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[Illustration: _See illustration facing p. 361_
THE RUINS FRAMED IN MARBLE]
RUSSELL SAGE
FOUNDATION
SAN FRANCISCO
RELIEF SURVEY
THE ORGANIZATION AND METHODS OF RELIEF
USED AFTER THE EARTHQUAKE AND
FIRE OF APRIL 18, 1906
COMPILED FROM STUDIES BY
CHARLES J. O’CONNOR
FRANCIS H. McLEAN
HELEN SWETT ARTIEDA
JAMES MARVIN MOTLEY
JESSICA PEIXOTTO
MARY ROBERTS COOLIDGE
NEW YORK
SURVEY ASSOCIATES, INC.
MCMXIII
Copyright, 1913, by
THE RUSSELL SAGE FOUNDATION
PRESS OF WM. F. FELL CO.
PHILADELPHIA
PREFACE
This Relief Survey is a compilation of studies made for the Russell Sage
Foundation by a group of persons each specially qualified to conduct the
inquiry and to analyze the issue. The contributors are:
Part I. Charles J. O’Connor, Ph.D., secretary of the Board of Trustees
of Relief and Red Cross Funds, who was appointed on the relief force
soon after the disaster.
Part II. Francis H. McLean, now secretary of the American Association of
Societies for Organizing Charity; at the time of the study, field
secretary of the Charity Organization Department of the Russell Sage
Foundation. He was superintendent for the Rehabilitation Committee in
July and August, 1906.
Part III. Helen Swett (now Mrs. Gregorio Artieda), who was secretary of
Sub-Committee VI, the business committee of the Rehabilitation
Committee, from its organization November 1, 1906; before that date
connected with the Associated Charities of Oakland, California. Now
resident of the People’s Place settlement, San Francisco.
Part IV. James Marvin Motley, Ph.D., now associate professor of
economics at Brown University; at the time of the investigation,
assistant professor of economics at Leland Stanford Junior University.
Part V. Jessica Peixotto, Ph.D., assistant professor of social
economics, University of California, and a member of the Central Council
of the Associated Charities of San Francisco.
Part VI. Mary Roberts Coolidge, formerly associate professor of
sociology, Leland Stanford Junior University; reviser of Warner’s
American Charities; author of Almshouse Women, and other works.
* * * * *
When the six separate studies were completed, a perplexing situation was
disclosed. The purpose in preparing the survey was to offer a book of
ready reference for use on occasions of special emergency. The six
studies would have formed a set of volumes valuable as a contribution to
the literature of relief work but not adapted to the particular purpose
in view. It therefore became necessary to condense the studies at the
cost of cutting out material. In order to preserve certain facts in
proper sequence, subject matter in a few instances has been transposed
from one part to another.
The authors of the various parts have wished to express their
appreciation of the help rendered by university colleagues and students.
A study made by Lilian Brandt of the first registration after she had
worked at relief headquarters in the late spring and early summer of
1906, has been used in part. An article by Colonel C. A. Devol, extracts
from which appear in Appendix I, furnished valuable data concerning the
part taken by the army, especially in receiving and distributing the
relief supplies. _Charities and the Commons_ has been drawn upon for
data from articles which have not been noted in the text because their
authors were so a part of the relief work itself that specific mention
seemed uncalled for.
The statistics of this volume require, perhaps, a word of explanation.
The quantitative material upon which the study is so largely based is
derived from records, many of which were compiled in haste and under
great pressure of work. The record forms themselves were properly
devised primarily to aid the relief workers in abating distress, rather
than as possible sources of social statistics to be compiled at some
future time; and it was necessary to entrust the filling out of the
records to persons most of whom were wholly without experience in work
of this character. The data for the several parts of the study were,
moreover, compiled by a number of persons working quite independently of
one another.
Under these circumstances it is but natural that there should have been
embodied in the report various minor inaccuracies and some real or
apparent inconsistencies. Every possible effort has been made, in
preparing the material for publication, to correct errors, to remove
inconsistencies, and to harmonize the plan of statistical presentation
as far as this could be accomplished by means of the information
available.
