_Viscount Sandon_. This is not for inhabited cellars? No, it is to promote the ventilation of any part that is not an inhabited room; larders and cellars and out-appurtenances of houses. I used to put in the buildings I am now erecting what are termed lancet lights, for the ventilating the cellars, larders, &c.; and, previous to the late survey, these lancet lights were never taken; but so stringent were the orders from the tax-board on the late survey, that if they found a gimlet-hole they would take it.

_Chairman_. Were they glazed?-Yes.

If they were not glazed, but made of wire, how would that be?-Then they can take them, unless the word 'Dairy' or 'Cheese-room' is written over them; I have now been obliged to reduce three of those lancet lights, and do not get the ventilation. It is as much or more concern to the poor than it is to the rich, that they should have a proper ventilation; and there have been many windows stopped up (which ought not to have been taken) in consequence of the recent survey, and which I am sure the Legislature never intended should be taken."

But, in addition to these indirect methods for improving buildings, it is surely not beyond our legislative ability to devise some very simple regulations, at least of that kind which are to have a prospective application. I do not like to speak confidently about the merits of the Government Bill, introduced this session, because it requires so much technical knowledge to judge of these matters; but the main provisions for back-yards or open s.p.a.ces attached to dwelling houses, and for the areas to lowermost rooms, appear to me well considered. This Bill applies only to the metropolis. The working, however, of local improvement Acts may afford the best kind of evidence to prepare a general measure upon. When the subject was considered in Committee in 1842, the Corporation of London sent a witness who showed that if a certain regulation, embodied in the Bill they were then considering, were carried into effect, it would, in some instances, not only injure property, but prevent improvement. Partial objections of this nature, which after all may be very slight things, often prevent most useful measures from being carried. But why should there not be a discretionary power vested somewhere to relax any provision which, in particular cases, might be found harsh or inapplicable? This power might be given to a central office, or to local boards of health. Any suggestion of this kind is liable to objections; and the truth is, that to introduce sanitary provisions into a state of things not prepared for them, must at first be a matter c.u.mbered with difficulties; but, as Lord Lyndhurst has said, "a difficulty is a thing to be overcome." Mr. Carlyle has pointed out what a wonderful production a soldier is, still more a body of them, and all the apparatus by which they are kept in working order. And, as he goes on to argue, governments could not exist if this human fighting machine were not in good keeping, and, therefore, it is well cared for at all times. Now if governments did but perceive the importance of some regulation for the dwellings of the poor, if they looked at it only as a matter of finance (for, eventually, the state pays for all disease and distress), it is probable they would put their shoulders to the wheel, and get it out of the difficulty, at least as far as their fair share of the matter goes.

Again, the more difficulty there is in legislating on this subject, and especially if it can be shown that there is difficulty connected with it of a kind almost insuperable by mere legislative efforts, the more there remains for private individuals to do. I cannot believe but that human ingenuity, in some form or other, will be able to surmount the evil in question. The difference of expense in building a row of small cottages, back to back, which it will be hard to ventilate, and which must be without the most obvious household requisites, and that of building a row of cottages each of which shall have a yard at the back, will be about 22 per cent. upon the outlay. Where one would cost 100, which is a good price for the lowest cla.s.s cottages, the other would cost 122. This calculation is independent of the cost of the additional land which would be required. It is melancholy to think that this 22, and the price of the additional land must, in thousands of cases, have determined the health and morality of the inmates. I do not mean to say that this pecuniary difference is a slight matter, but still I do think it is somehow or other to be provided for. There is always this to be considered, that the better the tenement, the more it will be cared for.

In the same Committee I have mentioned before, the Town Clerk of Leeds is asked:

"Would not the building of the better kind of cottages always secure the best tenants?-Unquestionably.

"And the person who invested the property in buildings of that kind would rather take six per cent. of good tenants than seven per cent.

of bad ones?-Yes; we have a number of instances in Leeds. There is a gentleman named Croysdill, who has 200 or 300 cottages; he receives the lowest rents on an average of any large proprietor of cottages, and they are unquestionably the most comfortable dwellings, and the best occupied."

