<ilhnrles C. Reade, 16th February, 1915. 282

or to defective roofing and guttering, are far ·too common. In inany places visited tenants asserted that nv .repairs had been made for years, and that, if they insisted too strong_ly on improvements, they were threatened with expulsion. • Others stated that tht smallest improvements (kalsomining, &c.) in­variably led to the . addition of 6d. or ls. to the v;eekly ~ent."

Of a two-&.toried tenement in Redfern it is r~htted that, i11 one room, with one niu-row window devoid of glass overlooking a courtyard, and no fireplace, there Jive a mother; four children, the grandmother, and the hHs· band.

Professor Irviue's indictment of conditions in Sydney, far from being overstated, is 011ly too true. I have seen <md inspected houses and conditions in several districts in Sydney which in England would have called fo1• imme· diate condemnation by the health officer. Likewise in Port lV.Ielbourne,. Fitzroy, <tnd Collingwood I have hail an opportunity of inopecting houses wbere there are ·con­ditions 011 all fours with slum house:$ in Engli1<h cities such as Birmingham or Manchester.

Ovc1·crowdin~ and Density in llfeZbou.rnc.

The extent to which overcrowding or a high mortalit.y prevails to-day in Melbourne districts could not be ascer­tained without 11 5pecial census. Of'!icial figures relat1ug to infant or ordi11ary mortality and density of popula· tion per acre deal only with town areas a.s a whole. Results over special areas appear to be unobtainable. Iu England, returns are prepared to show the· average over the whole of a town as well as resultb ove1· a small aren or areas. In the case of ovcrc1·owded are11s, it has shown again and again tl1at, whibt the normal d!path in large towns ranges in the average from 14 to 20 per 1,000, mortality in slum nreas varies from 30 to 40 per- 1,000. In Leeds, for instance (1911 popula· tion, 445,550), the >tverage density per acre is 20.63, whilst in slum areas only tlHl figure varie~ from 250 to 300, and the death rate is 20.26 for the city (itself over· crowded}, and 39.16 per 1,000 in bad insanitary are<ts. Whilst no such figures for the inner zone of Greater Melbourne are available, it is. a fact that density of overcrowding in cent,ral areas is increasing, and in part~ is much too high for public health generally. Fitzroy, ilr 1911, had an average density of 37.14 per acre, which is high in comparison with the already overcrowded city of Lee4s. Taking special areas, and estimating the f)Umber of houses from the detail survey plans of the :Metropolitan Board of Works, we get the following results :- :i".i'C .,

·- -. 11 · _- '. JPitzrop~Number of Dwellings per A.ere.

No. 1 (Fitzroy).-Block bounded by Brunswick, Gert­ru'de, .Napier, and .Webb streets-9.2 acres; density, 40 dwellings per acre.

·No:.,,,? (Col!ingwood) .-Block b(mnded by Huddle, Johnston, Vere, and Campbell streets-14.4 aCl·es; den­sity, 30, dwellings per acre. (See illustt·ation.)

trJ

Two Hunrh·ed and 1'wenty Persons per Acre in Pitzroy. . Forty dwellings per acre, ·With an average fl.ensity of

5.05 per dwelling (1911 average in Fitzroy}, gives a population of 220 per5onf' per acre. In parts of Syd· ney special areas treated in this fashion ·sllow popula· tions varying from 150 to 312 persons per ac·re.

Effect upon Physique. 'fhere are no figures to show what effect on health or

physique is entailed in Fitzroy by overcrowding such a5 the figures suggest. If we take Collingwood, however, where the density averages 30.02, as against 37.14 for Fitzroy, some striking effects are to be shown. The medical officer> of the Education Department of Vie­toria have compiled recently the results of examinatior1 made between boys thirteen years old in Colliugwood and Essendon. These results are as follow> :-

Collingw?od (crowded industrial suburb) .-36 poys examined; height, 56! inches; weight, 78! lbs.

Essen don (residential bnburb} .-41 boys exnmined; height, 57! inches;'weight 89 lbs. ··

ln tl1e average, Er sendon boys thirteen years of age are 1~ inches taller and 10! lbs. heavier.· One cause of this difference is clearly the difference in hou>ing comli­tions.

Essendon averages 6 persons .to 7.2 rooms. .Collingwood averrtges 7.7 persons to 5 rooms. The above figure& are supplied by Dr. Harvey Sutton,

of the Education Department, 'Melbourne. . These indications point clearly to a housing problem 111 Melbourne and Sydney that c111ls for very close in­spe_ction. and "nalysis, as well as legislative power:< w~10h Wlll ennble tl~ose ~e&}JO.Ufiihlc to deal with cxist,ing e\'lls on compreheruuve lines •.

· 1l delaide OvercrotDding. Overcrowded conditions are not peculiar to the two

larger cities. Iu Adelaide, for instance, there is a goou dca~ of ove~crowding aud insanitary housing. The fol· lowwg partiCulars were ascertained recently:-

Grey Ward.-Labourer, wife,. and four children liv­ing in two rooms. No bath or water inside house. Rent, Gs. Room:> very small, and W.C. faces entrance. Sickness prevalent O·I11ong chil­dren.

Gawler Ward.-Cusunl labourer, wife, a11d five children in two ~mall rooms. Bed1·oom fhtmp. H.t\ts aud vermin troublesome. RE1nt, 10s.

Young Ward.-Labourer, wife, and 5even children living in two small hed1·ooms and one very small kitchen-scullorv. Ven small. miserable home; damp >tncl d~tk: Fi.ve ch{ldren down with measles. All thin o.nd pnle. Rent, 13s. per week.

Young W ard.-One i·oom in a house of seven rooms. Occupied by labourer, wife, and four children,

· eldest seven ye11l'S. lhisbrmd ill with lead-poisoning-came from Port Pirie. Motl1er and children also ill. R.ent, 10s. per week. Evel'J· other room occupied either by an individual or fnmilieb, of which there were fom' in the house.

The " Piecemeal " !If ethnrl. Howe'l'er deplorable .it may be to record these things,

the· fact remains that thev arc larl(el v induced and in­tensified by high suburbal1 valn,s. "Under the piece­meal method of town development, t.hc community suffers also in other ways. The practice of owners and agents is to cut the land up to yield the largest return. After complying with the statutory requirements in regard to roads, it is common knowledge that no provision is made for public requirements. If the life· histories of suh· urbt\n sections where ~pecttl!ltion ha» been rife in i\-Iel­bourne aud Sydney were traced, the rnpid iHcl·ease In values and the amonut of >tppropriation of the " un· earned increment " in recent years by individual specu­lators would be known. Personally, I have not lmd the opportunity of doing so in Austrn.lia, but an imli­cntion of the process and its reoults is ttfforded by the particulars obtained from Auekhmd (New Ze~tland) in respect to a suburban block of 30t 11cres, as follows:-

Example of Inc!·ea.ve in Unimproved Value.

1901.-Unimproved value· (£HJO per acre), £3,950. 1903.-Purchased by speculators for £11,500. '£hey spent on road formation, &c., £7,600. 1004-ll . ...:...Estate cut up and sold into lots 40 x iJO,

£35,000. . Profit of first speculators, £15,000.

; 1914.-Conservative estimate of unimproved value of, land by rity. valuer, £78,066. . . ·· .

Between 1905,1I tl10 Auckhtnd city mtepaJ'ers-pn,id £1,703 for h1nd and compensation· to secu~e missing ·rond·· connexions in the above subdivision. :,.,,·, ..

These facts, which were obtained from offlcial SOitrces, afford a striking indication of the effect of piecemeal njethods upon land value,;. lu a, compamtively few years SlJburbJ.l!!L land originally va h•ed at £100 per acre hn.s ri.spn t.Qn!!early £2,000 per acre, .i~:respcetive of improve­ments. < r 'The freehold of the. Ju.ua for the Hampstend Garden Suburb, about 6 miles distant from Chnring

· Ci·oss, London, was purchased in 1905 for £450 per acre.

Public Requireme11ts at 11:1'Ploitation Prir;e$. ,

. Whilst the process continues, of course no provision 1s made by owners. for public purposes. Sites for schools,· recreation parks, public libraries, cadet grounds, railways, or other community necessities are secured, not beforohand at a reas01mble value, h11t at the highest pg~sible price after development has taken place. A fait· indication of what the pnblic has to pay in this respect is given in t-he followmg :- . .

Cost of l~and Prtrchased for Pu.!J!ic School Sites between 1908-1913.

Five years purchase, :Melbourne, 52 acres 2 roods, £24,606.

Five years pnrchnse, Syd11ey, 52 a.cres 2 roods, £111,289. (These figures were supplied by. the Education De­

partments in each State at the request of the writer.) The expenditure tlmt local bodies. have to face is but

::mother instance of the waste entailed thro.ngh the ·ab-· sence of town pbnning 11owers. The city of Havrthorn, for instance, 11t the present time is spending £;1.2,800 in order to obtain prtrks, and remedy, only in a small d~groe, some of the blunders due to "piecemeal" plan-n~ng.:. ...... : . ·

283 Cha.tlu c. il.ea.do, l6tJI February, 1915.

The Obsolete Method. The general effect of suburban expansions proceeding

by piecemeal methods has been touched upon alrea:dy, but emphasis requires to be laid ·upon the uneconomical and unscientific method of endeavouring to regulate the growth of a city by fixing a. statutory width of str~ets and leaving the rest to by-laws and local regulation. The ·results in British cities under the system have been illustrated in a previous section. The results in Aus­tralia show that it produces an inconvenient network of streets, expensive both to construct and maintain. Under town planning sel1emes the cost that is put upon ratepayers in new districts might be materially reduced. The 66 feet or 50 feet road in residential districts, metalled out to full width whenever the local authority can afford it, too often proiluees a dreary, ugl:y, and unclean wa~te. In such drv climates us Victorm and New South Wales they cannot help b!'ling prolific sources of dust. The New South \Vales ln.w fn1strates any attempt to minimize the evil hr insisting that 44 feet of every J'on.d must be lrept clear for tmffic, and, therefore, cannot be tree-planted. Thus a wide surface of ex· pensive and often useless road metal is• exposed to all the usages of rain, sun, wind, wheels, hoofs, and tyres. Insistence upon straight lines for all roails and obstruc­tion to curves, in order to save calculations, ·only aggra­vates the trouble, whilst increasing the cost of develop­ment.

The Pl'esent Law and Town Planning. Taking, for example, the local government hiw in ·Vic­

toria as it stands to-day (with the additional powers conferred in 1914), I find that the future of any town cannot be controlled or directed on town-phmning lines. There is no power, for instance, 'to obtain streets over t.he statutory width, or permit resideutial roads to be less than 50 feet. A local authority cannot define any arens for factories, or practise in the Garden City se~se the limitation of houses to the acre. 'fhe Garden Cit? method of development would be illegal under the Act.

It is true that under the amending Act of last session by-laws eau be made prescribing the minimum area for dwellings, and that this, when enforced, would limit the densitv per 1iCI·e. But the difficulty would be under present co'nditions to put it into practice, so th:ot housing of people' of modest income would be eeonOJmcally po_s­sible. The effect of prescribing a minimum area m new suburban districts, with land parcelled out in small (]Uantities by the foot, mil?ht well defeat the prospects of such housing, and only mcrease the difficulties in tlm built-up areas.

Housing and Town Planning Act Essential. The effort to control and regulate town development

by statutory roacl widths and local by-laws is alto­"'ethcr too inelastic and arbitrary. As a city grows and increases· in population, the result is to land the com­munity in· enormous expense. It affords no adequate prevention; it offers no cure. Cities like Melbourne and Sydney arc at a stage in development when the am_eli­oration of existing evils and defects would be possible by the passina of a Housin" and Town Planning Act on broader and more direct 1incs than existing British legislation. It is not too late to begin. On. tlie, con­trary, town planning •powers now would anticijiat'e tlie dcnilopments that the''pres_cnt. rate of growth mdica~es"' will take place in the next th1rty or forty years. With adequate and enlightened administration by officers ex­pert in the understanding and application of reforma· tive measures affecting land and housing, these powers should lead, in addition, to a lessening of those partieu­lar,conditions which not only deteriorate, but obstruct, the social and intellectual advancement as well as the prosperity of the community.

MAIN POINTS SUMMARIZED.

Before proceeding to deal with recommen~ations, the main conclusive points of this survey and Its different sections may now be summarized as follow:-

1. Town- plannin" and improved housing legislation for Austra1ia is an immediate and practical necessity. Such legislation to embrace both re-planning and pre-planning schemes.

2. He-planning and pre-plitnning ~c~emes. so react upon housing generally that It IS advisable one should not be undert~tken without reference to the other, if economic and efficient aecom· modation for poorer people be the objectiv~e.

3. Where housing is n·ot regarded as one of the ·- fundamental objects in town planning, whe­

ther pre-planning or re-planning, results are not socially or economically advantageous to the community.

4. Where suburban land ,-alues are rendered exces­sively high through the operation of uncon• trolled speculation, overcrowding and increase in rents in centml residential areas of a city ar\) intensified, and tend to render it impos­sible for private enterprise to a<lequ;ttely house­a proportion of people therein at economic rents within their means. This a pp lies hoth to central and outer suburban areas.

r.. Jnsistence upon OYer-wide roads and expensive r;onstrnction, irrcspcetive of the use that such roads are likely to be put to, entails heavier rents and prices tl!an otherwise would be the case.

6. Variation of road widths or building regulation~, under properly designed and duly approved town planning schemes, should be permitted, irrespective of any statutory or .by-law re· quirements; but no such variation of these requireme_nts otherwise should be allowed.

7. Such town planning schemes are more efficient. advantageous, and less costly than the en­deavour to control town improvement and ~;:­tension of statutory or by-law requirements.

8. At .least one-half of the betterment due to any public improvement under town pl~Iming schemes should be secured for the public.

9, Administrative boundaries of town planning authority should embrace lt wide area and be pre-planncd on paper many years in advance of present day re(]Uirements.

10. All public works. and their extensions should be considered and treated as pnrt of the town plan.

11. Provision , of ping, and should be schemes.

special areas for factories, shop­commercial or industrial purposes an integral part of town planning

12. The principle of limitation of houses- to the acre, as legalized by the British Act, provides pre­liminary and essential corrective to housing defects which have become evident or threaten to repeat tliemsclvcs under present methods in Australia.

13. Provision of land for eo public purposes, general utility, and housing should be part of every scheme when required, and such land should be purchasable at the price cm·rcnt prior to a1_1y scheme at its initiatio11.

14. Where municipal lands acquired for the purpose of housing are sold to mdividuals it is expe­dient to covenant iu the deed of sale against over speculation and overcrowding. ··

15. '!'he operations of societies of public utility in England and Europe have materially contri­buted to the lessening of housing evils.

16. Australia should encourage the designing and building of efficient cottages, which can be either let or sold, witllin the means of wage­earners or others of modest income.

. ·. li. Tenement houses should strongly be discouraged,

and the principle of one family one house firmly maintained.

18. Cheap and rapid transit should be an integral part of any scheme of housing.

19. Redistribution of areas partially laid out may be practised with advantage to land-owners and public.

20. The principles of the Garden City movement should be ada1Jtcd to every scheme of town planning or to every new town created in the State.

Object of Recommenda,tions. In order to facilitate the task before Australian cities,

I have sketched out i~ number of recommendations in favour of honsing and town-planning legislation. These recommendations necessarily bear upon the main points of this survey n.s enumerated above. They are sub· mitteii tentatively, and cannot be taken as final or com­plete. One reason which influences their compilation is that it appears highly inadvisable to 11dopt the British Act as 11 hasis for legislation, because £he Act is de­signed to meet a system of l11nd ownershiP, and transfer very different from that of Australia, whilst the proce­dure thereunde:r is so wholly cumbersome and prolonged it might well cheek legitimate building enterprise, and perhaps obstruct town development generally. In this

Charles C. Reade, 16th February, 1915. 284

:espect also very. gre.at di;;crimimt~ion is necessary w~en 1t comes to considermg the practice· of other countncs. However valuable and necessary 'experience of other countries may be in framing legislation, Australian States· each must plan, organize, and develop methods and ad!llinistration in keeping with their particular local mrmtmstances, social ideas, and requirements. These methods and administration must be peculiarly adapted to the climatic, topographical, and other dis­tinct characteristics of· each individual State. Australi!t is a country in which conditions of town life differ so widelv that generalization for the whole becomes im· possible.

However satisfactorily a town-planning measure may be drafted, practical achievements and improvement in the conditions of residential life generally will depend primarily upon the success with which this· process of adaptation is carried out. They will also primarily de­pend upon the particular technical skill, the practical a.hi.lity, and the commercial insight with which schemes are prepared so as to combine the intimate knowledge of local requirements with the wider experience of. the competent town planner. Expert knowledge at all stages is essentiaL 'Vith these considerations in mind, the object of the recommendations may he stated broadly ns follows · (I •

1. To provide a basis on which town planning enact­meats may be framed to suit the conditions and requirements of different States, each according to their special characteristics.

2. To embody iJ?. t~e Act only the principles and po\vers essential to successful and economic administration.

' 3, 'l'o rely on administrative control, skill, and ex­pertence in working out the final and fixed conditions of any scheme according to its particular< circumstances rather than seeking to prescribe such eomlitions by inelastic statutory reqnireme!!ts.

6249, HJI thtl .Clt(l!trman.-Do yon <favour" t.he principle of a minimum allotment for land 1-N o; I think it is too arbitrary from the point of view of housing. · ·

6250. Supposing a person wanted· t.o ·build on a very small allotment, would you prohibit him do~ng s~l~~!Lit W?~ld depend en~irely. on the ne1ghbotmng, cond1t10ns of the district,

6251. Supposing a man had a piec~> of land with a 12-ft. frontage and 24 feet iu dej)th, ;woql~ you allow a house to be built ()n that allot­£i1eiit'~::_Not if there were a number of houses in the,.immediate vicinity of the same character ..

6252. It is hardly a question of the number of houses of. the S'lme size in the locality, because that would not cover up the defects of this one, assuming that is a defect 1-W e_ll, if they we;~ only that size, there you would necessarily (h'q.ve conqitions. approximating to a shun . area~1 lJ'<lri'd the effect of allowing a house to oo built there that size would necessarily produce overcrowding and slumdom.

6253. \Ve have had several <places brought un~ler our notioe in Richmond, Carlton, and South Melbourne, where there are very small allotments like that. There is one case in South Richmond where. there is about a mile square of houses built with about 20 or 24 feet frontages, "'nd ranging from about 30 to 40 fe€t· in depth The streets are '!lery narrow, and this area is pra,c"tically surrounded by a big shopkeeping out­~kirt-would you consider that an evil1_;_I should say it ~as;

6254. Overcrowding is rampant in those parts 1 -Just so.

. 6255. Can you S!i.ggest a remedy to th(\ Ccim­mi.ssion' to deal with ,a position of that sort, in o'rder ~o reform . it~-I think you will find in my report recommendations that will cover ~hat 11oint:

SUMMARY OF. 'TOWN PLANNING PROPOSALS SUBMITTED . TENTATIVELY BY CHARLES C. READE (ORGANIZER AUSTRALASIAN TOWN PLANNING TOUR).

Main Points and ·Recommendations Outlined and Finally Amended.

PRELIMINARY RECOlVIlVIENDATIONS.

1. GREATER MELBOURNE.

(A) ~l'hat tlie passage of a Greater Melbourne Bill should precede the passing of the Town Planning Act. , (B) That a Greater J\lelboume Bill should define a.n inner- zone for the ordinary municipal purposes of the ·Gre>~ter Melbourne Council. and either determine or give power to fix an onter zone for . town planning purposes, similar to that pro'po~cd nnder the Bill for Greater Sydney.

2. STATE GARDEN "SUIHJRB.

That, irrespective of the passage of the proposed Town Planning Act, the Government should· at once take powers to secure a· site; plan :uid develop, and build ll"

model garden suburb within the metropolitan area of J\'[elbourne a.nd suburbs adjoining a.n industrial district, with the object of ascertaining the various types or design&< of cottages or cottage flats whigh can be built within the lowest possible cost consistent with cco· nomical and efficient planning~

3. FAS'J' AND CHEAP ~rRANSIT.

The pt·ovision of fast and cheap transit between new residential· areas and the city or industrial areas shouia be an integral part of every town-planning or housing scheme.

The loss the State might make' in &ubsidizing cheap fares on the railways, or controlling the extension of the .elec,tric car system so as to provide swift transit along the , most direct routes to the outskh:ts, is like~y to be inconsequential compared with the drain on pubhc resources through hospitals, asylums, sanatoria, &c., in­creased police and sanitary inspection, &c., if over· crowding further accumulates in consequence of defec· ti ve means of transit.

TOWN PLANNING ACT.-GENERAL RECOMMENDA 'l'IONS .

. 4. S~MPLIFIED LEGISLATION NECESSARY.