No attempt has been made to present a comprehensive statement covering
the complete disposition of the Relief Funds. It is understood that such
a statement will be prepared under the direction of the Board of
Trustees of Relief and Red Cross Funds. The figures showing receipts and
disbursements, which appear in this volume, have been presented solely
because of their bearing on the relief problems dealt with, and not by
way of an accounting.
INTRODUCTION
The San Francisco earthquake and resultant fire ranks with the great
catastrophes of the world’s history. Comparatively insignificant as was
the list of the killed and injured, the annihilation of the business
section of the city and of the most thickly populated residence
districts brought to the bread line virtually the city’s whole
population. The response of the nation and of other nations was in
proportion to the magnitude of the disaster.
By a series of favoring circumstances the administration of the large
fund donated fell into the hands of a committee, afterwards transformed
into a corporation, on which were some of San Francisco’s ablest and
broadest-minded men of affairs, as well as representatives of the
rejuvenated and re-organized American National Red Cross. How at first
the distinguished services of Dr. Edward T. Devine as the representative
of the American National Red Cross were utilized by the local committee,
and later, the no less valuable services of Ernest P. Bicknell, is told
in the following pages along with the account of the splendid part
played by the United States Army.
If for no other reason than that the disaster was of tremendous
proportions, with relief funds correspondingly large, the value of an
intensive study of the problems, methods, and results of the relief work
must be very great. No such intensive study of any other American
disaster of like proportions has been made. The report of the Chicago
Relief and Aid Society on the relief work of the Chicago fire is the
nearest approach. If one, however, reads that report he will find it to
be largely a description of general methods with a thorough accounting
of expenditures. The value of such an investigation as this Relief
Survey inheres not only in the fact that no previous intensive study has
been made of any large disaster but also in the fact that the time and
the persons engaged combined to give the San Francisco relief work
exceptional significance.
Since the Chicago fire, in this, as in other civilized countries, there
has been a rapid evolution of social thought and action. We have become
impatient of philanthropic endeavors that do not promise permanently to
better conditions. In the field of relief we are discounting mere
almsgiving and are fighting for constructive treatment and permanent
betterment, which often involve larger relief expenditures. In serious
disasters, from the Chicago fire to the San Francisco earthquake and
conflagration, this spirit has more and more characterized the relief
work. The idea that all moneys should be spent merely to keep the
victims of a disaster from the starvation and exposure which confront
them in the weeks immediately following the catastrophe is directly
opposed to the spirit of modern relief measures. In other words, the
idea of rehabilitation, of giving to those who have been left with the
least a reasonable lift on the road to a recovery of the standard of
living maintained before the disaster, constantly has grown clearer and
more definite, a natural fructifying of the modern philosophy of
charity.
Attention was given to rehabilitation after the Chicago fire by a
special committee on housing and by one on “giving aid to persons in the
purchase of tools, machinery, furniture, fixtures, or professional
books.” A large part of this special work of relief consisted in aiding
destitute sewing women who had lost their machines to obtain others. But
in San Francisco we find the first large attempt to emphasize and
develop rehabilitation.[1]
[1] For relative expenditures for rehabilitation compare the figures
in the Relief Survey with those given in the Report of the Chicago
Relief and Aid Society of Disbursements of Contributions for the
Sufferers by the Chicago Fire, 1874, Chapter XII.
The circumstances that so happily combined to magnify the principle of
rehabilitation have already been alluded to. Funds of generous
proportions, capable army officers, the reorganized Red Cross, and an
exceptional group of keen and broad-minded San Francisco business
men,--the last a group which knew its own mind but was willing to take
the advice and accept the assistance of experienced social
workers,--constituted a force permeated by the spirit of modern
philanthropy which wrought out the first large undertaking in
rehabilitation in the United States.
Having made clear the reasons for this Relief Survey, let us consider
its several parts.
