Chapter II: Preface (2)

Starting, then, from our Registrars’ Returns, I invite you to inquire with me, how it has come to pass that within the City of London there have died in the last year twice as many persons as it seems necessary that there should die; and whence has arisen the apparent anomaly, that here--in the very focus of civilization, where the resources of curative medicine are greatest, and all the appliances of charitable relief most effectual, still, notwithstanding these advantages, there has passed away irrevocably during the year so undue a proportion of human life.

Let it not be imagined that the word _cholera_ is a sufficient answer to these questions, or that its mention can supersede the necessity for sanitary investigation. Let it, on the contrary, be observed that the epidemic which has visited us, extends its ravages only to localities previously and otherwise hostile to life; so that, while all regions of the globe in succession are shadowed by its dark transit, the healthiest districts of each region remain utterly unharmed in presence of the pestilence. Compare, for instance, the cholera mortality in a healthy suburban sub-district with that of an unhealthy urban one. Dulwich and the parish of St. Ann’s, Blackfriars, in the City of London, are probably nearly equal in population: in the former, there was not a single death from cholera; in the latter, the deaths from this cause alone were at the rate of twenty-five to every thousand of the population. Dulwich is one of the healthiest sub-districts within the bills of mortality; St. Ann’s belongs to one of the unhealthiest sub-districts of the City of London; and the cholera visited each in proportion to its ordinary healthiness.

Such is the general rule; and accordingly I would suggest to you that the presence of epidemic cholera, instead of serving to explain away the local inequalities of mortality, does, in fact, only constitute a most important additional testimony to the salubrity or insalubrity of a district, and renders more evident any disparity of condition which may previously have been overlooked. The frightful phenomenon of a periodic pestilence belongs only to defective sanitary arrangements; and, in comparing one local death-rate with another, it is requisite to remember that, in addition to the ordinary redundance of deaths which marks an unhealthy district, there is a tendency from time to time to the recurrence of epidemic pestilence, which visits all unhealthy districts disproportionately, and renders their annual excess of mortality still more egregious and glaring.

* * * * *

As materials which may aid you to estimate the sanitary defects of the City, I subjoin two tables[14] illustrating the relative mortality of the several sub-districts. The first of these tables indicates numerically the local distribution of the year’s deaths, and gives their proportion to the population of each district and sub-district. The second relates particularly to the last quarter, and illustrates the pressure of the epidemic. The two together furnish a synoptical view of the several rates of mortality, as calculated for the entire City, for the Unions separately, for the sub-districts separately; and for the last quarter of the year separately. In the tedious process of constructing these tables, I have been careful to avoid every source of inaccuracy, and believe that they present you with a true measure of the health of the City during the past year.

[14] I have not reprinted these tables quite as here described. The
local distribution of the 3763 deaths of the year is given in the
Appendix, No. III.; and the sub-district death-rates of the year, as
nearly as I can get them, in a note overleaf, page 6. The high
mortality of this summer quarter (in which 1395 persons died) will be
best appreciated by the reader in referring to Appendix, No. XIV.;
where it can be compared with the mortality of similar periods of time
in the four other years there accounted for.--J. S., 1854.

From these comparative tables it will be observed, that the high mortality of the population does not affect the entire City equally; that, in some of its portions, the rate of death approaches the _minimum_ standard much more nearly than in others; that in those districts where the general rate is best, the temporary aggravation from epidemic causes has likewise been least; and that our aggregate City rate, either for ordinary times or for a period of epidemic disease, is compounded from the joint result of several very different proportions. Reference to the Registrar-General’s tables will enable any one to see that the ordinary rate of mortality for the West London Union is a fourth higher than the rate for the City of London Union, while the rate for the East London Union bears a still higher proportion; and these very different rates are, as it were, merged in the one aggregate rate, struck for the whole City, as comprising the three unions referred to. It will be obvious, therefore, that many parts of the City are much healthier than this aggregate rate would signify, while others are much unhealthier. In regard of last year, for instance, the aggregate rate of mortality was (as I have stated) 30 per thousand of the general population of the City: but if this rate be analysed by examination of the sub-district mortality, it will be seen that in one sub-district the rate of death stood nearly as low as 20; that in another sub-district of the same union it rose to 36, and in a third sub-district (of another union) to within a small fraction of 40.[15]

[15] On account of changes of population shown by the subsequent
Census, these figures would require correction. The death-rates _per_
thousand in the several sub-districts were probably about as follows,
viz.:--

------------------+-------------+------------------------------
EAST LONDON UNION.|W. L. UNION. | CITY OF LONDON UNION.
---------+--------+------+------+-----+-----+------+-----+-----
St. |Cripple-|North.|South.|S. W.|N. W.|South.|S. E.|N. E.
Botolph. | gate. | | | | | | |
---------+--------+------+------+-----+-----+------+-----+-----
26½ | 32 | 34 | 41 | 38 | 22 | 24 | 21⅔ | 22
---------+--------+------+------+-----+-----+------+-----+-----

J. S., 1854.

If it were possible to furnish you with statistics derived from a still smaller sub-division of each district, these points would be infinitely more manifest. In some limited localities of the City you would probably find an approximation to the average mortality of suburban districts; while in other spots, if they were isolated for your contemplation, you would see houses, courts, and streets where the habitual proportion of deaths is far beyond the heaviest pestilence-rate known for any metropolitan district aggregately--localities, indeed, where the habitual rate of death is more appalling than any which such averages can enable you to conceive.

