A Comprehensive Scheme for Street Improvements in London, accompanied by maps and sketches

Front matter

A COMPREHENSIVE SCHEME KOK STREET IMPROVEMENTS IN LONDON A COMPREHENSIVE SCHEME FOR STREET IMPROVEMENTS IN LONDON ACCOMPANIED by Maps and Sketches BY AETHUB CAWSTON, A.E.I.B.A. " Humanity may endure the loss of all things — all but the possibility of improvement A — FlCHTE LONDON: EDWARD STANFORD 26 and 27 COCKSPUR STREET, CHARING CROSS, S.YV Cn mir jfclloto (Totonsmcn <«0 3-1 PEEEACE. London is often described as ugly, but it is not past redemption. Though ill-proportioned and shapeless, it has a noble river, unrivalled parks, a few fine buildings ; and it may be possible to evolve out of the chaos of its streets a city which will be a worthy capital of the world. The literature relating to London discloses no practical method for effecting this, and the object of the present work is to attempt to indicate in what way our metropolis can best be remodelled without placing an intolerable burden on the shoulders of any of its inhabitants.

AVhy this has hitherto been impossible is due to the fact that London has never possessed a real municipality, and has consequently lacked the unity of purpose and common pride that effective self-government alone can give. Nearly sixty years ago our provincial towns received corporate life under the Municipal Corporations Act, but it was not until the present Session that there has appeared any near prospect of disjointed London sharing in the benefits of municipal government. A Royal Commission is now actually formulating the method by which the ancient and exclusive Corporation of that square mile in our midst called the City, can be expanded to take in all London. It

Preface

. VIII our and the 3 laid therefore appears probable that for the first time a prospect of improving street system in a statesmanlike and comprehensive manner will be afforded, if this book can furnish any practical help, however small, in this great work author will be amply repaid for the labour bestowed upon it. In sending* it forth he tenders his thanks to those writers whom he has under contribution in its pages. 13 Queen Anne's Gate, S.W. May 1893. CONTENTS.

Chapter I. Reasons For Improvement

PAGE Combination and harmony necessary before improvement possible — Paris in 1750 — London in 1700 — London's decline — Benefits from improvements to health, traffic, labour, generally .. .. .. 1

Chapter II. The Example Of Paris And Of Other Towns

Paris the pioneer of adequate city reforms — Principles of Parisian improvements — Vienna, late Emperor's decrees with reference to improvements, present progress towards completion — Berlin, a city without a slum— Land laws in Prussia — Glasgow, extensive improvement inaugurated in 1865 — Birmingham, central area splendidly transformed — The lesson from these leading towns .. .. 13 CHAPTER HI. THE POWERS NECESSARY FOR LONDON TO REGENERATE ITSELF. The progress of municipal socialism — Impossible to regenerate London until full powers are given- Advantages and drawbacks of Parliamentary interference — Lines on which regeneration might proceed — Urgency for reforming our present system of compensation— Powers over land which are necessary to the municipality .. .. .. .. .. .. .. .. .. .. 27

Chapter IV. The Advantages Of Adopting

A GENERAL SCHEME IN MAKING IMPROVEMENTS. Present difficulties have arisen from leant of general scheme of improvement — Advantages of general scheme: 1. For discovering causes of present inconveniences ; 2. For producing lest improvements .- (a) complete utilization of every district for most valuable purpose ; (b) creation of judiciously placed continuous arteries ; 3. For producing improvements speedily ,* 4. For producing improvements cheaply; 5. For æsthetic reasons.- (a) avoiding interference with ancient monuments; Qj) raising municipal enthusiasm .. .. .. .. .. .. .. .. .. .. 38 b CONTENTS. X

Chapter V. Suggestions Towards The Formation Of

A GENERAL PLAN FOR IMPROVING LONDON. Six general principles — 1. Open out parks — 2. Open up crowded districts — 3. Create more main arteries (of) sufficiently wide (b) straight and uniform in width (c) without steep gradients (d) each an integrant part of whole scheme (e) with convenient and safe street junctions — 4. Provide additional bridges — 5. Facilitate approaches to railway termini — 6. Open out public buildings .. .. .. .. 42