Part I presents a general picture of the emergency period following the
fire, together with a description of the structure of the relief
organization and the different phases through which it passed. This part
serves as a background for the rehabilitation studies that follow.
Part II is a presentation of the methods of rehabilitation, followed by
some facts obtained from a tabulation of the case records of the
Rehabilitation Committee.
Two of the most important forms of rehabilitation, business and housing,
are analyzed in detail in Parts III and IV. These parts illustrate
methods, and they also show actual results of rehabilitation, which were
learned by following into their homes at a later period a certain number
of the families helped.
A study of the families under care of the Associated Charities since the
work of the Rehabilitation Committee ceased gives the data for Part V.
This was made to determine the character of the dependency, how much was
due to the disaster itself, how much to faulty rehabilitation work, how
much was inevitable. The work of the Associated Charities is indeed only
a prolongation of the rehabilitation effort.
The last inquiry, Part VI, was into that saddest and least hopeful of
all forms of rehabilitation, the permanent care of the aged and infirm.
To call it rehabilitation seems a misnomer. The methods, the number of
persons involved, their character, and other items are considered. Also
the attempt is made to determine how far present dependence was
inevitable, or accelerated, or actually caused by the change of
circumstances due to the fire and to the additional burdens put upon
relatives and friends who in the ordinary course of events would
themselves have assumed the duty.
This summary reveals not alone what these studies contain but also what
they omit. They do not comprise a complete history of the San Francisco
relief work. A bird’s-eye view of that work is given in the Sixth Annual
Report of the American National Red Cross. They present, rather, certain
important and significant phases of rehabilitation with a sketch of the
organization structure. And they present these not primarily for any
reason of historical interest but in the hope that they may help
concretely and suggestively in solving problems of family rehabilitation
in connection with disasters, small and large, which in the future may
confront the American National Red Cross, citizens’ committees, and
relief agencies of every kind.
The full measure of results cannot be given in this Relief Survey. The
acumen of no group of investigators, no matter how broad in their
sympathies, or how trained to their work, can probe to the heart of a
community to find the main arteries through which it has drawn its full
life. The people were sound at the core. They had an instinct for
adventure. Their own sanity, their self-reliance and faith in the future
made them ready to rebound from fortune’s sudden blow. But in the
wearying days that followed in the wake of the first efforts at
recuperation, the adventurous spirit flagged under the strain and the
ugliness of life. It was then that the city called on men whom it had
bred, to uphold the courage and maintain the spirit of independence of
its weaker citizens. The men who responded because they treasured San
Francisco, their city, have shown, as this study proves, what sustained
and co-operative effort can achieve.
TABLE OF CONTENTS
(A detailed Table of Contents precedes each part)
PAGE
PREFACE iii
INTRODUCTION vii
LIST OF ILLUSTRATIONS xv
LIST OF TABLES xvii
DIAGRAM OF ORGANIZATION xxv
MAP _Opposite_ 3
PART I
ORGANIZING THE FORCE AND EMERGENCY METHODS
I. Organizing a Relief Force 3
(1) The Disaster, 3. (2) Tentative Organization, 8. (3) Uniting of
Relief Forces, 11. (4) Beginnings of Rehabilitation Work, 13. (5)
An Interlude, 19. (6) Incorporation of the Funds, 25.
II. Methods of Distribution 30
(1) Sources of Contributions, 30. (2) Distribution of Food, 36.
(3) Distribution of Clothing, 55. (4) Furnishing Transportation,
58. (5) Providing Shelter, 69. (6) Safeguarding Health, 89. (7)
Relieving the Japanese and Chinese, 94.
III. Questions of Finance 96
(1) Claims, 96. (2) System of Accounting--A Note, 98. (3) The
Control of Donations, 99.
PART II
REHABILITATION
I. Beginnings of Rehabilitation 107
(1) General Policy, 107. (2) Periods of Rehabilitation Work, 111.
II. Methods of Work 113
(1) The District System, 113. (2) The Centralized System, 124. (3)
Withdrawal, 133. (4) Concluding Remarks, 135.
