities may be accepted as normal, then they indicate- a state of good health that would enable succeeding genera- ations to live to 140 years of age at Bournville and to no years of age at Port Sunlight. But not only are suburban areas able to show a low death rate : they also show a high birth rate, all pointing to- the life in suburban areas being suited to mankind. The- evils of bad health not only show themselves in high death rate, but the loss during enforced unemployment during sickness is a serious consideration, especially as those who- have to bear this loss are mainly those depending on daily work for daily bread. And there is another important consideration. Un- healthy children cannot be properly educated — they become backward children. We are paying a great many millions- 121 annually on the education of our children, but we shall' never get adequate results unless and until our children are living under healthy conditions. It is true we have spent millions of pounds in demol- ishing slum areas and rebuilding barrack-like blocks of dwellings, but all this enormous outlay can never produce conditions of health equal to those to be produced in suburban areas, There is a great monotonous sameness- about all these housing schemes. They are all most costly and expensive on account both of the value of the land acquired and also because it is an established fact that ini building you can provide rooms in a two-storey cottage at less than half the cost per cubic foot of space than you can^ provide rooms in a five or six storey so-called "model" tenement block. Such buildings will never do other thani burden the rates and produce a race of feeble physique that can never be the back-bone of the nation. The real remedy and the only one is dispersion from- the centre and development of suburban areas. Private enterprise cannot accomplish this dispersion- because the very basis of a successful dispersion depends on the possession of three requisites which municipalities can provide much more readily and efHciently than they can be provided by private enterprise. These three requisites are cheap money, cheap land, and cheap rapid transit. Thanks- to the various Acts passed relating to the housing of the- people, municipalities can borrow money for acquisition of suburban areas within or without their boundaries, and sc- are in a position to provide the money required at the very cheapest possible rate. Private enterprise cannot compete with this. As to acquiring the suburban areas cheaply, here again the' municipalities have enormous advantages- over private enterprise, but they must act with ordinary business acumen, and purchase in advance of the flowing tide- 122 ■of population. They must not wait until the district has been opened up by trams, and a demand for building sites has arisen if they are to purchase suburban areas cheaply. Municipalities should always purchase their suburban areas when they can buy cheaply. It would be wise, prudent, and economical for municipa'ities to hold all the land around their centres, and would secure to the inhabitants of our towns the ever-increasing " unearned increment " from Land Values, the product of their own industry. The third requisite in the development of suburban areas is cheap rapid transit. Municipalities, tTierefore, can to-day possess themselves -of the three primary requisites for successful development of suburban areas — cheap money, cheap land, and cheap rapid transit — all beyond the reach of private enterprise. How shall these remedies be applied ? To-day land in the suburbs of cities and town can be acquired for from ^loo to ^£200 per acre. When the flowing tide of population reaches suburban areas they cannot be acquired for less than ;^i,ooo to /"2,ooo per acre, and in addition there would be endless difficulties in dealing with them on broad lines, in planning avenues, roads, streets, drainage, etc. The small capitalist builder will find diffi- -culty in buying even at above inflated values of ;^ 1,000 to ^^2,000 per acre — just so little land as he can afford to deal with — and the individual citizen to secure land for a single house may have to pay up to 6d. a yard ground rent, or, say, equal to /'3,6oo an acre. Therefore, it is not wise for the citizens of a municipality to leave the suburban area to be acquired by speculators. The municipality having acquired land in the suburban area, the first care must be to have proper plans prepared showing the laying out of the area, avenues, roads, streets, 123 parks, recreation grounds, sites for schools, churches, libraries, public halls, gymnasiums, baths, and so forth. The avenues of a width of not less than 80 feet ; the roads •of a width of not less than 60 feet, and the streets of a width of not less than 40 feet. The avenues and roads should be in the direction making quickest and shortest connections with tramway service, railway station, and city -or town, and the streets branching out from these to open up the side land. I am not suggesting that the full width of the road should be macadamised immediately when the estsite is •opened out for development, but rather that a strip about 18 feet down the centre should be macadamised, and also •strips about 4 feet each down the sides for footpaths, the remainder