. The passage of. a comprehen&ive Town Planning Act for. Victoria on more direct and simpler .lines than the Britfsh Act 1909, .. to enable local authorities to deal with:- •. 1;,

(a) All undeveloped areas in or adjoining,all towns and cities. ,. .,o·o,

· (b) .Replanuing and redistrib_ution of. atz,e"s ... ~:!}<:\ ownership only very partu~;lly develope~, or ltnd out on paper.

(c) Improvement of overcrowded districts or other areas already built up-to include rehousing.

,(~). :rhe Act to embody only the principle.s and pvwers ~equi~'it'e for administration. ""m "

, grrrnt~ . (C) Administration to be vested in responsible Com­

-missioners, who shall· control all schemes by procedure. regulations, which may. be amended from time to time without reference· to Parliament.

< (D}. All scremes to be prepared by Town .. Pl!lnning Boards appointed bv ·loc:al.authorities and ,responsible to Commissioners. " · · · ·

{E) Essential proviSion& to include :-(a) Variation of existing statutory widths of new

streets un<ler approved schemes only. (b) .M:aximum , height, character, and space about

buildings, including limitation of houses ~o the acre.,

,(c) Provision of speciaJ, areas for factories, &c., securing for the public a proper· portion of betterment due to any town-planning e.cheme.

(d) Power to purchase sites and build garden sub· urbs, secure parks, recreation and. play·

"grounds, open spaces, and deal effectively with slum areas and rehousmg.

(e). Access to and purchase of land for any public purpose under the Act at existing value prior to initiation of any scheme.

(F) Act to provide for cheap loan& over long periods for housing or town planning. purposes to,-,

Local authorities. Approved Societies of Public Utility,

491

285 Charles c. Reade, 16tb Febrnary, 19lli.

(G) Government to appoint one or more experts; who shall draft the Town Planning Act, after· consultation with local authorities or others whom experts deem necessary. The Act to be framed on the basis of these recommendati.:>ns,

NOTE.-It is unwi&e and dangerous to attempt to regu­late housing, town expansion, and other such matters by increased powers to local authorities mainly in the direction of more vigorous ·condemnation of slums, wholesale resumptions, and the imposition of a mini­mum allotment in new areas, with fixed widths of road­ways. Such method. may very well accentuate existing problem~, and produce fresh overcrowding and higher rents in areas built up but not at present insanitary. Modern town planning principles applied to future as well as existing areas are essential.

5. CENTRAL AUTHORITY FOR THE WHOLE 1STATE. Acf to provide for three Commissioners appointed by

Governor in Council, as follows :-(a) Town Planning Comptroller-permanent execu­

tive officer skilled in town planning (chair­man).

(b) Legal officer skilled in local government law and finance.

(c) Municipal officer expert in administration. 6. POWERS OF CENTRAL AUTHORITY.

(A) Power to initiate (in ca&e of negle~t), advise, l<lter, amend, or approve of all town p1anning schemes, housing projects, &c.

(B) Power to authorize loans over long periods for ilousing or town planning purposes to-

(1) A Town Planning Board. (2) A local authority.

_(3) A Society of Public Utility. (C) Final arbiter in all cases of dispute. (D) Power tJ prescribe regulations for the procedure

and conduct of all schemes. NoTE.-The Commissioners with their power~ would

act in a similar capacity as the English Local Govern­ment lloard in respect to town planning schemes and procedure, ·

7."ToWN PLANNING BOARDS. Local Boards to he appointed by municipal councils

for every town or city (except Melbourne and suburbs) to consist of:-

Ja) The mayor (ex officio) and chairman. (b) The municipal engineer. · (c) Three or more councillors (appointed by council).

The Board shall eo-opt:- · (d) Medical health officer (or resident qualified

doctor). (e) A registered architect. (/) A registered surveyor or engineer. (!J) A banker or solicitor.

··' ·• '(dH (e), (f), and (y) to be ratepayers. . JI;OTt:.-;-:-In case of one or more local authorities in any giten. <a~e1a, jqint authority to be created for the :whole, as in the case of Melbourne and suburbs.

8. PERMA..'IENT OFFICERS OF LOCAL BOARD. (A) Town planning administrator (skilled professional

officer). . f , • • . . ··d'l' , , . (B) Any permanent mummpal officers whose q~ervJCe~

may be required (including legal adviser). ' · ·''' 9. METROI'OLITAN BOARD:

(Under Greater Melbourne Scheme.) (A) Greater Melbourne Council to appoint. five mem-

bers (including chairman). (B) Metropolitan Board of Works-one skilled officer. (C) Harbor Board-one ~killed officer. (D) Government architect (or o'ther Government

nominee). ('l'he Metropolitan Board to eo-opt :-) •

(E) A registered architect. (F) A surveyor or engineer. (G) A solicitor.

(E), (F), and (G) each to be .nominated py their profes­Hional institutes or societies.)

10. PERMANENT OFFICERS 0~' METROPOLITA:S BOARD. (H) Town planning administrator (skilled professional

officer). I (I) Town clerk or assistant (Greater Melbourne Coun­

dl). (J) Sanitary officers (Greater Melbourne Council)

(or any other Greater Melbourne municipal officers whose services may be required, ill eluding legal adviser).

(K) Medical officer of health. 11. POWERS OF TOWN PLANNING BOARDS.

(A) Lay down street lineo. (B) Lav down building lines.

"(A) and (B) to. include re-alignme!J.t.

(C) Vary statutory street widths under authorized towu· planning schemes only. .

(D) Prescribe maximum height and character of bmld­ings.

(E) Limit the number of houses to the acre. .(F) Fix the amount of open space about all other

buildings. (G) Prescribe special areas for factories, &c. (If) Secure proper portion of betterment due to any

public improvement under town planning scheme&-pre­planning or replanning.

(1) Access to land at its existing value. (J) Replan and redistribute ownerships in existii:g

areas laid out on paper at present or only very partially developed.

12. '!'OWN PLANNING BOARDS AND LOCAL AUTHORITIP:S. lu each case the Town Planning Board shall report to

Lhe council (local or metropolitan), and secure its sanc­tion to proceed with any scheme (or stage thereof) pre­paratory to appriaching the Commis5ioners for approval.

13. METROPOLITAN BOARD.-TOWN PLANNING POLICY. (A) Board to prepare civic survey of metropolis, show­

ing P.rojected factory areas, garden suburb sites, main roads, possible open spaces, street widenings, new streets or city improvements likely to be required in the next 30-50 years.

(13) Survey to include po&sible harbor and railway extension.

(C) Survey to become the basis for the preparation by the Board of town planning schemes, housing, or city improvement schemes, &<!., in different areas, either built upon or likely to be built upon, or required for city extension.

(D). Each scheme to be prepared and approved indi-vidually. ·

(E) ·when n.pproved by Commissioners, each scheme (or part) to be carried out as time and circumstances require.

.(Fi The cost of scheme to be borne by ratepayers and owners in such proportion as is agreed upon by the Board and the owners before the scheme is approved.

14. l\>IETHOl'OLITAN BOARD.-ROUSING POLICY. (A) Fix special area or areas for factories, &c., with

access to rail,. motor, or water transit. (B) Select and purcha~e sites for one or more garden

suburbs, with cheap and fast transit facilities between ~uburb and factory areas, as well as betwe:'E!il suburb and city.

(C) Plan and develop same on the British garden city method.

(D) Build cheap cottages for workers or others singly, iu pairs, fours, sixes, or groups-designs adapted to climatic or local circumstances. J, ·

(E) Rent or sell on time-payment such houses at economic prices--not at a loss.

(F) Individuals to be allowed to build for themselves in accordance with approved plan.

(G). Board to retain the right of repurchase at cost or depreciated price in case of !!peculation or over­crowding. , · ,·•(-lJI) Board to encourage private enterprise in the form of1l~ublic Utility Societies, with dividend limited to 6 per c:ent., to build cheap cottages in new or resumed areas.

(I) Such societies to receive 85 per cent. of their cr..pital from the Government, after approval by Com­rnissioners.

(J) Provision to be made in each garden suburb for ,;;ites fot· institutes provided with ~acilities for recrea­tion, education, and club hou&e n.menities, witl1 recrea­tion grounds attached.

(K) •Such institutes to be built by private suoscrip­tions, supplemented by Government or municipal r:;rants, and to be maintained partly by members' subscnptions and partly by the ratepaye_rs.

NOTE -re (H) and (!).-Similar powers to 1911 Act, 1.' rovince of Ontario, Canada, and in practice elsewhere.

15 . .Mt:TROPOI.ITAN BOARD.-SLUMS A:SD OVERCROWDING. (A) Before garden suburbs are built, bad slum area&

to be located, and special census taken to ascertain tbe unfit houses and the rent-paying capacity and occupa· tions of the tenants.

(B) Cheap cottages to be built either by the Board or ~tpproved Societies of Public Utility •at reasonable rents for those whose occupations and incomes will per­mit of their living out instead or in central slum areas.

(C) Unfit houses occupied by such people to be sys­tem11tically condemned and destroyed as garden suburb aceommoclation 'becomes available and ~enants dis­pm,se,ssed tmnsferred t~ new areas.

. '

Gb~rl~s o. ~!l,e, l~tb FGb~!lry! 11,!1~.

. (D) Bmu·d to purcb(l,se sites of ()ondemned houses at existing values-'-no compensation ror condemned. str\IC· tures de~~royed.

(E) Board or Society of Public Utility to erect groups of two-floored (,mttage fiat~ for the re-housing of those living in condemned dw~Jl!ngs, but who must be J:!ear the bcene of their daily labour.

(F) Groups of cottage flats to have open spaces for playgrounds with supe~visors attached.

(G) l\~\lllicipality to· equjp t~nd maintain plnygrqunds, and provide small institutes for recre~ttiQn, meetings, and educational purposes in, vi9i:nity pf cotta~e flats.

16. P-ROOEJ:>URE l'OR TOWN PLANNING SCH],JMES.

Procedure 'and conduct of all town planning or im­provement scheme& to be determined by regulations made and amended from time to time by town planning Commissioners. Under sueh regulations, procedure to be defined in three stages-preliminary, intermediate, and fimH. ·

17. PREJ,U.Lj'NARY STAGE.~'l'OW~ PLA:NpiNO SCHEliHJ.

(A) Bqard to prepare a map of area of scheme show· ing coutollrs, existii1g roads, buildings, railways, public service~, &g., reberves, naturttl features, amenities, and individual ownerships.

(B) Copy of map to be sent to Commissioners with notice that Board intends to prepare scheme.

(C) Owners to be notified of such intention, and thnt no future work in area must be carried out without per­rni~sion of Commlssioners.

(D) Metropolitan Board of Worl's to be cou~ulted im­mediately in- regard to wr,tter, supply rmd sewerage for anL · ·

(E) Commissioners immediately to have Govern.~ent valuation made up tq date of all lands, in accorda)Iee with the· value· declared by owners for taxation pur­poses.

18.· INTERMEDIATE STAGE.-!J'OWN PLANNING SCHE!I!E.

(A) GeJ1(lral c~viq st;trvey tQ be made th<1 basis for the preparation qf scheme over any particular area to be town-planned.

(B) Intermediate stage of scheme to be prepared, showing proposed new !llain . roads (or widenihgs of e!{isting thoroughfare:>.), opel:! sp~;tces, and lands likely to be required for publle purposes. ·

(G) In pre:e;tration, ownerb to bEl consulted by Board, wit!'\ a view to St;lC\Iring their cqnsent beforehand,

CO) Commissioners to consider and provisionally ifp· p1·ove of scheme, which then shall be made availa,ble for inspectiol;l. by owner~.

(E) Owners to receive, after application, a copy of scheme as it affects their particular property.

(F).All owners' or other objection& to be lodged within a· limited period.

(G)· One or IJlOre Commissioners to liold inquiry, and decide all objections, before finally approving of inter· mediate stage. ·

19 .. F~NA:{. f,)T,I.GE,-1'0WN PLANNING SCHEME.

(A). Board to complete full scheme, showing all roadS>• (proposed or. otherwise), proposed 1mblic servi()es, s~~es for public purposes (including garden s!\13\ltb)', i)'uilu-ings, ~>hops, factories, &c. ' ·, ll WO':

(B) Scheme to define number of houses to the acre · in the different parts of the district, -the height u.nd c:haracter of all other buildings likely to be erected, and tbe space about same.

(C) 1Scheme to be provisionally approved by Commis­sioners, owners notified, and all objections heard and disposed of, a& in the "Intermediate Stage."

(D) When approved by Commissioners, scheme to have thl) same lega.l.force as· an Act of Parliament.

20. LOCAL AUTHORITlEI;! AND SCHEME.

As soon as the seheme is finally approved it will be handed over to the local authority, which shall carry out same according as is agreed upon beforelmnd be­tween the owners and the Board, and dulv sanctioned by the Commissioners. · ·

21. OWNERS Al;<D CJ,'HE 'I'OWN PLANNING Bo,uiD.

(A) Land for all add~tional widths over 66 feet in new roads to be paid for by ratepayers, unless owners agree beforehand with the Bo~;rd to dedicl).te same.

(:Jl) Bt)ard's policy will be to grant narrower roads or higher deneity of houses to the acre to those owners who agree to dedicate sueh lands, or give up other lands for open spaces or sites for public purposes.

(C) Where qwners make special eonces~ions in this ref,peet, the .Bonrd may agree beforehnnd to forego bet­terment, provided Commi;,sioners approve.

(P) Board wiH utilize it~' po~er of m.a}dng conce~sions to ba,r~~a~I~ with owners !or public requirel!lepts, and \Jtherwlse seCllr!l th~ir co-operation ~or the approval of the scheme.

2;:!. THE OWNER 1/NDEil. TOWN P:LANNING.

(A) ffis land is planned free. (B) He is secure again~t depreciation bY intrusion of

lpte;x:peetecl factories or undue overcrowding by adjoiu­ing owners.

(C). He lq10ws E)xaetly how the district will be planned, where the publjc serviqes, the shopping, and industrial areas will be situated.

(P} He can- be certa~n how the district will develop, 1•nd where open spaces, sites for public pm:poses, Bchool&, &c., are situated, and where the residential amenity is secu,:.;ed.

(E) fle (or his estate agent) can offer these t)lings a.s s.eecial inducements to prospective purchasers or

.tenants. · (I!') He will have a steadily appreciating security,

.whieh bankero and others must l'ecognise as a safe anil permanent form of investment.

(G) Neither )le nor the purchaser oi: tenant will be ·secure against depreciation of his property throug!1 over· crowdiug in the neighbourhoQd, the unexpected intrusion of heavy traffic or industries, or the destruction of. rcJ?iQential amenities under the present law, whieli per· mits to him no relief from. wide, du.;;ty, and expeusivc roads.

23. l,OCAL AUTliO~JTIES AND RO,AD WIDTHS. It would be a mi;,take to emp'ower local authqrities to

vary existiug statutory widtl1s of roads, except under a 'l'own Planning Act, and an antb,n·ized scherrie prepared tuuler such Act.

To do so w9uld sacrifice the power of the local autho­i'ity (or Town Planning Board) to negotiate with lan<l· owners for the provision of free open spaces or other· requirements essential to general pu,blie use.

Tentative Recommendations on which a Housing and Town P'anning Act in AustraUa might be Based.

NO'rE.-These reqomm~pdation!! are. subje()t to varia· ~ion or adaptation according as loc~ circumstances ad-vise. ·

1. The Act shall be simplified and based on more. <lirect and comprehensive. lines than the Housing ami Town Planning Act of 1909 to deal with-

(a)' All undeveloped nrens in or adjoining all towns or cities.

(b) The replanning and redist:.:ibution of areas cut up ·for subdivision under plans approved by local bodies and only partially developed.

(c) The improvement of overcrowded districts or other areas already built upon.

2. The Act shall be administered .by 'l'own Plnmiing and Housing Commiss~oners vest~d with }lOwers to e,on· ,., sider and approve of all towr: pl~npiug or city impr,t?Y,~- ; ment scht;lmes, or to take act) on 1n case qf negJect •by a local authority.

3. The Commissioners shall consist of and be ap­pointed !IS ·follo~s :-

(a) A town planning comptroller, who shall be "' .,1_ \IS permanent paid exeeutive official, skilled in

1l1· ''f n•town planning, and Cllairman of Commis-sioners. t;;

(I>) An experienced lawyer ~>killed in finance and loc!tl government law.

(t:<) A municipal officer expert in administration. All members shall be appointed by the Governor

in Council. .In regard to--

(c) The Mtinicipal Association for Victoria shall be invited to nominate not less than two name;;

· of expert municipnl officers from which the Governor in Council shall make appointment.

NoTE.-For immediate practical purposes it may be . fouqd, on investigntion, that the appointment of (a) will

be sufficient to commence with. 4. With the exception of the Chairman, the Com·

missioners shall receive no compensation except for actual and reasonable disbursements made when on business coimected with. the Act. In •the ·case of special expert service involving more than one week of con­tinuous time, the Commissioners may, with unanimous consent, vote any Commissioner a sum 1iot exceeding £50 in any one year by way of honorarium. The total amount allocated u.n:qually for this purpose shall b~ fixed by the Minister in charge after consultation with the Chairman.

NoT~;.-'l'he above is entirely provisionaL If the GQ­vernment can afford to pay 11ll Cqmmissioners o, staterl ~alary, the results will be more satisfaetorv than might otherwise be -the ease. •

2S7 (lha.r!es 0. :Reade,' 16th' February. 1915.

5. The Co!llmi~~oners ~h~ll issue ai). annual report to the ~ii).ister coptain~I).g the d~()~siona, reooJll_mendations, schemes approved, and other tr~:gsactions of the Com-missioners du~;ing the year. .

6. · The Chairman shall be the executive officer of the Co)1lmissioners, and shall perform such duties and shall have such powers as the Commissioners by :regulatiol) IJ;lay pr<;Jscr(be, but such powers sh~ll not in ai)y case exceed tile powers possessed by the Co!llmissioners.

7. The Chairman shall be appointed for a term of years as the Governor in Council may decide, and be re­sponsible to the Minister for the Crown appointed by the Gov!lrn!llent for t1:Ie purpose.

8. Every oth!lr Commissioner shall be appqiqted for a period of two years.

9. The Commissioners may make regulations, subject to the approv~~ol of the Minister, prescrtbing the routine of business, tile appoipt]Ilent of sub-committees, the appointment of private citizens to give honorary serv~ce in connexion with such committees.

10. No private citizen, however; may act on any sub­committee appointed to m.ake .~;eco!llmendations to the Commissioners, or deal with apy matterey concerning any qne;,tion of finance, laud purchase, loan, &c., in con­nexion with proposals submitted by-

(a) Town planning authority; {b) Sqpiety of Public Utility.

ll." ~ny such proposal or any recommenc;l.ations in con!.leJ{iO!l therewith by a sub-coml!littee must be ap­pr~JV~d .by ~he C?mmissioners as a body. If, in their· opmwn, It 1s desirable that loans or advances shall be I!ladt;~ tq any local town planning authority or society of public utiqty for th~? purposes Qf any housing, town planning, or town improvement schem1?, they Jl\ay is~ue a eertificate of recommendation to the Minister in charge, on whose authority the Treasury shall forthwith advance tjle ~nw requived.

~2. Prior to giving approv~~ol to any su~h scheme& the Commissioners ·may issue such certificate of recom~ mendation if, in the interests of the public, they deem it desi.~;able that the purchase of land or buildings are requisite to tl).e proposals made by a local town plann~ng authority or society of public utility .before the details of the sche:rp.e are made public.

13. '!'he periOd!!, amount of interest, and sinking fund in conne.l{ion with any such loan!! shall be determined by the Commissioners.

14. The Act shall give power for the creation of a Local Housing and Town Planning Board for--

6256. By the Hon. H. F. Richardson.-Your idea is to make it purely a State Department~­I have a note here!, further on in my report, to say that these recommendations are subject to the passing of a Greater Melbourne scheme.

6257. In tl1e event of the Greater Melbourne scheme be~o~i1~g a. matte~ of law, would you favo,yr '(;his body being un<;ler the control of the Greater Melbourne Council1-Subject to the right of the Government to nominate members, Yes.

6258. By thf; Chcvirman.-Why fl}wuld tile Go­vernme!).t nominate Jhe members 1-\Vell,, at the present time, there isi'a g-reat deal of public work that is being carried out l?y certain Departments of the Government, such as the Public Works Department and the Railways: 'Commissioners--­the Public Works Departrnent look after certain roads, and malce them.

6259. The Public Works Department mainly controls country roads, and not roads within the metropolitan area-they are under the. charge of the mul1icipality ~-In the case of Alexandra­avenue, I understood it was o:rig:inally made by the Public Works Department.

6260. Yes; but it is under the power of the Melbourl1e City Co1].ncil1-But the power is with the Government to h1itiate other such works in­dependently, and these public works should cer­tainly be considered by a town planning autho-rity. ·

6261. By the Hon. H. F. Richardson.-Your proposal does not take it entirely out of the hands of the municipality, because you suggest there should be representatives of the municipality on the Board 1,., .. , . .y es, certainly; it is a joint mmii­cipal and State control.