III. Calls for Special Forms of Service 137
(1) Relations with Auxiliary Societies, 137. (2) Rehabilitation of
Institutions, 141. (3) Bureau of Special Relief, 145.
IV. What the Rehabilitation Records Show 151
(1) Introductory, 151. (2) Social Data and Total Grants and
Refusals, 152. (3) Principal and Subsidiary Grants, 157. (4) The
Re-opening of Cases to make Further Grants, 160. (5) Variations in
Amounts of Grants, and Refusals, 165.
PART III
BUSINESS REHABILITATION
I. The People Aided and the Results Obtained 171
(1) The Plan Itself, 171. (2) The Study of Results, 173. (3) The
Families and Individuals Aided, 174. (4) Changes in Family and
Business Life, 176. (5) Occupations, 183. (6) Homogeneity of
Grantees, 185. (7) Results of Business Rehabilitation, 186. (8)
Reasons for Success and Failure, 187.
II. Analysis by Occupations, Study of Refusals, and Summary 196
(1) Success or Failure in Relation to Occupations, 196. (2) Study
of Refusals, 208. (3) Summary of the Results of Business
Rehabilitation, 210.
PART IV
HOUSING REHABILITATION
I. General Plan of Housing Work 215
(1) Introductory, 215. (2) Retrospective, 216. (3) The General
Plan, 218.
II. The Camp Cottages 221
(1) General Cost, 221. (2) Families Occupying the Cottages, 223.
(3) Wages and Occupations, 226. (4) Housing Before and After the
Fire, 229. (5) Two Cottage Settlements, 234. (6) Brief Comments,
237.
III. The Bonus Plan 239
(1) The Plan Itself, 239. (2) Bonus Recipients, 240. (3)
Occupations and Resources, 244. (4) The Houses--Character and
Cost, 248. (5) Brief Comments, 251.
IV. The Grant and Loan Plan 253
(1) The Plan Itself, 253. (2) Relation Between the Department of
Lands and Buildings and the Housing Committee, 256. (3) The Number
Aided and the Cost, 257. (4) Families Making Use of the Grants and
Loans, 259. (5) Occupations and Resources, 262. (6) Housing Before
and After the Fire, 266. (7) Status of Loans in 1909 and 1911 and
Additional Aid, 271. (8) Cases of Expensive Building, 273. (9)
Brief Comments, 276.
General Conclusions on Housing Plans 277
PART V
RELIEF WORK OF THE ASSOCIATED CHARITIES
From June, 1907, to June, 1909
I. The Nature of the Cases 281
(1) Introductory, 281. (2) Nature of the Dependency, 282. (3)
Social Character of the Cases, 286. (4) Occupations of Applicants,
294.
II. The Methods of Relief Employed 298
(1) Reapplications, 298. (2) Emergent Relief, 299. (3) Permanent
Relief, 305. (4) Relief Refused, 310. (5) Conclusions, 314. (6)
The Associated Charities Since the Fire, 317.
PART VI
THE RESIDUUM OF RELIEF
THE AGED, THE INFIRM, AND THE HANDICAPPED
I. Ingleside Model Camp 321
(1) History of its Establishment, 321. (2) Administration, 324.
(3) General Statistics, 327.
II. Relief and Non-Relief Cases 335
(1) General Analysis, 335. (2) Applicants and Non-Applicants for
Relief and Rehabilitation, 336.
III. RESULTS 356
SOME LESSONS OF THE RELIEF SURVEY
Part I. Organization and the Emergency Period 369
Part II. Rehabilitation 370
Part III. Business Rehabilitation 371
Part IV. Housing Rehabilitation 371
Part V. After-Care 372
Part VI. The Aged and Infirm 372
APPENDICES
I. DOCUMENTS AND ORDERS 375
(1) List of Members Finance Committee of Relief and Red Cross
Funds and its Permanent Committees, 377. (2) General Orders No.
