REPORT of The Real Property Survey DURHAM, NORTH CAROLINA 1939-1940 IDENTIFICATION MAP DURHAM. NORTH CAROLINA REPORT oi The Real Property Survey DURHAM , NORTH CAROLINA u.$. WORK PROJECTS ADMINISTRATION O. P. 65-1-32-148 SPONSORED BY CITY OF DURHAM COUNTY OF DURHAM NORTH CAROLINA STATE PLANNING BOARD WILLIAM H. LEVITT State Supervisor 1939-1940 3 3 3 . ?> U A/D NORTH CAROLINA STATE PLANNING BOARD JOHN W. HARRELSON, Chairman THEODORE S. JOHNSON, Consultant NORTH CAROLINA WORK PROJECTS ADMINISTRATION C. C. McGINNIS, State Administrator MAY E. CAMPBELL, State Director Professional and Service Division CHARLIE HUSS, State Supervisor Research and Records Section NORTH CAROLINA REAL PROPERTY SURVEY STAFF WILLIAM H. LEVITT, State Project Supervisor JACOB LEVIN, Assistant State Project Supervisor MINNA K. ABERNETHY, District Project Supervisor HUDSON C. STANSBURY, District Project Supervisor H. I. F. NANTON, Supervisor, Negro Work M. ESTHER KING, Chief Clerk JANE COBB, City Project Director Digitized by the Internet Archive in 2016 with funding from Duke University Libraries https://archive.org/details/reportofrealpropOOunit CONTENTS Pages Introduction v, vi Chapter I. Historical Background 1-3 II. Land Use 5-8 III. Real Property 9-35 IV. Low Income Housing 37-52 Glossary 53-55 Appendix - Summary Tables . 57-62 MAPS Identification Land TJse Land Coverage Converted Structures Age of Structures Owner-Occupancy Mortgage Status Duration of Owner-Occupancy Duration of Tenant-Occupancy . Average Rental Race of Household Substandard Dwelling Units . Condition of Residential Structures Sanitary Facilities Persons Per Room Block Data Frontispiece Following page 4 " ”6 10 13 15 17 19 20 22 28 36 39 41 45 Following page 52 CHARTS Page Dwelling Units Occupied by White and Negro Tenants, by Adequacy 38 Number of White Tenant Single Families of 2 to 7 Persons Living in Substandard Dwellings by Monthly Net and Gross Rent 43 Number of Negro Tenant Single Families of 2 to 7 Persons Living in Substandard Dwellings by Monthly Net and Gross Rent 47 Number of White Tenant Single Families of 2 to 7 Persons Living in Substandard Dwellings by Annual Income and Monthly Gross Rent .... 49 Number of Negro Tenant Single Families of 2 to 7 Persons Living in Substandard Dwellings by Annual Income and Monthly Gross Rent .... 51 TABLES Land Use I . Area of Land by Use 6 II. Distribution of Land by Type of Use 6 III. Number and Area of Structures by Type 8 Real Property IV. Percent of All Dwelling Units in Each Rent Group in Poor Condition (in Need of Major Repairs or Unfit for Use), by Occupancy Status . 11 V. Percent Distribution by Value of Property for Single-Family Owner- Occupied Structures by Number of Rooms in Structure 16 VI. Number and Percent of All Dwelling Units Which Are Inadequate by Monthly Rental or Rental Value 23 VII. Dwelling Units in Need of Major Repairs or Unfit for Use as Percent of All Dwelling Units by Occupancy Status by plumbing Equipment. . 25 VIII. Percent of All Dwelling Units with Modern Facilities by Monthly Rental or Rental Value 26 IX. Number and Percent Distribution of All Occupied Dwelling Units, by Race of Household, by Occupancy Status 29 X. Number and Percent Distribution of All Occupied Dwelling Units by Occupancy Status, by Race of Household, by Condition 30 XI. Dwelling Units with More Than One and One-Half Persons Per Room as Percent of All Occupied Dwelling Units in Each Group, by Race, by Occupancy Status 32 XII. Number of Persons In Units with More Than One and One-Half Persons Per Room as Percent of All Persons in Each Group by Occupancy Status by Age of Persons 33 Low Income Housing XIII. Number and Percent Distribution of Dwelling Units in Each Substand- ard Category, by Occupancy Status, by Race of Household .... 40 XIV. Inadequate Dwelling Units as Percent of All Dwelling Units, by Occu- pancy Status, by Physical Factors of Inadequacy 42 XV. Number and Percent of Employable Persons Who Are Gainfully Employed, by Number of Employable Persons In All Family Groups, by Race and Occupancy 50 INTRODUCTION The seriousness of the housing problem, which at present has greater social significance than al- most any other phase of our community life, has been aggravated throughout the nation by years of de- pression and neglect. It has long been recognized by those who are concerned with the acuteness of the problem and are Interested In Its solution, that basic data must first be made available about struct- ural conditions, population, Income, rents, and facilities. Such Information can best be obtained by making a survey of real property. The lack of private funds for research of the nature and scope of a real property survey has been a great factor In retarding the attack on the housing problem. The avail- ability of relief workers of the white collar class who could serve as enumerators and tabulators of the desired data has provided us with a unique opportunity to obtain this vital Information, while provid- ing these workers with an occupation suitable to their standards and training. A standard set of instructions for carrying out real property surveys, entitled Technique for a Real Property Survey , was developed In 1935 by the co-operative effort of the then Works Progress Ad- ministration, the Central Statistical Board, and the Federal Housing Administration. This uniform tech- nique, which provides for the proper training of personnel, checking of enumeration, reviewing of sched- ules, and careful organization of the tabulations and map work, has made It possible to collect sim- ilar data in all parts of the United States for dealing with a problem which has definite national scope. Because of the growing demand for these factual data on the part of awakening civic groups, and rec- ognition of the need for Improved housing, the North Carolina State Planning Board, in 1938, submitted for approval to the Work Projects Administration a project proposing to make a complete study of land use, real property, and low income families in several North Carolina cities and towns, of which