These facts are quite unquestionable, and I have felt it my duty to bring them under your notice as pointedly and impressively as I can; feeling assured, as I do, that so soon as you are cognisant of them, every motive of humanity, no less than of economical prudence, must engage you to investigate with me, whether or not there may lie within your reach any adoptable measures for lessening this large expenditure of human life, and for relieving its attendant misery. It is, therefore, with the deepest feeling of responsibility that I proceed to fulfil the main object of my First Annual Report, by tracing these effects to their causes, and by explaining to you, from a year’s observation and experience, what seem to me the chief influences prevailing against life within the City of London.

* * * * *

My remarks for this purpose will fall under the following heads, viz.:--

I. Defective house-drainage;

II. Incomplete and insufficient water-supply;

III. Offensive or injurious trades and occupations;

IV. Intramural burials;

V. Houses insusceptible of ventilation, and absolutely unfit for
habitation;

VI. The personal habits of the lowest classes, and the influence of
destitution in increasing their mortality.

In treating of these topics, I shall not pretend to bring before you all the details on which my opinions are founded, or to enumerate under each head those infinite individual instances which require sanitary correction. It is my wish at this time to submit to you only such general considerations as may show you the largeness of the subject, its various ramifications, and its pressing importance; and it is my hope that these considerations may suffice to convince you of the necessity which exists in the City of London for some effective and permanent sanitary organisation.

HOUSE-DRAINAGE.

I. It is not in my power to lay before you any numerical statement of the proportion of drained to undrained houses. From such information as I possess, I may venture to speak of imperfect house-drainage as having been a general evil in all the poorer districts of the City; and the latest intelligence on the subject leads me to consider this great evil as but very partially removed. So far as I can calculate from very imperfect materials, I should conjecture that some thousands of houses within the City still have cesspools connected with them. It requires little medical knowledge to understand that animals will scarcely thrive in an atmosphere of their own decomposing excrements; yet such, strictly and literally speaking, is the air which a very large proportion of the inhabitants of the City are condemned to breathe. Sometimes, happily for the inmates, the cesspool in which their ordure accumulates, lies at some small distance from the basement-area of the house, occupying the subsoil of an adjoining yard, or if the privy be a public one, of some open space exterior to the private premises. But in a very large number of cases, it lies actually within the four walls of the inhabited house; the latter reared over it, as a bell-glass over the beak of a retort, receiving and sucking up incessantly the unspeakable abomination of its volatile contents. In some such instances, where the basement story of the house is tenanted, the cesspool lies--perhaps merely boarded over--close beneath the feet of a family of human beings, whom it surrounds uninterruptedly, whether they wake or sleep, with its fetid pollution and poison.

Now, here is a removable cause of death. These gases, which so many thousands of persons are daily inhaling, do not, it is true, in their diluted condition, suddenly extinguish life; but, though different in concentration, they are identically the same in nature with that confined sewer-gas which, on a recent occasion, at Pimlico, killed those who were exposed to it with the rapidity of a lightning stroke. In their diluted state, as they rise from so many cesspools, and taint the atmosphere of so many houses, they form a climate the most congenial for the multiplication of epidemic disorders, and operate beyond all known influences of their class in impairing the chances of life.

It may be taken as an axiom for the purposes of sanitary improvement, that every individual cesspool is hurtful to its vicinage; and it may hence be inferred how great an injury is done to the public health by their existence in such numbers, that parts of the City might be described as having a cesspool-city excavated beneath it.

I beg most earnestly to press on the consideration of your Hon. Court, the extreme importance of proceeding with all convenient speed to alter this very faulty construction, and to substitute for it an arrangement compatible with the health of the population.

While addressing you on this subject, and while congratulating your Hon. Court on the fact, that public attention is so much directed to a matter in which your exertions are certain to effect large and salutary reform, I cannot refrain from expressing a wish, that more accurate knowledge prevailed among the public as to the history and jurisdiction of the nuisance in question. It seems constantly to be forgotten, that your responsibility in the matter dates but from last January. The cesspool-nuisance has been the slow growth of other less enlightened ages, not in the City merely, but in the whole metropolis, and in all other towns in England. The extreme injury which it inflicts on the health of the population, and the vital necessity of abating that injury, are points which only began to claim attention in this country about ten years ago; and which have since but very slowly been forcing their way (chiefly through the indomitable zeal and perseverance of Mr. Chadwick) into that share of notice which they deserve. House-drainage with effective water-supply, are the remedies which can alone avail; and it is only during the present year that authority to enforce these measures has been vested by the Legislature in any public bodies whatsoever.

Before the month of January last, when your increased jurisdiction was established, it appears to me that, for the existence of cesspools in the City, you had no more responsibility than for the original site of the metropolis, or for the architecture of Westminster Abbey.

During the last ten months, however, the care of effective house-drainage has rested solely and entirely with your Hon. Court; for two of those ten months, I thought it desirable, on account of the epidemic, that no considerable disturbance of the soil should take place in the construction of new works; in the remaining eight months, two miles of new sewer were formed, and 900 houses were drained for the first time.