being left in grass, with side gutters as in the case of ordinary country roads, pending the building up of the estate. By adopting this course, the roads could be planned of the full ultimate width without increased expense at the early stages of development, thus avoiding costly widening of the roads later on when wider roads were required. The building line to be set back 10 yards on roads and avenues, and 7 yards on streets. This is very important ■on the grounds of landscape gardening effect, but more important still on the grounds of health in providing free circulation of air and protection from the dust of the roads. The number of houses to be built must not be more than 12 or 10 to the acre — that is, 400 to 480 square yards of land to each house, including roadways, but not including parks, recreation grounds, or open spaces, other than roads and gardens attached to the house. Calculating that the suburban area had cost, say, i^2oo per acre, interest at, say, 3^ per cent., and sinking fund to repay in, say, 80 years would amount to ;£/ is. per acre per -annum. 124 There would be no charge for road-making or drainage, as these, under "The Private Street Acts," have to be paid by the frontagers. The extra cost entailed by the extra width of avenues and roadways could be met by the higher price per acre building sites on these handsome wide roads would command. The next question that will arise is : Shall the munici- pality build the houses or lease the land for building purposes ? Experience has not shown that municipal build- ing ha? proved always successful, whilst the capital required would be enormous, and the risk a speculative one. If trade at any time were bad and houses became empty, the burden on other property owners and the ratepayers generally would become unbearable, and only accentuate the then bad state of trade in the town. Still, if no other course were possible, the risk must be taken, for the many other advantages accruing to the whole community in health ana social betterment. But, fortunately, there is another course open, which is free from any speculative element, and that would be infinitely more profitable to the municipality and requiring less than one-third the capital. The course that I venture to suggest as a preferable one would be to let the land at a ground rent based on cost price for a lease of 99 years, in large or small quantities, or even single house plots, and to offer to advance up to not exceeding one-fourth of the cost of building houses, but with a limit of not exceeding ;£'ioo to be advanced on any one house. This would provide just the little help that is required to stimulate private enterprise in building, and without this help building operations might not be undertaken on a sufficiently large scale. The financing of the remainder of the cost of house building by private enterprise would be easily arranged by the builder, partly by mortgage and 125 partly by credit, and partly by his own capital. The effect would be immediate and powerful. Trade would be stimu- lated as never before ; fresh population would be attracted to the suburban area, and over-crowding at the centre would be relieved — slum property would fall in value, and would be a drug on the market. It would no longer be necessary, as in the case of London, to ask the ratepayers to burden themselves with a loss of ^1,600,000 in spending ;^2, 000,000 for the purchase of slum areas for demolition ■ca,nsed by the after re-selling of the same for building purposes for ;^ 400,000. But you ask what security have the rate- payers for the money they are asked to advance to stimulate and encourage building on suburban areas ? The security would be absolute. We have seen that at ;£'2oo per acre interest and sinking fund on the land come to £-! is. per acre per annum. This at 10 houses to the acre would be 14s. id. per house, and at 12 houses to the acre ils. gd. per house. At, say, 10 houses to the acre, costing ^"4 00 each or •over, j^ioo per house could be advanced-, and at 12 houses to the acre, costing, say, ;^200 each, /50 per house could be advanced. The interest on ;^iooat 3 J per cent, per annum •and sinking fund over 80 years would, amount to {,1 los. 6d. per annum on the larger house, and on £^0 to ,^1 15s. 3d. for the smaller. Adding interest and sinking fund for the land, the annual cost of each would be £,i\ 4s. /d. for the larger, and C2 js. for the smaller. These would be provided for by making the ground rent for the larger house £4 4s. yd., and for the smaller ^£2 7s., and the land would, •of course, be leased for 99 years. These ground rents would be perfectly secure ; in fact, they would be no more than the customary ground rents on similar class of property ■everywhere built on a similar plot of land with gardens back .and front. Therefore, as the amount of ground rent is .normal, and as ground rents are a first charge ranking .before mortgages, creditors, or any other claimants, the security would be absolute and undoubted. But this would 126 . not be all the benefit. Each acre of the suburban area, would have cost for land ^£200, and for advances on lo- larger houses ;£ 1,000, and advances on 12 smaller houses £6oa, say on 2 acres the cost of land and advances on houses j^ 2,000. The property would