Chapter VI. The Application Of The Suggestions, And The Sequence In Carrying

OUT IMPROVEMENTS. Formation of draft improvement plan — Details of some proposed new streets and some difficulties — Description of Ordnance sheet — Criticism of Council Broadway — Description of map of Paris — Two methods of advancing improvements — By increasing width of present thoroughfares — By avoiding interference with existing thoroughfares until others are formed — Seasons in favour of each method .. .. .. .. .. .. .. .. .. .. .. .. 65

Chapter VII. The Cost, And How To Meet It

Cost the final test — Extravagance of borrowing — Unjustifiable for street improvements — Various sources apart from rates from which money might be raised, gas, water, trams, docks, municipalization of land — Impossibility of poorer ratepayers contributing — Suggested rates (1) graduated death duty on land (2) on buildings (3) graduated improvement rate on occupiers — Minor sources, from nation, from omnibus and cab companies, from railway, gas, and water companies .. .. .. .. .. 77

Appendix

I. EVIDENCE OF THE RIGHT HON. JOSEPH CHAMBERLAIN, M.P., GIVEN BEFORE THE ROYAL COMMISSION ON THE HOUSING OF THE WORKING CLASSES, JUNE 1884 •• •• •■ .. .. .. .. .. .. .. .. .. 91

APPENDIX.

II. PRIZE COMPETITION FOR A GENERAL IMPROVEMENT PLAN OF THE CITY OF VIENNA .. .. .. .. .. .. .. .. .. .. .. 121 INDEX LIST OF ILLUSTRATIONS. MAPS. Central London, to the 25-inch scale . . . . . . . . . . - - 1 London from Kensington to whitechapkl, to the 6-inch scale . . . .

I In pocket Paris within the walls, to the 6-inch scale . . . . . . . . . . ) plates. io face PAGE Sketch for suggested retail market .. .. .. .. ... .. .. 11 Place de la concorde, Paris . . . . . . . . . . . . . . . . 13 Place de la republique, Paris .. .. .. .. .. .. .. .. 18 Franzen's ring strasse, Vienna .. .. .. .. .. .. .. .. 19 Maps of the inner city of Vienna, 1857 and 1887 . . . . . . . . . . 20 Elizabeth bridge and fruit market, Vienna .. .. .. .. .. .. 22 Municipal buildings, Glasgow 24 Municipal buildings and art galleries, Birmingham 26 Specimens of London lamp-posts, 1870 and 1890 .. .. .. .. .. 32 Sketch design for opening out gray's inn, London . . . . . . . . . . 39 Sketch design for opening out St. james' park, London .. .. .. .. 51 Sketch for opening out hyde park, London 52 Sketch for opening out Lincoln's inn, London . . . . . . . . . . . . 54 Sir Christopher Wren's plan for rebuilding London . . 56 pont de la concorde, paris . . . . . . . . . . . . . . . . . . 57 Plan of Trafalgar square as lately altered, and as it might have been improved . . . . . . . . . . . . . . . . . . . . . . 60 Plan of regent circus .. 61 Griffin street, Waterloo station, as it should be . . . . . . . . . . %■> Palais de justice, Brussels 63 Sketch design for opening out the temple 67 Sketch design for completing the southern embankments of the Thames .. 69 Sketch design for completing the southern embankments from new bridge .. 70 Bond point, Champs- Elysees, Paris 73 Place de la bastille, Paris 83 The courtyard of the privy council offices, London A COMPREHENSIVE SCHEME FOR STREET IMPROVEMENTS IN LONDON.

Chapter I. Reasons For Improvement

Combination and harmony necessary before improvement possible — Paris in 1750 — London in 1700 — ■ London's decline — Benefits from improvements to health, traffic, labour, generally. None of us really know the great capital in which we live. In some ways magnificent, it has more squalid streets, more regions destitute of hope, than can perhaps be found within similar limits in any other part of the world. London is so large, so shapeless, that no one person can really know its wants or the needs of its people. Working amongst its poor is an army of Samaritans and Reformers, and from time to time a voice is raised for some improvement in the environment of the masses. Moved as we may be at the moment, we soon fall back into our old groove, taking no steps which will permanently benefit our people or our town.