If the house-drainage of the City had depended for its completion, even since that time, solely on the labours of this Commission, no doubt it would have proceeded at a far quicker pace. How effectively your Hon. Court had prepared for the best application of your increased powers, is sufficiently evinced in the 45 miles of sewerage, ramifying through all the districts of your jurisdiction, ready at every point to receive the streams of private drainage, and leaving to the owners of house-property (with few exceptions) no excuse for their non-performance of these necessary works. I believe the extent of public sewerage within the City to be quite unparalleled, and to furnish facilities of the rarest kind for the abolition of cesspools, and for the establishment of an improved system of house drainage. But, Gentlemen, while you have exerted yourselves to the utmost in the application of your increased authority, and have directed your staff of officers, from first to last, to proceed with all possible despatch in enforcing sanitary improvement in the matter now under consideration, the intentions of your Court and the industry of its officers have been in a great measure frustrated by the passive resistance of landlords. Delays and subterfuges have been had recourse to by the owners of house-property, in order to avoid compliance with the injunctions of the Commission; and the temporary interruption of works, which occurred in August and September, prevented these evasions from being dealt with as otherwise they would have been.

Now, however, the course is again open. For some weeks your Hon. Court has directed that all works of drainage and sewerage shall proceed; many are already in progress; and I can see no reason why, within a year from the present time, the number of cesspools and of undrained houses within the City of London should not be reduced to a very small proportion.

Everything, however, in this respect will depend on the spirit of _thoroughness_ with which the Act of Parliament is enforced; and I would strongly recommend, in all cases of non-drainage or other non-compliance with the terms of notice, that no indulgence whatever should be conceded to landlords beyond the time specified in the notification of the Court; that no difference should be recognised between a ‘notice’ and ‘a peremptory notice;’ that all notices should be ‘peremptory;’ and that, a certain period for performance having been allowed to the landlord, on the very day of that period’s expiration, the work, if undone, should be given over for completion by the workmen of the Commissioners of Sewers, in accordance with the 61st clause of the Act of Parliament. In favour of the adoption of this principle, I can adduce no stronger argument than my conviction, that its non-adoption would insure a sacrifice of human life, in exact proportion to the procrastination allowed; and that, too, in a matter where henceforth your responsibility is undivided and your power absolute.

* * * * *

In order to give efficiency to whatever improvements of house-drainage may be instituted, the present system of water-supply will require to undergo very extensive modifications; for at present in the poorer tenements, even where some show of house-drainage is made, the arrangements are constantly rendered inoperative from insufficiency or absence of water. To this matter, however, I shall presently revert.

Another most important _desideratum_ in connexion with the sewerage of the City is that, if possible, some more perfect system of trapping should be devised, or that, in some way or other, the sewers should be ventilated effectively and inoffensively.[16] At present there are frequent complaints of offensive exhalation from gratings in the open ways of the City; and it will be obvious to your Hon. Court, that all which I have urged on the subject of cesspool-exhalations must apply equally to those which are emitted from sewers. The impediments to effective trapping are almost insuperable; but I believe that when the water-supply of the City is very largely increased, washing the drains amply and incessantly, the evil complained of will undergo a sensible diminution.

[16] This subject is adverted to, with more detail, in the next year’s
Report.--See page 104.

* * * * *

In further connexion with my present subject, I would also solicit attention to the fact that the sanitary purposes of drainage are but imperfectly achieved, where the outfall of sewerage is into a tidal river passing through the heart of a densely peopled metropolis. I should be stepping beyond my province, if I were to say much respecting the schemes now before the public for dealing with the difficulty to which I here refer, inasmuch as those schemes involve questions of engineering and machinery, on which I am incompetent to form an opinion. But I can have no hesitation in stating it as a matter greatly to be desired in the City of London, that the noble river which ebbs and flows beneath its dwellings should cease to be the drainpool of our vast metropolis; and that the immeasurable filth which now pollutes the stream should be intercepted in its course, and be conveyed to some distant destination, where instead of breeding sickness and mortality, it might become a source of agricultural increase and national wealth.[17]

[17] This subject is more particularly dwelt upon in the last Report;
page 261.

I would venture, likewise, to express an opinion that the City of London is peculiarly interested in the accomplishment of this great public work, not only on general grounds relating to the conservancy of the river, but likewise and especially on sanitary grounds, by reason of the large bank-side population, subjects of the City, who now, instead of deriving advantage from their nearness to the stream, are constantly disgusted and injured by its misuse.

While the consideration of this most important measure is pending, I would invite attention to some circumstances, by which even the present evil is needlessly aggravated.

In the first place the sewers are of defective length, so that during the ebb of the tide their contents, as they escape, are suffered to flow in a stream of some length across the mud of the retreating river. The stream, together with the mud which it saturates, and the open mouth of the sewer, evolve copious and offensive exhalations, and I would recommend that measures be taken for abatement of the nuisance. This purpose, as concerns the sewer, would be fulfilled by the addition, in each instance, of a sufficient length of brick or cast-iron work, to prolong the canal beyond low water mark; but the great extent of mud which is left uncovered at each tide, and which during the present pollution of the river is a source of extreme nuisance and of disease, constitutes an evil for which no remedy can be found till the stream shall be narrowed and embanked.