Durham was one. Following the standard procedure for real property Inventories, the entire city was enumerated by blocks. A sheet was prepared for each block on which the area measurements and descriptions of the use of every plot of land and every structure were listed. This information furnished on the block lists, when mapped, constitutes the land use survey, and is of great value to a community as a guide to the formulation of policies in regard to zoning, communication facilities, and parks and playgrounds, as well as the location of future enterprise. Every dwelling unit on each block was canvassed and a real property schedule filled In covering the detailed date which, later tabulated by blocks and then for the city as a whole, served as the basis for the analysis attempted in this report. These data show, among other things, the type and construction of all dwellings in the city, their condition and age, and the presence or absence of modern conveniences such as plumbing, central heating, and electric lighting. They also indicate the number and age of all persons who occupy the city's dwellings, the length of time they have lived there, the number of room- ers and extra families In each dwelling, and the race of all occupants. The tabulation of the informa- tion on the real property schedules is assembled in 98 tables. This constitutes the dwelling survey. In addition to the information thus made available for every block in the city, as well as for the city as a whole, a series of maps was prepared in connection with the dwelling survey, which graphically presents this Information. For each of the significant factors of the survey-age and condition of struct ures, the number of dwellings occupied by owners or tenants and the duration of their respective occu- pancies, the percent mortgaged, the percent overcrowded, and several others — a separate map has been pre- pared. By means of differently shaded cross-hatchings each of these factors is portrayed for every block In the city. Thus, at a glance, contiguous blocks or areas of the city can be compared or analyzed for any one or all of the significant housing factors covered by the survey. The real property schedules were checked as soon as they were enumerated and examined for factors which would determine the adequacy or Inadequacy of a dwelling. Those dwellings designated as inade- quate or substandard by this check were re-enumerated for data on the families they housed. This study is called the "Low Income Housing Area purvey. " It furnishes data on the income, age, relationship, marital sta- v tus, sex, and occupation of each individual who is Inadequately housed, as well as the place and type of work, transportation facilities, and length of time required of each employed member of these families to reach his place of work. It also makes available Information on the annual expenditures of the family for facilities in addition to rent. Following a separate technique entitled the Low Income Housing Area Sur- vey, which was set up as a standard procedure by the same federal agencies responsible for the real prop- erty technique with the addition of the United States Housing Authority, these data on low income fam- ilies were treated as a separate survey. The original schedules, after their enumeration has been checked, were coded and transcribed to data cards from which 147 tables were derived. The Real Property Survey set up an office in Durham for the duration of the land use survey and the enumeration of the dwelling and low income family schedules, as well as the preliminary checking of these activities. The schedules were then sent to Raleigh, the state headquarters of the survey for coding, tabulation, mapping, and analysis. Actual work on the state project was begun in October 1938, and the Durham unit of the Survey was opened in February 1939. Some 40 field enumerators were employed in Durham, 25 white and 15 Negro, and an office staff of 20 people performed clerical functions and checking duties. Of this total, all but one, Mrs. J. S. Cobb, local supervisor, were taken from the certified rolls of the Work Projects Adminis- tration. The city and county of Durham provided the office space, equipment, supplies, forms, and other materials necessary for the completion of the survey. By the first of August 1939, the field enumeration was completed and the schedules sent to Raleigh. Block tabulations and the tabulation of low Income fam- ily data were completed in November. General tabulations were completed by the middle of March 1940 and the analysis of the data in June. Presentation maps and charts were completed by the end of July. Accuracy in enumerating and tabulating the data for this survey was stressed as of paramount import- ance throughout its duration. Although complete accuracy is impossible to achieve in surveys of this type, every precaution was taken to keep the percentage of error down to a minimum. In spite of those elements of normal human fallibility which are always present, and the necessity for speed as a possi- ble factor operating against the quality of the work of the enumerators, a spot check, in which five per- cent of the total enumeration was reworked, showed an average error of less than four percent for the en- tire survey. It is believed, therefore, that the accuracy of the basic data gathered in this study will compare favorably with that of similar survey work, and furthermore that the small percentage of error which does occur is largely offset by the mathematical law of averages as applied to compensatory errors. The tables prepared by the survey are designed to present in as lucid a manner as possible the ex- act results of the enumeration. However, a sound understanding of each table is necessary to make relia- ble any interpretation of the figures presented. A practical attempt has been made below to analyze the statistical information to the point where it should readily be susceptible to a pertinent workable inter- pretation. The Real Property Survey could not have been completed successfully