If we could only combine, the energy that is now largely frittered away in individual effort might then become potent for good. There seems to be no absolute reason why millions of our fellow beings should continue to live in the miserable squalor that now surrounds them — other towns have to some extent regenerated themselves, and if the right path leading to the regeneration of London can be indicated, doubtless many will gladly take up a work so vital to the welfare of the whole community. A century ago Paris was even in a worse position than London, and Voltaire expressed the common feeling of shame so powerfully that his words incited the Parisians of his day to a combined effort for the improvement of their city. Voltaire wrote : — " We possess the wherewithal to purchase Kingdoms, we see every day what is wanting to our Capital, and we content ourselves with murmuring. . . .

We rush to the theatres, and are indignant on entering them in a manner so inconvenient and so disgusting, to be so uncomfortably seated there, and to leave them with B more trouble and confusion than when we entered. We blush, rightly, to behold public markets established in narrow streets, spreading dirt and infection. We have only two fountains in good taste, and they are far from being advantageously situated ; all the others are worthy of a village. Immense districts require open spaces, and the centre of the town, obscure, confined, hideous, represents a period of the most shameful barbarism. We say this without ceasing, but until when shall we say it without remedying it ? . . . The meanness of ideas, the fear, still more mean, of a necessary expenditure, rise up to contend with those projects of grandeur which every good citizen has made to himself a hundred times.

We are discouraged on thinking what it will cost to raise these necessary monuments, the greater number of which, becoming every day indispensable, must be executed in the end, whatever they may cost, though, in the main, it is very certain that they will cost nothing to the State. . . . What ! shall it be only at the last extremity that we do something great ? If half Paris were burnt down we should rebuild it, rendering it superb and commodious, and we are not willing to give it, to-day, at a thousand times less cost, the accommodation and magnificence which it needs ! Yet a similar enterprise would redound to the glory of the Nation, would be an immortal honour to the municipality, would encourage all the Arts, and, far from impoverishing, would enrich the State. It would, moreover, accustom to work a thousand worthless loafers, who sustain a miserable life in the infamous trade of begging, and who still contribute to dishonour our Capital. . . .

May Heaven send some man, some states man, sufficiently zealous to undertake such projects, with a mind sufficiently firm and enlightened to carry them out ; and that he may have trust enough reposed in him to make them a success ! If, in our immense City, no one can be found to do this, if we are contented to talk of it at table, to utter useless vows, or, may be, impertinent pleasantries, ' il faut pleurer sur les ruines de Je'rusalem.' ' Substitute the word " trains " for " theatres " in this despairing appeal, and one might almost suppose the words were put together to describe the London of to-day. Contrast with Voltaire the following description of London, as given by Edward Hatton in 'A New Review of London,' published in 1708 : — "London is the most ancient, spacious, populous, rich, beautiful, noble city that we know of in the world. 'Tis the seat of the British Empire ; the Exchange of Great Britain and Ireland ; the Compendium of the Kingdom ; the Vitals of the Commonwealth ; and the principal Town of traffic that I can find accounted of by any of our Geographers."

Clearly, in Hatton's time, London was commodious and its streets well adapted to the needs of those days. Then its citizens must have been men of breadth and intelligence, who clearly saw their necessities and determined to fulfil them, and if this spirit had been maintained with London's growth, Voltaire's words would THE DEATH-RATE IN LONDON. 3 never have been applicable to it. But the reverse of this has been the case, and many an attempt has been made to suggest how the inadequate street system of London can be transformed so as to meet the expanding requirements of the present day. The remedy apparently has not yet been found, and the probability that London is now for the first time about to acquire a satisfactory and powerful Municipal Government, seems to make it desirable that yet another attempt should be made.

It will be well first to consider both the losses caused by inadequate streets, and the benefits to be gained by improving them. This can best be done under the heads of Health — Traffic— the Labouring Classes— General benefits. 1. HEALTH. " Life in a modern city should not be an evil or a misfortune for any class. There should be such sanitary arrangements and administration as to make the death-rate of a great city smaller than that of the nation as a whole. There should be such educational facilities as to insure to all the young people of a city the most suitable physical, intellectual, andindustrial training." * We in London are risino; to some faint perception of these truths, which are being gradually brought home to us by the improved material conditions which exist in many of our more energetic and progressive provincial towns.