It may be a strong thing to say, but I can conceive it possible, in a Christian country, for a man to restrain himself from making the utmost profit out of his possessions. I can imagine, for instance, an owner of land in a town being unwilling to demand such a price for it, as would prevent the cottages of the labouring people from being built with those comforts and conveniences upon which civilization may almost be said to depend. A man may think that there is some responsibility attached to ownership; and he may not like to be in any way accessory to the building of such habitations for the poor as he thoroughly disapproves of. And if the owner of land feels this, still more may the capitalist who undertakes to build upon it. It may be a satisfactory thing to collect in any way much money; but I think, on the other hand, that most men have a great pleasure in doing anything well, in a workmanlike and stable manner. And, strange as it may seem, it is very possible that motives of profit and loss may not be the only ones which have led to such miserable building, as is often to be seen in the houses of the poor. People have not thought about the matter. If they had seen the merit of building good houses of a small kind, I think that in many cases, the additional money required would not have stood in the way. In the Select Committee of 1842, the following questions are asked of a witness from Liverpool:

"Is Liverpool a town which has a considerable quant.i.ty of land which may be made available for the purpose of erecting houses?-There is a good deal of land in the suburbs.

"The corporation possess a good deal of land?-They do.

"Have you had under your consideration the provisions of what is called Lord Normanby's Act, by which it is forbidden to build houses back to back?-Yes.

"What were the reasons which induced the Corporation of Liverpool not to object to houses being so built?-If houses were not to be built back to back there would be a great sacrifice of land."

I do not bring this evidence forward to censure that corporation, but rather to excuse private persons in some measure, by showing the general unconcern and ignorance about the subject. It appears that even a corporate body, who might be expected to discern the value of public health and morals, and not to be subdued by the prospect of immediate and apparent gain, have at least not made any endeavour to introduce a good system of building cottages for the poor of their own town. Not that they, probably, were in the slightest degree, more mercenary than other men; but it is only an instance to show how little attention has. .h.i.therto been given to this subject.

There is at present in the metropolis, a Society for "improving the dwellings of the industrious cla.s.ses;" but what is one society? This is a matter which ought to interest the owners of property, and the employers of labour, throughout the country. Such a society as the one named may do great good by building model houses, making scientific investigations, and frequently laying before the public information on the subject. But the proper division of labour, as it seems to me, would be that the state should give every legislative facility for contemplated improvements in the way of building, should encourage all researches into the subject, and be ready to enforce by law such regulations as, without any great intrusion upon private property, might secure for small houses those primary requisites without which it cannot be expected that they will be anything but nests of disease. In fact the state might, eventually, so order the matter that builders should not merely build such houses as the poor would take, for there is nothing in the way of a shelter which they will refuse to occupy, but such as ought to be let to them, with due care at least for the public health. The local authorities should take upon themselves, the lighting, cleansing, paving, supplying with water, and the like. For private individuals there remains the most important part of the task, namely, the building of an improved cla.s.s of small houses. In this good work the employers of labour may be expected to come prominently forward. Many a man will speculate in all kinds of remote undertakings; and it will never occur to him that one of the most admirable uses to which he might put his spare capital, would be to provide fit dwelling places for the labouring population around him. He is not asked to build alms houses. On the contrary, let him take care to ensure, as far as he can, a good return for the outlay, in order to avoid what may, possibly, be an unjust interference with other men's property; and also, and chiefly, that his building for the poor may not end in an isolated act of benevolence, but may indicate a mode of employing capital likely to be followed by others.

In the present state of things, the rents of small houses are disproportionately high because of the difficulty and uncertainty of collecting the rents for them; but by any improvement you introduce into the habits of the occupiers of such houses, you make this difficulty and uncertainty less; and thereby diminish rents. And thus, in this case, as in many others, physical and moral improvement go on acting and reacting upon each other. It is likely, too, that these poor people will pay with readiness and punctuality even a higher rent, if it be for a really good tenement, than a small one for a place which they must inhabit in the midst of filth, discomfort, and disease, and therefore with carelessness and penury. Besides; the rents they pay now, will be found, I believe, sufficient to reimburse the capitalist for an outlay which would suffice to build tenements of a superior description to the present ones.

