HARLEM RIVER HOUSES FEDERAL EMERGENCY ADMINISTRATION OF PUBLIC WORKS Ex IGtbrtH SEYMOUR DURST HARLEM RIVER HOUSES between Macombs Place and Harlem River West 151st and 153d Streets New York Office 2521 Seventh Avenue Telephone EDgecomb 4-2825 FEDERAL EMERGENCY ADMINISTRATION OF PUBLIC WORKS Harold L. Ickes, Administrator Housing Division . . . Howard A. Gray, Director With the Cooperation of The New York City Housing Authority . . . F. H. LaGuardia, Mayor HARLEM RIVER HOUSES Harlem River Houses, modern low-rent housing community, is a practical result of President Roosevelt's determination to aid the one-third of our citizens who because of limited income do not know the American standard of living. This community is of particular significance to Negroes who constitute 90 percent of Harlem's population. Their number has grown 10 times since 1910, until now there are more than 250,000. Yet 84 percent of Harlem's homes were built more than 35 years ago; and very few indeed are new since the war. Harlem needs good housing. Harlem River Houses is one of a total of 51 similar communities being erected by the Housing Division of the Public Works Administration in 36 cities. It has been carried to completion by the Federal Government, with the cooperation of the New York City Housing Authority. As part of the first public housing program of the United States, it points the Nation's way to better housing for all of its people. WHAT THE CAMERA SEES Many studies of Harlem housing have been made. They all come to the same conclusion . . . that much of it was bad to begin with; that it has been leaping with accelerated pace downhill, and is now bogged in an almost hopeless slough. It is almost Utopian to expect that its typical residents, industrious and ambitious though they may be, can extract themselves by their own efforts. The record of the great mass of Negroes in Harlem is one of pitiless exploitation, abetted by inelastic supply within narrowly circumscribed limits, and a relentlessly ballooning demand. At times when average city rents may rise 10 percent, Negroes arc forced to pay drastic increases. When other families are constrained to abandon a tene- ment because of extreme decay, Negroes pay pre- miums for the privilege of huddling within it. The casual wayfarer through Harlem streets sees buildings no worse than those he has accepted as essential parts of the New York scene. But hazard a look or two behind the scenes. Nowhere in America have people received less for their money, in the way of housing, than have many of the residents of Harlem. Dilapidation and overcrowding are the visual causes which spawn juvenile delinquency, crime, disease, high mortality rates. The city, which means the citi- zens, has poured into it enormous annual subsidies in the form of excessive police and fire protection, public health and welfare services. Doctoring symptoms! Slum dwellings in Harlem are usually walk-up tenements of four to six stories, with narrow courts or air shafts, small back yards, dark and frequently insanitary cellars, dark hallways, and dirty, com- mon hall toilets. If water is connected to the apartment, it is most often in one cold-water tap. To a pronounced degree, housing in Harlem is of the old-law tenement type, with all this means in lack of air, light, and sanitation. Many of the rooms have plenty of space for sleeping bunks, because their walls arc punctuated by no windows whatsoever. These dank grottoes effectively prop- agate, among other crops, the sturdier germs of ravaging disease. The most characteristic factor of Negro housing, as distinguished from white, is the relatively huge proportion of income which rent extorts. The theoretical ideal proportion of rent to income, of 20 to 25 percent, means nothing to these people who are forced to spend up to even 50 percent of normal earnings for shelter. How do residents cope with these conditions? They double and redouble up. One family shrinks into one-room space; or several may com- bine into an apartment. Lodgers offer an obvious relief from the grinding force of rental pressure, though they produce compensating evils of another sort. Many parts of the district show more lodg- ers than there are families. Sometimes the "hot bed" practice is adopted, by which a bed is rented continuously day and night, often in 8-hour shifts. But Negro standards of living are not essentially different from those of any other persons in similar income groups. So when they desire to improve their living conditions, even though their incomes do not permit, they often do so by taking in lodg- ers. Without the extra income they probably would never get to the point of improvement of any kind. Harlem River Houses is a demonstration of how better homes can be offered to ameliorate these conditions. HISTORY IN CAPSULE FORM 4 HOUSING STAGES IN 4 BLOCKS Within only a moderately hefty stone's throw of one another in the blocks adjacent to Harlem River Houses stand typical representatives of the four stages which epitomize a century of New York Housing history. W> Old-Law , ) Construction of this type of low-rent housing