· 6262. Is it a Board for the whole of the Sta.te, or. simply for Melbourne 1-I am dealing just now with the Commissioners for the whole State; but I will deal later on with the Town Planning Board for Melbourne. I thought you understood that the Commissioners are to deal with the town planning for the whole of the State. They would be virtually a Local _Government Board to super­vise the town plannmg proposals from vanous local Boards which will be created. I will read clauoo 15 again:-

15. The Act shall give power for the creation of a local Housing and 'l'own Planning Board for ~ve_ry town or city in the State, or one Board to have JUris· diction over a nuClllber of towns or cities in any metrq­politim district.

16. Every municipal authority shall be empowered to create a local Housing and Tow!) Planning Board, ex­cept in the case of Melbourne and s\}burbs.

17. A local Housing ai).d Town Planning Board shall consist of the mayor {ex officio), the engineer of the municipality, not less than three (or more) councillors (appointed by the municipality).

The Board shall co-ont :-(a) Either a medical officer of health (lr resident

qualified dqctor, who mqst be a local rate­payer.

(~) An architect, who must be a registered me111ber of the Royal Victo~;ian Institute, and a local ratepayer.

(c) A banker or solicitor, who must also be a local ratepayer.

6263. By the Cha?·rman.-Would these people be appointed by the local council or elected by the ratepayers 1-The mayor, three· councillors, and engineer would be \tppointeq by the council. The medical officer will be ex officio, and the architect and the banker or solic1tor must be eo-opted by the municipal cojmcil. Those ap­pointments are subject, of course, to the approval of the Commissioners.

6264. How many would constitute the local Town Planning Board ~-Eight. , . , ,

6265. B:ow many would constitute--the Town Planning Board for the whole of the State-tl1at is the Commissioners 1-Three.

6266. W ouJd the local authority have to ~on,­<mlt the Commission before they could do any-thing¥-Yes. . ·. ,,;_

6267. W quld not that lead to a good d~~l· oL, delay, a~d ~use friction where there were two· bodies in charge~-! do not see how it is prac­ti~able t,o have town planning proposals unless you have a o:ontral authority supervising

6268. ~)ipposing the governing authority laid do~w· a policy for town planning-a general policy should be outlined to prevent slumdom, and that sliould suit for every district in the State¥--Yes. ·

6269. We have found that, where we have had two authorities in Victoria, as we have at the present time, for instance, over the parks and gardens, it leads to a great muddle and jumble, aud some of our tracts of gardens have boon locked up for years because the governing authorities have been in disagreement. The local people know this, and if they appeal to one body they are referred to the other, and that one refers them back again; and so we have been hum­bugged about for years ¥-Under this proposal that would not arise.

6270. But you suggest a dual control, which we have found work very badly 1-That position would not arise under this proposal, because the Town Planning Commissioners have absolutely the final word in matters of dispute, just as the Local Government Board has the final word in connexion with the muniqipalities in Elngland­the ooutrai authority is fiual.

Charles C. ReMle, . 1.6th, F~bruary, 1915 •

. 6271. By the lion. ll. P. Richardwn.-Yon are suggesting that there should be Commissioners to. have control of all the State. and to frame regulations~-Yes.

6272. And on those regulations the local com­mittees would work Y-Yes.

6273. And, so far as any disputes are con­cerned, the Commissione:rs for Victoria would deal with them ?-Yes.

6284 .. Where does the local council come in 1-It would oo entitled to be heard just as much as the ratepayers. The mayor is ex offic·io a mem­ber of the Committee. The municipal engineer is another, and then there are three other council­lors appointed

6285. It appears to me to be a duplication of authority, and we have found that that does not work well ~-It amounts tO this, you place the preparation of local schemes in the hands of tlle local Town Planning Committee, which they have found advantageous in England, and · if necessary subject them to ·the approval of the council, who in turn will be responsible to the Town Planning Commissioners before they can

6274. ·B11 the Ohainnan.-Would the Commis­sioners ha:Ve power to initiate anything from a local point of view ~-In case of neglect, Yes. I think you will find that, where th€' central autho­rity is vested with these powers, if it is wise, it , will not utilize them except in extreme cases; but, having the power, they can hold it over the h~ads 'of the local council, which might; be thus made to "Toe the mark."

6275. The Town Planning Commission would have power to deal with everything affecting the people's welfare in that respect ~--Yes.

carry out any work. I think for practical rea­sons it is better to vest the power of preparation

1 in the Board and save the unnecessary delays and difficulties that otherwise may arise. .

6276. Such as housing, aud gardens, lighting-, means ·of transit, health, and everything of that description respect of ' future provision, Yes.

6277. And by these means you would have a thorough-going council to carry 9Ut the whole· or . this important work, so far as living conditions are concerned Y-Yes. I will now resume my re­port: --

6286. BIJ the Hon. ll. F. Richardson.-Take the case at Ballarat; they have· two ~ouncils there. At Geelong there are three or four interested, and at Bendigo there are tw!> I have antici-pated U1at by the power to create a joint au­thority composed of these bodies.

6287. By tlbe Ohctirmm•.-Then, of course, with the municipal development there is a possibility of Geelpng, for instance, having a greater Geelong council, the same as :&-felbourne, and then you would have the same thing at Ballarat and Ben­digo, &c., as the districts ·grow ?-Yes. Resuming on clause 19-

18. A municipal authority or authorities creating a local Town Planning .Board shall appoint a Housing and Town Planning Administrator, who shall be skilled in town planning, and shall be ·the executive officer of . 19. (a) The Administrator shall not he removed from the local Board, a11d who, with tile local Board, shall office, and, if he is paid a &alary or other remuneration he responsible for the earrying out of the provisions (over and above that received from his appointment ·as of the Act and of the procedure regulations thereunder officer in any other municipal capacity), then his salary by the Central ·Board. or other· rennweratiou shall not be rednced, except in

6278. By the Hon. J. Sternbe1·g.--\Vould either case with the. approval of the Commissioner. you give the municipalities· power to interfere . 6288. You said there ·.vould be one paid officer, with the work of the Town Planning Committee · a chairman ~-Yes. from a local point of view, because then you would 6289. And t.he. others would their services have throo bodies-you would have the State Com- voluntarily~-Yes. missioners, the local Town Planning Committee · 6290. Is that the Canadian system ?--Yes, that appointed by hhe council, and hhen the coullcil is proposed. itself-where does this control start and where 6291. Does not, that resolve into t.he man who •·

, l'" does it end 1-The control starts with the local is paid doing all the work, while the others are·~_,.,.., l;loard .. and finishes with• the Commissioners. simply marionettes who help to play the tune 1- ··~:~·-;·

· ·; 6279. Suppqsing the local Town Planning Com- Yes, and they act as a brake on the Chairman of ~~ tr

,,111,,. mittee desires to carry out a cerhain policy, and Commissionerrs,' and bring up points wl1ich m1ghV"" the local council-which has appointed the Com- . not be realized. mittee---eonsiders it will not lJe suitable, and will , 6292. Do you not consider that the man who not permit .it, what then ~-There is no power on ' is paid feels· he has got the responsibility; while the part of the council to do that. ·· those v.'h.o are not paid feel no :J;esponsibility, and

6280. You do not intend to give the·m tlia·t; · so a·re more likely to be led~ by every suggestion power1-No; not necessarily. There is no reasm: made by ths paid officer?-That would be so to why the council should not, supervise aud a.pprove some extent, but I would necessarily allow for of the :vork of the Board, h_ut in any case the ,. individual character and opinion prevailing with final word is with the Commissioners. the Chairman of Commissioners.

6281. But, seeing that the local Town Planning 6293. The time taken up .by the Commissioners Committee is really an off-shoot of the council, would be very expensive in canying out such a and does not represent the people direcUy in any . big thing as town planning for a greater Mel­way, while the council does, how would that work bourne scheme ~-The tDwn planning of greater out ~-That is met in the regulations, where you Melbourne would be vested in a loca.l committee­will find opportunities are given to ratepayers to a special metropolitan Board-which would be objeet to proposals of the Town Planning Board answerable to the Commissioners. The Commissioners must then hear those ohjec- 6294. Well. there would be only one paid tions, and determine them individually, ..;.nd if officer, practically, to supervise the whole of the they are satisfied that the local town planning pro-: town planning system in the State1-Yes, un­posals of the committee are against· the welfare : less the Government can afford to pay each com­of the district, they have power to r.efuse ~hem. ' missioner a salary.

6282. Then the Appeal Board is really the 6295. \Vell, a poor man could not a posi-State Commissioners 1-Yes. t.ion on the Board, no matter how well qualified

6283. And the ratepayers of the district would he may be. if no payment were made for his ser­have the right to appeal to the Commissioner's if vic&s ~-No more, of course, than those who take they ·thought the Town Planning Committee was 1 a position on a m:unicipal:council or a local body. not carrying out something for the general well- 6296. Thl'lre is no poor man on a council that being· of the ·district 7-Yes. I know of; but assu.ming: that there are poor

289 l Charles C. Reade, l:;.i 16th l!'ebruary,)lllo •

men 'in the municipal councils the work is so ·divided into sub-committees there that it is dif­ferent, and I am not so sure that this work

_ could not be done in a more thorough way if men were paid for their sEllrvic€s, not that I deprecate in any way.. the great work done by municipal councillors now 'I-I have made provision under the proposals that any Commissioner might receive up to £50 for any work he renders, and I have also made provision that the work of the Com­mission can be carried out in the same way as with local bodies.

6297. Do you know any authorities in any part of the world where the whole of the Commissioners are paid 1-Well, the Commissioners at Home are the Local Government Boa.rd, and the whole of the responsibility of the town planning section m the Local Government Boards rests with one man-that is the comptroller.

6298. By the lion. H. F. Richardson.-Is he the only paid man in Great Britain on this work 'I -No, they have in addition town planning in­spectors, who advise the Board.

6299. But they are advisors, and they do not sit on the Board '!-That is so, only it is a Govern­ment Department and not a Board.

6300-1. I have here an .Act of South .Australia, giving power to the Government to make ad­vances to persons of limited means to make homes. The Act is No. 1018, of 1910, and in section 4 it states--

1. The bank shall, after the 30th day of June in each year, be paid by the Treasurer of the S~ate out of the l!'und as consideration for tbe administration of this Act and the Fund by the Board, and to meet the expenses of such administration an amount equal to 15s. per centum of the total balance of the advance due on such 30th day of June.

2. Every trustee shall be paid out of the monies of ~he bank a prescribed fee not exceeding two guineas for his attendance at any meeting of the Board held for the purpose of this act : Provided that-

(a) The amount which may be paid to a trustee during_ any one year of office by way of fees for meetings under the State A.dvances A.ct 1895 and this Act shall not exceed in the ag-gregate £252. · ·

(b) And when the Board deals with business under the State A.dvances A.ct 1895 and this Act on the same day, only one fee shall be paid to a trustee for attendance at a meeting or meetings on such days.

6302. 'rhere the trustees can be paid an annual salary, and apart from that, a fee of £2' 2s. per sitting, with a maximum of £252 per annum. I presume they found it necessary to do that in order to get the work done thoroughly 1-I quite agree that if the State can afford to do it I see no objection to it.

6303. Well, it seems that the Australian people will insist upon payment for labour done 1-Yes.

6304. You have in Great Britain a very large number of people of the leisured class-wealthy people, who have some public spirit, and feel they have a duty to perform, and they give their ser­vices gratuitously.

6305. They can afford to do so, because· their private incomes are so large 1-That is not so in connexion with town planning.

6306. Well, the London County Council re­turns a large number of gentlemen with plenty of mpans, and that is also done at Glasgow and elsewhere 1-I do not see any objection. to t;t,J,e Commissioners being paid, and my only object in suggesting honorary service was with a view to economy. Proceeding, !'come now to clause No. 19, section B- '

19. \Vhenever the Commissioners require the Adminis· trator shaH act in consultation with the Chairman of Gommissioners in the preparation of ,or carrying out of any plan or .other work in. connexion ·with any scheme.

6724.-T

..._ ... ~ .,,~ 20. On· the petition of at least ten ratepayers in any

municipality, the Commisiop.ers may appoint a. Local Town .l:'lanning Board for that municipality and other ureas immediately adjoining or in its vicimty.

:H. ln tile case of LJte creation of a Local '.rown Plan· uiug Hoaru with administration over an area under tlle control of more than one local body, the appointmem of tile local lioard shall l.le made by tlle Comnnssioners.

~J. Every Local Town Planning Board shall be a body eorporate, and slmH have power to acquire, receive anu no,u., se11, lease, exclumge and dispose of lauds and pro­perty, aJH.l any interest tl!erein, and personal propeny.

~a. Tile meLhods and expenses of administrat10n m­curred oy t11e l:Soard, any transactions, proJits, losses, or disbursements, and tlle record thereot made by tlle .ooard shall be subj eet to the direction of the Commis~ ·s.ioners, eltlter uy such regula.tions as they from time to tlme may prepare, or by speclal resolution, and they snail also lle sni.lJed to Government audit m the manner required by any ~tatute referrh,g to municipal aceounts find admimstration.

24. The appointment of 1> Metropolitan 'fown Planning Board for ll<1elbourne shall be maue conditionally to the passing of a Greater Melbourne Hill, which should pre­cede tne passing of a Town Planning Act.

The Board shall consist of eleven members, as fol­lows:-

I. Chairman and four members, to be appointed by the Greater J\lelbour<le Council uom its members.

II. Metropolitan Board of Works to appoint one skilled officer.

IlL The .l:iarbor Hoard to appoint one skilled officer. !V. Government to appoint one member ( ? Govern­

ment architect). The Board shall eo-opt :­

V. A registered· architect. V L A surveyor or engineer.

VII. A solicitor. (V., VI., and VII. shall be nominated by their profes· sional institutes or societies.)

25. 'Ihe Metropolitan Town Planning Board shall ap­point a housing and town planning administrator, wno sll·au be skilled in town planning, and shall be the execu­tive officer of the Hoard, and wno, with the Board, shaH be responsible for the carrying out of the provisions of the Act and of the procedure regulations 1ssued there­under by the Commissioners.

26. The Administrator shall not be removed from office, and his salary or other remuneration shall not be re~ duced except in .either case with the approval of the Commissioners.

27. Whenever the Commissioners require the Adminis­trator shall act in consultation with the Chairman of Commissioners in the preparation of or carrying out of any plan or any other .work in connex:ion with any town planuing or town improvement scheme.

28. :No member of the .Metropolitan Town Planning Board shall receive any salary or compensation excep& for actual and reasonable disoursemeuts when on busi­ness connected with the Act. The amount of any such rliRI.lursements in any year may be limited by the Board or by the Commissioners, whose decision shall be final. 'Jbe expenses of administration to oe incurred by the Hoard trom year to year including contingencies shall be estimated at the commencement of every financial year and submitted for approval to the Commissioners. 'l'he Hoard may then allocate the sum upon the various local bodies contained within the admimstrative area of the Board in proportion to their respective rateable values. l:'ayment of such allocation shall be made by local bodies t~.t such periods and in such amounts during the financial year as tne Board may arrange. Should any dispute !\rise oetween the Board aud any local authority, the Commis· sioners shall act as arbitrators, and their decision shall be ,final and binding upon all parties concerned.

29. Any local or Metropolitan Town Plauning Board created for the purposes of the Act shall be empowered to prepare schemes in respect to any land in or adjoining towns and cities already in use and built upon, or which is likely to be used for building or other purposes, or in course of development with the general object of securing healthy conditions of housing and living, suitable pro~ vision for traffic, railways, or other public works, proper sanitary conditions, amenity and convenience in con­nexion Vl-'ith the improvement or laying out of streets and use· of land, and- of any neighbouring lands for building or other purposes.

30. The Commissioners may approve of a scheme which includes lands not specified in the foregoing if they are satisfied that such land is so situate that it ought to be included, and ma.y autli:orize the·demolition or alteration of any building or work tl:iereon so far as may be neces-sary for carrying the scheme into effect, ·

. Charles C. Reade, · 16th February, 1015.

31. ·,rhere shall be no necessity for a Board to apply for permission to prepar-e, as the Act may be deemed sufficient pe:r-~nission for the purpose, but in the prepara­tion of arty scheme the Boa.1·d shall notify the Commis­

. sioners of their intention to do so at once and otherwise provide any information or act as tlJe Commissioners may require.

32. A scheme prepared and adopted by a local Board shall not have effect unless it is approved by order of the Commissioners, who m_ay refuse to approve any scl}eme except with such modifications, alterations, or conditions as the Comlllissioners may impose. .

33. A 'scheme when appro"l!ed by the . CommissiO!lers s!ml! have effect as if it were enacted in the Act it§e1f. · 34. A scheme may be revo~ed or varied in accordance with clause of the British Act.

35. The Commissioners shall make regulations for regulating the procedure to be adopted tly a Board in the preparation or adoption of a. scheme, for obtaining approval Of the Commissioners, ior any i~quiries, re­ports, notices, or other matters required in -connexion wit.h prepara_tion, or lldoption, 0~ th~ !J,pprqval o! the S.<:!h(;)me or p~eliminai:y thereto, or in relation to t)le ~~P'Ying o11t ()f the scheme qr egforci!Jg the o])servance of the· provision~ the~qof, U:!lC! .for sugh other purpose!> a,s may be found necessary. ·

36. Provision shall lie made therein:-(a) For securing co-operation on the part of the

· Board with "the O\Vners or others· interested in the htnd ·included in the· sch.eme by conferences n.p.d such other means as may be prov!ded by

· the regulations. (b) For seeming tl,at ngtices of pr(;)pa,ratio!l or

adoptio11 be give.n at the (;)!trlfe~t stage pos­silile to those interested therein consistent with public interest in re~pect · tq the purchase and , price of any lands before}land by the Board if so authorized. · ·- · · ' ·

( o) For dealing with other ·mat~er~ mentioned in the schedule attached hereto.

Clause 37, following, is no~ to ~e iilCilJdeci. in the "A<e~ itself, but iutendeq to indicate the procedure the Com­

.missioners may co~1sider in, framing t.lwir regulation,s. 37. Briefly, the m·der of' pro~edure shaH Qe m;arng~d

so as to proi'ide tl]at :.-(a) Th~ !),rea of ll, s<;heme. ~>hall be prep:wed by the

administrator and submitted to the Board for al)proval. . . . . . .

( b l. The details of the scheme sba11 be worked out bv the' administrator in consuitation 'with the

_ cl}!<lr~la.J.l: o~ Co:iri"I!iissiol)ers if Ire so, ,requires. (c) The Chairman of Commissioners may obtain as

early as possible ~hrough 1!-.ll: e)\:p~ri.eJ.lced Go­vernment officer .valnations. of all lands and bqil!Jjn~s in the ai·ea- of' the prop~se_d §9hcl.J.l.e; Llle basrs of valuation to be taken as that last declare"d. by the owners for the_ purposes 0~ -taxation. The valuation shall be made with­ou.t respect to any improv~t;nent!! or )J;tcn"a.i?~S likely ~~ take pla.ce <!\' 'i1;1 cont_emplat_ion unt!~~ the scheme, and. shall be estimated as that cummt -p~ior to the: (nitiatjon of t_he ~ch(m]e m; pro~pect!ve ilJ.lprO"\Tf!~nents the~elmder.

(d) -!:'--ftm; the scheme haJi been prep!J.~ed and ,ap-. pJ;qved by tl~e Iloa~d, owners and others shall · b'l noti_fic_d. 'J,'h!:!. preli~ninary plan s_haH be deposited in a pupl'c place, and.op_en to inspec­tion without charge. In the ca,se of absentee owners, trustees or others, a copy oi the plan in respect to their land =ly shall be furnished by the Board if so. required. '

(c) The {!reliminary plan shall show the arqa of tbe i:!Cheme, the propos.ed arterial and main roads, and any widenings qf existing street&, or other details the C<;>mmissioners may require by

. regulation. . (i) N.ot less than one month· aftel' the Board shall

het;r and, if possible, determine any objections or s.uggestions from owners or lessees or depu­tations appointed by more· than ten residents. ·~f all obj.eetions are met, then the Board shall tq\nsmit the preliminary plan to the Cowmts­sioners for approval.