I do not mean to say that the beginners of such a system of employing capital might not have a great deal to contend with: and it is to their benevolence, and not to any money motives, that I would mainly appeal.

The devout feeling which in former days raised august cathedrals throughout the land, might find an employment to the full as religious in building a humble row of cottages, if they tell of honour to the great Creator, in care for those whom he has bidden us to care for, and are thus silently dedicated, as it were, to His name.

The allotment system has not hitherto, I believe, been tried to any extent in the manufacturing districts. Mr. James Marshall, and Mr. Gott, of Leeds have begun to try it; but I think it is but recently; and that there has not yet been time to ascertain the result of the system. I cannot but think, however, that it will be found more beneficial in manufacturing, than even in rural, districts. Let us enumerate some of the probable advantages. It would form an additional means of support-it would tend to endear home to the working man-it would provide a pleasing change of employment for him in good times-it would render him not so listless when out of work-and it would give him knowledge, an additional topic of conversation, and an interest in various things which he might never, otherwise, have felt the least concern for. Moreover, it amuses and occupies the little ones in a family; and it leaves less temptation for parents to employ children too early, in factories or workshops, when they can find something else for them to do which may be profitable. In this respect, indeed, any improvement in domestic comfort, or any additional domestic pursuit, is likely to be beneficial, as it enlarges the sphere of household duties, and creates more reasons for the wife and children being left at home. Again, as there is hard labour to be done in a garden, this allotment system might occasionally prevent the sense of an almost unnatural dependence being so much exhibited, or felt, when the children are employed in some factory, and the grown up people are not. This is one of the greatest evils that at present attend the state of manufactures. Some of the advantages which I have reckoned above, as likely to be connected with the allotment system, are trifling things; but small impulses, all tending one way, may lead to great results. The main objection which, I suppose, will be taken, is that to make allotments in crowded districts is scarcely practicable. Some beginning, however, has been made at a place so crowded as Leeds, and at any rate, in any future building arrangements, room might be left for allotments of land, which would also secure many advantages with respect to the sanitary condition of the people. It may be remarked, too, that any manufacturer, who possessed cottages with allotments to them, would have an easy mode of rewarding good behaviour. Such cottages would be eagerly sought after by the men, and might be given, in preference, to those of good character.

Is all this romantic? Is it inevitable that the suburbs of a manufacturing town must consist of dense ma.s.ses of squalid habitations, unblest by a proper supply of air, light, or water; undrained, uncleansed, and unswept; enjoying only that portion of civilization which the presence of the police declares; and presenting a scene which the better orders hurry by with disgust? Or, on the contrary may we not, without giving ourselves up to Utopian dreams, imagine that we might enter the busy resorts of traffic through extensive suburbs consisting of cottages with their bits of land; and see, as we came along, symptoms everywhere around of housewifely occupations, and of homes which their humble owners might often think of with pleasure during their day's labour, looking forward to their return at evening with delight. The richer cla.s.ses, even those low down in the scale of wealth, mostly struggle to secure some portion of country air for themselves: surely they might do their best to provide for the working man something like a change from the atmosphere of the factory, or workshop, in which he must pa.s.s the greatest part of his day throughout the whole year.

Against what I have said above, it may be urged that it would prevent the workman from living near his work. In many cases this may be an inconvenience; but I do not imagine that, in general, it can be proved to be an insurmountable, or even a very serious objection. Turning again to the evidence of the Town Clerk of Leeds before the Building Committee, I find the following:

"_Lord Ashley_. I have been told by several builders in London, that in consequence of the improvements in the metropolis, great numbers of people have been driven to the out-skirts of the town; but they found in the out-skirts of the town an excellent house for less money than when they lived in miserable lodgings in the heart of the town; is this consistent with your experience in Leeds?-Quite consistent.

"And no hardship to themselves?-The distance of going to work is the objection; but we find the poor people will for twenty years walk two or three miles in a morning to their work at six o'clock, and seem no worse for it."