Meanwhile, the complaints which reached the Committee of Health during the summer, together with the results of my own inspection, lead me to believe that the several small docks which lie along the City bank of the river from the Tower to the Temple, fulfil little really useful purpose; that they are to a great extent used as laystalls for their vicinage; that copious deposits and accumulations of filth take place in them; that they are a nuisance and injury, except to the very few who are interested in their maintenance; and that it would be of public advantage that they should be filled up.

WATER-SUPPLY.

II. I am sure that I do not exaggerate the sanitary importance of water, when I affirm that its unrestricted supply is the first essential of decency, of comfort, and of health; that no civilization of the poorer classes can exist without it; and that any limitation to its use in the metropolis is a barrier, which must maintain thousands in a state of the most unwholesome filth and degradation.

In the City of London the supply of water is but a fraction of what it should be. Thousands of the population have no supply of it to the houses where they dwell. For their possession of this first necessary of social life, such persons wholly depend on their power of attending at some fixed hour of the day, pail in hand, beside the nearest stand-cock; where, with their neighbours, they wait their turn--sometimes not without a struggle, during the tedious dribbling of a single small pipe. Sometimes there is a partial improvement on this plan; a group of houses will have a butt or cistern for the common use of some scores of inmates, who thus are saved the necessity of waiting at a standcock, but who still remain most insufficiently supplied with water. Next in the scale of improvement we find water-pipes laid on to the houses; but the water is turned on only for a few hours in the week, so that all who care to be adequately supplied with it must be provided with very spacious receptacles. Receptacles are sometimes provided: and in these, which are often of the most objectionable description, water is retained for the purposes of diet and washing, during a period which varies from twenty-four to seventy-two hours. One of the most important purposes of a water-supply seems almost wholly abandoned--that, namely, of having a large quantity daily devoted to cleanse and clear the house-drains and sewers; and in many cases where a waste-pipe has been conducted from the water-butt to the privy, the arrangement is one which gives to the drainage little advantage of water, while it communicates to the water a well-marked flavour of drainage.

I consider the system of intermittent water-supply to be radically bad; not only because it is a system of stint in what ought to be lavishly bestowed, but also because of the necessity which it creates that large and extensive receptacles should be provided, and because of the liability to contamination incurred by water which has to be retained often during a considerable period. In inspecting the courts and alleys of the City, one constantly sees butts, for the reception of water, either public, or in the open yards of the houses, or sometimes in their cellars; and these butts, dirty, mouldering, and coverless; receiving soot and all other impurities from the air; absorbing stench from the adjacent cesspool; inviting filth from insects, vermin, sparrows, cats, and children; their contents often augmented through a rain water-pipe by the washings of the roof, and every hour becoming fustier and more offensive. Nothing can be less like what water should be than the fluid obtained under such circumstances; and one hardly knows whether this arrangement can be considered preferable to the precarious chance of scuffling or dawdling at a standcock. It may be doubted, too, whether, even in a far better class of houses, the tenants’ water-supply can be pronounced good. The cisternage is better, and all arrangements connected with it are generally such as to protect it from the grosser impurities which defile the water-butts of the poor; but the long retention of water in leaden cisterns impairs its fitness for drinking; and the quantity which any moderate cistern will contain is very generally insufficient for the legitimate requirements of the house during the intervals of supply. Every one who is personally familiar with the working of this system of intermittent supply, can testify to its inconvenience; and though its evils press with immeasurably greater severity on the poor than on the rich, yet the latter are by no means without experience on the subject.

* * * * *

The following are the chief conditions in respect of water supply, which peremptorily require to be fulfilled:--

1. That every house should be separately supplied with water, and that where the house is a lodging-house, or where the several floors are let as separate tenements, the supply of water should extend to each inhabited floor.

2. That every privy should have a supply of water, applicable as often as it may be required, and sufficient in volume to effect, at each application, a thorough flushing and purification of the discharge-pipe of the privy.

3. That in every court, at the point remotest from the sewer-grating, there should be a standcock for the cleansing of the court; and

4. That at all these points there should always and uninterruptedly be a sufficiency of water to fulfil all reasonable requirements of the population.

* * * * *

Now, if my statements are accurate with regard to the imperfect manner in which thousands participate in the distribution of water, even for their personal necessities; if my statements are again accurate with respect to house-drainage, and to the immense increase of water distribution which must accompany any improvement in this respect--and I am quite prepared, if necessary, to adduce ample evidence on these subjects; if, again, it be considered that the appreciation of water by the multitude, who have so long suffered from lack of it, will lead to a vast augmentation of its domestic use; then, I apprehend, it cannot be doubted that the subject of water-supply to the City is one that requires now to be looked at almost as though it were to-day broached for the first time.