·(g) In th~ cas~ of any objections being undecided, the Commissioners shall be notified.· Tliev IUU.Y tl~~n ~ppof9t ·one or ~~ore. of their 1\lembers to visit_ the are:)., hear obje.c~ors. and the Board, and advise the Commissioners in whnt direc­tion (if any) the pi:e~iJiu'y pian shouid be modified. Or thev may require owners. to 1ur, ~ish; ~11~, Con{n~isslonprs. thej1· ~bject~ons in .. Wljiti~g, a,n!J .. ~l!en,. i;f . n;e_c~ssary, a~visc the, Bo!!n! tq m@i;fy ~r alteJ; 1 t~ . P.l an m ac.-;ord-.. ance w!t:P: t!;le.br ~ugg;!.§t;.iol!-'!. ·

(h) Immediately the preliminary plan ha!! been so approved 'the Board mu:_;t th~n prf!ceed witp. the preparation of t1rc final p\an, the contentB and scale of which shall be determined hy re­gulation made by the Oommissioners. '1'he re­gulations shall . require the plan ,to show amongst other t}lings, ull proposefl roa(ls, im­provements, open spaces, sites· for · public purposes (including housing sehemes, if an}'), limitation of dwellings to the acre, public ser­Yices, and any special areas for factories npd other p11rposes. · In tl1e preparation of tbe final plan the Board shall consult witlr ownerR as much as possible, obtain~ng and carrying out where possible their wishes in respect to the future development of their land, .or secur­ing their co-o;peration and consent to closing, -ividerijng, li\O.di!icatiou or diversion of c::dsting streets, re:alignment of boundaries, redistri­bution of sedioiis, and any projects under the scheme affecting their· lands.

Ci) 'fhe final plan before publication shall be snb· mitttd to t]\~ Coqrmi~~io!Jcrs. lqnnedi\ltely provisional approval is made by. tl~em, all owners and lessees shall be notified, ·and· ,the plan advertised open for inspection.

(j) Not less tl1an one month. later the Board shall hem·: and, i~ Pfl~sil,Jle, S\iClll·e wifhdr<~,wl1l of any qbjcctions made hy owners, lessees, or di;­pnta.tion :tppoi~ted QY ·not less than ten resl­_dcnts or. any re<;ognised architectnral body or other society seeking to promote tl~c amenity of the district.

(7.:) Then the Board shall notifv the Commissioners of any objections "made to tile schcr;ne . whicll owners or others cannot be prevailed upon to withdraw.

·( !) The Commissioners may l1ear, consider, and de, termine such qbjcctions in such man11er as

· they deem tit to prescribe in the regulations, and, if ljecessary, require the final plil;n to be altered or modified.

( n~) The Board shall then submit the scheme drltfted in aecorda,;tce wit"!! the ~_tine~ded plan and re­quirements of the Board, and suhmit it for approval. \Vhen the scheme has been finally approved by the Commissioners, it shall be im­mediately notified in the Gove-rnment Grt.:::ette. The publication of su<eh noti_tlcation, together with the receipt of the written authority of the Cof!lmissioners, shall be sufficient authority for the Board to cm-rv out the scheme.

38. The details of procediue ':may, however, be mofli­fied, curtailed, or changed in any rt;~pects that the Com­missioners deer;n desirable in any particular Cf\SC. \Vhcre, for instance, th~ Commissiap.ers decitle, the stages relat­ip.g to the prepa~;ation, considerati.on,. and adoption of the preliminary plan may be either ;n_odified or ab!m­doned. In its place, the prcpar!!-tion Q~ tlt<! one final plan, the settlement of objections by owners and other~, and any alterations required, may be sn bstitut<:d as a l_lleans of pro~eduye to provide all necessary -proJection and considerat~Ol), of a town-planning scl;leme bef<;>i·e its final approval and authorizatiqn.

3!>. Procedure regulations mayr also be devised by the Cornmissionm:s determining the preparation, cousnie.ra-ti9n, m1d l.l,ppro.val 9f :-.- ·

(a) Any scheme of eitr improvement, including de­mol~tion of houses where over-crowding pre­,;ails, or t:t,rcatens to become an immediate danger to the public healtl;l.

(b) Or of any scheme or closing up, (liversion, or alter~:<tion in widtl!s to any eXlsting Htreet:~, or streets sanetioned by a lo(:al. body flrior io ll.!<' sclmine, realignment of section bonndarie><, or­redistribution of owners' land. .

40. Special provisions may be inserted in eYery scl1eme by tile Board, or if the Commissioners may retll!ire. These provisiQils shall include:-

,, ,H'

:I.

(a) Provision for any special circumstances m· con­tingencies.

(b) So. far as is necessary for the carrying out of the scheme, s.uspension of any statute~. by­laws, l'lJles; re~:,rulatious, or other . provisions

.made bv a municipal aufhoritv;& Governilient t:oepa}·tihent which al'e in "hperil:tion in the 'ltrea ilicluded 1n t.he scheme. ,..

( ()) Presc>ibing tl_H\ wanner in w hi eh the £und3. necessary for carrying the scheme into effect are to be procnrccl.

(d) Prescribing for any assessment or raisi-ng of !tTIY lon.n upo~ uny city, town, or muu.ici.pality, o.r anjl special areas for the purp%1se: of such sche:tne;. pro;vided that the eimsent e.f th~ llllllli;· ei.~i.ty and. the ra.tepay~tts. alfeeted is,.oJatai.n~d..

291 ~lenC.:Il.el!de,,.. 16t.h February; 1916.

40A. All general provisions and aJl amendments to such provision made under the Act by the Commissioners shall be laid before the Legislative Assembly at the next succeeding session thereof, and they shall have full force nnd effect after their publication in the Govcm;mcnt Gazette.

41. Any expenses incmred by any Board in the pre­paration of any scheme through all stages prescribed by the procedure regulations shall be paid out of current revenue by the municipal 1mthority (or authorities in the case of more than one .in such proportion as may be ngrecd upon beforehand), or out· of the proceeds of any special rate or tax levied for that IJurposc by the muni­cipal authority (or authorities).

42. After owners or lessees have received the first notice of the preparation of a town-planning scheme, the Board shall be empowered to remove buildings or other work that are erected or carried out subsequent to re· ceiving such notice. Clause 57 of the British Act could he adapted to meet this cl;mse. It runs as follows:-.

57. (1) The responsible authority may at any time, after giving such notice as may be provided by a town-planning scheme, and in accordance with the provisions of the scheme--

(a) remove, pull down, or alter any buildii1g or other ·work in the area included in thll scheme which is sn<!h as to contravene the scheme, or in the erection or carrying out of which any provision of the scheme has not been complied with; or

(b) execute any work which it is the duty oi any person to exetute under the scheme in any case where it appears to the authority that delay in the execution of the work would prejudice the efficient operation of the scheme.

( 2) Any expenses incurred by a responsible autho· rity under this section may be recovered from the persons iu default in such manner and subject to such conditions as may be provided by the scheme.

(3) If any question arises whet,her any building or work contravenes a town-planning scheme, or whether any provision of a town-planning scheme is not complied with in the erection or carrying ont of any such building or work, that question shall be re­referred to the Local Government Board, and shall, unless the parties otherwise agree, be determined by the Board as arbitrators, and the decision of the Board shall be final and conclusive and binding on all persons.

43. Clause 58 ( 1, 2, and 3) Of the British Act 1!109, dealing with compensation to owners whose property is injuriously affected by any scheme, should also be adapted. They arc as follows:-

58 ( I). Any person whose property is injuriously n:O'ected by the making of a town-planning scheme shall, if he makes a claim for the purpose within the time (if any) limited by the scneme, not being less than three months after the date when notice of the approval of the scheme is published 'in the manner prescribed by regulations made by the Local Govern· ment Board, be entitled to obtain compensation in respect thereof from the responsible authority.

(2) A person shall not be entitled to obtain corn· pensation under this section mi account of any build­ing erected on, or contract made, or other thing.> done with respect to land included in a scheme, after the time at Which the application for authority to prepare the scheme was made, m· after such other time as the I~ocul Government Board mav fix for the purpose. •

Provided that this provision shall not apply as respects any work done before the date of the ap­proval of the scheme for the purpose of finislling a building begun or of carrying out a contrnct entered into before the application was made.

( 3) Where, by the making of any town-planning scheme, any property is increased in vaJue, the re­sponsible authoritv, if thev. make n claiin for the Hurposf ~v~iJifn .tli:e time Hr any) limit~d by the scheme (not being less than three mont'f1s · n ftcr the date wl1en notice of the approval of the scheme is

first published in the manner prescribed by regula­tions made by the Local Government Board), shall be entitled to recover from any person wl10se pro· perty is so increased inevalue one-half of the amount of that increase.

NoTE.-Three months is not tiearly stifiicient lapse of time to determine betterment.

44. Where by the making of any town planning scheme . any property is increased in value ove:r and above that obtained by the Commissioners in the pre· liminary stages of the scheme as stated in clause 37 (C) herein, the Hoard shall be entitled to recover from any person whose property is so increased in value one-half of the amount of that increase.

45. Sub-sections 4, 5, and 6 of clause 58 of the Briti.dt Act bearing on the above may be adapted. ThG;,r are as follows:-

( 4) Any question as to whether any property is injuriously affected or increased in value within the meaning of this section, and as to the amount and manner of payment ( whethet· by instalments or otherwise) of the sum which is to be pnid as com­pensation under this section, or which t~e respon­sible authority are entitled to recover from a person whose property is increased in value, shall be de· termined by the arbitration of a single arbitratm appointed by the Local Government Hoo.rd, unless the parties agree on some other method of deter­mination.

( 5) Any amount due under this section aR corn· pensation to a person aggrieved irom a res_r,,Jnsible authority, or to a responsible authority from a per· son whose property is increased in value, may be recovered summarily as a civil debt.

(6) Where a town-planning scheme is revoked by an order of the Local Government Board under this Act, any person who has incurred expenditure for the purpose of complying with the scheme shall be entitled to compensation in accordance with this section in so far as any such expenditure is. ren­dered abortive by reason of the revocation of the scheme.

46. A To'\\'Il. Planning Board sl1all prepare and con· stantly keep up a c0mprehensive plan of the whole area of a town or city and suburbs and its future extensions, ~bowing tentative schemes both in its developed and im· developed portions, for tbe facilitating of the develop• ment of permanent improvements in sanitation, trans· portation, conservation, and benutification of its ad­ministrative area. It shall carry into effect as oppor­tunity arises such portions of the improvements indi· cated on the final comprehensive plan as its financial resout'ces pei'niit and as empowered by the Act. It shall also endeavqur to secure incidental improvements, both public and private, as are in accordance with the final comprehensive plan.

47. A Town Planning Board may purchase any land or buildings for the purpose of a scheme by agreement or compufsorily at the Government valuation made in accordance with clause 37 (C.) herein.

48. In case of neglect by a Town Planning Board, clause 61 of the British Act may be adopted. (Clause 61 to be added.)

49. A Town Planning Board, with the approvnl of the Commissioners, may acquire, enter upon, take, use, and appropriate neighbouring private property within 300 feet of the boundary lines or proposed boundary · lines of nny street, widening, public park, playground, or: other open space, and shall either lease or re-sell the saine, subject to the consent of the Commissioners. The proceeds arising from the resale of any such property so taken shall be used by the Board for any town plan· ning or housing purposes as may be approved by the Commissioners.

50. No street, road, or right-of-way shall be reserved, laid out, granted, or conveyed, and no property, tract of land, or area shall be subdivided or sold as lots until the plan of such subdivision has been approved of by the local Board and by the Commis&ioners.

51. Any Town Planning Board, subject to consent by the Commissioners, niay enter into an agreement with o\vners to permit such development as specified in the foregoing clause or any buildings to be erected before the scheme is finally approved, provided that in all cases, should it be found subsequently ·that such work in .any way contravenes the provisions of the scheme as finally approved, the owner sl1all 'alter any street, or remove any building, at his own cost, without comjJCll· sation or,payment 9f any kind from the Board.

. . 6306. That clause (No. 51) is not in the British

Act, but. it is advocated by such town planning authorities as Mr. Raymond · Unwin as being a necessary part of the procedure in 'order that pri­vate enterprise shall not be interfered with in the progress of the scheme--that is provided it can do so without interfering with the conditions:

T a

Charles ·c. Reade, 6th February, 1915. 292

of the scheme. That point can be determined by the Commissioners. Following that, I come to clause 52:-

52. ( 1) It shall be lawful for any Board to initiate, prepare, and carry through any scheme of improvement l!aving for its object-

( a) The re-planning, reconstruction, divers~on, clos­ing, widening, or reduction in wrdth of any existing street, or any street shown in :my plan approved. of and consented to by any local authority prior tu the initiation of the scheme.

(b) Or having for its object the readjustment, re­alignment of any existing boundaries, or n .. planning and redistribution of areas held by any owner or owners ..

6307. By the Chairman.-Does the Canadian authority provide for the demolition of property where it is condemned ?-The Town Planning Acts do nob apply to slum areas.

6308. By the Hon. H. F. R'ichardson.-Who has to deal with slum areas in Canada 7-The local authorities.

6309. The municipal councils 7-Yes. 6310. Do you suggest that the local committees

should deal with the whole thing ?-My sugges­tion is that the Metropolitan Board· should really be the housing authority for Melbourne.

6311. For the whole State ?-No, I am speak­ing of the Melbourne and 'Metropolitan Board.

6312. They come next to the Commissioners?­Yes.

6313. First, there are the Commissioners to deal with the whole State, and then the Metropolitan Board to deal with the metropolitan area 7-Yes.

6314. And then there is the power to appoint special committees in country districts?-Yes.

6315. The point I see against the committee is the serious interference with the municipal coun­cils. Your proposals take out of their hands a large amount of work that they have been deal­ing with entirely ?-No, I would not say that is a correct construction of the· scheme. The pro­posal is rather to keep certain of the powers in the hands of the municipal authorities, but to alter the nature of the municipal .control by mak­ing a Town Planning Board, which they them-selves will appoint. .

6316. Yes, but I am dealing with the country districts where you appoint a committee, and if ilnything goes wrong they appeal to the Com­missioners in Melbourne ?-But in the case of _the country Boards their appointment is practically made by the municipality. The only officer 'not appointed by the council is the medical officer·,~ who is appointed by the chief medical officer. With that exception they are all appointed by the ·council. To continue· clause 52-

(2) Any such scheme must be approved by the Com­missioners, and subject to any procedure regulations they may devise in coimexion therewith, and otherwise conform to the provisions of the Act.

(3) No person or ·owner shall be entitled to receive compensation in respect to any work or thing authorized by the scheme, notwithstanding the fact that a local authority may have approved or given its consent to the development of any area in accordance with v, plan submitted by the owner before the scheme was initiated.

That is to anticipate the position when plans have been approved by the local authority for the de­velopment of certain areas which, are not then developed; the plans have re~eiv"ed. the.·'~9uncil's approval, and have all the force of law. In some cases it will be found quite practicable to re­plan an area tJ1at is literally laid out on paper by simply scrapping that plan, and planning a fresh one after receiving the approval of the owners, as provided for 'in the procedure regula­tions.

53. In the case of any department of the State de­siring to undertake any work, set fort'h in the schedule hereto, it shall furnish the Commissioners with a plan, and any details they may require, and if the Commis­sioners approve of such scheme, then the work may be proceeded with forthwith.

54. Should the Commissioners· disapprove of such 1i scheme, either wholly or in part, and the Department refuses to alter its plans or proposals in order to meet the objections of the Commissioners thereto, then the whole matter shall be referred to a special Committee of Parliament, to be called "The Town Planning Com­mittee," which shall hear the evidence of the parties and finally determine the scheme. ·

55. The " Town Planning Committee " shall consist of such persono as Parliament may from time to time determine.

5fl. For the purpose of putting a scheme into effect in which it is proposed to erect buildings for housing pur­poses on any area planned or otherwise dealt with under the Act, a council or !i private individual may cause a society of public ntility to be formed, and, for the purpose of encouraging the inve5tment· of loan capital in such society, the council, by resolution, or the Government, may guarantee the bonds of the saiu society, in whole or in part, provided such bonds do not P.xceed in value 85 per cent. of the capital required for the enterprise, including both land and improvements. Provided, also, that in no case shall a counc1l guarantee the bonds of any &ociety, in whole or in part, without first being authorized so to do by the Commissioners, and for the purposes of this section of the Aet the Commissioners shall make• regulation5, prescribing tile articles of association, the rules, and to regulate suun other matters in such manner as they deem it necessary for the &ociety to adopt and observe.

That is in accordance with the Ontario Act, to which I have referred, and in that connexion I will leave wit!1 you this pamphlet, giving some information in reference to the Toronto Housing Company Limited, which may be useful.

SCHEDULE,

Matters to be dealt with by general regulations vre­scribed by the Commissioners; also a& defined il) section 53 of the foregoing 'c-

l. Streets, tramways, roads, and other ways, in­cluding stopping up, altering, or diversion of existing or authorized highways.

2. Buildings, otructures, and erections, and th., ~>ituation thereof.

3. Open spaces, private· and public. 4. The preservation of objects of historical interest

and natural beauty, including lakes, rivers, ~iver banks, harbor or ocean foreshores, hill summits, and valleys.

5. Sewerage, drainage, and sewage disposal. 6. Lightil}g. 7. Water supply. 8. Ancillary or consequential works. 9. Laying out, erection, or alteration of ari.y rail­

way . work, public lifts, reclamation, . wharf, dock, canal, tunnel, cutting, embankment, bridge, viaduct, or public building.

10. The defining of any residential, shopping, or in­dustrial area, and the height and character of the buildings, and other conditions thereto.

11. Extinction or variation of private rights-of-way and other eaoements.

12. Power of entry and inspection. 13. Power of local Board to remove, alter,_ or de­

molish any obstructive work. 14. Power of the local Board to make agreements

with owners, and of owners to make agree­ments with one another.

15. Power of tho local. Board to accept any money or property for the furtherance of the objects of any town planning scheme, and provisionB for regulating the administration of any such money or property:

16. Power of the local Board to raioe loans for the purposes of any scheme.

17. Application, with necessary ~odifica_tions and . . . · adapt1ttions, of statutory,, epactnients. , ·,18 .. Limitation of time for operation 'of scheme. '·i.9. c.~·~rying out and supplementing the ·-provisions

of the Act for enforcing· schemes. 20. Co-operation of the local Board with the owner"

of laud or other persons interested in any S()hemo by means of conference and other means.

21. To hold or to order the holding of any public inquiry deemed necessary or advisable by the Commissioners.

293: Charles C. Re&de, 16th Febl'tlllrY, uno.

Final Recommendation. This concludes the tentative recommendations. on

which an Act might be based. Before a '!'own l)lanning Act is drafted, I suggest that

the Government should appoint two, or perhaps three, ·expert officers to exuminA these recommendations, and, after conbulting with the officers, and, if necessary, individual members of local bodies, as well ab Govern­ment Departments affected, or others, to submit clauses and recommendations from which n Bill could he drafted.

TOWN PLANNING POLICY FOR AUSTRALIA.

HOUSING IN OVERCROWDED AND NEW .~REAS.

G eneraZ Policy. The general. town plauning policy in Australia should

not be to begm by.:-(a) Condemn!ttion and demolition or renovation of

large blocks of houses that arc ut present over­crowded.

(b) Resumption of areas under existing legislution where such overcrowding exists.

To do so would most likely yield very small results at very large cost. It would also proauee a shortage in the existing number of houses let ut cheap rents, and, as experience suggests, lead to overcrowding and an in­P-rease in rents in other areas of Central Melbourne already den&ely built. The differing policies of "whole­sale resumption" and "gradual renovation" may each be .npplied at their proper time in a comprehensive, f~r­seeing, and consbtent policy of l10using refor_m ste_ad1ly applied over a period of years and workmg simul­taneously with the application of modern town-planning principles ')Ver present and future areas of a city and its suburbs. At this point I would like to emphasize the fact that it has taken many years for Melbourne t,o realize itf> existinl!: problems in regard to housing, and just r•s it has taken many years for that problem to iutensif.v, so the process of reform must he spread over a period of years. If vou attempt to secure any improvement in housing conditions inside, 5ay, five or seven years, without respect to a policy spread over very many years, you will get into difficnlties.

6317. B11 the Hon. ll. F. R·iclwrdson.-Your opinion is ·based on the experience of other places 1 -Yes.

6318. By the Oh.airma.n.-Wha~ difficulties would you anticipate in that direction 1-Well, I would not like· to make a statement without con­siderable consideration.

6319. What are the principal difficulties that have been ·met in Great Britain where they have taken drastic steps for the purpose of wiping out the slum areas 1-You will see from my report that city improvement schemes carried out with­out regard to pre-plannin~; schemes, !)nly intensify the existing housing problems in many cases. .

6320. If you destruct, you must construct w1th it in order to suit the convenience of tenants who have been put ont of their houses that is illOSt important, and in that connexion I would like to refer the Commission to the evidence in my report in regard to Liverpool, and the housing of the working classes there. I will now deal with the

Tmp1·ovement of Pre.~ent !If ethods. Before the Act can be pnsR<>•l n.nd its mnchinery set in

motion. prebent methods Rhonld continue with improve­ments in the direction of :-

llouse to house inspection nt closer intervals, witl1 greater facilities to medica 1 hM lth officers and sanitary inspectors in insisting upon repairs to ~tnd renovation of protJerty before it reaches the ~tage of insanito.tion immediately preceding con­demnatioD.;:.c:.(See Powers' on Demolition in Enll­land, pi>ge '544, and suggested classes, page 550).

Financial encouragement of institutions providing for social betterment ~tnd recreation for men, women, 11,nd children in the heart of overcrowded dis­trict&.

