§ 6.

These endeavours to increase the salubrity of town-life by law, are not only open to the criticism that the natural forces already at work render them unnecessary, and to the additional criticism that some of the things strained after are impossible of legislative achievement, but it must further be observed, that even the desiderata which acts of parliament will reach, can be so reached only through very faulty instrumentalities. It is, in this case, as in many others, the peculiarity of what are oddly styled “practical measures,” that they supersede agencies which are answering well by agencies which are not likely to answer well. Here is a heavy charge of inefficiency brought against the drains, cesspools, stink-traps, &c., of England in general, and London in particular. The evidence is voluminous and conclusive, and by common consent a verdict of proven is returned. Citizens look grave and determine to petition parliament about it. Parliament promises to consider the matter; and after the usual amount of debate, says—“Let there be a Board of Health.” Whereupon petitioners rub their hands, and look out for great things. They have unbounded simplicity—these good citizens. Legislation may disappoint them fifty times running, without at all shaking their faith in its efficiency. They hoped that Church abuses would be rectified by the Ecclesiastical Commission: the poor curates can say whether that hope has been realized. Backed by an act of parliament, the Poor-Law Commissioners were to have eradicated able-bodied pauperism: yet, until checked by the recent prosperity, the poors’-rates have been rapidly rising to their old level. The New Building Act was to have given the people of London better homes; whereas, as we lately saw, Edition: current; Page: [387] it has made worse the homes that most wanted improving. Men were sanguine of reforming criminals by the silent system, or the separate system; but, if we are to judge by the disputes of their respective advocates, neither of these plans is very successful. Pauper children were to have been made into good citizens by industrial education; from all quarters, however, come statements that a very large percentage of them get into goal, or become prostitutes, or return to the workhouse. The measures enjoined by the Vaccination Act of 1840 were to have exterminated small-pox; yet the Registrar-General’s reports show that the deaths from small-pox have been increasing. And thus does year after year add to those abortive schemes, of which so many have been quoted (pp. 8, 46,288). Yet scarcely a doubt seems to arise, respecting the competency of legislators to do what they profess. From the times when they tried to fix the value of money down to our own day, when they have but just abandoned the attempt to fix the price of corn, statesmen have been undertaking all kinds of things, from regulating the cut of boot-toes, up to preparing people for Heaven; and have been constantly failing, or producing widely-different results from those intended. Nevertheless such inexhaustible faith have men, that, although they see this, and although they are daily hearing of imbecilities in public departments—of Admiralty Boards that squander three millions a year in building bad ships and breaking them up again—of Woods and Forests Commissioners who do not even know the rental of the estates they manage—of bungling excise-chemists who commit their chiefs to losing prosecutions, for which compensation has to be made—yet government needs but to announce another plausible project, and men straightway hurrah, and throw up their caps, in the full expectation of getting all that is promised.

But the belief that Boards of Health, and the like, will never effect what is hoped, needs not wholly rest either upon abstract considerations, or upon our experience of state-instrumentalities in general. We have one of these organizations at work, and, Edition: current; Page: [388] as far as may be at present judged, it has done anything but answer people’s expectations. To condemn it, because choked sewers, and open gully-holes, and filthy alleys remain much as they were, would, perhaps, be unreasonable, for time is needed to rectify evils so widely established. But there is one test by which we may fairly estimate its efficiency, viz., its conduct before and during the late pestilence. It had more than a year’s notice that the cholera was on its way here. There were two whole sessions of parliament intervening between the time when a second invasion from that disease was foreseen and the time when the mortality was highest. The Board of Health had, therefore, full opportunity to put forth its powers, and to get greater powers if it wanted them. Well, what was the first step that might have been looked for from it? Shall we not say the suppression of intramural interments? Burying the dead in the midst of the living was manifestly hurtful; the evils attendant on the practice were universally recognised; and to put it down required little more than a simple exercise of authority. If the Board of Health believed itself possessed of authority sufficient for this, why did it not use that authority when the advent of the epidemic was rumoured? If it thought its authority not great enough (which can hardly be, remembering what it ultimately did), then why did it not obtain more? Instead of taking either of these steps, however, it occupied itself in considering future modes of water-supply, and devising systems of sewage. Whilst the cholera was approaching, the Board of Health was cogitating over reforms, from which the most sanguine could not expect any considerable benefit for years to come. And then, when the enemy was upon us, this guardian, in which men were putting their trust, suddenly bestirred itself, and did what, for the time being, made worse the evils to be remedied. As was said by a speaker, at one of the medical meetings held during the height of the cholera, “the Commissioners of Public Health had adopted the very means likely to produce that complaint. Instead of taking their measures years ago, they had stirred up all sorts of abominations Edition: current; Page: [389] now. They had removed dunghills and cesspools, and added fuel tenfold to the fire that existed. (Hear, hear.) Never since he could recollect had there been such accumulations of abominable odours as since the Health of Towns Commission had attempted to purify the atmosphere. (A laugh, and Hear, hear.)” At length, when, in spite of all that had been done (or, perhaps, partly in consequence of it), the mortality continued to increase, the closing of graveyards was decided upon, in the hope, as we must suppose, that the mortality would thereby be checked. As though, when there were hundreds of thousands of bodies decomposing, the ceasing to add to them would immediately produce an appreciable effect!

If to these facts we add the further one, that, notwithstanding the directions issued for prophylactic treatment, and the system of domiciliary visits, the cholera carried off a greater number than before, we have some reason for thinking that this sanitary guardianship did no good, but, it may be, even harm.

Should it be said that the Board of Health is badly constituted, or has not sufficient power, and that had a better organization been given to it we should have seen different results, the reply is, that the almost invariable occurrence of some such fatal hitch is one of the reasons for condemning these interferences. There is always some provoking if in the way. If the established clergy were what they should be, a state-church might do some good. If parish relief were judiciously administered, a poor-law would not be so bad thing. And if a sanitary organization could be made to do just what it is intended to do, something might be said in its favour.