Those important conditions, which I just enumerated as urgently requiring fulfilment, may certainly be accomplished, so far as mechanical construction is concerned, in more than one way. It may be possible, no doubt, in further compliance with the principle of intermittent supply, to furnish every tenement in the City with a cistern of proper dimensions, and with its usual appurtenances of ballcock, waste-pipe, &c.; but this, I need hardly say, would be a process involving a vast expenditure of money, and hardly to be recommended on the mere ground of conformity with what has hitherto been done in the matter. It may be possible, on the other hand, to convert the whole water-supply of the City into a system of uninterrupted supply, and to construct all new works in conformity with this system.

I beg to suggest that the choice between these alternatives is one of immense and very urgent importance to the sanitary welfare of the City; and I would earnestly commend it to the best consideration of your Hon. Court.

The system of a constant supply is now no longer a novelty. In Philadelphia, in New York, in Nottingham, in Preston, in Glasgow, in Newcastle, in Bristol, and in various other places, this system has been adopted; its practicability and its advantages have been amply demonstrated.[18] Five years ago, when evidence on the subject was given before the House of Commons, it appeared that in the city and suburbs of Philadelphia 25,816 houses were supplied at an average rate of five dollars per house; that in Preston more than 5,000 houses were supplied continually at high-pressure, and that the company was increasing its tenants at the rate of 400 annually; that in Nottingham about 8,000 houses, containing a population of 35,000 persons, were supplied in the same manner; and in respect of many other towns, public experience has been equally extensive and satisfactory. About a month ago, the Sanitary Committee of the last-mentioned town published what I may call a report of congratulation on their freedom from cholera, which had visited the town with great severity in 1832. They detail the measures by which Nottingham has been rendered a healthy town, and the first item in that enumeration stands thus:--‘An unlimited supply of wholesome filtered water, forced, by day and night, at high pressure, through all the streets to the tops of almost all the houses, at a cost, for the dwellings of the poor, of about five shillings per week.’

[18] It seems almost unnecessary to remind the reader that five more
years have added infinite additional testimony to that mentioned in
the text as existing in 1849; and that, two years ago, in a special
Act of Parliament, it was enjoined on the Water Companies of the
Metropolis that, within seven years, they should follow the precedent
so extensively established. In the face of such evidence--with the
knowledge that Manchester has a constant supply and that Glasgow is
arranging one, it certainly tests one’s credulity to hear it rumoured
that our Metropolitan Water-Merchants are hoping to resist that
requirement, on the ground that such a supply in London would be
_impossible_.--J. S., 1854.

On the relative merits or demerits of the two competing systems of supply, I have only to speak so far as their adaptation to sanitary purposes is concerned. In this respect, I have no hesitation in saying that the system of constant supply is immeasurably superior to its rival; so superior, that unless competent engineering authorities should decide on its practical inapplicability to the City of London, I would strongly recommend its adoption as the only one, in my judgment, by which the growing necessities of the population can be fully and effectively satisfied.

OFFENSIVE AND INJURIOUS TRADES.

III. With respect to offensive trades and occupations pursued within the city of London, my task of recommendation is an easy one. To any person conversant with the simplest physiological relations of cause and effect, it is quite notorious that the decomposition of organic matter within a certain distance of human habitations unfailingly tends to produce disease; and every one who is competent by knowledge and impartiality to pronounce an opinion on the subject, must feel that no occupation which ordinarily leaves a putrid refuse, nor any which consists in the conversion or manufacture of putrescent material, ought, under any circumstances, to be tolerated within a town.

* * * * *

1. First, in regard to slaughter-houses, I may remind you that, on the 23rd of January last, when your Hon. Commission first met under the new Act of Parliament, I recommended to you on sanitary grounds, that in such rules as you might make for the regulation of slaughter houses, all underground slaughtering should be absolutely prohibited. It was laid down, however, that your Act of Parliament would not enable you to establish this restriction, which (it was argued) would be equivalent to a direct suppression of many existing slaughter-houses.[19]

[19] Slaughtering in cellars was rendered illegal by the amended City
Sewers Act, 1851, and since that year has been entirely discontinued
in the City. See page 192.--J. S., 1854.

Considering that, in my first recommendations to the Commission I ought to confine myself to objects attainable by means of the Act of Parliament then just coming into operation, I felt myself precluded for the time from entering on the subject (however important in itself) of the total abolition of urban slaughtering. Now, however, while treating generally of sanitary improvement for the City, I can have no hesitation in repeating an opinion which I have already submitted to the Health-Committee of the Common Council; and I beg accordingly to state, that I consider slaughtering within the City as both directly and indirectly prejudicial to the health of the population;--_directly_, because it loads the air with effluvia of decomposing animal matter, not only in the immediate vicinity of each slaughter-house, but likewise along the line of drainage which conveys away its washings and fluid filth; _indirectly_, because many very offensive and noxious trades are in close dependence on the slaughtering of cattle, and round about the original nuisance of the slaughter-house, within as narrow limits of distance as circumstances allow, you invariably find established the concomitant and still more grievous nuisances of gut-spinning, tripe-dressing, bone-boiling, tallow-melting, paunch-cooking, &c. Ready illustrations of this fact may be found in the gut-scraping sheds of Harrow-alley, adjoining Butchers’-row, Aldgate; or in the Leadenhall skin-market, contiguous to the slaughtering places, where the stinking hides of cattle lie for many hours together, spread out over a large area of ground, waiting for sale, to the great offence of the neighbourhood.