was forbidden in 1901, yet New York still treasures 67,000 such buildings with 524,000 apartments. Rooms with windows open on slot-like courts, with all that means in scarcity of light and foulness of air; but more than half the rooms have no windows at all. Old-law tenements have a much higher death rate than better houses. Fires in old-law tenements brought 33 fatalities in 1 year, with none in new-law tenements. k2N New-Law These tenements are much better. They possess inner courts not less than 12 by 24 feet, and yards at the rear of all lots to provide better ventilation. Every room has a window, and every apartment running water and a toilet. About 53,000 tenements, containing 904,000 apartments, have been erected under the 36- year-old new law in New York. But they are generally too expensive for low-income families; and only 1 % percent of those built in Manhattan for 5 years prior to 1933 rent for less than S12.50 per room per month. Dunbar Apartments With excellent ventilation because they are only two rooms deep, the buildings are grouped about garden courts which occupy one-half the block area. Club- rooms and other community features make this develop- ment highlv desirable. A privately sponsored devel- opment, it is so far ahead of new-law tenements as to be in a different class. Unfortunately the costs are too great for average low-income families. Harlem River Houses Typical of the low-rent housing erected by the Housing Division of the Public Works Administration, this new completely fireproof community is constructed on extremelv simple vet substantial lines. Here tenants will enjov that standard of living of which America, often unjustifiablv, boasts. But with all the econcmies cf large- scale construction, and the benefits of low-cost financing which PWA enjovs, Harlem River Houses is only further proof that even modest low-rent housing for low-income families requiresassistance in some form from Gover nment. HOW HARLEM RIVER HOUSES CAME TO BE Harlem River Houses is the result of conscioui and conscientious planning. It has been made possible because of the zealous cooperation between the Public Works Administration and the city of New York. Had it not been for the resources and leadership of the Federal Govern- ment and the determination of the city to improve the lot of its citizens, the creation of the new community might have been impossible. The plans for this project were not approved until the Public Works Administration's Housing Division, the New York City Housing Authority, and a group of architects working under its direc- tion, had made thorough studies of Harlem liv ing needs. This has resulted in the community facilities which are such prominent features of the community. They include a large and well- equipped nursery school with opportunities for both outdoor and indoor supervised play, a complete health clinic, social rooms for the use of tenants, and a protected playground. Many families in Harlem are headed by the mother, who is the breadwinner. Employment for Negro women is still largely in domestic and personal service, and in factories. Thus women workers are away from home long hours, conse- quently their children are left on the streets. In Harlem River Houses space for a nursery school has been provided, where, if the tenants desire, adequate care for their children can be arranged with the cooperation of the manage- ment. The playground along the Harlem River will afford older children a place for healthy recreation away from the hazard of traffic. The value of a completely equipped and ade- quately staffed clinic, to be maintained by the Department of Health, is obvious to everyone who knows public health conditions in Harlem. The clinic will serve, in large measure, to alleviate further overworking the hospitals of the section. The inclusion of social rooms for the use of tenants is important. These larger rooms will be available for group activities impossible in their own dwellings. In February of 1934 Mayor LaGuardia ap- pointed the New York City Housing Authority to coordinate the city"s housing program. For the first time the Federal Government was thus given a continuing official local body with which it was enabled to plan the beginnings of New York slum rehabilitation. Much preliminary work had been done, however, by the Slum Clearance Committee formed in 1933, which was responsi- ble for obtaining State legislation setting up the first Housing Authority in the United States in January of 1934. Analysis of various possible sites in Harlem was immediately undertaken, and choice was narrowed down to four. In May 1935, an appraiser was appointed to determine the value of the site which Harlem River Houses now occupies; and about the same time preliminary architectural studies were commenced. When the general plan had been approved, and the city of New York through the Housing Authority had agreed to protect the future of the proj- ect ... in such matters as the development of the river frontage and closing of interior streets . . . the Housing Division of PWA reached a decision to accept the location as the