2. The law has done what it could. That was not always a great deal, seldom more than barely sufficient for the moment. An aroused municipal conscience endowed the Health Department with almost autocratic powers in dealing with this subject, but the desire to educate rather than force the community into a better way dictated their exercise with a slow conservatism that did not always seem wise to the impatient reformer. New York has its St. Antoine, and it has often sadly missed a Napoleon III. to clean up and make light in the dark corners. The obstacles, too, have been many and great. Nevertheless the authorities have not been idle, though it is a grave question whether all the improvements made under the sanitary regulations of recent years deserve the name. Tenements quite as bad as the worst are too numerous yet; but one tremendous factor for evil in the lives of the poor has been taken by the throat, and something has unquestionably been done, where that was possible, to lift those lives out of the rut where they were equally beyond the reach of hope and of ambition. It is no longer lawful to construct barracks to cover the whole of a lot. Air and sunlight have a legal claim, and the day of rear tenements is past. Two years ago a hundred thousand people burrowed in these inhuman dens; but some have been torn down since. Their number will decrease steadily until they shall have become a bad tradition of a heedless past. The dark, unventilated bedroom is going with them, and the open sewer. The day is at hand when the greatest of all evils that now curse life in the tenements--the dearth of water in the hot summer days--will also have been remedied, and a long step taken toward the moral and physical redemption of their tenants.

3. Public sentiment has done something also, but very far from enough. As a rule, it has slumbered peacefully until some flagrant outrage on decency and the health of the community aroused it to noisy but ephemeral indignation, or until a dreaded epidemic knocked at our door. It is this unsteadiness of purpose that has been to a large extent responsible for the apparent lagging of the authorities in cases not involving immediate danger to the general health. The law needs a much stronger and readier backing of a thoroughly enlightened public sentiment to make it as effective as it might be made. It is to be remembered that the health officers, in dealing with this subject of dangerous houses, are constantly trenching upon what each landlord considers his private rights, for which he is ready and bound to fight to the last. Nothing short of the strongest pressure will avail to convince him that these individual rights are to be surrendered for the clear benefit of the whole. It is easy enough to convince a man that he ought not to harbor the thief who steals people's property; but to make him see that he has no right to slowly kill his neighbors, or his tenants, by making a death-trap of his house, seems to be the hardest of all tasks. It is apparently the slowness of the process that obscures his mental sight. The man who will fight an order to repair the plumbing in his house through every court he can reach, would suffer tortures rather than shed the blood of a fellow-man by actual violence. Clearly, it is a matter of education on the part of the landlord no less than the tenants.

4. In spite of this, the landlord has done his share; chiefly perhaps by yielding--not always gracefully--when it was no longer of any use to fight. There have been exceptions, however: men and women who have mended and built with an eye to the real welfare of their tenants as well as to their own pockets. Let it be well understood that the two are inseparable, if any good is to come of it. The business of housing the pool; if it is to amount to anything, must be business, as it was business with our fathers to put them where they are. As charity, pastime, or fad, it will miserably fail, always and everywhere. This is an inexorable rule, now thoroughly well understood in England and continental Europe, and by all who have given the matter serious thought here. Call it poetic justice, or divine justice, or anything else, it is a hard fact, not to be gotten over. Upon any other plan than the assumption that the workman has a just claim to a decent home, and the right to demand it, any scheme for his relief fails. It must be a fair exchange of the man's money for what he can afford to buy at a reasonable price. Any charity scheme merely turns him into a pauper, however it may be disguised, and drowns him hopelessly in the mire out of which it proposed to pull him. And this principle must pervade the whole plan. Expert management of model tenements succeeds where amateur management, with the best intentions, gives up the task, discouraged, as a flat failure. Some of the best-conceived enterprises, backed by abundant capital and goodwill, have been wrecked on this rock. Sentiment, having prompted the effort, forgot to stand aside and let business make it.