No doubt some works have also been accomplished in London, reducing its death-rate ; but the death-rate of those districts of London where the population is most dense is still far greater than the death-rate in any of the principal cities in Europe. In the whole of the central districts, for instance, the death-rate in 1891 was 27 "6 per thousand, whilst, according to a report to the London County Council, the death-rate for the year 1890 in portions of the crowded district of Bethnal Green, is stated to have been 40 per thou sands It is just in these districts that one of the greatest dangers to the health of London lies. They are the spots on which epidemic diseases fasten, and until they are transformed, progress in lessening the general death-rate will continue to be arrested. Not only so, but London, which was once in the van of sanitary progress, has lost her place, and until the remedy be found will lull farther and farther behind cities to which she formerly showed the way.

The following figures are taken from the annual summaries of deaths issued by the Registrar-General since 1874, from which date the death-rates of foreign cities have been included in the summaries. * " How London is Governed," by Albert Shaw, 'Century Magazine,' Nov. 1890, f ' Annual Report of L.C.C. for 1891,' p. 38. B Death-rate in Twelve Leading European Cities in 1874 and 1890-1. These figures clearly show the improvement that has taken place in many large cities, and they also show that no material alteration has taken place in the health of London and Paris during the same period. The reason of this may perhaps be found in the fact that radical changes were being made in those cities which show marked improvement, while in London and Paris little change took place during that period.

For instance, between the years 1880 and 1890, Glasgow transformed about ninety acres of slums. In order to give an idea of the beneficial results of this work on the health of that city beyond what is stated above, I cannot do better than quote from that most interesting book, ' Vital, Social, and Econo mical Statistics of the City of Glasgow, 1885 to 1891,' by James Nicol, City Chamberlain. " The table of the total mortality of the city in the last ten years exhibits, when compared with the preceding decade, most gratifying, in truth remarkable, results touching the health of the people of Glasgow, and is eloquent testimony to the success of the great municipal work carried out by the City Improvement * During the years 1890-1 influenza was prevalent in parts of Europe, and affected the death-rate materially.

For this reason, where the rate seriously differed in any city during these two years, the lower rate is quoted as being closer to the normal rate. Cities. 1874. 1890-1.* Decrease of Death-rate. 1. Berlin 32-9 per 1000. 20-9 per 1000 12-0 per 1000. 2. Liverpool 32-0 „ 23-6 „ 8-4 „ 3. Birmingham . . i • • 26-8 „ 19-7 7'1 „ 4. Hague 26-5 „ 19-5 „ 7-0 „ 5. Glasgow 31-1 „ 25'3 ,, 5-8 „ 6. Turin 26-7 22-8 3-9 „ 7. Rome 27-5 „ 23-6 „ 3-9 „ 8. Brussels 23'9 ,, 2U5 ,, 2-4 „ 9. London 22-5 ,, 20-3 „ 2 2 „ .0. Paris . . 22'4 „ 21-6 0-8 „ 1. Vienna . . 24-6 „ 24' 6 Nil. Increase. 2. Dublin .. .. 26-0 26-5 „ 0-5 per 1000. IMPROVEMENTS IN OTHER TOWNS AND CITIES. 5 Trustees in breaking up the dense and foetid closes in the old and central districts of the city ; * of the sanitary conditions enforced by the depart ment on health ; and of the drastic measures applied for the arrest of infectious disorders.

"In the decade 1871-1880, with a population averaging 494,574, the deaths per annum were . . . . . . 14,303 And in the last decade 1881-1890, when the population averaged 537,000, the yearly number of deaths was . . 13,132 Giving a diminution per annum to the credit of last decade of . . . . . . . . . . . . 1,171 Add for the difference of population . . . . . . 100 And we have an annual saving of lives of . 1,271 " Similar good results followed the comprehensive improvements in Birmingham, which were also undertaken during the period referred to. Mr. Chamberlain's evidence on this point, given before the Royal Commission on the Housing of the Working Classes, contains striking testimony to this.f During this same period, sanitary and street improvements were being vigorously carried out in Berlin, Liverpool, and the Hague.