have a net rateable value of, saj', ;^24 each for larger houses, and, say, /is each for smaller houses — total, say, j{^420. Taking the rates at only 5s. in the pound would be ^^105, or £e,2 los. per acre per annum. Of course, this increase in receipts would not be all profit— the area would entail some expenses on the rates for police, lighting, etc., but suburban areas do not entail serious expense on the rates, but rather relieve the cost at the centre. This explains why municipalities are always so- eager to extend their boundaries to include suburban areas. Another great advantage to the whole community would be- that this policy would stop speculation in suburban areas and discourage holding suburban land for ever-increasing prices. With builders and private citizens in a position to- supply their wants for land on fair and reasonable terms froni the municipality, it would not be possible for specu- lative holders to command high prices, and their occupation would be gone. The municipality would soon be in the position of being the only possible holders of land in subur ban areas. The municipality could always give more than agricultural value, so that the original land owner would be benefited, whilst the intermediary between the public and himself, namely, the speculator, would disappear, to the advantage of both. Compare this method with all the dis- advantages entailed by the municipality undertaking the building of houses. In addition to the speculative risk already mentioned of a period of bad trade occurring, there is the danger of certain types of houses built with the best intention proving unpopular with tenants, and therefore difficult to let. The builder incurs this risk, but is in daily touch with his clients. He very often builds to their special! requirements in a way that a municipality compelled to work 127 through the cumbersome system of ofificials and committees- could not possibly hope to do. And there is also the very grave danger of municipalities, whose business it is to collect rates on property and guard the public interest against property owers, being themselves ratepayers and property owners. In Germany the experiment of municipalities holding their suburban area has already been tried for many years by between 30 and 40 towns, and so successful has this proved that only a few years ago the Imperial Government of Germany issued a notice to all provincial governors urging all German towns to buy all the suburban land they could obtain. In ITungary most towns own the whole of their subur- ban area, and we are told — as is quite evident would be the case — that this has entirely stopped all land speculation. Wake up, England ! As to the capital required, no investment that England could make imperially or nationally would give so large a return. 128 CO-PARTNERSHIP IN HOUSING. One of the most rapid and promising of the recent ■developments in housing reform is that known as the "Co-partnership Tenants Movement." This was initiated in 1888 by the formation of the ''Tenant Co-operators, Ltd." Then came the " Ealing Tenants, Ltd." in 1901, the "Sevenoaks Tenants Ltd." in 1903, and the " Garden City Tenants Ltd." in 1905. Finally, the Co-partnership Tenants' Housing Council was started (February, 1905) for propagandist and advisory purposes, having on its Executive Committee representatives of each of the three Societies, and a number of well-known sympathisers with co-operation and housing reform. Put in brief, the ideas advocated by the Council are the co-operative acquisition, ownership, and development of suitable sites, which are laid out. with a view to securing the best social and hygienic conditions. Interest on capital is limited, any surplus going to the tenant- rnembers ; being either expended for the common benefit of the community, or credited to their accumulated share account in proportion to their rents. One of the main points urged by advocates of this movement is that these Societies afford an excellent and secure form of investment. The "Tenant Co-operators Ltd." now own about 90 houses, inhabited by about 400 persons, and their property is worth about ;^28,5oo. The "Ealing Tenants Ltd." started in 1901 with a capital of about ;^3oo. They now have over 70 houses and have lately bought an adjoining estate (not yet -developed) of about 16 acres. The property is now worth -about ;^37,ooo. THE BouRNviLLE Village Trust. Portion laid out for Building 1906 n .^' 129 The " Sevenoaks Tenants Ltd." have now 22 houses, and their property is worth about ;^7,ooo. The " Garden City Tenants Ltd." have now a capital of over £ 10,000, and have taken land at Letchworth under several favourable leases from the First Garden City Ltd., with whom they have agreed to build 130 houses in eighteen months. A society has recently been registered at Hindhead (Surrey), another at Bromley (Kent), while movements are on foot to establish societies in several other parts of the country, notably at Bournville (Birmingham). The first Annual Meeting of the Council was held at Letchworth in the summer of 1905, in connection with the Cottage Exhibition organised by the Garden City Company, in which the Council exhibited a pair of cottages erected by the Garden City Tenants Ltd., which gained the 3rd Prize in Class 2. ^