best available site for the project. President Roosevelt made an allotment of funds in June 1935. At this point the Housing Authority, acting in the interests of PWA, instituted condemnation proceedings to acquire the property from the owner and to assure clear title. Such condemna- tion was obtained in July 1935. Completion of plans permitted the final approval of the project by Administrator Harold L. Ickes on October 3. Title was transferred to the Housing Division of the Public Works Administration in November. Bids for excavation and for the construction of foundations were advertised in October. As soon as weather permitted excavations were started, and the work was completed in June 1936. Erection of the buildings began soon after. Interest in the new community on the part of Harlem residents has been keen from its very inception. Cordial cooperation has been forth- coming from local organizations of every kind, the Harlem Advisory Committee taking the lead. Long before it was possible to estimate final rentals, registrations of prospective tenants flooded the project offices, reaching the phenom- enal total of more than 15,000 families for the 574 available apartments. Companion to Harlem River Houses will be the great Williamsburg Houses community in Brooklyn, a PWA slum-clearance project which cleaned out 12 city blocks of congested slums to make way for a spacious modern housing develop- ment providing 1,622 dwellings. Although both projects were created by the Public Works Administration, it was the underlying intention of PWA to turn over the completed projects to the municipality for operation and management, thereby achieving local regulation and control. Arrangements have therefore been made be- tween the Public Works Administration and the New York City Housing Authority for the latter to take over the operation of both communities as they are completed. The authority will have complete responsibility for selection of tenants, and for future management and operation. THE NEW COMMUNITY Harlem River Houses comprises four- and five-story fireproof apartment buildings, in three groups containing 574 dwelling units and 1,940 rooms. Every apartment has elec- tric lighting; contains a completely equipped bathroom, with tub, lavatory, and toilet; and a kitchen provided with gas stove and electric refrigerator. Both have hot and cold running water. Apartments vary chiefly in number of bedrooms. Heating is by steam from three group plants. The community occupies about 9 acres, of which only one-fourth is occupied by buildings. Every room is an outside one, thus assuring good ventilation with direct sunlight in each unit. The greater part of the area is simply landscaped, or devoted to play space including a children's wading pool and a small natural amphitheater. Community features of Harlem River Houses include four social units for adults, four rooms for occupational use and children's inside play, a nursery school which can accommodate as many as 60 children, well-equipped laundries, and a health clinic. Twenty-four stores will be available. The city of New York will maintain a park and playground area adjoining Harlem River Houses and bordering on the river. TENANTS Harlem River Houses is designed for the accommodation exclusively of low-income fami- lies who arc unable elsewhere to find homes of at least a minimum standard of decency, safety, and convenience within their means. They must come from substandard housing conditions . . . which means homes lacking such necessities as plumbing or heating, or without adequate ventilation, or in an unsafe condition or overcrowded. Thorough investigation is made of every applicant. Limitations on income are also set by the law under which PWA housing projects operate. Incomes of families may not exceed five times the gross rent of an apartment. Rent in this connection includes not only the cost of shelter but of the utilities, such as electricity and gas, as well. At the lower end of the income scale, the authority requires that a family have sufficient income to pay the rent and provide for other living expenses. Maximum family sizes for each type of apartment are restricted, for the purpose of preventing the overcrowding which characterizes slums. No more than three persons can be admitted, for example, to a three-room apartment. The rule is two persons per bedroom plus, if necessary, one per living room. Children under 2 years of age, however, are not counted. Only families ... no lodgers . . . can occupy units in the com- munity. Many more families meet these requirements than can be accommodated in the 574 units. Such families are graded according to their need for housing, and the most eligible admitted as tenants. The New York City Housing Authority is in charge of the selection of tenants, in accordance with the requirements of the George-Healey Act, which is in substance outlined here. RENTS Rents in Harlem River Houses are fixed as required by law, under which 45 percent of the total cost of the project is a grant by the Housing Division of PVVA. The remaining 55 percent will be amortized and