No doubt these great strides in improvement were taken owing to the example of London and Paris. London had, before this period, by the construction of her great sewerage works and other sanitary improvements, reduced her death-rate materially, and Paris, by abolishing her slums, and transforming herself into a city of wide and beautiful streets, had also reduced hers. During the later period above referred to, both London and Paris rested more or less on their onward march, for no one can believe that the London death-rate of 20 '3, or the Paris death-rate of 21 • 6, indicates the ultimate ' goal of sanitary reform. Many of us, indeed, believe in the possibility of reducing these figures to one-half. That this is no mere dream is shown by the death-rate of Hampstead, which is 14 • 7, and by the striking experience of the Artizans' Dwellings Company, which is able to boast of a death-rate in its tene ment blocks of 12 "85.

If then we are to keep pace with what is being done for the health of towns people elsewhere, the most urgent necessity at the present moment is obviously the adoption of a scheme under which our dense and thickly-populated slums can * The work of'this trust is described in Chapter II. t See Appendix I., Questions 12,394, 5 and 6. gradually be transformed into broad arteries and lofty blocks of dwellings. Such a system is undoubtedly the healthiest and most convenient means of accommo dating the population of large towns, for the wide roads not only continually change and purify the atmosphere around every home, but at the same time provide accommodation for the ever-increasing traffic. Neither of these benefits can possibly be procured by means of narrow streets flanked by low buildings, which under our present policy are created in all directions.

Moreover, although our streets are always narrow, the buildings in them are not always low. The result of this is indicated by the fact that the School Board visitors can tell whether a child lives at the top or bottom of a block of dwellings, so much is it visibly affected by living without sunshine in the stagnant and polluted air around the lower part of buildings situated in narrow and ill-ventilated streets.* Assuredly, then, if this policy be continued, not only will the health of our capital suffer incalculably, but the cost of providing a remedy in the future will be vastly greater than that of securing one now. 2. TRAFFIC. Every omnibus and cab that uses the main streets of the City of London and its approaches is delayed on an average half an hour every day, through blocks and partial blocks.

From the same cause, every van that passes through its narrow lanes is delayed on an average at least an hour and a half. The number of vehicles that passed into the City on May 4th, 1891, was 92, 372. f Calculating this waste of time on 50,000 vehicles only, the loss in money amounts to at least five thousand pounds a day, or a million and a half a year. In addition to this, there is an enormous loss of time from the same cause to business men and others, the money value of which it is impossible to calculate. An attempt has been made to find an artificial remedy so far as the unloading of vans is concerned, by a provision in the Metropolitan Streets Act of 1867, which forbids vans to stand for longer time than is necessary to load and unload. This provision, however, increases rather than lessens the blocks in the streets, as the carters walk their horses with their heavy loads up and down the streets, awaiting their turn to discharge.

Another clause of this Act attempts to minimise the difficulty by forbidding timber or other lengthy merchandise from being carried through narrow streets during certain hours ; and a further clause prevents traffic * ' Boyal Commission on the Housing of the Working Classes,' Question 2282. f ' Ten Years' Growth of the City, 1881-1891.' James Salmon. LOSSES FROM DELAYS TO TRAFFIC. 7 from the North or East passing through certain streets, while other streets are similarly blocked against traffic from the South or West. Inadequate streets necessitate an excessive number of constables to regulate the traffic and prevent loss of life. Sixteen constables are daily required to regulate the traffic at the point where Southampton Row and Little Queen Street meet Holborn. Even with all possible care, street accidents are persistently increasing.

In the year 1881, the number killed and wounded in the streets of London was 3527, whilst in 1891 the number had risen to 5784, although in the meantime the police force had been increased from 11,699 to 15,038.* Judicious street improve ments will obviously remove most of these difficulties, and materially reduce the number of accidents. For instance, traffic, both vehicular and foot, quite as heavy as that of the congested Strand, freely passes through Whitehall without police regulation, and almost without accident. Not only do many existing streets want widening, but new and more direct routes should be provided for diverting much of the present traffic from over crowded thoroughfares. For instance, if the northern side of St. Paul's Cathedral were widened and thrown open to vehicular traffic, the present indirect way round the south and east of the Cathedral would not remain the route for the traffic going eastward from Ludgate Hill to Cheapside.

