A question of the greatest importance to the ratepayers, and one in which they often take the most lively interest, is that of the cost of maintaining the necessary staff for the purpose of carrying out the scavenging of the town, or for paying the contracts for a similar work.

It is, of course, not possible to lay down any hard and fast line as to the cost of scavenging in any city or town, as it must necessarily vary considerably according to circumstances; much depends upon whether the district to be scavenged is an urban one, consisting of houses closely packed together, or whether it is suburban, with scattered villas and mansions standing in their own grounds; the question, also, of the distance of the dep?ts to which the material has to be carted, considerably affects the result of any estimate, as also does the cost of horse hire, the rate of wages, and whether the district is of a hilly or flat nature, and, as I have before shown, the manner in which the streets are formed and[91] paved, the habits of the people, and last, but not least, the manner of the eventual disposal of the rubbish after removal; all these points must bear with great weight upon any question of cost, and make the results widely different.

On referring to the returns to which I have more than once alluded, it is found that the cost of removing the house refuse and cleansing and sweeping the streets combined, varies considerably in different localities, in one case the sum amounts only to the rate of one half-penny per annum per head of the population of the town, whereas in another case the amount is at the rate of three shillings and sixpence per head. On calculating the average cost per head of population per annum of the ninety towns from which I received replies on this point, I find that it amounts to about tenpence half-penny, after giving credit for any sum of money realised by the sale of the refuse to farmers and others; so that if this work is costing the ratepayers of a town or city anything under a shilling per head of the whole population every year they have no cause to grumble, as they are so frequently found to do that their rates are higher, and what they have to show for them less than any other town in England.

I have discussed the question of "contracts" or[92] "administration" in a former chapter, but there is still another question which is also closely connected and intermingled with the question of cost, and that is when the Sanitary Authority carry out the collection and removal of the house refuse and cleanse the streets with their own staff, whether it is better and more economical for them to keep their own stud of horses or to hire them.

To do thorough justice to the work I am of opinion that both the horses and carts should be the property of the Sanitary Authority for the following reasons:—

(1.) The horses and their drivers should be under the control of the town surveyor or superintendent, in the same manner as the scavengers who accompany the cart. This is not the case if the horses are hired.

(2.) The carts can be started on their rounds and leave work at such time as may be found most convenient, and all the horses being kept in one stable greatly facilitates this arrangement.

(3.) The horses hired for this kind of service are frequently quite unfit to draw the bulky loads in the lofty carts behind them, and opprobrium is thrown upon the Sanitary Authority and the officials in consequence.

(4.) Economy in working is secured, for not only[93] will good horses properly kept do a much better day's work than bad ones ill kept, but there is no one making a profit out of them as is the case when the horses are hired.

With regard to the question as to the comparative cost of scavenging where a stud of horses is kept and where they are hired, the figures that I am about to give can only be speculative, as the conditions of each town are so widely different, but the figures may serve as a guide for forming an estimate of the kind, and they may be altered to suit the requirements of any city or town.

I will, therefore, assume that a town with a population of about 35,000 inhabitants will require at least seven scavengers' carts constantly at work, without reckoning those which will be required after a fall of snow or in exceptionally muddy weather, and for which purposes auxiliary horses and carts must be hired, as also those which are engaged in hauling stones and other materials used for roads or public works.

I have already stated that the value of an ordinary dust cart is about ￡18, so I will retain that figure for my estimate.

The value of a new set of cart harness, including a loin cloth, should not exceed ￡7.

[94]

To work seven carts properly, eight horses will be required, which may be estimated to cost about ￡50 each.

The first cost of the necessary stabling for eight horses, including purchase of land, erection of buildings with a foreman's house, corn and hay lofts and machinery and tools, may be reckoned at about ￡1,500.

With regard to the wages to be paid to the scavengers and the carters, it may be reasonably assumed that their rate of wages may be much lower than that paid to navvies, or what are known as "pick and shovel" men, for the following reasons:—

In all house refuse there is always present a quantity of such materials as rags, bones, pieces of iron, and other articles, which have a commercial value, and behind each scavenger's cart hangs a sack, into which all such articles are placed by the men engaged in the removal of the house refuse, and are subsequently sold, and the spoil divided between them as perquisites. I have been credibly informed that in some localities the amount thus realised averages more than four shillings a week throughout the year.

It is also a notable fact that although the householders are most particularly requested not to give[95] gratuities to the men employed by the Sanitary Authority in this work, yet a considerable number of them constantly give the men a gratuity or bribe to ensure the dustbin being regularly and properly cleared, although the less generous, or poorer members of the community probably suffer in consequence; again at Christmas the scavenger feels himself entitled to demand and receive a handsome present in the form of a Christmas-box, which, in a rich neighbourhood, amounts in the aggregate to no inconsiderable sum.

For these reasons I put the wages both of the scavenger and the carter at 16s. each per week, and adding a guinea a week for the foreman, who has in addition to this a house to live in rent free, and a stableman at 18s. a week, the total expenses are accounted for except those of the keep of the horses, shoeing, veterinary attendance, lighting the stable, &c.

This also is a sum very difficult to estimate, as fodder, bedding, &c., varies so widely in different districts, but for the purposes of this calculation it may be estimated that 17s. per horse per week should be sufficient to cover all expenses under these heads.

For the purposes of this calculation it will be necessary to assume that the ￡1,500 has been borrowed at 4? per cent. in perpetuity, although as a[96] matter of fact any monies borrowed for such a purpose as this would probably carry a sinking fund, so as to liberate the debt at the end of thirty or perhaps fifty years, but if I were to reckon the interest in this way in my estimate, it would complicate it unnecessarily.

I have assumed that to meet the depreciation of horse flesh it will be necessary to put aside the value of one horse each year, without reckoning anything per contra for the sale of those worn out or injured in the work, as I think this will be found to be what would be necessary.

I have allowed ￡50 per annum for repairs and depreciation of the buildings and machinery, as I consider this should be quite sufficient for a well-managed and cared-for property.

I have allowed 15 per cent. per annum for repairs and depreciation of the harness, and 12 per cent. for the carts.

The estimate will consequently stand thus:—

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Specimen Estimate of the cost per annum involved by any Urban Sanitary Authority of a town of 35,000 inhabitants, in executing the work of collection of house refuse and the cleansing of streets, with their own staff of men and horses and carts.

    Annual Cost.
    ￡    s.    d.
Capital    borrowed    ￡1,500, yearly interest at 4? per cent    67    10    0
Do.    do.    for 8 horses ............