repaid to the Government over a period of 60 years. Rents must pay for this portion of the capital cost with interest, plus operating and maintenance charges. Rents average $5.20 per week for a typical three-rocm dwelling unit, including heat and hot and cold water. The cost of electricity for l.ghting and refrigeration, and gas for cooking, averages $4.64 per month for this typical apartment. Rents for the various apartments are: Size Number of units Rent per week Two rooms 60 $4.45 to $4.95 Three rooms 259 4.90 to 5.45 Four rooms 232 5.45 to 6.55 Five rooms 23 6.15 to 7.25 574 A small charge is added to the rent for utilities (electricity for refrigeration and lighting; gas for cooking) so that the total rent payment covers all operating expenses of the household, making a distinct saving for the tenants. Murals for the Nursery School contributed by Treasury Art Projects WHAT YOU WILL FIND All apartments in the four- and five-story buildings of Harlem River Houses are of fireproof construction. Dwelling units consist of two, three, four, and five rooms, each with bath and kitchen. Every room is an outside room, and every unit has through or cross ventilation. Many of them face courts wider than the usual street. BED ROOM X LIVING ROOM TWO ROOMS A typical two-room apartment consists of a living room and a bedroom, with full-sized bath. A compact strip kitchen or kitchenette, with the same equip- ment as in full kitchens, makes it a com- plete and convenient housekeeping unit. THREE ROOMS Three-room apartments consist of living room, bedroom, and kitchen, plus bath. A feature which housekeepers will ap- preciate is the number of closets pro- vided in this, as in all, Harlem River Houses apartments. Other arrange- ments of three-room apartments occur. FOUR ROOMS Four-room apartments are similarly simple in plan, with the addition of a second bedroom. Permissible families for this size of unit are no larger than five persons, two for each bedroom and one to sleep in the living room. Children under 2 years of age are not counted. EBED roomL[^ BED ROOM LIVING ROOM BATH en 7^1 I l C HALL nri r QKIT r □ FIVE ROOMS Five-room units are the largest in the community, having three bedrooms in addition to the living room. Families as large as seven, not including children under 2 years, may live in this suite. NURSERY SCHOOL In many housing communities the most popular feature is the nursery school. In Harlem River Houses it is an- ticipated that mothers will organize such a play school for young children. Not only will the children be safe from dangers of street life, but their play can be super- vised and their health watched. HEALTH CLINIC Tenants of Harlem River Houses and other residents of the neighborhood make use of this city-maintained clinic. Ounces of prevention weigh heavily in the scales of health; and this clinic is counted on to reinforce the vastly improved living conditions in the new community. L'. s QOVUUflWtf I'HINTINn 0FF1CI 145299 HARLEM RIVER HOUSES Harlem River houses in Manhattan and Williamsburg houses in Brooklyn are the two projects constructed by the Housing Division of the Public Works Adminis- tration in New York. The entire list of 51 follows: Number of duelling City Name of project uniti Atlanta, Ga _ Techwood Homes 604 University Homes 675 Atlantic City, N. J Stanley S. Holmes Village 277 Birmingham, Ala Smithneld Court 544 Boston, Mass. Old Harbor V illage 1016 Buffalo, N. Y Kcnfield . 658 Cambridge, Mass New Towne Court 294 Camden, N. J.. Westfield Acres 515 Charleston, S. C . Cooper River Court Meeting Street Manor. 212 Chicago, 111 Jane Addams Houses. 1027 Julia C. Laihrop Homes 925 Trumbull Park Homes 462 Cincinnati, Ohio Laurel Homes 1039 Cleveland, Ohio Cedar-Central Apartments 650 Lakeview Terrace 620 Outhwaite Homes 579 Columbia, S. C University Terrace 122 Dallas, Tex Cedar Springs Place 181 Detroit, Mich Brewster 701 Parkside 785 Enid, Okla Cherokee Terrace 80 . Evansville, Ind Lincoln Gardens 191 Indianapolis, Ind Lockefield Garden Apartments 748 Jacksonville, Fia Durkecville 215 Lackawanna, N. Y... Baker Homes 276 Lexington, Ky Aspendale Blue Grass Park _ 286 Louisville, Ky.. College Court 125 LaSalle Place 210 Memphis, Tenn Dixie Homes... 633 Lauderdale Courts 449 Miami, Fla Liberty Square 243 Milwatikee, Wis Parklawn 518 Minneapolis, Minn . Sumner Field Homes 464 Montgomery, Ala Riverside Heights 100 Wm. B. Paterson Courts.. 156 Nashville, Tenn Andrew Jackson Courts 398 Cheatham Place 314 New York, N. Y Harlem River Houses.. 574 Williamsburg Houses 1622 Oklahoma City, Okla _. Will Rogers Courts 354 Omaha, Nebr Logan Fontenelle Homes 284 Philadelphia, Pa Hill Creek 258 Caguas, P. R Caserio La Granja 75 San Juan, P. R Caserio Mirapalmeras 131 Schenectady, N. Y Schonowee Village 219 Stamford, Conn Fairfield Court 146 Toledo, Ohio Brand Whitlock Homes 264 Christiansted, St. Croix Island, V. I. Bassin Triangle 30 Frederiksted, St. Croix Island, V. I__ Marley Flomes 38 St. Thomas, St. Thomas Island, V. I. H. H. Berg Homes — 58 Washington, D. C Langston 274 Wayne, Pa Highland Homes 50 FEDERAL EMERGENCY ADMINISTRATION OF PUBLIC WORKS