Provision of children's playgrounds on the American pattern, with supervisors in attendance, ap­pointed and paid for by municipal councils.

In respect to that clauoe, I would like to say that I think it would be inadvisable to e'stabli~?I:J qpi1(11·en's playgrounds withollt paid !)Upervisors.

Contour Plans Necessary. A preliminary step of any Town Planning Board should

be the preparation of contour plan of the whole of its area, :with the level drawn at not les5 than 5-feet intervals. The preparation of this plan may cost several hundreds of pounds. It may cost less. In. any case, the expenditure entRiled will be saved many t1mes over when it comes to planning the dibtrict to obtain roads at· the best grades, and at the same time secure the most convenient routes for sewers, storm-water drains, or working out the details of development in any individual estate.

Primary Step to Housing Reform. One of the first steps of the. proposed Metropolitan

Town Planning Board &hould be the fixing of a special area for factories and manufnctures so situated as to give immediate and convenient access to railways . and docks. The locality of the area should be determmed with regard to future extensions of these serviceb, and the Board should exercise its powers to consult as early as pos5ible with the Railways Commissioners and the Harbor Board in these respects.

Garden Subm·bs and Transit. Following the location of the principal industrial zone,

the Board should select anrl purch11.sc one or more areas for future model &uburbs immediately adjoining the means of transit, and, as far as P.ossible, communicating with existing industrial quarters, but leading directly by rail or publicly-owned trams to the factory area.

Houses that will Let at Economic Rents. The housing experts of the Metropolitan Board

bhould a.t once prepare plans for laying out one of the areas as a model suburb on garden city lines. Competi­tive plans should be invited and prizes allocated to archi­tects for houses designed to be built. singly, in pairs, or in groups of four, to suH t.he climate, and to be erected at such cost so that the house can be let at whatever rentals the Board decides are necessary after allowing for a percentage to cover interest on loan and sinkin~ fund, depreciation, management, &c. The Board should specify beforehand the number of rooms, the minimum accommodation in each. the materials, and

·other conditions. A selection of the prize plans should be adopted, and tenders invited . for building at least four cottages each· of the selected designs,* the cost to be covered by Government loan, repay~ble in forty­fifty years. Not more than four self-contained ho·uses, four semi-detached, and two blocks of four each should be built either by contract or by day labour, as the Bon.rd may aetermine.

Encouragement of Pl"ivate FJnte1·pl"ise. After it has been ascertained how to bnilcl and provide

honses at economic rents, or prices t,o oell within the means of a fair p_roporti"on of people livin15 in over­crowded areas. societies of public utility should be ll;iven access to land secured for housing purposeo, and en­couraged to build houses to Jet for working people either individually or on a co-operative basis. Where land and houses can be sold to individual tenants on a time-pn,y­m~·nt basi~ or for ca~h, the proviso enforced by Ulm n.uthorities in remect to re-sale, snb-lettin15, &c., should he enforced .. The s~.me policv shoulcl he adopted in the case of uub!ic utility societie:<. (See p. 562.)

Brieflv, that proviso iE. where a municipality sell& any house ~ml land to n.n individnu,l m: societv, it insists that. if that man wishes to sell that, house· or land, or if he snb-lets it, or in any way contravenee the condi­tions of sale. the town has the right to nurchn,se the hfluse and land back again at the ~original price paid. Thnt vias done purposely to defeat land speculation, and to get htnd at a reasoimble value, so that the people could afl'ord to have the houses at rents they could pay.

Reduction of Ove1·crowding in Central Areag. Whilst these developments towards the creation of !l

~upply of cheap and efficient housing are in course of formn.tion, the housing experts s110uld take steps nrepa.ratory to dealing with overcrowded area' in clif ferent parts of the city. With t,he appro'<al of the CommissiOners. thfl Board shall decide in each of thAse arens stnndards of the maximum number of dwellingR to the acre which will be permit.ted under any future rebuilding or reconstruction scheme; l~kewise the mir;i­mum amount of renovation thev cons1der necessary tn order to reconstruct a house or houses in order to make them IH111lthy !lnd hahitable. At the proper time ~ census should be taken over each area in order to

• For useful sugl'estions see report of " Advi8ory Committee on Rurnl Cottages, 10l4.'' ,(Fisher Unwin, p1.1blisher) official puhlicat.ion.

.Charles 0. Reade, ·16tn Febru&ry, 19U>. 294

ascertain such parti Julars as will enable the Board to determine the peor le renting houses whose occupa­tions and means will enable them to live in the model suburb& in course of erection. As rapidly as new houses are rendered ready for occupation or purchase in model suburbs, the Committee should bring pressure to bear upon these in! abitants, and offer every inducement in its power in ori .e1• that they may be prevailed upon ~{) take up residen,,e in the new quarters. If necessary, t~~~ Com·mittee, w~th adequate cause for &o doing, shall orde.• i:hese people to leave, and refuse to allow the house to '"' mhabited until the owner ~hall repair same according to their requirements. When sufficient people have been transferred in this fashion, the Bonrd shall, according as circumstances dictate, use either "wholesale demolition" or "gradual renovation," in accordance with a plan and scheme for rebuilding or reconstruc­tion approved of beforehand in all its details by the Corn· missioners. '

The Case of Individual Owncr5. In the case of individual owners residing in their

own .houses which are judged unfit for hnhitation, the Board shall purchase house and ground at valuation on condition the owner invesb the sum so paid in the purchase of a house in any other suburb not over­crowded, or the Board may exchange the existing pro· perty for a house 1md grounds in any model suburb under its control. All such re-housing proposals shall be subject to authorization by the Board and otherwise copform to the regulations of the Commissioners.

State. Aid not the Only Policy. Reliance should not be placed wholly on the activities

of the Metropolitan Town Planning Board for the relief of overcrowded areas and the provision of chea.p houses in new suburban areas. Part of the policy of the Board in its negotiations with land"owners should be in the direction of encouraging them,·as well as private build­ing enterprise or individual purchasers, to erect such houses fc~,r sale or rental by allowing a greater density of dwelhngs per acre than the maximum standard 11dopted generally in any· particular district.

Concessions to Private Individuals. 'l'he policy of 'the · Board should also be directed

towards making conce~sions in respect to road widths <tnd cost of development genen1lly to land-owners, em­ployers of labour, and societies of public utility who are "'tiling to encourage houses for people of modest income.

_-During the preliminary period of negotiations and pre, paration of any scheme, the Board may enter into agreements for this purpose with buch persons or socie­ties, or it may insert special clauses in the· scheme and indicate any lands on the final plan with the object ~f .giving effect to such arrangement. •t

Co'operation of Land-oumers. In the laying out or deveiopment of new suburban

areas, the policy of the Board &hould be directed to· wards ~:curing the support and co-operation of land· owners. Under present law, owners must provide a statutory width of land for streets. The Board should not make any.concessiom t.o owners in this respect,''o:?:in regard to the number of houses to the acre, wil.Hout securing in return free sites for recreation grounds, schoo)s, o_r other public purposes in tha direction of securmg the amenity of .the locality. Many land"owners recogni~e tha.t "t.he long view" in estate development is that which best insures security against depreciation ~nd steady_ appreciation of values. They cannot put it mto practiCe, however, under· Present conditions, aR there is no protection against Ios> by destnwtion of residential amenities either bv owners or others in t.hfl immediate vicinty or' their 'Ian·d. The encourage~ent of " the long view " in owners. therefore, should be part of t.he poliey of the Board in deciding the use or the density to which land. may be put.

Planning Large Areas. In the preparation of the tQwn plan for the metro

politan at'e<<, ·the best experience advises the tnking ill: of as large an areo, as possible .. Should the area prove too larr;e in actunJ working, out cif- the details, .the plan· ning of portions of it may readily '1:\e. dropped or post­poned beforEb the prllliminary plan is adopted. No nompensation or interference with private property will be involved by the process.

Variation ·in Road Widthc. The Commibsioners and .the Board should both recog"

nise that in all cases it is unwise and entailing useless expense, telling against cheaper renta.ls and values, to have more width of roadway than is sufficient for the immediate use of the traffic. Provision for tl1e future

can always be made by securing ample width ,between building· lines. For the construction of various widths of roads for town-planning purposes, the following bCale might be taken as a basis, and subject, of eourse, to variation as special circumstances require :-

1. Footpath -Road Access to Dwellings off Hoad. The footpath should be 8 to 10 feet in width;

length not to exceed 150 feet. The number of houses not more than ten. One end must open into a carriageway metalled not less than.l6 feet wide exclu~ive of footpaths" At opposite end a turning space for vehicles must be provided. The houses to be not less than 60~70 feet apart.

2. C1m·iagc Drive Slwrt Length Resiflcntial Road. To bnve carriageway 16 feet wide laid down in

tarred macad_!lm or dust"resisting surface. Land­owner to dedicate a total width of 20 feet for road, and to agree to a building line secutirig not less than 70-80 feet between thll houses. Corpora· tion at nny future time to have the right to take additional land on either side from front gar­dens to widen street. One end must be con­nected with a car'riageway metalled not less than 16 feet in width exclusive of footpaths. In this case length must not exceed 500 feet, and two turning spaces for vehicles provided. WP,ere both ends connect with a 1G"feet ro!l.dway ns aforesaid, length not to exceed 750 feet, with two turning spaces for vehicles in between.

·s. ~on-traffic Hoadways. Minimum carriageway, 16 feet,· metalled du~t".P;!.:OOf

as before; minimum footway, 4 feet; mm1mum width dedicated by owner, 30 feet; minimum building line between houses, 80 feet; maximum length, half a mile. Turning spaces for motors or large vans to be provided . not further apart than 750 feet. A cross road to count as a turn· ing opaee.

4 . .LocaL Traffic Streets. Minimum width of carriageway, 24 feet; footpath,

6 feet; dedication by owner, 50 feet; build.ing line, 80-100 feet, as circumstances reqmre. Usual requirements as to asphalt paths, kerbs, channel, &c.;· would be n.ppropriate.

5. Through Traffic Stre~ts J,iab!c to b~ used fo1'. TranM. Two minimum width roadways, 18 feet each; foot·

paths, 12 feet; central promenade, 20 feet1 d~di" cation, 66 feet; total street width, 80 feet; budil­ing line, 100 feet. Aophalt paths, kerbs,. chan­

·nel, &c. G • .llfain Traffic Roads with or without Trams. . Jl.finimum. width of two separate roadways, 24 feet·

each; footpatps, 14 feet; central promenade, ~ feet. Owner to dedicate 66 feet, and balance purchased hy municipality.

7. Main Arterial il.oads, carrying Special Amount of Traffic. ·

These would have separate tracks each ·for' motors, trams, and ordinary vehicles, cycli~t and pedes­trian ways, and tree-p,anted margins. ·width would have to be defined, as. occasion requires. Choice of materials and methods of constructiOJi nre matterb that must n.lso be left to towu"plaq­uing administrators.

Dedication .by Owners. The· Board shall require owners to d,edicate whatever

wirlths are necessary up to 66 feet in width. Any w.ic:lth above 66 feet must be purchased. The Board at anv future time shall have power to take an increased \vidth for street-widening purposes on 'either oide of the road­w·ay within: the building lines at· the existing value of the land, and without compensation for disturbance, &e. This power should be embodied in the scheme. In the case of st.reet ·widenings the Board will be in the posi­tion of heing able to secure the necessary land at fair value and reeoup a proportion of the cost of recon­Rtruction· of ·the street by means of betterment. By reason of1 .their power to. determine the use_ of a street, 'ii.nd therefore its value to an owner Wisbin~ to develop, •the Board, by the exercise of judgment· 'and ~are, ·secure , the dedication of the- land for any street _widening without charge.

Cost of Street Construction. The cost of con&trueting ne\v streets should be de·

frayed in the following manner:-The municipality or Board shall construct all new

streets anq reoovP.r the eost of the same from the original owners who dedil"ate the land. In the case of otreets· where land ~s to be purchased ahove

295 Charles C. Reade, 16th J!'ebruary, llll5.

the maximum width of dedication (66 feet), the Board shall ·agree with the owner or owners as to the contribution to the total co&t they shall make.

The Board may arrange with owners that they shall construct and maintain all streets where the dedication does not exceed 66 feet at their own <!xpense, in accorciance with the requirements of the scheme, until such time as the roo.ds are taken oyer by' the Board or municipality.

. The foregoing covers some of·. the m>~in points whi~h should. influence the town-pl~nJlmg pohcy of Anat:al:a immedw.tcly powers are avallalllc, but of course 1t IS

by no means complete or final. In conclusion I eau but urge upon the allthorities

that the first step in all these matters, imd the only comprehensive and effective method in treating the civic problems of Australian cities, as well a;, provid· ing for their immediate future, is the pl\ssing of a Hous: ing and Town Planning Act on the lines already set forth.

6321. By the lion. H. F. Riclwrdsmt.-Your suggest-ions, I presume, are practically based on the Canadian principle 1-No, not altogether. I referred to some clauses there, but it was only in those specific instances.

6322. Where is there a Board in existence simi­lar to that which you suggest ¥-In Ottawa there is a Town Planning Board.

6323. Well, this would be practically a similar Board ¥-Yes. As far as my knowledge of the Canadian Board goes, I may say that a Town Planping Act for Canada was drafted in 1912, and I am not sure whether it has become law in the way in which the Act proposed. I have not any information on that matter, but you could get it by writing to :Mr. Thomas Adams, Commis­sion of Conservation, Ottawa, Canada. Mr. Adams was, until lately, town planning advisor, to the Local Government Board of England, and he has lately gone to Canada to undertake the control of town planning legislation and powers, and his proposals in regard to town planning would be necessarily based on the experience of England, and, of course, what he has seen on the Continent. He is a well-known authority on the subject.

6324. Would you suggest that this .body should have power to purchase and to build ?-Yes, sub­ject to the approval of the commissipners.

6325. But I am referring to the commissioners~ ~No, I do not thi1,1k I would suggest tJ1at the commissioners should have power to build.

6326. \Veil, supposing we cannot induce any private individuals oor companies to go in for building dwellings for the poor people, how are you going to solve the difficulty ?--I am sure I do not know. The experience of other countries shows that where these opportunities are given there is a ready enough respo'nse 6n the part of private enterprise to take the matter up.

6327. B;lj the Hon. J. Sternbe1·g.-Do you think the State should go in for that at this particular juncture 1-You will see in my proposals that I have suggested that the :Metropolitan Town Planning Board, subjoot to the approval of the State commissioners, was to take action for hous­ing purposes. I certainly think that State hous­ing is necessary, because· to some extent the housing of the working classes in Australia is ex­perimental, .~tild .you are not going to sit down.,at once and .draw· out plans and build ho.uses· that are going to touch the particular problem. You must have a certain amount of experience before you gQ too far. I say that necessarily the policy of "go slow" should prevail with the Board.

6328. You suggest that model suburbs should be made here, and that provision should be made for factory .sites and dwellings, ·&c., in certain areas 1-Yes.

6329. If no power is given to the Bo~rd to build, you will have to leave it to private enter­prise, and what if private enterprise does not come in ?-I have specifically stated th¥'t the Metropolitan Town Planning Board shall purchase land for the purpooe of housing.

6330. That is not the commissioners-that is the Board appointed by the municipal councillors 1-Ye!ii, the position is that the commissioners can exercise control over administration, and that ad­ministration itself should be vested in the Metro­politan Town Planning Board.

6331. And you would give that same power to other centres of population to purchase land and build 1-Yes.

6332. As far as factory sites are concerned, you would not suggest that the present factories should be allowed to extend their premises 1-No, I would not go as far as that. If the chairman of the Town Planning Commissioners or the chair­man of the Metropolitan Town Planning Board understands his town planning powers, I think that without in any way acting arbitrarily he could persuade manv employers to go further out instead. ·

6333. By the Hon. J. Ste1·nberg.-Would you place any restrictions on their extending their premises~-I think each case should be decided on its merits.

6334. Supposing the merits are decided and the proprietor of som.e individual factory wants to extend his premises, would you place any restric­tion on him ?-I think I would. . 6335. By the Hon. H. F. R·icha.rdson.-And you would give' power to the commissioners to deal with it ?-Yes.

6336. We have heard evidence from the British­Australasian Tobacco Company, and they point out that it is not desirable to place all tlieir em­ployes in one district. They have a. sort of build­ing society scheme for the erection of dwellings, and their places are scattered all over the suburbS~ of Melbourne. Do you think it is a good thing to concentrate in one place a large number of employes of one factory ¥-No, I do not, and that is not contemplated in my proposals.

6337. It would be if you had t·he factories itll on one site, and the people near them ¥-Not necessarily. There are many people working in factories who would necessarily prefer tO live away from their work, but what I am trying to hr;ing into force is suburban housing for the poorer p/:tOple, and I say it would be better for them to li~e there in the open than in the slums.

6338. By the Chainnan.-And you would separate a factory from a dwelling?-Yes.

6339. By the Hon. Jl. F. Richardson.-You suggested semi-detached dwellings. \Vould it not be better in a country like Australia to have them detached ?-Yes, I agree that it would, hut there again it is a matter for experiment. :My opinion at the present time--without being a final con­clusion-is that until you resort to the economies provided by building in fours and pairs, you will not provide houses at rents which the majority of the people earning a low income can afford to pay.

6340. By the lion: J.- Sternberg.-You have formed your opinion after a residence of how long in Australia ?-About twelve months.

6341. From a san'itary point of view, of cour~e, it would be bet.ter if the houses were detached m­stead of semi-detached ~-Yes.

6342. By the Hon. H. F. Rich(];rdson.-From your experience, what do you consider to be the chief reason for the existence of those slums, Does .. drunkenness play an important -part ?--:-I have given a description in my evidence of this

Chailes C. ll.eade, 16th February; 1UI5. 296

p!an-[producing]-illuatrating the process which Wurtemberg. That is a city of 59,000, and you has taken place in most European cities, and will find in the report full details of what has wJ:lich. I believe is taking place in Australia to- been done. Wurtemberg is one of the German day. The centre of this plan shows the corn- States. The finest example of modern town mercial area, while this outside radius represents planning principles. in respect to· hou&ing, as well the suburbs, and as the commercial area spreads as in general socia.I, economic, and resthetic wel­out and the suburban land values rise, you get a :rare, is Letchworth Garden City. state of slumdom in this intermediate space. Of 6352. By the Ohairman.-Do you know any course, there are other reasons, but that is one of place where the municipalities have provided free them. The rate of wages plays a very important :means of transit to the people ~-No, but you will part. My own opinion is that underlying this :find in Belgium that for something like 10d. a question of housing and slums, probably the most week a man can travel daily right out of the town important thing is the question or laiid values. into the country. I will attach a memorandum

6343. Of course, that would apply here to an to the report giving details in regard to that.­area like Car1ton, but why don't the people move [See page 565.] out further 1-For the reason that the land out- 6353 Do "ou th' k · 1 • v m nom your own persona side that area has gone up also, and they cannot knowledge that a system of. free transit would afford to go out. n· is not economically possible , help so far as the housing of the people is con­to house those people under the existing conditions cerned 1-I am of opinion that if it was not abso­of land speculation. Iutely free, transit run at a loss at certain hours

6344. Does the same trouble exist in other places . of the day in order to get people to go out further as in Melbourne-that those people want to be as · would be a :very good investment on the part of nea~ as possible to th~.ir :vork, and they will ~ay the comm~mty, because of the saving tliat would a higher rent, and live m slum dwellings prm- be made m other ways, such as a decrease in cipally for that reason 1-Yea. There is no doubt crime, drunkenness, and immorality. there is a proportion of people in all large towns 6354. By the lion. H. F. R 1:chardson.-Would who must be near the scene of their labours, and f who are compelled by their economic circum- , you suggest ree trams leading out to a country

suburb1-No, not free; but I would advocate stances, and not by their personal desires, to live fl under those conditions; they have no choice in a at rate, and any loss made by the Railway the matter. . Department or T~amway Company ought to be

6345. That is the experience of other places 1- .·met by a subventiOn from the public funds. y 6355. By the Chairman.-You have an intimate

e:S46. By the Hon. H. F. Richardspn.-Where knowledge of the working of the British scheme 1 -Yes: a system of town planning has come into opera-

tion, have you any statistics to show a decrease : 6356. And you have read reports of the work­in the death rate 1c-Yes, there is the case of mg of the Canadian scheme aqd others in other Bournville village, as you will see on this poster parts of the world~-Yes. -,-[producing]. I propose to include in my ill us- 6357 · Does this scheme that you have suggested trations a diagram of how the death rates corn- . comprise. a l!ttle ·of each of those you know' to­pare. You will find a very great difference., gether with a number of your own ideas for im­You will find the dea:th rate at Hampstead gar- provements in the working. of all those schemes 1-­den suburb is about 5 per 1,000, while in other That is so. existing towns it averages about 16' to 20 per 6358. You consider that this scheme you ha"e 1,000. presented to us is more up to date, and wil] work

.(~347. In the cities where the municipalities have ' much better and be more effective in the interests been fighting this trouble, has the death rate de- , ?f .town planning than any other 1-Yes, that creased when the slum areas were abolished 1- IS 80· · Yes, you will find some striking statistics in my 6359. By the Hon. J. Sternberg.-I take it that evidence in regard to Liverpool. In Liverpool : you have reviewed all those schemes with a view in 1864 under slum conditions the death rate was , to adopting the best portions of them 7-Yes, th;J.L something like 60 per 1,000,· and since the slu:ms ·is so. have been demolished, and the people re-hous~d 6360. By the Ohairman,_:_Do you :find the in tenements and cottages, .it has fallen to 27 per lodging-house system very prevalent in England, 1,000, and there has also been a considerable im- because here, I may explain, we have over­provement in the crime statistics of the district. crowded to such an extent that in a number d

6348. Touching on crime. Was any change two or three 1,1tory. buildings in my own district made in regard to immorality ~-There are no here in Carlton there are rooms .let to married statistics that can give real and accurate informa- families with children, and they simply live, eat, tion as to the amount of immorality, but the gene- and sleep in one or two rooms. Do you find that ral opinion is that where you give the peqple ; problem very prevalent in England 1-Yes, very decent housing conditions and plenty of light and prevalent. air, immorality cel'tainly declines. 6361. What are they doing to meet circum-

6349. Dealing with prostitutes. Have·. yoii stances of that sort 1-I have mentioned in my re-f~:mnd in many of these places you have visited, port a book published by the London County that where the profltitutes are concentrated in Council, giving a very full account of their hous­one quarter of the town, that leads to less im- ing undertakings, and in Part 3 of .the Act. you morality, as compared with having them scattered will :find that they provide ·numerous types d all over the district .as they· are .hel',e in ,Melb.ourne ~ lot:lging ):iouses, both for singli?::wbrk:)nen and ·-That is a very difficult questio'n"to answer. ~'a'rried 'people. . '•' '·· ·C .,( •

6350. Perhaps you would not care to a::hswer it~ ., .6362. By the Hon. J. Sternberg.-Large houses, -No, I cannot say that I am competent to give J suppose ~-Yes, they are usually tenement an opinion on that. houses> but that is not a phase of the matter that

?351. W!tat part of the world, in your opinion, I have investigated. I have been through some has handled this housing or town-planning pro- of the lodging houses, and they impressed me as blem in the best manner 7-I would prefer to being very o·rderly, clean, and effici~nt, compared answer that question by stating a. particular city with the condition which I have personally ;n­inBt<lad, and that is the city of Ulm, !lituated in v€lsti~~J1teg i:q some of the British towns. I think

297 Charles 0. :Rea.de, 16th l!'ebruary, 1915.

you will find the experience of the London County Council as illuminating as that of any local authority in t.he world.