5. Business, in a wider sense, has done more than all other agencies together to wipe out the worst tenements. It has been New York's real Napoleon III., from whose decree there was no appeal. In ten years I have seen plague spots disappear before its onward march, with which health officers, police, and sanitary science had struggled vainly since such struggling began as a serious business. And the process goes on still. Unfortunately, the crowding in some of the most densely packed quarters down town has made the property there so valuable, that relief from this source is less confidently to be expected, at all events in the near future. Still, their time may come also. It comes so quickly sometimes as to fairly take one's breath away. More than once I have returned, after a few brief weeks, to some specimen rookery in which I was interested, to find it gone and an army of workmen delving twenty feet underground to lay the foundation of a mighty warehouse. That was the case with the "Big Flat" in Mott Street. I had not had occasion to visit it for several months last winter, and when I went there, entirely unprepared for a chance, I could not find it. It had always been conspicuous enough in the landscape before, and I marvelled much at my own stupidity until, by examining the number of the house, I found out that I had gone right. It was the "flat" that had disappeared. In its place towered a six-story carriage factory with business going on on every floor, as if it had been there for years and years.

6. This same "Big Flat" furnished a good illustration of why some well-meant efforts in tenement building have failed. Like Gotham Court, it was originally built as a model tenement, but speedily came to rival the Court in foulness. It became a regular hot-bed of thieves and peace-breakers, and made no end of trouble for the police. The immediate reason, outside of the lack of proper supervision, was that it had open access to two streets in a neighborhood where thieves and "toughs" abounded. These took advantage of an arrangement that had been supposed by the builders to be a real advantage as a means of ventilation, and their occupancy drove honest folk away. Murderers' Alley, of which I have spoken elsewhere, and the sanitary inspector's experiment with building a brick wall athwart it to shut off travel through the block, is a parallel case.

7. The causes that operate to obstruct efforts to better the lot of the tenement population are, in our day, largely found among the tenants themselves. This is true particularly of the poorest. They are shiftless, destructive, and stupid; in a word, they are what the tenements have made them. It is a dreary old truth that those who would fight for the poor must fight the poor to do it. It must be confessed that there is little enough in their past experience to inspire confidence in the sincerity of the effort to help them. I recall the discomfiture of a certain well-known philanthropist, since deceased, whose heart beat responsive to other suffering than that of human kind. He was a large owner of tenement property, and once undertook to it out his houses with stationary tabs, sanitary plumbing, wood-closets, and all the latest improvements. He introduced his rough tenants to all this magnificence without taking the precaution of providing a competent housekeeper, to see that the new acquaintances got on together. He felt that his tenants ought to be grateful for the interest he took in them. They were. They found the boards in the wood-closets fine kindling wood, while the pipes and faucets were as good as cash at the junk shop. In three months the owner had to remove what was left of his improvements. The pipes were cut and the houses running full of water, the stationary tubs were put to all sorts of uses except washing, and of the wood-closets not a trace was left. The philanthropist was ever after a firm believer in the total depravity of tenement-house people. Others have been led to like reasoning by as plausible arguments, without discovering that the shiftlessness and ignorance that offended them were the consistent crop of the tenement they were trying to reform, and had to be included in the effort. The owners of a block of model tenements uptown had got their tenants comfortably settled, and were indulging in high hopes of their redemption under proper management, when a contractor ran up a row of "skin" tenements, shaky but fair to look at, with brown-stone trimmings and gewgaws. The result was to tempt a lot of the well-housed tenants away. It was a very astonishing instance of perversity to the planners of the benevolent scheme; but, after all, there was nothing strange in it. It is all a matter of education, as I said about the landlord.

8. That the education comes slowly need excite no surprise. The forces on the other side are ever active. The faculty of the tenement for appropriating to itself every foul thing that comes within its reach, and piling up and intensifying its corruption until out of all proportion to the beginning, is something marvellous. Drop a case of scarlet fever, of measles, or of diphtheria into one of these barracks, and, unless it is caught at the very start and stamped out, the contagion of the one case will sweep block after block, and half people a graveyard. Let the police break up a vile dive, goaded by the angry protests of the neighborhood--forthwith the outcasts set in circulation by the raid betake themselves to the tenements, where in their hired rooms, safe from interference, they set up as many independent centres of contagion, infinitely more destructive, each and every one, than was the known dive before. I am not willing to affirm that this is the police reason for letting so many of the dives alone; but it might well be. They are perfectly familiar with the process, and entirely helpless to prevent it.