Such evils as those to which I have adverted are inseparable from the process of slaughtering, however carefully and cleanlily conducted; and they may easily be aggravated to an unlimited extent by defects in drainage, in water supply, or in ventilation, or by the slovenly habits and impunctuality of those to whom the removal of filth and offal is intrusted.

In short, I believe it to be quite impossible, so to conduct the process of slaughtering within the City of London as to remove it from the category of nuisances, or to render it harmless to the health of the population; and I believe it to be equally impossible so to superintend the details of its performance as to prevent them, where ill-administered, from rising into considerable and fatal importance among the promoting causes of epidemic and infectious disease.

* * * * *

It is scarcely necessary, after this expression of my opinion, that I should say how strongly I would recommend that measures should be taken for the discontinuance of all slaughtering within the City; and that, with the abolition of slaughtering, all establishments which deal with animal matter approaching putrefaction, and all sheds and stalls for the continued keeping of cattle, should likewise be prohibited and suppressed.

The number of slaughter-houses at present registered and tolerated within the City amounts to 138, and in 58 of these the slaughtering occurs in vaults and cellars. How overwhelming an amount of organic decomposition must be furnished by these establishments, can neither be estimated nor conceived; but the influence of that decomposition admits of being measured in its effects on the population, and in the high zymotic mortality which denotes an atmosphere over-laden with organic poison.

Before leaving this subject, I think it right very briefly to allude to an argument which is often objected to the view here stated. The objector looks to a particular district, or to a particular slaughter-house, and says that the mortality of the district is an average one; or he points to Mr. A. or Mr. B.--the butcher or the butcher’s man, saying, ‘Who can be healthier than A. or B.? Surely, if the pursuit be injurious, these men ought to have been poisoned long ago.’ Now, to this I reply;--first, as regards the men employed in these crafts, we have no statistics of any value to decide on their mortality, and judgment on the matter cannot be deduced from some half-dozen cases, known to any of us individually; but, further, if we admit (which I by no means know to be the case) that they are persons of average longevity and healthiness, then it must be remembered that their activity, their out-door exercise, and, above all, their unlimited supply of animal food, are circumstances conducing to give them health beyond the average of their station; and it must be remembered that these palliating circumstances, though they may counteract the evil for those persons most nearly concerned in it, contribute nothing towards deodorising the neighbourhood, or towards preserving its poorer inhabitants from the depressive influence of putrid emanations.

And, as regards the district--although we have certain evidence that organic decomposition is a chief cause of disease, yet we do not invariably find disease generated in immediate proximity to the source of nuisance. Drainage beneath the soil, and currents of air above it, convey the materials of decomposition to a distance; and if the particular slaughter-houses be placed on a high level amidst the surrounding City, so that their drainage be effectual and their ventilation complete, then obviously their influence must be sought for, not so much in any special aggravation of the local mortality, as in certain remoter effects of their diffused emanation; in effects, namely, which are discoverable along their lines of drainage and ventilation, and in the various consequences of a highly zymotic atmosphere generally through the entire town.

* * * * *

2. With regard to such trades as are considered to be simply offensive, and where the evidence of injury to health is indirect and uncertain, I can hardly doubt that a wise legislation would exclude them also from the circle of the metropolis. Tallow-melting, whalebone-boiling, gas-making, and various other chemical proceedings, if not absolutely injurious to life, are nuisances, at least in the ordinary language of the law, or are apt to become such. It is the common right of the neighbourhood to breathe an uncontaminated atmosphere; and, with this common right, such nuisances must, in their several degrees, be considered to clash. It might be an infraction of personal liberty to interfere with a proprietor’s right to make offensive smells within the limits of his own tenement, and for his own separate inhalation; but surely it is a still greater infraction of personal liberty when the proprietor, entitled as he is to but the joint use of an atmosphere which is the common property of his neighbourhood, assumes what is equivalent to a sole possession of it, and claims the right of diffusing through it some nauseous effluvium which others, equally with himself, are thus obliged to inhale. Such, as it appears to me, is the rational view of this matter; and although I am not prepared to speak of these trades in the same terms as I applied to slaughtering and its kindred occupations,--although, that is to say, I cannot speak of them as injurious to health on any large scale, yet I would respectfully submit to your Hon. Court that your Act of Parliament empowers you to deal with such nuisances in respect of their being simply offensive.[20]

[20] City Sewers Act, 1848, § 113.

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3. Under the same head, I would likewise beg leave to suggest whether it might not be practicable for your Hon. Court to regulate the operation of establishments which evolve large volumes of smoke. The exterior dirtiness and dinginess of London depend mainly on this cause; and the same influence, by rendering domestic cleanliness difficult and expensive, creates an additional impediment to its cultivation. People naturally despair of cleansing that which a day’s exposure to the atmosphere blackens again with soot; or they keep their windows shut, breathing a fusty and unwholesome air, in the hope of excluding the inconvenience. Now, when it is remembered that all the smoke of London is but so much wasted fuel, it must surely be felt that the enforcement of measures for its consumption would be to the interest of all parties; amply economizing to the manufacturer whatever might be the trifling expense of appropriate arrangements, while it would relieve the public of that which, called by the mildest name, is a nuisance and a source of heavy expense.