V. THE TOWN.

It will not be a matter unworthy the attention of a great employer of labour, to improve and embellish the town where his work is carried on.

It is his duty to have some care for its public buildings, and its inst.i.tutions. They are means for improving, sometimes by manifest benefits, sometimes by silent influence, the condition of his men.

Surely if the employers of labour felt any thing like a home affection for the towns where they live, they could not leave them in the rude, unadorned state in which so many of them are. And where is a man's home, if not where he can do most good; where he spends the best part of his life; where he directs the labour, perhaps, of thousands, and absolutely by his own exertion may affect the condition of the rising generation?

If such a man could see the many links of duty done, or duty disregarded, that connect him with the spot where he works, let it be ever so dark, squalid, and repulsive, he would still say that it was a great part of his home, and not indulge too fondly in the idea of sunny meadows and beautiful villas, to be enjoyed in some secure, golden, retirement. He would take an interest in the erection of churches, hospitals, buildings for the display of art, or indeed, in any inst.i.tutions that would further his great work by elevating the sentiments, or improving the physical condition, of his men. The establishment of public baths would be another matter worthy of his attention. At these baths the poor might be admitted on payment of a small fee to cover the expense of attendants.

The Romans, induced by social or political motives, had their public baths, to which citizens were admitted; who formed, however, but a small part of their people: surely higher motives might prevail with us to have similar baths, which should be open to all our population. While we are speaking of inst.i.tutions of various kinds, we must not omit Monts de Piete, or Loan Societies, which may enable the poor man to get small advances on reasonable terms. It will not be enough to establish such things as we have spoken of: there is yet harder work to be done in the management of them. All charitable inst.i.tutions require vigorous attention; and the better kind of men must not shrink from the public business which they are the fittest to transact. If founders or benefactors were the only people needed, one generation might monopolize the beneficence of all time; but charitable inst.i.tutions require for ever duty to be done by living men. And, as I have intimated before, it is in giving thought and labour, that we may often make the greatest and the most profitable sacrifices for the good of others. But to go back to mere embellishment-it is very apt to go hand in hand with material improvements. Besides, it raises a higher standard. It declares that there is something besides food and clothing. It may create, perhaps, the love of beauty and order in minds that now seem sunk in sense. At any rate it may do so in a coming generation. And it is not a little matter if it attach the wealthier cla.s.ses to these towns. This naturally brings me to a subject of which I think the reader will, on consideration, see the importance. I have heard it said, and thought, it a far-seeing remark, that one of the greatest benefits which could be conferred on manufacturing towns, would be to purify them from smoke, on the ground that the wealthier cla.s.ses would then have less objection to reside in their vicinity: and, especially, that those who const.i.tute the natural aristocracy of the place, would not be so much tempted to remove themselves from the spot where their fortunes had grown up.

Dr. Cooke Taylor, in his letters to the Archbishop of Dublin, speaking of the parts of Manchester which "have been abandoned to the poorest grade of all," says,

"Your Grace is aware that to some extent Dublin is similarly divided into the city of the rich and the city of the poor; but I know that many respectable and wealthy manufacturers reside in the liberties of Dublin, while the smoke-nuisance drives every body from the township of Manchester who can possibly find means of renting a house elsewhere."

Now is the doing away of this smoke a sort of chimerical and Quixotic undertaking? Not in the least. The experiments appear to be decisive upon this point; and had there been a reasonable care for the health, beauty, and cleanliness of the towns where their work is carried on, the manufacturers would long ago have contrived, I believe, that there should be no such thing as opaque smoke issuing from their chimneys. Count Rumford says in his essays,

"I never view from a distance, as I come into town, this black cloud which hangs over London without wishing to be able to compute the immense number of chaldrons of coals of which it is composed; for could this be ascertained, I am persuaded so striking a fact would awaken the curiosity, and excite the astonishment, of all ranks of the inhabitants, and _perhaps_ turn their minds to an object of economy to which they have hitherto paid little attention."