9. This faculty, as inherent in the problem itself--the prodigious increase of the tenement-house population that goes on without cessation, and its consequent greater crowding--is the chief obstacle to its solution. In 1869 there were 14,872 tenements in New York, with a population of 468,492 persons. In 1879 the number of the tenements was estimated at 21,000, and their tenants had passed the half-million mark. At the end of the year 1888, when a regular census was made for the first time since 1869, the showing was: 32,390 tenements, with a population of 1,093,701 souls. To-day we have 37,316 tenements, including 2,630 rear houses, and their population is over 1,250,000. A large share of this added population, especially of that which came to us from abroad, crowds in below Fourteenth Street, where the population is already packed beyond reason, and confounds all attempts to make matters better there. At the same time new slums are constantly growing up uptown, and have to be kept down with a firm hand. This drift of the population to the great cities has to be taken into account as a steady factor. It will probably increase rather than decrease for many years to come. At the beginning of the century the percentage of our population that lived in cities was as one in twenty-five. In 1880 it was one in four and one-half, and in 1890 the census will in all probability show it to be one in four. Against such tendencies, in the absence of suburban outlets for the crowding masses, all remedial measures must prove more or less ineffective. The "confident belief" expressed by the Board of Health in 1874, that rapid transit would solve the problem, is now known to have been a vain hope.

10. Workingmen, in New York at all events, will live near their work, no matter at what sacrifice of comfort--one might almost say at whatever cost, and the city will never be less crowded than it is. To distribute the crowds as evenly as possible is the effort of the authorities, where nothing better can be done. In the first six months of the present year 1,068 persons were turned out of not quite two hundred tenements below Houston Street by the sanitary police on their midnight inspections, and this covered only a very small part of that field. The uptown tenements were practically left to take care of themselves in this respect.

11. The quick change of economic conditions in the city that often outpaces all plans of relief, rendering useless to-day what met the demands of the situation well enough yesterday, is another cause of perplexity. A common obstacle also--I am inclined to think quite as common as in Ireland, though we hear less of it in the newspaper--is the absentee landlord. The home article, who fights for his rights, as he chooses to consider them, is bad enough; but the absentee landlord is responsible for no end of trouble. Be was one of the first obstructions the sanitary reformers stumbled over, when the Health Department took hold. It reported in 1869 that many of the tenants were entirely uncared for, and that the only answer to their requests to have the houses put in order was an invitation to pay their rent or get out. "Inquiry often disclosed the fact that the owner of the property was a wealthy gentleman or lady, either living in an aristocratic part of the city, or in a neighboring city, or, as was occasionally found to be the case, in Europe. The property is usually managed entirely by an agent, whose instructions are simple but emphatic: Collect the rent in advance, or, failing, eject the occupants." The Committee having the matter in charge proposed to compel owners of tenements with ten families or more to put a housekeeper in the house, who should be held responsible to the Health Department. Unluckily the powers of the Board gave out at that point, and the proposition was never acted upon. Could it have been, much trouble would have been spared the Health Board, and untold suffering the tenants in many houses. The tribe of absentee landlords is by no means extinct in New York. Not a few who fed from across the sea to avoid being crushed by his heel there have groaned under it here, scarcely profiting by the exchange. Sometimes--it can hardly be said in extenuation--the heel that crunches is applied in saddening ignorance. I recall the angry indignation of one of these absentee landlords, a worthy man who, living far away in the country, had inherited city property, when he saw the condition of his slum tenements. The man was shocked beyond expression, all the more because he did not know whom to blame except himself for the state of things that had aroused his wrath, and yet, conscious of the integrity of his intentions, felt that he should not justly be held responsible.

12. The experience of this landlord points directly to the remedy which the law failed to supply to the early reformers. It has since been fully demonstrated that a competent agent on the premises, a man of the best and the highest stamp, who knows how to instruct and guide with a firm band, is a prerequisite to the success of any reform tenement scheme. This is a plain business proposition, that has been proved entirely sound in some notable instances of tenement building, of which more hereafter. Even among the poorer tenements, those are always the best in which the owner himself lives. It is a hopeful sign in any case. The difficulty of procuring such assistance without having to pay a ruinous price, is one of the obstructions that have vexed in this city efforts to solve the problem of housing the poor properly, because it presupposes that the effort must be made on a larger scale than has often been attempted.