Again, if a new street were made direct from Charing Cross to Rosebery Avenue, the omnibus traffic to Islington would probably not make the present detour by Fleet Street and Chancery Lane. If Piccadilly were continued eastwards by a broad street parallel to Covent Garden, as shown on my plan, all the traffic from Kensington would probably no longer find its way to the crowded Strand. There is another and growing consideration that ought not to be overlooked. Most of our main thoroughfares are absolutely unsuitable for tramways — a mode of conveyance which is undoubtedly a boon to the working poor, and a convenience to most. Although differences of opinion may exist as to whether trams should be admitted into the centre of London, even where the roads are of ample width, there cannot be two opinions as to the advisability of encouraging them from the suburbs to termini as near the centre as practicable.

It is true that existing tramways are a danger in many parts, such for instance as those in the Walworth Road ; West minster Bridge Road ; Nine Elms Lane ; Old Street, St. Luke's ; and, of all places, in one of our newest thoroughfares, the Clerkenwell Road ! This, however, is no argument against tramways, but is a powerful reason for improving our streets in a sufficiently liberal manner to meet the inevitable growth of all sorts of traffic. * ' Annual Reports of the Commissioner of Metropolitan Police.' 3. THE LABOURING CLASSES. We are all used to the cry, now periodically raised, that occupation must be provided for the unemployed ; and with that cry most of us have sympathy. It is, however, a question of great import whether or not it is sound policy to create work which is not admittedly of permanent benefit to the community at large, in order to give employment.

Any well-considered scheme, on the contrary, would have a healthy effect in stimulating trade and inducing prosperity. I can think of nothing that would have a better effect on the prosperity of a town, and on the well-being of its industrial classes, than the carrying out of a well-considered scheme for its material improvement. Such a scheme could go on uninterruptedly from year to year, with such occasional developments as periods of exceptional depression demanded. It is not too much to say that there is hardly any branch of industry that would not be more or less beneficially affected by it. This must be apparent to any one who will even casually consider the great number of trades which are brought into play by the removal of existing properties, the formation of new streets, and the erection and furnishing of buildings on the new frontages.

Rightly considered, the money actually spent in work of this character is pure gain to the community. Not only does it provide an investment for capitalists, work and wages to industry, and profit to all the many employers who supply the labouring class with the necessaries of life, but the community has usually, in the improvement itself, excellent and permanent value for the money spent. Next to the actual production of wealth from the soil, there is perhaps no form of expenditure which brings greater prosperity, or more lasting benefit, than that employed in the permanent improvement of towns. How much better is this than attempts to create, in times of labour crises, special devices for employing the unemployed ; for in these there is admittedly a pauperizing effect which is permanently injurious to the class they are intended to aid.

It may be urged that one of the effects of carrying out improvements on a large and systematic plan in London will be the attraction of labour from other towns, thus adding to the over-stocked labour market of the metropolis. It is true this might be the effect at first, but the general influence on labour would be wholly beneficial, for there can be little question that when London steadfastly begins its work of regeneration all the other towns will surely follow. Emulation will rapidly and inevitably have its stimulating effect, even on the least enterprising, and, as will be shown in the next part of this chapter to have been the case elsewhere, BENEFITS TO THE WORKING CLASSES. 9 the powerful example of the metropolis will continue to be followed, in the future as in the past, throughout the whole of the country.

In Chapters IV. and V. an attempt will be made to show that the true solution of the question of housing the working classes in London does not lie wholly in the direction of tempting them to the suburbs, nor wholly in the reconstruction of the slums on their present costly sites. It may be found possible to provide dwellings quite as healthy and pleasant as in any suburb, on suitable sites within a mile of those central districts where work chiefly lies. If, in doing this, we can at the same time find work for the worker and employment for the unemployed, we shall be doing that which must be an unmixed good to the community. 4. GENERAL BENEFITS. Not only local convenience, but national dignity, demands that our metropolis should be improved. A well-known English writer, Mr. Hamerton, has summed up foreign criticism of London as follows : — " Foreign critics are usually so horrified by London smoke, and by the ugliness of our ordinary houses, that they become in capable of perceiving beauty even where it really exists, and confound all things together in indiscriminating, unsparing condemnation." * After living ten years in England, a very intelligent Frenchman, " Max O'Rell," writes thus : — " If nothing is more sad and gloomy than out-of-doors life in the large English towns, nothing that I know of is more charming than the interior of a well-kept English house.