6363. It is not in any way advantageous to the children ~o be brought up under those conditions7 -No, it is not.

6364. Do you think it has a tendency to im­morality. . You mentioned something about the Housing and Land Commission that was appointed by the British House of Commons in 1912-13. In their report they stated that there were as many as ten or twelve people living in one room, with girls and boys up to the age of eighteen years and twenty years sleeping in the one bed y.:_Yes.

6365. That has a great tendency to immorality~ ~Yes, there is not the slightest doubt t.hat the­experience of these lodging houses is in the direc­tion of proving that the conditions of hE>aJth ar·d the social conditions generally are not nearly as good as the average for the rest of the city.

6366. Then vou would recommend that the lodging-house system should not be recognised as the proper one ~-That is so; it slwuld be the last resort in any 'attempts to improve the housing conditions. ·

6367. That is for families Y-Yes. 6368. Of course, the lodging-house system for

single men is not so bad 1-Yes, I was going to suggest that while the Commission is in Sydn{:;y you could get the oonefit of their experience as to what has been carried out by the State Housing Board there, or, as it is called, the Resumed Pro­perties Department.

6369. You have visited New Zealand ~-Yes. 6370. I understand the Government there has

from time to time spent over £2,000,000 in en­deavouring to solve this problem of the housing of the people 1-Yes.

6371. What is your impression of the work of the Government there1-Well, I may say that I have seen the type of house provided by the New Zealand Government at Auckland and Dunedin. I have also investigated the types of houses provided by the Western Australian Go­vernment under their policy of erecting houses, and my opinion is that the method of constructing and the cost is such that in neither New Zealand or Western Australia have they yet succeeded in providing houses in which you could reasonably hope to house the people you have to deal with here in your slum areas. That is one of the reasons why I suggested just now that you will have to resort to the building of houses in pairs and groups, and resort to other economies before you can get the cost down within the reach of the people without sacrificing the efficiency of the house.

8372. By the Hon. J. Sternberg.-You are pre­pared to admit, though, that New Zealand stands right in front in that respect as far as Australasia is concerned 1-Yes.

6373. They are the most advanced in that re­spect 1-Yes.

6374. And are they continuing on those lines 1 -As far as I know they are still building houses on the lines they have previously adopted. '.£'hey have not made any alteration. I am going .back to New Zealand, because I have not yet had an opportunity of full investigation.

6375. You intend to lay your views before them 1-Yes.

6376. BJt the Hon. H. F. Richardson.-I un­derstand the Housing Department is a Govern­ment Department there ?-Y ~s, it is part of the Labour D~p;u-t~ent. ·

6377. In your opinion, it. has not met the diffi­culty of the slum dwelling ?-No.

6378. By the llon. J. Sternberg.-:-But it is an advance on anything anywhere else in Australasia 7 -Decidedly. I do not want to convey any wrong

. impression about the good work they have done. 6379. By the Chainnan.-But in your opinion

the thing could be greatly improved 1-Yes. I do not wish to minimize the value of that work. I think that in both Western Australia· and New Zealand the work done in that respect is very in­structive, and the type of house or cottage pro­vided is materially in advance of what you would get for the same rent in other parts of the town, but tho point is that they have not yet touched rock-bottom in their costs, so that they will he able to house the slum dwellers on the outskirts at cheaper rents still.

6380. What is your opinion of the methods in Western Australia 1-Well, the weakness of pro-. viding houses under the method of a State grant gene~ally is th~t, _first of all, you get all the waste ~ntaded by bmldmg the houses individually, and you do not secure the economies that we get at Home by building the houses cpllectively. Wherever you build the houses individually in t~at way, and especially detached houses, yon w1ll find that the cost of construction rises con­siderably compared with the other method. On general grounds, I think if you can combine the p_rinciple of the individual grant with the prin­ciple of colleetive construction you will begin to get nearer the solution of the problem than is possible under the existing system in \Vestern Australia or New Zealand.

6381. By the Chairman.-Do you favour the system of tenancy under the municipality, or do you favour the private ownership of houses 1-Tn Australia I think the private ownership is the first consideration to be sought for.

6382. You believe in every man having his own home?-Yes, hut at the same time I must make this reservation-that practical considerations f?r.ce ~e to recognise tl~at there is a class of people hvmg m these Austrahan overcrowded conditions who are really "rent-paying animals." They will always pay rent, and they seem to correspond in some degree with some of the people we have at Home. , .6383. They have no ambition 1-No; with that

,G1~ss of people you can only provide them with 1~ house with a rent which they can afford to pay.

6384. By the Chairman.-Or give him the means of ~etting hi~ own property; then he might be like a tiger--havmg once had a taste, he will want more1-Well, of course, experience will determine that point.

LITERATURE AND REPORTS RELATING TO TOWN PLANNING.

Submitted to the Royal Commision on Housing in Vie· toria bu Charles 0. Reade, Organizer of The A.ustra~­asian Town Planning Tour on behalf of the Garden Cities and Town Planning Association of Great Britain.

LITERATURE.

Totcn Pla,nnin,q in Practice, Raymond Unwin, F.R.I.B.A. (Fisher Unwin.).

Town Planning-Past Present, and Possible, H. Inigo Triggs. (Methuen.)

Practical Town Planning, J. S. Nettlefold. (St. Cather­ine Press.) (1913.)

f'1·aotica.l Housing, J. S. Nettlefold. (Fisher Unwin.) The Cheap Cottage, J. Gordon Alien. (Garden City

Press, Letchworth.) The Garden City, C. B. Purdon. (J. l'rt. Dent & Son.)

(1~1~.)

Charles C. Reade, .,15th February,l911>. 298

Improvement of the Dwellinos and Surroundings of tlic People, T. C. Horsi'all. (University Press, Man-chestei·.) (1905.)

Eut·opean Cities at Work, Frederic C. Howe, Ph. D. (Fisher Unwin.) (1913.)

Housing and .Town Pla~ni11g Conference ·at Yarmouth., 1912, ofiic1a) report Issued by Municipal and County Engineers of Great Britain .. (1913.)

Civic Art, Thos. H. \:raw~on, Hon., A.R.I.B.A. (Bats-ford.) ......

Transactions of the Toum Planning Conference, 191(}, J_,ondo'n, issued ·by Royal Institute of Bt'itish Archi· tects. (1911.)

Honsiny of the Working Classes in London, 1855-1912, official London County Council publication, obtain­able from P. S. King & Co. (2 Great Smith-street, Westminster.)

Publications Issued b!l The Garden Cities and Toivn Planninq Auociatwn.

3 Gray's Inn-place, London, W.C. Garden City Movement Up to Date, Ewart G. Culpin. Town Plat~nino Powers, edited by Ewart G. Culpin. 1'own Plannino in Theory and Practire, edited by Ewart

G. Culpin. iVothing Gained by -Overcrowding, Raymoncl Unwin,

F.R.I.B.A. . Wlwt Town Plannino Means, Georgo L. Popler. G;arden Cities of To-morrow, Ebenezer Howa,rd, J.P. Proceedinqs of Housing Section: Prevention of Destitu·

tion Conference. (1912.)

Publications Issued by the National Housing and Town Planning Council.

41 Russell-square, London, W.C. Jla!'ious Reports of Continental Tours and Cities J!isited,

made by British Housing Reformers. Proceedinos of 8tle International Hottsing Congress, J_,on­

don. (1907.) fJth International Hou;~ing Cong1·ess. ( (1908.) J! a·riotts Pnpers eont1·ibuted by Municipal Officers and

others to Annual Town Planning Conferencf}s ilt Great Britain.

. REPORTS.

·Report to Calcutta Improvement Trust, including outline and details of European and English town planning powers, by E. P. Richards, M.I.C.E., &c.

(With maps, &c., £5. Obtainable from E. P. Richards, Ware, Herts, .England.) (1914.)

Reports of Town Planning Enactments in Germany, by B. W. Kissan.

(Indian Civil Service official publication.) (1913.) ReP'brt of Housing Committee on Visit to Germany.

· · (Birminghan1 City Council. Obtainable from Town Clerk.) (1906.) .

Report of Deputation to European Cities. (Birmingham City Council.) (1910.)

Report of Representatives at 9th I ntemational Ho1t.~ing Congress. .

(Birmingham City Council.) (1910.) .n Reports of Liverpool Housing Gom·inittee. (1910-11-12-13.) Reports of Dr. Hope, frl.D., Medical Officer of Health,

Liverpool. Beports of Dr .. J. Robert.w11, J.f.D., B.Sc (M.H.O.), Bir­

mingham.

PER10DICALS.

Tou:n _Pl!tnning Review, illustmted quarterly ·review, edited by Professor S. D. Adshead, F.R.I.B.A. (Chair of ·Town Planning, ·London University), in collabora­tion with Professor C. H. Reilly and Patrick Aber­crombie (Liverpool School of Civic Design).

Ga.rile:n Citie.1 and Town PlanniniJ, illustra'ted monthly journal, the ·official· organ of the Garden Cities and Town Planning Association.

NoTE.-Both the ~bove contain many valuable particu-lars unobtainab1o elsewhere. Back numbers can ana should be obtained.

B1·itish Government Publications, ·obtainable from · Wyman & Sons. ·

29 Bream's Buildings, Fetter-lane, London, E.C. Housin!l of the rVorlcing Classes Acts, 189(} and 1B93. lnduslrial and Proddent Societies Act 1893 and its

Amendment. (1913.) Housing and Town Planning Act. (1909.) Amended Pmceii11re, Regulations thereunder, issued by

the Local Government Board, together 1vitk Board's J,etter, (1913.) ·

Various Memora.nda iss'ued by the. Local Government lJom·d, dealiniJ with the Housing of the Working Classes A et 189(}, and it.~ amendments.

Report of Advi~o:·y Committee _on Rural Cottages, issued 1914; contammg useful plans and important aspects of cheap cottage building. (1914.) ' :

R.eport of Royal Commission. on Housing Conditio11s in Dublin: (1913.) .

•Report of Royal Commission on London Traffic. (1905.) •Report of the London Traffic H1·anch of tl1e Board of

Trade. (1908.)

AMERICAN PUBLIOATIONS.

Uodern Civic Art, Profesoor Charles M:ulford Robinsou. (3 dollars net.)

The Impro11ement of Towns and Cities, Professor Charles Mulford Robinson. (1 dollar net.)

1'he Width and Arrangement of Streets, Professor Charles Mulford Robinson. (2 dollars net.)

(411 published by Engineering News Publishing Co.) · Natwnal Conference on City Planning (Proceedings 1910,

1911, 1912). Secretary, Flavell Shurtleff (Ul Congress­street, Boston.) (2 dollars.)

Housing Reform, L. Veiller (Charities Publishing Co., Now York.) (1 dollar 25 cents.)

Tenem.ent House Problem, De Forest and Vei!ler) (National Housin~ Association). (3 dollars.)

First Report of the Tenement House Department of tlie City of New York (National Housing Association). _(2 dollars 50 cents, po&tage 40 cents extra.)

Housino of the Workinq People, by E. R. L. Gonld (8th Special Report of the Commissioner of Labour, Washington. (Free.)

Housing of Working People in tlw United States by Em· players, by C. \V. W. Hangu.r, Bulletin Bureau of Labour, No. 54, Washington. (Free.) .

Tenement .House Leoislation, State a••d Local, McGregor, Madison, Wis. (Free.)

Housing Movement in Wushingtou. Geo. M. Knher, 1\LD., Washington Sanitr.ry Improvement Co. (Free.)

House Fly, Disease Carrier. L. 0. Howard, Stokes, New York. (1 dollar 25 cents net.)

Nationa.l Fiou.~ing A.ssnciation Pamphlets. (!'i cent each, except Nos. 12 anrl 17, ·10 centH ea.ch; total, 75 cents.)

The Housing Awakening Sel'ies in t:hc Survey, 191{}-11. . (Total 2 dollars 65 cents for the thirteen numbers.)

Housing Problems in America, Proceedings 1911-12, Vol. 1, Vol. 2 (National Hou~ing Association.) (2 dollars, post free.)

The witness withdrew.

I nq~tiry ad.jottrn.t,d.

( I:. a ken at Sydney.)

TUESDAY, 23RD MARCH, 1915.

Present:·

H. I( SoLI,Y, EsQ., M.L.A., m the Chair; E. J. Cotter, Esq., M.L.A., J. Menzies, Esq., M.L.A., The Hon. H. F. Richardson, M.L.C., The Hon. J. Sternberg, M.L.C.

John Sulman, F.R.I.B.A., examined.

6385. B:q th.e. Cho:irmctn.----'What are you 1-A consulting architect, 'and president of the Town Planning Association of New South 'Vales."

6386. :Blave you prepared· a statement in regard to the important question of the housing of the people 1-Ye~. The witness read;rthe following statement:~" The proper housing of the people is a question of grave concern to all citizens who .have the welfare of their fellows at heart, but it is only a pal'!;, though an important one, of the much larger. question. o-f irnproving the conditions of life of the poorer section. of the populatio~, anft he~ce,_ to. a ,certain extent, general conditions

• OIJt~inuble only through the British0Government ..

299 John Subnan, 23rd Mareh, 1915:

must be considered if any satisfactory result in housing is to be attained. Congestion and in-

• efficient dwellings have no doubt existed ever since towns were built, but as few were very large, and beyond the walls they w~re surrounded by open country, these evils we,re not so apparent as in

, these days of big cities. The industrial development of the last century is the primary cause of the modern slum. Factories, machine production, and modern trade require a large supply of compara­tively unskilled labour, and hitherto these have all centred in the cities:- We cannot go back, but to go forward on sound sociological lines means much thought and experiment. A minimu~ liv­ing wage for workers is UO}V accepted as funda­mental. This provides for housing of the simplest character that a man, wife, and two or three children can live and thrive in. Where ff!,milies are large, they cannot, however, obtain it satis­factorily under present conditions in Australia. With , single men and women this difficulty does not arise; but they are in a minority. There is, however, a large class who cannot earn a living wage, whom we call the poor. They may be divided into the ' deserving ' and the ' undeserv­ing.' Amongst the former are the untrained and unskilled workers, the old, the weakly, both in body and mind, and widows and deserted wives with families to bring up. Amongst the ' undeserving ' are drunkards, 'and the lazy, dissolute, and criminal classes. Neither class can pay for proper housing under present conditions, and it is they who make and fill the slums. The deserving poor require all the aid and sympathy we can give, and remedial measures must be many, varied, and long continued, to raise them to the level of a reasonable life. For instance, the ' dead end ' occupations so many boys enter because of immediate good wages is a considerable factor in producing the class of casual unskilled workers. For this, education is tbe remedy, in continuation schools, technical or otherwise, and it should oo compulsory on all who are not learning a man's trade. For the old we have pensions, but they are only sufficie11t to pro­vide food and clothing, and to increase them materially would be too onerous a burden on the general community. ·Filial affection in many cases supplements the allowance, and should be made compulsory, either in money or kind, where children are unmarried or have no family, or where they are earning over a living ~age if mar­ried and have a family to bring up. Some relaxa· tion of the conditions of the pension is very desir-. able to encourage pensioners to earn a little tn supplement it. and so secure decent housing. In the case of deserted wives, every effort should hi\ made to trace the defaulting husband, and make liim contribute to the support of his family, but for this international legislation is reouired. Widows with families, and. the weak in body and mind, present more serious difficulties; the former may, and often do, earn a living wage in various ways, but some· aid, such as a day nursery, is required in looking after the children while the mother is out at work. The weaklv and inefficient will. hpwever, have to be helped by the com­munitv· in 'some ·form or other if they are. to ·be housed··decently. At present they degenerate. and become slum makers. As regards the undeservin~; poor, we must. I think, reconsider our whole atti­tude to this class. At present thev are allowed to go their <Jwn way until they break the law, and are then promptly punished, this treatment being repeated ad nauseam. There is practically no serious attempt at reform except by voluntary effort. Hence, as <J, mass, tliey go from bad to

worse. The old idea was that they are innately wicked, the modern that they are physically or mentally defective, and should be treated more or less as diseased or irresponsible. This means segregation and training until they are schooled to usefulness. For instance, in Holland, one hardly ever sees a drunkard in the streets, as all habitual drunkards are promptly removed to a labour colony till they can be safely allowed out. It means a considerable interference with the liberty of the subject; but it must come if pre­s.ent evils are to be remedied. It is notorious that criminals become more criminal in gaols. A pro­mising beginning has been made in New Zealand, and also in New South Wales, in employing pri­soners in re-afforestation and other outdoor useful work. More progress would have been made but for the opposition of trade unions to remunerative work in gaols. For instance, marble working for Government buildings was successfully carried on at Bathurst for several years. This is very short. sighted, as people who do not work have to be supported by the community, and hence reduce the effective value or wages. The more that is produced, the :tpore there is to divide. As to the man who can work but will not, he ought to be made to work, and prevented sponging on his fel­lows. Labour colonies for adults and removal of children to a better environment would soon make a marked difference in the slums of our cities.

The above would effect a moderate reduction in the numbers of the class who cannot afford decent housing; but the ultimate aim of social reformers should be their elimination by non-propagation. This is a question of eugenics, and is commanding more and more attention amongst thoughtful people. But it will take many generations to effect any material improvement. Meanwhile, what is to be done1 We have badly-planned con-

. gested areas, with poor dwellings, often quite unfit for use, both in our cities and the nearer suburbs. To eradicate them 'root and branch means such a l~eavy outlay in most cases that municipal finances cannot stand the strain. Where they can be turned into business or factory quar­ters, reconstruct.ion may pay for itself; but where they cannot, it seems to me advisable to improve them by pulling down the worst, repairing the best, and giving more space, air, and light to those that remain. These can be occupied by those workers who, from the nature of their occupation, must dwell close to the centre of the city. For all others, every effort should be made to get them out into the suburbs, and this involves the crucial question of c;heap and quick transit. Even under Government or municipal management, where only a low interest on outlay has to be earned, the liv­ing wage workers cannot afford the cost of transit without unduly reducing their available income. If run at less than cost, the deficiency has to be made up by the taxpayers at large, and be­comes really a tax on one class for the benefit of another, which is undesirable. One solution that has been suggested is for the Government or muni­cipality to purchase large blocks of undeveloped suburban land at agricultural values, provide the rapid transit, and. out of the profits on re-sale, re­duce the cost of transit to a minimum. But this means increasing the cost of the land to the user, and hence increased rents. The aim of housing reformers is to keep the 11md values low, and pre­vent speculation therein, so that rents may be kept at a moderate level, and permit of decent dwellings. Possibly, however, some other mode, like co-partnership tenants associations, might be devised, by which increase in value could be uti­lized to decrease the charges for transit without

John Sulman, 28rd March, l!H5 •. 300:

nndue inflation of land values. The retention of the freehold by the owners, governmental or other­wise, and the granting of long or perpetu_al ]eases might effect this, but building owners al~ays pre­fer an absolute freehold if they can get 1t. An­other mode that has been adopted at Letchworth is to transfer both factories and workers into the country, and form new centres. The inducemeiJt to the employer is cheap land, and to the employed lower rents than in or near a city, and no outlay for daily transit to work. The life is also much more healthv. Of course quick and easy railway or water connexion with city or port· at moderate rates is essential or the economy of cheap land may be more than counterbalanced by railway charges. On the whole, I consider this method the most promising of any.