The essay from which this extract is made was published in 1796: what would the Count say now? I believe the calculation which he was thinking of has been made. At any rate a near approximation might be; for I am told, on scientific authority, that "the actual quant.i.ty of smoke hanging any day over London is the fourth part of the fuel consumed on that day."

Mr. Cubitt, the great builder, in an examination before the House of Commons, quoted by the Sanitary Report, thus expresses himself on this subject:

"With respect to manufactories, here are a great number driven by compet.i.tion to work in the cheapest way they can. A man puts up a steam-engine, and sends out an immense quant.i.ty of smoke; perhaps he creates a great deal of foul and bad gas; that is all let loose.

Where his returns are 1000 a month, if he would spend 5 a month more, he would make that completely harmless; but he says, 'I am not bound to do that,' and therefore he works as cheaply as he can, and the public suffer to an extent beyond all calculation."

To show how little loss is to be apprehended from regulations abating this nuisance, the Sanitary Report cites the authority of

"Mr. Ewart, the Inspector of Machinery to the Admiralty, residing at Her Majesty's Dockyard at Woolwich, where the chimney of the manufactory under his immediate superintendence, regulated according to his directions, offers an example of the little smoke that need be occasioned from steam-engine furnaces if care be exercised. He states that no peculiar machinery is used; the stoker or fire-keeper is only required to exercise care in not throwing on too much coal at once, and to open the furnace door in such slight degree as to admit occasionally the small proportion of atmospheric air requisite to effect complete combustion. Mr. Ewart also states that if the fire be properly managed, there will be a saving of fuel. The extent of smoke denotes the extent to which the combustion is incomplete. The chimney belonging to the manufactory of Mr. Peter Fairbairn, engineer at Leeds, also presents an example and a contrast to the chimneys of nearly all the other manufactories which overcast that town. On each side of it is a chimney belonging to another manufactory, pouring out dense clouds of smoke; whilst the chimney at Mr. Fairbairn's manufactory presents the appearance of no greater quant.i.ty of smoke than of some private houses. Mr. Fairbairn stated, in answer to inquiries upon this subject, that he uses what is called Stanley's feeding machinery, which graduates the supply of coal so as to produce nearly complete combustion. After the fire is once lighted, little remains to the ignorance or the carelessness of the stoker.

Mr. Fairbairn also states that his consumption of fuel in his steam-engine furnaces, in comparison with that of his immediate neighbours, is proportionately less. The engine belonging to the cotton-mills of Mr. Thomas Ashton, of Hyde, near Stockport, affords to the people of that town an example of the extent to which, by a little care, they might be relieved of the thick cloud of smoke by which the district is oppressed.

"At a meeting of manufacturers and others, held at Leeds, for the suppression of the nuisance of the smoke of furnaces, and to discuss the various plans for abating it, the resolution was unanimously adopted, 'That in the opinion of this meeting the smoke arising from steam-engine fires and furnaces can be consumed, and that, too, without injury to the boilers, and with a saving of fuel. Notice of legal proceedings being given against Messrs. Meux, the brewers in London, for a nuisance arising from the chimneys of two furnaces, they found that by using anthracite coal they abated the nuisance to the neighbourhood, and saved 200 per annum. The West Middles.e.x Water Company, by diminishing the smoke of their furnaces saved 1000 per annum."

But, putting aside the consideration of any pecuniary benefit to be gained, I think it would not be unreasonable to say that no considerate owner of a factory would wait for public regulations in this matter, but would, himself, be anxious to prevent his occupation from being injurious to his neighbours. In a manufacturing town, a man may find some excuse, though a most futile one, in the consideration that it would be of no use for him alone to consume his smoke, when there are hundreds of others over whom he has no influence to persuade them to follow his example.