INTRAMURAL BURIAL.

IV. The subject of intramural burial is the next on which I have to report, as affecting the health of the City.

In compliance with an order of the Health Committee, I have examined as fully as circumstances would allow into the requirements of the City of London in respect of burial accommodation, and the result of my inquiry obliges me to express my conviction, that the City can no longer with safety or propriety be allowed to furnish intramural interment to its dead.

In all those larger parochial burying-grounds where the maintenance of a right to bury can be considered important,--in all such, and in most others, too, the soil is saturated and super-saturated with animal matter undergoing slow decomposition. There are, indeed, few of the older burial-grounds of the City where the soil does not rise many feet above its original level, testifying to the large amount of animal matter which rots beneath the surface. The vaults beneath churches are, in many instances, similarly overloaded with materials of putrefaction, and the atmosphere, which should be kept pure, and without admixture for the living, is hourly tainted with the fœtid emanations of the dead. For the most part, houses are seen to rise on all sides in immediate contiguity to the burial-ground, forbidding the possibility of even such ventilation as might diminish the evil; and the inhabitants of such houses complain bitterly, as they well may, of the inconvenience which they suffer from this confined and noxious atmosphere.

* * * * *

With respect to burial in vaults, which prevails to a very great and dangerous extent in this City, I may observe that, among persons who are ill-informed on the subject, there exist erroneous notions as to the preservation of bodies under these circumstances. They are supposed, from the complete closure of their coffins, to remain unchanged for ages, like the embalmed bodies of Egypt and Peru; or at least--if perhaps they undergo some interior and invisible change (as the chrysalis within its sheath) that there is no interference with the general arrangement, no breach in the compactness of the envelope. Nothing can be less correct than this supposition.

It is unnecessary that I should detail to you the process of decay, as it occurs within the charnel-house; nor need I inquire for your information whether indeed it be true, as alleged, that part of the duty of a sexton consists in tapping the recent coffins, so as to facilitate the escape of gases which otherwise would detonate from their confinement. It is sufficient to state, that--whether such be or be not the duty of the functionary in question, the time certainly comes, sooner or later, when every corpse buried in the vault of a church spreads the products of its decomposition through the air as freely as though no shell had enclosed it. It is matter of the utmost notoriety that, under all ordinary conditions of vault-sepulture, the wooden case of the coffin speedily decays and crumbles, while the interior leaden one, bending with the pressure of whatever mass may be above it (or often with its own weight) yields, bulges, and bursts, as surely as would a paper hat-box under the weight of a laden portmanteau.

If the accuracy of this description be doubted, let inquiry be made on a large scale after the coffins of 40 years back[21]--let it be seen how many will appear! If, on the contrary, its accuracy be granted, then I apprehend nothing further need be urged, to establish the importance of abolishing a system which maintains on so large a scale the open putrefaction of human remains within places of frequent resort, and in the midst of populous habitations.

[21] Perhaps the expressions in my text are somewhat too general; not
indeed as to the fact of the coffins _ultimately_ giving vent to their
fœtid contents (which is the real point at issue) but as to the time
within which this occurs. In the dryer and better kept vaults, a
longer period certainly elapses than that suggested; in the worse,
probably a shorter one. The sooner or later is of little practical
importance: but, on re-perusing my Report, I think it right to add
this qualification.--J. S., 1854.

It is a very serious matter for consideration, that close beneath the feet of those who attend the services of their church, there often lies an almost solid pile of decomposing human remains, co-extensive with the area of the building, heaped as high as the vaulting will permit, and generally (as I have shown) but very partially confined. And if it be the case, as perhaps it may be, that the frequenters of the place of worship do not complain of any vitiation of their atmosphere, or perhaps do not experience it, not the less is it true that such a vitiation occurs, and--whether to the special detriment of the congregation or not, contributes to the overladen putrefactiveness of our London atmosphere.

In respect of such vaults, I do not consider that the mere cessation of burial in them will be sufficient; seeing that at the present moment they contain amongst them many thousand coffins, as yet tenanted by the materials of decomposition; and year after year, if left in their present state, these will be poisoning the air with successive instalments of their progressive decay. It seems to me quite indispensable that some comprehensive measure should be undertaken, for abolishing at once and for ever all burial within the City of London. Conjointly with the general application to Parliament, for prohibition of further intramural sepulture, I would recommend that authority be obtained by the City for its several parishes to procure the decent removal to extramural cemeteries of such coffins as already occupy their vaults; or, failing this measure, I would recommend that all coffins now lying within vaults, be walled up in their present resting-places with uniform impermeable masonry. For very obvious reasons, I should prefer the former plan to the latter.[22]

[22] Probably the most successful attempt at hermetical enclosure of
organic matters would not reach beyond effecting a postponement of
their diffusion through the atmosphere. The true principles for burial
of the dead lie rather in recognising their decomposition as
inevitable, and in providing only lest it be offensive or injurious to
the living. This is best attained by interment in a well-chosen soil,
at a depth proportioned to the qualities of the ground; with no
pretence of everlasting coffins and impenetrable cerements; but with
ample vegetation above, to relieve the upper earth from whatever
products of decay may mount and mingle there; and especially with
thorough drainage below, so that down-currents of air and rainfall may
freely traverse the putrefactive strata, ventilating and washing the
soil, and diffusing its organic contents through deeper levels, till
their oxidation is complete and their new inodorous combinations are
discharged in watery solution.--J. S., 1854.