18, 379. (3) Extracts from the Army in the San Francisco Disaster,
383. (4) Letter from General Greely to James D. Phelan, 387. (5)
Plan of the Executive Commission, 391. (6) Original Housing Plan,
394. (7) The Incorporation of the Funds, 398. (8) Appointment of
Board of Trustees Relief and Red Cross Funds, February, 1909, 401.
(9) List of Official Camps, 404. (10) Grants to Charitable
Organizations: A. By Denominations and Nature of Work, B. By
Denominations, 405. (11) Rehabilitation Committee: Details of
Administration, 406. (12) General Plan of Housing Committee, 417.
(13) Statistics from Associated Charities, 419.
II. FORMS AND CIRCULARS 423
First registration card (Face), p. 425. First registration card
(Reverse), p. 426. Food card (Face and Reverse), p. 427. Second
registration card (Face), p. 428. Second registration card
(Reverse), p. 429. Tent record sheet, p. 430. Camp commander’s
report sheet, p. 431. Rehabilitation Committee: Report form, p.
432; Paster, p. 433; Circular, p. 434; Application blank, p. 435;
Circular letter of inquiry, p. 436; Bureau of Special Relief:
Recommendation form, p. 437; Report form, p. 438; Medical service
form, p. 439; Order form A, p. 440; Order form B, p. 441; Bureau
of Hospitals: Hospital report sheet, p. 442. Application forms for
business rehabilitation, p. 443. Application for bonus, p. 447.
Land and Building Department, Notice, 448. Application for housing
grant, p. 449.
LIST OF ILLUSTRATIONS
FACING
PAGE
The Ruins framed in Marble _Frontispiece_
The Morning of the Disaster 4
Striving to reach the ferry
In Union Square, soon to be swept by flames
The Hall of Justice 9
Refugees in Jefferson Square 14
Watching the fire
The fire draws near
Supplying Food under Difficulties 20
The first bakery rebuilt
A cheerful kitchen
Camp No. 10, Potrero District 28
Tent camp, opened May 9, 1906
Cottages
Relieving the Hungry 36
All classes joined the bread line
Soldiers gave aid and protection
Fires in Houses were Prohibited 40
Preparing meals in the street
A row of street kitchens
Distribution of Relief Supplies 46
The bread line, Mission District
Relief station, Mission District
Hot Meal Kitchens 50
An open air dining room
In Golden Gate Park
Warehouse for Second Hand Clothing 57
Camps in Golden Gate Park 70
An administration headquarters
Camp No. 6, The Speedway, showing barracks
Early Shelters in Jefferson Square 74
Shelters of sheets and quilts
Tents and shacks
Camp No. 9, Lobos Square 78
Tent camp, opened May 9, 1906
Cottages
Camp No. 20, Hamilton Square 81
Camp No. 28, South Park 85
Tanks for Sterilizing Water, Lobos Square Camp 94
Two Cottage Camps 110
Camp No. 25, Richmond District, opened November 20, 1906
Camp No. 29, Mission Park, opened November 19, 1906
Headquarters, Department of Relief and Rehabilitation 119
Early Business Ventures 128
Barber shop, and shack constructed of boxes
A drinking place
Camp Cottages used for Business 178
A plumber’s new start
Laundry and residence
Business Rehabilitation 188
Cigar store of an Italian cripple
Store owned by a German-Swiss couple
Business Rehabilitation 198
Owner aided by a Rehabilitation Grant and money privately loaned
Hat maker aided by a Rehabilitation Grant
View from Nob Hill looking toward Harbor and Ferry Building.