Assuming that either suburban or country centre development is undertaken, it should be on wpat is known as garden . city lines, The essential fea­tures are the limitation of the number of houses or people per acre, say ten of the former and fi~ty of the latter. It is necessary to state populatwn as well as houses, for otherwise ten boarding­houses, accommodating twenty each, might .be erected. This is a far better method than fixmg a minimum size of allotment, which is very crude, and assumes the present unsatisfactory method ?f town planning as a basis. The utmost freedom .m size and shape of allotment is desir~ble, and, m­deed, quite small allotments are satisfactory, pro­vided the surplus space is devoted to playgrounds and reserves .. Indeed, such a lay-out is infiJ?-itely better t1ui.n even large allotments on the ordmary plan. Experience sho\\ s that the latter a~e rarely. kept in order. Concurrentlv, economy m ro~d­making is very necessary. It is absurd to provi?e a road 66 feet wide, or even 50 feet, as m VIC­toria, to carry a few tradesmen's_ carts during the day; on the other hand, 66 fee~ 1s far too narro:v · for arterial traffic and tram lmes. More flexi­bility is needed, ·both in New South Wales and Victoria. But, iu any case, dwellings should not be allowed nearer together than 66 feet, however narrow the road itself. The space saved by nar­rower roa.ds is better utilized as playgrounds, and the.reduced cost of con<ltruction a.nd maintenance keeps down rents and rates.

As regards housing, the loD;g narr~w type, fou.r or five rooms deep, almosL umversalm Sydney, IS very undesirable. 'They tlrtnk one ~nother, a1_1d. the middle rooms do not get enough hght and. a11,1~ l The newer English type, without back projectwns;r is preferable, but. they are almost always of ~~o stories. and in this climate are not so convem:nt as a sin<de-story coti.aae. For the latter, a wtde frontageb and shallow

0

depth are best, instead of the usual narrow frontage and considerable depth. Cheaper roads are, therefore, urgently required if wider frontages are adopted. .

To carry out a garden. suburb properly, it must be under control. It is an open question whether this should be Governmental, municipal, or by a private company. The former would have greater powers of acquirement and development, but would be more likely to fail in administration; owing to the political ' pull ' of voters,. I, ~h~re­fore, favour private ·control.\mq~r..~stnctly l~~Ited conditions ·as to lay-out, ·upkeep, non~spepula­tion i11 land va.lues, and profits beyond 5 per cent. be devoted to the benefit of the estate. One good form of private r:1a~agement is the ;:a­partnership ·tenants associatiOns, many of wh1.cb are worldng successfully in England. Th~ ch1~f difficulty is a supply of cheap money! an~ ID thJs the Government might reasonably· give md. "· To prevent t).H~. furm11tiou of ft~rther congested arf;as,

legislation should be enacted t<> compel. p:ivate persons dividing estates for profit. To hm1t the 1iumber of houses and population per acre, and • insisting on the devotion of at least one-tenth of the area to playgrounds and reserves.

The •. cost of living in such model suburbs is another important factor, and to this ,end co­operal?ive stores should be encouraged, and,. where feasible, local public markets provided. l!ostels for single men and women, conducted on eco­nomical lines, are also desirable, as well as tbe ordinary private boarding-house, but boarders in private households should be discouraged. Re­creation and amusement should not be forgotten, or otherwise many of- the garden-suburb dwellers will drift back to the city. Last; but not least in importance, is the kind of housing to be provided. It must be sanitary, have the necessary acc?mmo­dation, including bath and washing apphances, be .. durable in construction, requiring a minimum of and alsu cheap. This is at present an unsolved problem for families whose head only earn::, a Lare living wage, or less. Those who can a,fford to pay a rent of l5s. upwards pe; _week are fairly catered for under present cond1hons, but for those who cannot pay more than 5' to 10s. per week without reducing the expendi­ture on food to less than will maintain their health and strength there is no p~oper pro~ision: High wages, high cost of matenal, and meffic1ency of labour are the lions in the nath, and unless the interests of tenants, occupiers, and owners can be c~-ordinated to secure moderate prices, the out­look is not hopefuL In addition to the co-part­nership associations already referred to, indi­viduals should he encouraged to build for them­selves by loans at low interest, repayable over a long term in instalment~ not e.xceedin_g current rents. Possibly some kmd of mechamcally-pro­rliJ.ced dwellings, like Edison's poured concrete houses, may be invented, that could.be made at a low cost, but they would become an eyesore by repetition ad natlsea:m. ~n attempt has heen made in Sydney to prov1de cheap_ dwell­ings by building self-contained co_ttages m twp­story flats, but the rents reqmred are still a:bove the maximum the poorer workers can afford Later on I hope to make. further suggestioi].S in this' connexion with the view of obviating the necessity- 'of ~tJ.pp}ying dwellings at less . than an economic rent which wonld tend to pau­r>erize the tenants.' Finally, I would urge that. nr:ovision for dispORSeSS~d tenants should be pr~­.vided before the clearmg of congested areas. IS

cbmrne~ced, and t.hat rating should be both on the 1inimproyed ;md improved values. Th!? former t~ preven~ holqing land out of use, the latter becaus~ occ,upie;rs get far more value out of local exp?l1~ diture than do land-owners. . Moreover, umm­proved-value rating .as. the solQ lo~al impost en­courages c.ongestion by the owner, and forc€\s up the local municipal valuations so that more revenue may be secured, and hence increases the price of l~nd which Rhould be kept down if moderate rents ar~ to ·be maiU:tained.

6387-SS. I would like to ask. what, in your opiuiQn, are the principal advant\l;g~s to the c~m" m unity . .in connexion with the tQwn-planmi)g system ~-Better health, a more ;reas~nable and sane way of living, and a .reductiOn m t~H> ?oat of police, hospitals, _asylums, and .other mstitu­tions of that kind whiCh are needed m consequence of the congested 'dwellings that we are trying to ~ret rid of. . · · -c, 6389. It would mean an economic saving to the G,ommunity 1-Yes. ·

507

301 J'ohn"Sulman, 2llrd March, 1915.

6390. Has your Association given any considera­tion as to what type of houses should be erected for workmen's dwellings in the town-planning area ?-,No; not at present.

6391. In connexion ·with your system of town planning, you would separate the residential por­tion of the. town from the factories and warehouse portion; would you have a special area for noxious trades, if necessary~-Yes.

6392. How would you regulate things ?-I would try to plan a new town in the same way that a house is planned-in each particular portion of the house you have various departments. There is the kitchen department, the living apartments, the apartments for dining and sleeping, which are ail in a proper position in relation to their sur­roundings. In connexion with the planning of a town, the commercial or business centre would be separated from the noxious trades and manu­factures. These should be placed in the best posi­t.ion to do their work in a mariner which would be least offensive to the inhfl bitants. The residential portion should be placed in the best position, hav­ing regard to the health and convenience of the inhabitants. ·

6393. Is the policy which you have adopted similar to that which has been adopted by the town-planning associations of Great Britain 1-Very much the sam~.

6394. \Vould it cost as much for the main­tenance of streets and roads under your policy, or would it lessen the cost of municipal government 'I -One of the reforms which we are advocating, and which, I may say, without indiscretion, has been approved by the Minister of Works, and is incorporated in the new Local Government Amend­ing Bill, is a proposal I made that roads should be graded in widths according to the services needed from them. At present, our minimum, and prac­tically our maximum, is 66 feet. Under the original Act of 1902, that has been found very wasteful, especially where there are only a few houses. The Government has approved of my suggestion that 20-ft. and 40-ft. ro<tds should be permitted where there are only a certain number of inhabitants, and where the street does not exceed a certain length. I cannot say from memory what the exact numbers and lengths are, although I drafted the clause. :My sugges­tion was that the arterial roads should be 100 feet in width for ordiilary traffic{and 132 feet in width where there is a double line' of trams. The general cost of running a city on town-planning lines I do not think would be reduced at all, although the expenditure on the roads would be reduced to a considerable extent; there are other amenities, such as parks, playgrounds, &c., of which an ample quantity should be provided, tlH'; cost of which would necessarily fall upon the municipal rates. I do not think the total annual outlay would be reduced. but the advantages to the people would be infinitely greater than they are at present.

6395. Have you been making comparisons be­tween a city under the present system and a city planned by the town-planners as regards the. cost of local government7-No; we have not the dab for. that. . I >believe you could get a certain: -ap­proximate idea ·from German cities; but -the various expenditure!j in German cities-'are so dif­ferent to our own that they would not be. a· safe guide; and, I am afraid, they would not really give a basis to go on.

6'396. What do you consider would be the mini­mum cost in connexion with the construction of a house, with bathroom and a.U conveniences, for a

wor"kiug man. Say there is an average family of three children, and the man and his wife 1-I think, on £lie ordinary system of town planning, yon could not provide that for less than £350, and it might run up to £500. It depends on the locality and t1Ie materials.

6397. Do you approve of the system adopted in connexion with the housing at Daceyville 7-Generally, the cottages are very good ; but they do not provide for the housing of the poorer classes, for wbom, I understand, you wish to try and find satisfactory housing; the rents, I believe, run mo~tly from 18s. 6d. to 2'7s. 6d., though a few have lately been built to let at lower rents.

6398. In connexion with any reform movement, who do you think are the proper persons to take control. Do you think individual municipalities could manage the housing qtHlstion in their muni­~ipalities, or do you consider that there should be a Greater Sydney or ·Melboure scheme adopted to absorb the various municipalities--to have one big governing 'body with power over all the pn b .. utilities--lighting, water, means of transit, and all that sort of thing, as well as the housing 1·­I ·gave evidence before the Greater Sydney Com­mission, approving of the general idea, but advo­cated gradual development by combining the inner municipalities :first, and as the benefits of centra­liza.tion were appreciated, gradually taking the outer municipalities, who, at present, are very strongly opposed to a Greater Sydney. As regards hohsing, in my evidence in chief, I expressed a preference for private control under proper con­ditions.

6399. Would your ideas also apply to inland centres, such as Newcastle 1-Yes.

6400. By the Hon. H. F. Richardson.-You favour private control of the garden cities 1-That is during their development, where you can get, for instance as at Letchworth. a semi-philanthropic body which limits its rate of interest to 5 per cent. I think the most e·fficient results may be got from a body of that kind.

6401. By the Cha:irma:n.-Providing a big go­verning body were appointed which would have charge of all the public utilities including -'the housing question, your body would !'.till remain as a sort of advisory body to help the Government to carry on the world-Yes. I do not think a Greater Sydney, or any other big municipality, could provide for the housing of the people b'" itself. I think if their powers were deputed, or if private enterprise were allowed to come in under proper regulationfl, th~ work could be more effi· ciently carried _out in the different districts. It would be too huge an undertaking for any go· vernmental body to undertake--to carry out effi­ciently without waste.

6402. You have visited Canvastown 7-Yes; and. at Mr. Holman's request. I and the members of my council sent in a report suggesting how the conditions might be niade more sanitary.

6403. What is your general opinion on that pro­position ~-I think it is an expedient that should only he resorted £o in an emergency; and that cer­tain conveniences should be provided that are not provided there.. There are really a great many object~IJS,:, I .1;iJl )et you have a copy of tJ1 e report:

6404. a pennanon1; settlement, you are in-tally opposed to it?--Yes; and also my council.

6405. By tl!e lion. If. P. R.l:chardson.-In cou­nexion with the slum difficulty, thert'l are many undeserving people, such as drunken persons, prostitutes, and the criminal classes. Have you

~·.· .J olm ::!lll!llan; 23rd,lllar9h, 19~5, 30~

found t~at fn)m experience 1-I have very little personal experience. I have been in the slums, but as to £hose particul!J,.r classes I ha.ve nq special knowledge.

6406. Have you any ideas with regard. to slum­dwellers.of that class~-Personally, l would segre­gate people who have to be put in asylums, who are allowed out, ·and, who reproduce their species and go back again; also habitual criminals. Statis­tics show that one pair about the middle of the eighteenth century in England left not less thau 300 deseendimts.

6407. I take it, from your. evidence, that you favour the leasing system instead of freehold .1--' Yes, and fio. If you' want to keep control of any garden cities, you must have an authority which will have permanent power. Many people desire freehold:;; but I consider it would be ad­visable that the freehold should only be granted subject to certain conditions which would secure town-Planning and garden-city, conditions in per­petuity.

. 6408. Wha.t length of iease would you suggest 1 -Not less than nine.ty-nine years; personally, I do not think it is nearly as good as freehold. 'I have one block on a ninety-nine years' leas~ which has now: only forty-four years to run; hut I could not find a purchaser. ·

6409. By the Chairman.-You favour priva~ enterprise as against municipal or Gove.rnment co~trol1-Yes; in connexion with the building ot liousef;l. Where you can get semi-philanthropic

• private enterprise, I think you will get better re­sults than under Government or municipal man­agement.

6410. Are you likely to get it in Sydney; are there any weal~hy people who are likely to help to provide dwellings for those we are ~rying to deal with 1-I have written a p\l.mphlet in con· nexion with "Co-partnership Housing," with the idea of forming a Co-partnership Tenants' AooO'­ciation. Up ,.,to the presemt. time, I have not boon successful. The idea is a· new one to our people, · and the war has stopp~d all pl1ilanthropic efforts of 11~hat kind.

64!H. By Jlr .• Yenzies.-You would support an independent board, not a political board 1-Yes; I think an indep\}ndent board, such as the Hous­ing Board in this State, would be the best solu­tion if governmental action has to be resorted to.

. • • • .lfh{j 6412. By Mr. Cotter.-Durmg our VIsit her~, 1 j

\VC have COme in contact With three difl'erent. bodies. Do their interests clash in connexion with the housing question, and, if so, how are matters arranged ~-That is. a serious difiicnlty; wl~ere you have different boardfl going over the same ground there is always likely to be more or less friction. I hq,ppen to k;now that the mu)licipal conncils, the Railway Commissioner'!, and. the Harbor Trust, are all interested in the . foreshore- the muni­cipal . co.uncil in connexion- with the approaches, the Harbor Trust in conne;xion with the wharfs} and the Railway Commissioners in connexion with the 'means of ·transit. Co-operation is purely voluntary. betwe~n them. I think co-operq,tion should be enforced, otherwise, working on. their own lines, they may clash.,l ;IJ':· .• ,,1 [,

641~. The three authorities are th'e'·:·B:arbor Trust, the IIousiug Board, and the municipal council1-No; the Harbor Trust, the Railway Commissioners, and the municipal counciL The Housing Board and the Harbor Trust are both State institutions, and on the Rocks area are both doing the same kind of work. There has been

difficulty between the Harbor Trust and the City Council because the City Council feel that they are losing rates on the values of the property taken over by the Har1Jor Trust, as a result of the plague scare some years ago, when that part had to be thoroughly cleaned up. : 6414. By the lion. II. F. Richa1·dson.-Powor

has been given recently in New South Wales to ~unicipaHties to rate on the unimproved value of the land 1--'-That is so. In my opinion, the ~esuJt has not been entirely beneficial. The in­~rod11ction of rating on· unimproved values was due to a reaction from the rating 011 improved Yl1lues, which. iavored the holder oi unused land. Under the unimproved values rating, the ·owner would try'to get the utmost from his land by pack­i,ng it with buildings. That is 1!-gainst the prin­qiple I advocate in connexion with town planning. I think it would be wiser to rate on the unim­proved vaiues sufficiently to prevent tlie owners from :keeping the land out of use, and not to compel them to subdivide the land in such a man­q.er as to pack i£ with buildings . i 6415. By the Chairmg.n.-Is your Association opp<Jsed to tlie flat system of residence, r,uch as the City Council built at Chippendale ?-As an asso­ciation, we have not expressed an opinion on that at ,present; but the general feeling would be against it. . .

6416. By Jlr. Menz·ies.-Have you any parlia­mentary authority for the Town Planning · Asso­cil!-~ion; have you any Act under which you carry out your work ?-None at all. \Ve are purely a. voluntary association; but the Government has made use of us in referring certain I3ills to us; for instance,. the Building Act, and the I.Jocal Government Amending Bill. ' 6417: Are you seeking for any parliamentary authority ?-No. Our chief aim} I may say, is to educate the people through their representatives ip. Parliament so that they might be seised with t~e im:r:ortance of the subject. If any body is given powers} I think it should be rather in the form of a Commission; we could still exist for the benefit of tlie community at large.

6418. What do you think of the kindergarten work; do you think it is carried out on proper lines ~-I think it is excellent work.

6419. Are there any creches here 1-...:.We ··have one or two her~ ;1~· think they should be subsidized.

6420. In your statement you referred to the question oi control; you referred to the three ~J,uthoritif)s, " Governmental, Municipal, or a' Private Company. Do you think, if t.!:lere was a central executive, that would remedy the effect of local influence fairly effectively~-Yes; I think it would. To a certain extent, municipalities and ~hires are divided into a number of wards; we ~now by experience that there is such a thing as ward politics. Also, there are fifty-three govern­ing bodies in and aro~md Sydney. On the other hand, if one central body has the whole question in hand, it would be too unwieldy. I think it would have to depute its powers to different local bodies to help ·to carry out the work. . , 6421. Do you think a central executive woidd re~ognise the value of local advic~;;-:;-if Y,.OU lea;ve it .t~ different municipalities to call gll:Ila_eii,'l.~uburbs into. ex~ste1uco, how are you going to 1 get "a· thoroughly homogeneous scheme ?-You must. have a central authority to preplan the extenSion of (3ydney~that is absolutely necessary; but for the carrying out of hdusing schemes, I think it would be too big an undertakf"ng for mi.e body to ~a1•ry out.

303 lohn Sul111an, 23rt1 MArch, 1915.

6422. You seem to favour private enterprise in conn~xion with this matter; do you !l-Ot think, under private sribaivisions--under private control ·-you would perpetuate the evils which have already ~iprung up under private enterprise 1-l do not think so; because it is being done success­fully by a number of Co-partnership Tenants' As­sociations in England under certain conditions. To pr~vellt any of the present evils being repeated, licences would only be given to those organiza-tions under certain safeguards. ·

6423. Laicl down by a central authority 1-Yes; to regulate and supervise. It is far too big a question for one body to carry out efficiently. The different districts would have different re­quirements, and healthy competition is desirable. If t-hey have twenty or thirty different bodies ill­different parts of Sydney trying to carry out housing schemes on better lines--on town-planning lines-there would be healthy rivalry which shol!Jd produce the be&t results. .

6424. You referred to the fixing of the width of streets 1--Here we have a standard of 66 feet as a minimum, and that is practically the maxi­mum. rthink streets should be _treated as you treat water pipes; where there are main lines they !l>re larger, and where they are only little oranches they are smaller; there is sheer economic wash~ at present.

6425. You spoke of a width of 20 feet and 40 feet', are you not falling into an error in actually fixing tl1e width 1-I am only suggesting that as an indication of what might be done, not defininr those as the only width. I believe that recom­mendation has been given shape in the Local Go­vernment Amending Bill; but that is subject to discussion in Parliament, a:nd will probably be. taken as a!l indication of what might ba donl?.

6426. By the Chairman.-You are in favour of private enterprise-has not private enterprise had full sway, as far as building is concerned, from the verry inception of local government 1-Unregu­lated private enterprise; the kind I suggest is r17-g~lated. u11der tbe central authority; bodiea migl1.t he authorized to deal with certain sections o~ the ~lJQUrbs or city, under distinct regulations as to housing under proper oonditious, and with reg~rd to providing the amenities required.

6427. Are you likely to get a town-plannin!" system, such as we advocate, under private enter· prise 1-The general scheme would have to be laid down by the central authority; the housing sec­tions could be best carried mit by private enter­prise.

6428. Up to the presant, pr{vate enterprise has been a failure 1-To a cei'tain extent--not wholly.

6429. The slums of Sydney are built up. by private enterprise-that is condemnatory of pri­vate enterprise is condemnatory of the private enterprise whichhelped to form the slums; it is not condemnatory of people who have built out iu the suburbs on infinitely better lines.