Intramural burial is an evil, no doubt, that varies in its intensity according to the numbers interred; becoming appreciable in its effects on health, so far as the rough measure of statistics can inform us, only when many interments occur annually, or when ground is disturbed wherein much animal matter had previously been left to decay. But, be the evil large or little in any particular case, evil undoubtedly it is in all, and an unmitigated evil.

The atmosphere in which epidemic and infectious diseases most readily diffuse their poison and multiply their victims is one, as I have already often stated, in which organic matters are undergoing decomposition. Whence these may be derived signifies little. Whether the matter passing into decay be an accumulation of soaking straw and cabbage leaves in some miserable cellar, or the garbage of a slaughter-house, or an overflowing cesspool, or dead dogs floated at high water into the mouth of a sewer, or stinking fish thrown overboard in Billingsgate-dock, or the remains of human corpses undergoing their last chemical changes in consecrated earth, the previous history of the decomposed material is of no moment whatever. The pathologist knows no difference of operation between one decaying substance and another; so soon as he recognises organic matter undergoing decomposition, so soon he recognises the most fertile soil for the increase of epidemic diseases; and I may state with certainty, that there are many churchyards in the City of London where every spadeful of soil turned up in burial sensibly adds to the amount of animal decomposition which advances too often inevitably around us.

Nor can I refrain from adding, as a matter claiming attention, that, in the performance of intramural interment, there constantly occur disgusting incidents dependent on overcrowdedness of the burial-ground; incidents which convert the extremest solemnity of religion into an occasion for sickness or horror; perhaps mingling with the ritual of the Church some clamour of gravediggers who have mis-calculated their space; perhaps diffusing amidst the mourners some nauseous evidence and conviction, that a prior tenant of the tomb has been prematurely displaced, or that the spade has impatiently anticipated the slower dismembering of decay. Cases of this nature are fresh in the memory of the public; cases of extreme nuisance and brutal desecration in place of decent and solemn interment; and it is unnecessary that I should revive the record of transactions inconsistent with even the dawn of civilisation.[23]

[23] It happened that during the few months preceding the presentation
of this Report, there had occurred some of the most flagrant and
disgusting illustrations of the evils adverted to.--J. S., 1854.

* * * * *

From the circumstances which I have mentioned, it can hardly fail to appear most desirable to you, that the use of some spacious and open cemetery at a distance from the City should be substituted for the present system of intramural interment, and the urgency of this requirement will be demonstrated all the more cogently, when it is remembered that the annual amount of mortality in the City averages above 3000, and that under the present arrangements every dead body buried within our walls receives its accommodation at the expense of the living, and to their great detriment.

In recommending that consideration be given, at as early a period as possible, to the means for establishing some sufficient municipal cemetery (a consideration which, for obvious reasons, must be prior to any Parliamentary proceedings for the prohibition of intramural interments) there are three points to which, even now, I think it advisable to advert, as essential to the admissibility of such a plan. I would submit, first, that the site of any such cemetery must be sufficiently remote from the metropolis to obviate any repetition of the present injury to a resident population; and I hardly know how this purpose can be attained, without going some distance beyond the immediate suburbs of London as indicated by the Bills of Mortality:--secondly, that the space required for the proper inhumation of the dead of the City of London[24] would be not less than 54 acres; and, thirdly, I would suggest that the charter of such an establishment ought to contain provisions against the erection of houses within a certain distance of the burial-ground, so that this may at all times and under all circumstances be surrounded, exterior to its wall, by a considerable belt of land totally devoid of resident population. The absence of such a provision as the last would very soon lead to the extramural cemetery becoming _intramuralised_ by the growth of a new suburb around it, and would again evince, by new and unnecessary illustrations, how incompatible with each other are the Dead and the Living as tenants of one locality.

[24] See Special Report on Extramural Interment, page 285.

HOUSES PERMANENTLY UNFIT FOR HABITATION.

V. Under the last heads of my Report I have touched on matters, which (in so far as they cannot be adjusted without Parliamentary interference) may be considered to lie beyond the present jurisdiction of the Commissioners of Sewers; and the topic which I now approach may, perhaps, be considered equally foreign to the scope of your ordinary functions.

* * * * *

I have to report that there are houses and localities within the City which are irremediably bad;--places, which the uninterrupted presence of epidemic disease has stamped as absolutely unfit for human habitation; places, where drainage and water-supply, indeed, are defective, but where the perfection of these necessaries might exist, in all probability, without giving healthiness to the inhabitants. The predominant evil in the localities referred to is their thorough impossibility of ventilation.

While treating of the manner in which noxious emanations are conveyed to a distance, and are enabled to diffuse their influence over a whole town, instead of concentrating it in some single slaughter-house or burial-ground, I indirectly suggested what I have now to illustrate; that all the evils of all the nuisances in existence acquire their utmost local intensity of action when the diffusion of their gaseous products is interfered with, and when, from absence of ventilation, these are retained in the immediate vicinity of their source.