But you sometimes see one of these foul-mouthed chimneys blackening a neighbourhood generally free from such things, and it does not seem to occur to the owner of the chimney that he is doing any thing wrong, provided he is legally secure. Probably he gives away in the course of the year such a sum as would put up an apparatus which would modify, if not altogether remove, the smoke. Let him not think that charity consists only in giving away something: I doubt whether he can find any work of benevolence more useful to his neighbourhood and to society in general, than putting a stop to this nuisance of his own creation. I am not inclined to rest my case against it on the ground of health alone; though I believe, with the Sanitary Commissioners, that it would be found much more injurious than is generally imagined. When you find that flowers and shrubs will not endure a certain atmosphere, it is a very significant hint to the human creature to remove out of that neighbourhood. But independently of the question of health, this nuisance of smoke may be condemned simply on the ground of the waste and injury which it occasions. And what is to be said on the other side?

What can any man allege in its favour? Our ancestors, who had glimmerings occasionally, held that

"Si homme fait candells deins un vill, per qui il cause un noysom sent al inhabitants, uncore ceo nest ascun nusans car le needfulness de eux dispensera ove le noisomness del smell." (2 Rolls Abr. 139.)

This is quoted in a grave public doc.u.ment (the Sanitary Report): had we met with it elsewhere, we might have concluded that it came from that chronicle in which Mr. Sidney Smith found the account which he gives of the meeting of the clergy at Dordrecht. I quote it, however, to show how wisely our ancestors directed their attention in this instance. If they had been begrimed with smoke as we are, and, upon inquiry, had found that there was no "needfulness" to back the "noisomeness," it is probable they would have dealt with it in their most summary manner. Whereas I fear that Mr. Mackinnon's "Smoke Prohibition" Bill, amidst the hubbub of legislation, has great difficulty in finding the attention which it really deserves. The truth is, this smoke nuisance is one of the most curious instances how little pains men will take to rid themselves from evils which attack them only indirectly. If the pecuniary injury done to the inhabitants of great towns by smoke could only be put in the form of a smoke rate, what unwearied agitation there would be against it. But surely we ought not to view with less hostility, because of its silent noxiousness, a thing which injures the health of our children, if not of people of all ages, disfigures our public buildings, creates uncleanliness and gives an excuse for it, affects in some degree the spirits of all persons who live under it, renders manufacturing towns less welcome places of residence for the higher cla.s.ses (which is what brings it in connexion with the subject of this Essay); and is, thereby, peculiarly injurious to the labouring population. If these pages should survive to any future age, it will excite a smile in some curious reader to see how urgent I have endeavoured to be about a matter which will then be so obvious-"What strange barbarous times they must have been," he will say to himself: "wisdom of our ancestors, forsooth!" "Far-off reader,"

if there be such an ent.i.ty, "do not presume: thou hast thy smoke too."

In connexion with the subject of "the town," it may be well to go a little into the matter of sewerage, which almost, above all things, demands the attention of those who care for the health of the labouring population, indeed, for the health of rich or poor.

This subject is admirably treated in a section of the Sanitary Report of 1842, under the head of "Arrangements for public health, external to the residences." It is now almost a trite thing to show how closely connected imperfect sewerage is with disease. Scientific men will tell you that you may track a fever along the windings of an open drain. The Sanitary Report mentions that,

"In the evidence given before the Committee of the House of Commons, which received evidence on the subject in 1834, one medical witness stated, that of all cases of severe typhus that he had seen, eight-tenths were either in houses of which the drains from the sewers were untrapped, or which, being trapped, were situated opposite gully-holes; and he mentioned instances where servants sleeping in the lower rooms of houses were invariably attacked with fever."

The above is a good instance to show how necessary it is to have some general measures on these matters of building and drainage. The expense of trapping a gully-drain is about 3; at least that is what, I understand, the Commissioners of Sewers are willing to do it for. Now is it likely that any poor man, having one of these nuisances before his door, will go to such an expense to have it prevented. It is probable that it would be very good economy for him to do so, even if his whole savings amounted only to 3. But we all know that few men are far-thinking enough to invest much of their capital in a thing which makes so little show as pure air. What do you find amongst the rich? Go through the great squares, where, in one night, a man will lavish on some entertainment what would almost purify his neighbourhood, and you will often find the same evils there, though in a different degree, that you have met with in the most crowded parts of the town. If the rich and great have so little care about what comes