13. The readiness with which the tenants respond to intelligent efforts in their behalf, when made under fair conditions, is as surprising as it is gratifying, and fully proves the claim that tenants are only satisfied in filthy and unwholesome surroundings because nothing better is offered. The moral effect is as great as the improvement of their physical health. It is clearly discernible in the better class of tenement dwellers to-day. The change in the character of the colored population in the few years since it began to move out of the wicked rookeries of the old "Africa" to the decent tenements in Yorkville, furnishes a notable illustration, and a still better one is found in the contrast between the model tenement in the Mulberry Street Bend and the barracks across the way, of which I spoke in the chapter devoted to the Italian. The Italian himself is the strongest argument of all. With his fatal contentment in the filthiest surroundings, he gives undoubted evidence of having in him the instinct of cleanliness that, properly cultivated, would work his rescue in a very little while. It is a queer contradiction, but the fact is patent to anyone who has observed the man in his home-life. And he is not alone in this. I came across an instance, this past summer, of how a refined, benevolent personality works like a leaven in even the roughest tenement-house crowd. This was no model tenement; far from it. It was a towering barrack in the Tenth Ward, sheltering more than twenty families. All the light and air that entered its interior came through an air-shaft two feet square, upon which two bedrooms and the hall gave in every story. In three years I had known of two domestic tragedies, prompted by poverty and justifiable disgust with life, occurring in the house, and had come to look upon it as a typically bad tenement, quite beyond the pale of possible improvement. What was my surprise, when chance led me to it once more after a while, to find the character of the occupants entirely changed. Some of the old ones were there still, but they did not seem to be the same people. I discovered the secret to be the new housekeeper, a tidy, mild-mannered, but exceedingly strict little body, who had a natural faculty of drawing her depraved surroundings within the beneficent sphere of her strong sympathy, and withal of exacting respect for her orders. The worst elements had been banished from the house in short order under her management, and for the rest a new era of self-respect had dawned. They were, as a body, as vastly superior to the general run of their class as they had before seemed below it. And this had been effected in the short space of a single year.

14. My observations on this point are more than confirmed by those of nearly all the practical tenement reformers I have known, who have patiently held to the course they had laid down. One of these, whose experience exceeds that of all of the rest together, and whose influence for good has been very great, said to me recently: "I hold that not ten per cent. of the people now living in tenements would refuse to avail themselves of the best improved conditions offered, and come fully up to the use of them, properly instructed; but they cannot get them. They are up to them now, fully, if the chances were only offered. They don't have to come up. It is all a gigantic mistake on the part of the public, of which these poor people are the victims. I have built homes for more than five hundred families in fourteen years, and I have been getting daily more faith in human nature from my work among the poor tenants, though approaching that nature on a plane and under conditions that could scarcely promise better for disappointment." It is true that my friend has built his houses in Brooklyn; but human nature does not differ greatly on the two shores of the East River. For those who think it does, it may be well to remember that only five y ears ago the Tenement House Commission summed up the situation in this city in the declaration that, "the condition of the tenants is in advance of the houses which they occupy," quite the severest arraignment of the tenement that had yet been uttered.

15. The many philanthropic efforts that have been made in the last few years to render less intolerable the lot of the tenants in the homes where many of them must continue to live, have undoubtedly had their effect in creating a disposition to accept better things, that will make plainer sailing for future builders of model tenements. In many ways, as in the "College Settlement" of courageous girls, the Neighborhood Guilds, through the efforts of the King's Daughters, and numerous other schemes of practical mission work, the poor and the well-to-do have been brought closer together in an every-day companionship that cannot but be productive of the best results, to the one who gives no less than to the one who receives. And thus, as a good lady wrote to me once, though the problem stands yet unsolved, more perplexing than ever; though the bright spots in the dreary picture be too often bright only by comparison, and many of the expedients hit upon for relief sad makeshifts, we can dimly discern behind it all that good is somehow working out of even this slough of despond the while it is deepening and widening in our sight, and in His own good season, if we labor on with courage and patience, will bear fruit sixty and a hundred fold.

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