6430. The better-class dwelling in a suburb is the result of a demand by a. certain class in the ~mpmunity who have the means to pay for it 1-Yes.

6431. AI1other .section of the commupity ca~­not afford to pay the rents to live in such sub­urbs~-Yes. ·

~~32. l'riv~t-f>. enterprise stepped in and said it would suit the- convenience of the people b,. buildi~1g slul:\]. areas for them to live in 1-Where they have built to suit the means of this par­ticular class, they have had to give them just what

that class could afford to pay for. Slums, how­ever, in the first instance, were often quite fair buildings, but owiug to changes in the population, have deteriorated and become occupied by the " undeserving " poor, who have still furthei!." de­teriorated them.

6433. Your organization wants to wipe this type of dwelling out?-Yes. ·

The 1vitness 1uithdre1v.

John Daniel Fit;::gerald, examined.

6434:. B:y the Ohai-rman.-W11at are you ?-A barrister-at-law, ancl vice-president of the Town Planning Association.

6435. You received a letter from the secretary with regard to this matted-Yes.

6436. Have you prepared a statement 1-I can give a verbal statement. Speaking from a muni­cipal stand-point, the only municipal authority under our law which has power to house the people is the city council. That power was hastily bestowed by a rash ~1\.ct of Parliament a few ses­sions ago. Some years ago, what was call.ed a reform movement was started here. A number of energetic men got the House to pass an Act changing the franchise-widening it, and altering the general principles upon which the city of Sydney had been governed. In that Bill, certain housing clauses were inserted; but that part of the Bill was thrown out iu the Legislative Council. Previous to the passing of the recent Acts, there was no power ~o construct houses, though there was power to demolish for improvement purposes. The result was that a great deal of so-called improve­mt;Jnt work was done by pulling down houses, and a number of people were displaced without any duty being cast on the city council to re-house them. In the English Iinprovement Act, it is a sine qua non, where an improvement scheme is to be carried out, that the-councils must make provision for the re-housing of the people dis· placed from the area. Here. there was no such principle. The destruction of slum areas by the city council, without any provision for re-housing was one of the principal factors in producing the congestion which now exists amongst the working classes of Sydney. They have been dr:iven out og the city areft to the immediate suburbs; sometimes there are two families or three families in one holise. An agitation was got up w.hich succeeded in having the demolitions stopped. Bad as the houses were, they were a shelter-a home. It was better than the congestion which followed the destruction of the houses without building any in their place. A Housing Act was passed about a year and a-half or two years ago, under which the city council constructed the Chippendale flata. I may be permitted briefly to review the muni· cipal position in Sydney. In Great Britain, the Continent of Europe, and to a certain extent in the United- States, the housing of the people is a primary fu.nction of the councils. \Ve have no centralized municipal government in Sydney; the population is really about 800,000, and that huge population is divided amongst fifty-three municipal and shire councils. In addition, the city of Syd­ney ·performs certain more important functions under its own Acts than any of the small coun­cils. The shires and municipalities wark under the Local Governl!-lent Act of 1906. An amending Bill was recently before Parliament to have some farm of centralized municipal government. A Royal Commission reported on the Greater Sydney.

John:D. Fitzgern.ld, 21>rd_llfarch, 1 ~15 .. 804:

scheme: Under this scheme, it was proposed to iu­clude iu the G.reater Sydney a very wide swetp of country--a territory which went right outside the inhabited area-as far north as Broken Bay, as ·far west as beyond Hornsby, and as far south as Georges River, the eastern boundary being the seashore. It was proposed to divide the area into two zones: the inner zone consisting of six­teen municipalities. That was to be a first step. The functions. of those munici palitie.s were to be taken over by the metropolitan council. The Hon. A. Griffith has since decided upon twenty-three municipalities as a first step. In the outer zone, the councils were to retain certain of the functions they have now. In the inner zone, the Greater Sydney council was to be absolut,ely supreme; the sixteen councils (now twenty-three) were to be amalgamated. The greater council was to have powers over the rest of the area in respect to mat­ters of public health, and in connexion with main arterial roads and town planning, including hous­ing. In regard to that, the functions of the cen­tral council were very important; they were to have absolute power over all subdivisions, and would be able to model the growth .of the outer area as it came into development. They would probably have the powers given by the English Town• Planning Act of 1909-J ohn Burns' Act­and, in addition, they would probably have powers such as the Continental councils possess in regard to carrying out housing and planning schemes. If I had my W~?-Y in the matter, the councils would be able to take a district which was coming into development, but which was not built on; where it was proposed to subdivide, the council would be able to say, as in Germany, "\V ell, now, you must meet and discuss a plan." The council should have power to force the owners to pool their land, as is the case in Germany. In Great Britain, they can only do it by consent. The subdivision would be planned, and the area would b9 re-tli viJed again and re-apportioned to the different owners in the ratio of the amount they put in. This would avoid allowing each one to have a little allotment here and there.

6437. With regar<;i to. the. question of a metro­politan council, you are not supposing that, in effect, there will oo a stone wall around a certain area, which will prevent the extension of the. powers of the metropolitan council extending right out to the whole metropolitan area ?-I see the p'oint. The present scheme takes a wide sweep, and extra metropolitan powers as well, such. as supplying electricity.

6438. It takes in sixteen councils ?-At first; it . can take in the whole fifty-tl{ree if necessary after­wards, by gradual steps. Provision has been made for that. At the expiration of, I think, three years·, sey~n others come in in addition to the sixteen, making twenty-three. They fall in auto­matically. Thereafter the councils can vote them­selves into the inner zone, or the people may vote for any portion of a contiguous area going into the inner zone. There is provision for that.

. Eventually, as population increases, the whole of the population can come into the one central council.

6439. What is the franchise based on 7-The Royal Commission was precluded from considering the question of franchise. The means of com­munication ani very imperfect in Sydney, and if the Bill is drafted on the lines suggested by the report, main and connecting roads ·will be provided for. lVIr. Sulman has a scheme to:t: a circum­ferential road, and if access across roads were pro­videO., and enormous amount of time would be saved. .The means of communication in great

cities is one of the most important matters to be considered. The Greater Sydney council would have absolute power over the main roads in the whole area. In addition, it was recommended by the Royal Commission that the new council should have power to remodel the central areas. It was recommended that this remodelling should take place in one of two ways: First there was ·to be a general alignment plan. \Vhen, in course of time, the houses on this alignment plan came to be rebuilt, the houses would have to go back. In connexion with that, the principle adopted in the J3ritish Town Planning Act of 1909 woul<l be adopted here; where a betterment is shown, the <_Jwner would pay the betterment, and where a worsement. was shown the municipal council would pay the worsement. The council would have the power to remodel immediately some of the more congested areas. You have seeh the remodelling at the wharfs, and at Oxford-street and other former slum areas round the old \Vexford-street. The city council has really done most famous work. I am pleased to say that, as they are somewhat in disfavour at the present t-ime. The remodelling of the wharfs was synchronous with the taking 9ver of the Rocks Area by the Government in 1901. Not much has been done there so far, but a beginning has been made, and in due course the Rocks will be remodelled, and will become one of the centres of CO\)lmerce in the city. At the same time, the Harbor Trust or the Housing Board have to supply houses for -the waterside workers; that is the policy of the Government. Where you have a great shipping port, it is necessarv to have the waterside workers as near as possible to their occupation.

6440. What percentage of the waterside workers live in the dwellings at the Rocks, and in the dwellings built by t.he Harbor· Trust 1~I have no statistics, but I should judge ·that about 80 per cent. of the waterside workers are housed either on the Rarbor Trust area or by the Housing Board in their area. Ships .come in at night, and the wharf labourers have to be at call at any time. The slum district of Sydney is very much older than that of M~lbourne. You will find, in locali­ties like Surry Hills, that a very bad type of house exists. A few months ago-before the war­\ve had an eminent German town planner here, Dr. Werner Hagemann. He regarded the slums of Surry Hills as ideal compared to the fiat system on the Continent; that was ~ecause of the sepa­rate houses. He also admired the Government ,scheme at Daceyville, and Mr. Stanton's scheme at Rosebery. The great thing is to have separate houses of the bungalow type if possible, but in certain circumstances tha_t is an impossible ideal. 'In an area such as the Rocks, the value of the !and precludes the idea of separate houses, and there is nothing for it but two or three storied fiats. You have in lvielbourne a more level city site; the citv was system~tically planned before­hand. In Sydney, there is a controversy as to ,whether the wandering goat or the convict wood­cutter first planned the main streets. You in Melbourne have had great advantages as far as planning is concerned. The representatives qf the people should, I think, make haste to frame legis­lation to enable the municipal councils to set about doing something for the housing of the people. '!11 spite of the war, there are people-the poorest 'class of people-who want houses in Sydney, and 'cannot get them. In Newcastle, it is even worse. They had evidenee before t:ge Public Works Com­mittee showing that leading artisans could not be .obtained for the works being carried on by the Goveniment at W alsh Island or the Broken Hill

Company's iron works, because they could not ·house them; the result is that two or three fami­lies are living in the one house at Newcastle, which is an offence against public health and good civic management. No private company that I know of, except Mr. Stanton's company, has g~me in for systematic and scientific house planning. The Broken Hill Company, at Newcastle, does not llndertake any responsibility for the· housing of their men. In Sydney, there are a number of parts where slums could be swept away and the whole place reconstructed, as at Birmingham, where the council resumed a slum area of about 48 acres, at a place where it was stated infant life could not exist; they planned a magnificent trad­ing centre, and a street--Cm;poration-street--and the plan was curried out on a good commercial basis. Land was put under lease for seventy-five years, when it becomes the property of the coun­cil. At the end of fifty years, the council will recoup itself through a sinking fund for the ex­penditure, and for the following twenty-five -years they will be getting an enormous amount of revenue in the form of rents from the houses. After that, the buildings become the property of the city. They say the citizens of liirmingharn will not have to pay rates, but will get dividends. There were many cities in Germany where, before the war, no rates were paid ·a~ all through ownEJr­ship of forests. In a proper Town Plannmg Act, you want to take the city as a whole, and say a certain portion of the population shall go here, and a certain portion shall go there. We should arrange for the housing of the people and the planning of the areas, and should also have power to give communication to the area. In Paris, municipal councils, when they are build­ing workmen's l!omes, run trams; in fact, they start running trams when they start building. Areas should be provided for shops and factory sites, and also a place for noxious trades. That is done in a great many cities I have been in in Europe. Iu Ulm, in Southern Germany, in 1913, I saw mag11ificent schemes of town planning and housing. There most of the workmen have single houses; but there were also two-family houses and three-family houses. Dacey garden suburb was initiated by the passing of the Housing Act of 1912. The Board, of which I am chairman, con­sists of :Mr. Hollirnan, Principal Under-Secretary of Finance and Trade; Mr. N esbitt, town clerk of Sydney; nncl myself. We work under the Housing Act; ·we are all nominees appointed by the Go­vernment. Power is given to us to secure land, either by appropriation, as in the case of Dacey garden subui·b, which was Government land, ·or to purchase.

6441. Is there compulsory· resumption~ We can get the Government to resume under the Pub­lic \Vorks Act. The area of Daceyville is about 336 acres, which the Government appropriated to our scheme. The plau you saw yesterday w~s made by 1\ir. Sulrmm and Mr .. Hennessy, ~wo e~n­nent architects and planners, m co-operatiOn with myself. Sitt:s are provided for public buildings and shops, for churches, for technical schools, and for a hostel for single women and one for single men, for a school of arts, and for a picture gal­lery. Under the provisions of the Act, we hac~ to provide for a sinUing fund to recoup the capital within fifty years; we had to provide 4 per cent. on the land n 11d buildings, and to provide for nll expenses and management. The terms were mol'e liberal than a private speculatoT would think of offe1·ing. Tl1e Government did not want to make a profit; they simply wanted to have. a self-sup-

. parting .scheme. The Board experimented first 6724.-U

·{)11

John :o; Fltzgemtd, 23rd March, 1915.

in various kinds of bricks, clay, and sand, and lime. Eventually we found that Sampscin concrete was the best and cheap€St form of building mate· rial we have struck up to date. We also trieq co11crete moulded, but, so far, it has not been a success. The Sampson concrete is made in slabs with grooves, and mortar is used.

6442. What are they made from 1-From the ordinary clinker, I understand, from the destruc­tor; they are simply the waste portion taken from the various destructors, which forms a very hard clinker. There is a covenant, or an agreement, under which the tenant undertakes to keep his garden in order.

6443. Have you found the powers under which you operate to work smoothly~-Yes.

6444. Have you made any recommendation for an improvement in that direction- have you asked for further powers~-No, we have not. The Housing Act is quite a satisfactory little Statute. We work iu with the local authority. We have several times met the mayor and aldermen, and discussed certain problems. The question of the ballasting of the road came up; we did not think we should have to go to the expense of ballasting the whole of the·road. In streets where there was only the traffic of the tradesmen, we ~id not think it was necessary to load the scheme with the cost of ballasting"the whole of the road. The council realized that it was not necessary. They have undertaken to spend the whole amou;:tt of the rates collected in the area upon the area 1tself, less the ordinary administration expenses.

6445. Supposing there was a demand for a. factory site at Daceyville, do you think it would be granted 1-Yes. I can only give _my opinion; I could not say what the Board would do.

6446. It is not exclusively a residential town planning scheme 1-N o. If applica.tio;:ts were n:ade for sites for factories, it would certamly be g1ven careful consideration to.

6447. What system would you adopt in estab­lishing an industrial site1-We probably would do what the municipal councils in Germany do; that is to say, sell them the site, or build for them and charge them rent. , ·

6448. By jJ£1·. Jienzies.-Would you select the site ~-Yes ; in the case of a manufacturing in­dustry, the buildings are always placed, in modern 'town planning, on a site the other side than that from which the prevailing wind blows.

6449. By the Chai1·man.-You had an oppor· tunity of seeing the system adopted in Great Bri­tain in regard to the l~ouses, and tl;e system adopted in Germany; wlnch do you thmk IS the best 1-The Statutes both in Italy and Germany, are more advanced than the Burns Statute passed in England in 1909. In Germany, the owners can he forced to pool ~heir land, and, v:heu pooled, the lands are laid 0~1~ on proper hnes. Iu England, the local authortties ask the owners to meet them in conference, and then suggest a plan. They have not the power to force them to pool their land.

6450. By jJf-r. M enzies.-Here you have absolute powers of 'res11mptiou; you simply put a notice in the Gove1·mnent Gazette that a certain area· is about to be resumed, and you resume it ·r-Yes.

6451. By tl;.e Cl>a·innan.-How is the value of the land fixed ~-Usually by the Court and a jury; it may be fixed by private arrangement.

6452. Do you find the tenant system at Dacey· ville satisfactory to the tenant 1-Yes.

6453. Would they prefer to be their own land­lords1-It is mainly a labour commtmity, and I should say they would stick to the policy of lease· hold. I have not heard aiiy opinions expressed .

;t ohn D. Flt~serald, 23rd ::lrnrch, 1915. .306 .

! may say there is power given in the Act to sell any house to any· person who is i:n. occupatio-n; nothing is said about terms. Under the German ~system, the municipalities have power to build and sell to workmen or others. If a tenant wishes to resell, he must first o.ffer his lwuse' back to the council.

6454. You have had experience of the tenant system j it is said by many perSOI1S that if a man owns a property he will keep it in better repair

·than if he is only a tenant; how does that work out at Daceyville ~-It has not been our experi­ence; the tenants keep their places in excellent order. You saw the gardens.

6455. How many acres are there there nltogethed-Three hundred and thirty-six acres.

6456. What number of houses do your plane provide for ?~I think it is estimated there will be about 1,800 houses on the area. I would have to refresh my memory about that; I think we fixed on six houses to the acre.

6457. By 11b·. 1Jienzies.-What area have you built on ~-About 20 acres, I should say.

6458. Have any measures been taken into con­l>i.deration to prevent a system of slums growing up in the suburbs in the v;ay they have grown up in the city 1-·-Yes; the Local Government Act of 1906 gives power by Ordinance tp regulate sub­divisions; but that power will be enlarged in the new Local Government measure of 1915.

6459. Have you a specified minimum. Is it laid down iu the Act that a certain area shall be a minimum allotment 1-No, not oo ·far as I know; the only thing is that there must be a means of entrance front and rear. A proposal to build on unsuitable ground could be stO})lJed by the Board of Health under the Public Health Act.

6460. What do you consider is a reasonable allotment for an oi·dinary workman's cottage 1-I should say there should not be more than twelve lwuses to the acre. ·

6461. By the Hon. 11. Jt'. Hichardson.-You are referring· to the garden city ~-To any residential part. In the city that would be impossible.

, 6462. You consider Daceyville is a success fin an· ·cially 1-Yes. .

6463. It has returned interest on Hte money ill­vested 1-Yes.

back 6Ul' money in fifty yeai·s. Y oti can charge 8. smaller rent if the. period is extended over fifty years as against having to get your capital back in twenty years. The longest life of a wooden house l1ere is twenty years.

6468. You could not provide for houses to be rented at 10s. a week by building them as well as they are built now~-You could not do that yet. \Ve have not discovered any mode of construction whereby we could get a house with three rooms

·and a kitchen' and the other conveniences and decent amount of land which could be let at 10s. a week.

646-9. With regard to the proposed Greater Sydney Council, what functions is it proposed to hand over to that council ~-Planning for the im­provement of the city, opening up new streets, providing for arterial roads, building the North Shore bridge, nnd the nu.uHl.gement of the ordi­nary senices in a more highly effectiYc way. In the scheme proposed to take over the water and

. sewerage yet from the Board, but,within five yeare we expect to be ready to take over the Water and Sewerage Board.

6470. Havethoypowcrto rutd-Ycs; the Water and Sewerage Board rate separately.

6471. Do you fa\·our rntiug on the unimproved value of land 1-I do, with qualifications.. In· discriminate rating on unimproved values, without a restriction on the size of the allotment, means that an owner will just build as many tenements as he can .on an area. h1 eonncxion with rating on unimproved values, I would go further, and insist on a limitation on the size of the allotment.

6472. By Jl!r. ilfenzies.-What is the chief cause of the dearth of house room in Sydney 1-The natural growth of the population, and the abnor­mal inrush from the country districts. Those are some of the reasons. Another reason is that Sydney is becoming a tremendously busy port j it is the wool market of the world. In the old days London was, 'fhe buyers come to Sydney now, and t.he wool, instead of being taken straight from the railway to the ship, is taken to the wool sto~es for sale. It means a tremendous amount of traffic, and a tremendous amount of employment: Manu­factures have also grown tremendously since the Tariff was put on.

Richard Stauto11 examined.

6464. \Ve have had a series of good years; have you allowed any margin to deal with a ba~ tin~~~ -Yes; we have fixed the rents at a rate wh10h w11l bring us in all we have to bring in by St~t1.he. In the future, we may have shops and p1cture shows· that we will deal with on capitalistic lines. We ,;ould expect to get the ordinary interest 64.73. 1111 the Ghait·nw11.-What are you ~-A looked for by the speculator. real estate agent and auctioneer.

6465. It is an interesting experiment on the 6474. You received a communication from the leasehold basis. Do you think you would get the secretary asking for certain inf01·mation; have you results you get if you had not regulat-ions inserted prepared a statement 1--N o; I did not know in your scheme as to the upkeep of garden allot· exactly what information was required. I thought meuts ?-The people out there seem to be seised it would be better to answer any questions that with the spirit of the whole experiment; there are were asked. no wasters there. In England o1· Germany, if 6475. You have had some experience in con­you put ": ~amily in a. good hon.se,. they will rise nexion with your own business; can you give the to the pos1tlou; if you put a fan11ly m a bad house Commission the results of that experience ?-The their tone will be lowered. A slum house makes ordinary conduct of my business brought me in 11: slum person; a nice house makes a nice person. . touch v~ry closely with the ge~l~J:fl-1 public buying

6466. By the Ghah·m[m . ..l._Do' 'you stfpply the 1.-houses. ' 'Every year it bedd~ie' im ::impression tenants with flower ''seeds ?-Not at pl·esent; we· .I which i1l'as more strongly iixecr iu my"miud; 1that have it in mind that later on we shall be able to something was want-ed in the nature of a large arrange with the curator of the Botanical Gardens area of land, subdivided on up-to-date lines, where to keep us well supplied with plants. building operations could be carried on so that a

6467. By the Hon. H. P, Richardson.-Are you person wanting n home eould have every oppor­prev~n1;ed ~rom. ~recting wo?den houses ?-:We are tunity to choo~e his o\\:n ~-iete; ~1id l~ttVe· a .h~tilding not prevent-ed. The origmal constxuctlon was erected accordm!S to Ius o,v'n 1deas--prov1dmg for cheap-about £350, as against £550. We have· to an up-to-date building under the best conditions. consider the sinking fund period; we have to get, My greatest trou.ble was in eonnexion with fi~anoo.