Taken one year after the fire, April 18, 1907 207
Cottage Homes a year after removal 215
In the land of flowers
A simple but cozy home
Homes from Camp Cottages 218
Substantial and weatherproof
Commodious and attractive
Camp No. 13, Franklin Square 221
Camp Cottages after Removal 226
A janitor’s comfortable home
Improved at small expense
Camp Cottages at Hill Crest 230
Where the trade winds blow
In full view of the Pacific
Beginnings of a Cottage Settlement 234
First cottages in Villa Maria
The proprietor and his family
Camp Cottages on a Suburban Tract 237
Bonus Houses 240
Home built by a letter carrier
Home of an elderly U. S. Government employe. Bonus, $250
Bonus Houses 245
Built by Italians. Bonuses $500 each
Home of two Italian families
A widow’s venture. Bonus $500
Bonus Houses 250
Two ambitious dwellings built with aid of bonuses
Built with bonus of $500 and money privately loaned
Headquarters Department of Lands and Buildings 257
Grant and Loan Houses 262
Built by the owner with insurance money and a grant of $250
Built by a teamster with grant of $250 and money privately loaned
Grant and Loan Houses 268
Built by the Housing Committee
Built by the owner, who had some resources
Methods of Housing Rehabilitation 275
Telegraph Hill and Washington Square 286
Completely devastated. First tents in Washington Square
Partly rebuilt. Cottages in Washington Square
Telegraph Hill Largely Rebuilt 291
Washington Square Camp 294
Removal from the Camp 300
1. The start
2. Well under way
3. Joining two cottages
4. The completed dwelling
Home for the Aged and Infirm (The “Relief Home”) 307
Ingleside Model Camp 323
Ingleside Model Camp 330
The reading room
The sewing room
Ingleside Model Camp 340
The kitchen
The dining room
“Portals of the Past” 361
LIST OF TABLES
PART I. EMERGENCY METHODS
TABLE PAGE
1. Cash receipts of the Finance Committee of Relief and Red
Cross Funds, and its successor, The Corporation, to June 1,
1909 33
2. Cash contributions for the relief of San Francisco, to June
1, 1909, received by the Finance Committee of Relief and Red
Cross Funds, and its successor, The Corporation, and by
American National Red Cross, by country of origin 34
3. Disposition of cash contributed for the relief of San
Francisco through the American National Red Cross, to June 1,
1909 35
4. Character of location, origin, and dates of opening and
closing of relief stations of Civil Section VI 41
5. Relief stations in the seven civil sections on May 3 and on
June 3, 1906 42
6. Daily issues of rations from April 19 to May 12, 1906 43
7. Families and individuals registered in the seven civil
sections, May, 1906 45
8. Meals served by hot meal kitchens, from May to October, 1906,
inclusive 51
9. Free and paid meals served by hot meal kitchens on specified
dates in 1906 52
10. Expenditures of San Francisco Relief and Red Cross Funds for
purchase and distribution of food, to May 29, 1909 53
11. Persons to whom rations were issued in May and June, 1906 53
12. Persons carried from San Francisco as free passengers by the
Southern Pacific Railroad, from April 18 to April 26, 1906 58
13. Destination of persons sent from San Francisco by the
transportation committee, from April 26 to May 10, 1906,
inclusive 66
14. Persons sent from San Francisco, by period and by general
destination, April 26, 1906, to June, 1908 67
15. Terms of transportation of persons sent from San Francisco in
second and third periods 68
16. Destination of persons sent from San Francisco in second and
third periods 68
17. Value at reduced rates of transportation furnished through
the committee 69
18. Housing of registered families, by civil sections, May, 1906.
Numbers 72
19. Housing of registered families, by civil sections.
Percentages, based on the total number of families whose
addresses in May, 1906, were given 72
20. Nationality of population of San Francisco in 1900, compared
with nationality of heads of families among refugees in 1906 75
21. Nationality of heads of families among refugees, by civil
sections, May, 1906. Numbers 76
22. Nationality of heads of families among refugees, by civil
sections, May, 1906. Percentages based on the total number of
cases in which information as to nativity was available 76
23. Ejectments from camps during the entire period of the relief
work, by months 80
24. Reasons for ejectments from camps during the entire period of
relief work 80
25. Population of official camps, exclusive of Ingleside Model
Camp, from May, 1906, to June, 1908, inclusive 81
26. Cost of camps during the entire period of the relief work 87
27. Disposal of claims acted upon by the department of bills and
demands, to March 16, 1907 97
28. Payments upon claims acted upon by the department of bills
and demands, to March 16, 1907 98