had it not been for the excel- lent spirit of co-operation displayed by the local government and the citizenry of Durham, along with the fine reception accorded it by the press. Evidence of keen interest in the whole problem of housing was found everywhere, and the work of the survey was followed closely by many civic groups and individuals. The materials and results of the project will be distributed as follows: Basic schedules both for real property and low Income families will be filed with the city manager of Durham. Block tabulations, general tabulations, and a set of correlation tables derived from the general tabulations will also be given to the city of Durham for the use of the city engineer and the zoning commission. Copies of the final report will be filed with the universities, libraries, and proper city and county departments. In addition, Federal agencies such as the Federal Housing Administration, the United States Housing Author- ity, and the Home Owners Loan Corporation will be furnished copies of the report. It is hoped that the results of the survey will assist in the future planning and development of the city of Durham, as well as help lay the groundwork for the amelioration of those social ills commonly ac- knowledged as the concomitants of a housing problem. vi CHAPTER I HISTORICAL BACKGROUND The region in which Durham is today located was previously occupied t>y var- ious Indian tribes, who had already emigrated before 1750, when the first white settlers, of English and Scotch extraction, began making their home in this area. The section was then part of Orange County and by 1777 contained only a few hun- dred inhabitants. Settlement of Durham itself dates back only to the 1850' s, when a community known as Prattsburg serviced the farmers in the surrounding area with its wheat and corn mills. The construction of the North Carolina Railroad, 1852- 1856, gave impetus to the growth of the town. When William Pratt, a large land owner, refused to give the railroad a right-of-way or land for a station. Dr. Bartlett Durham offered four acres about two miles west of Prattsburgh- and the station was named for him. The railroad detoured around Prattsburg and the Pratt, property. There were fewer than 100 people in Durham in 1865, two years before the town^ was incorporated. By 1880, however, the population had Increased to 2,041, and in 1881 the town was made seat of the new county created from parts of Orange and Wake. Durham's Industrial growth stems directly from the development of the manu- facture of tobacco. As early as 1858 Robert F. Morris was already engaged in the industry. In the historic interval when Sherman's army was located near Durham, the soldiers are said to have sampled and liked the product of the factory which was then operated by John R. Green, originator of the Bull Durham blend, thus spreading its fame. To the Duke family, however, goes the credit for developing the industry to its present gigantic proportions. When Washington Duke left the Confederate Army in 1865 he had to walk 137 miles to his farm near Durham to return to his impover- ished family. Duke began grinding the tobacco his sons had hidden from the North- ern soldiers. The blend which he labeled Pro Bono Publico he peddled to soldiers and others along with flour and home-made lard. His enterprise proved prosperous enough to engage his three sons as well as himself. By 1874 all four Dukes were established tobacco manufacturers in Durham. In 1880 James Buchanan Duke, one of the sons. In order to escape the sharp competition in the tobacco manufacturing field, decided to make cigarettes, by then an important though almost exclusively European product. Within a few years the Installation of improved nachinery in- creased dally production from 2,500 to 100,000 cigarettes a day and made possible large-scale exports of the product to Europe. In 1890 James B. Duke, after absorb- ing practically all other manufacturers, created the American Tobacco Company, a virtual monopoly of the entire Industry. The Monopoly was dissolved Into smaller units In 1911 by a Supreme Court decree, but in the interval Durham had become •ssi 1 the world's tobacco capital, and the Duke fortune was firmly founded. Today the city manufactures about one-fourth of all cigarettes produced in this country. Nine warehouses conduct sales of leaf tobacco and several million pounds of for- eign-grown tobacco are imported annually. In the latter years of his life Mr. Duke engaged in the development of water power in the Piedmont and Mountain sections of North Carolina, which resulted in the establishment of an electric power system now operated by the Duke Power Com- pany and its subsidiaries. An endowment fund of approximately $80,000,000 creat- l ed by the will of James B. Duke in 1925, of which Duke University in Durham is the principal beneficiary, receives most of its funds from the securities of this pow- er system. This endowment is the largest emanating from the South and the largest yet made for the exclusive benefit of the region. The Duke endowment also in- cludes aid for churches and hospitals. Duke Hospital, opened in 1930 as part of the University, has a four million dollar plant and contains 406 beds. It main- © tains a public dispensary and 14 clinics. The development of the tobacco industry in Durham brought the development of other commercial and industrial enterprise. The manufacture of textile mill pro- ducts is now second in industrial importance to tobacco manufacture. While the latter, with four large establishments, employed 5,314 people in 1938, textiles, with 17, employed 4,719. Hosiery is the principal textile product, with cotton fabrics next in importance and cotton yarn third. The Industrial Directory of the North Carolina State Department of Conservation and Development, published in 1938 with the assistance of the WPA, shows that Durham had 59 wholesale establishments, with net sales of $16,678,000; 695 retail establishments with net sales of $17,758,000; and 160 service establishments with receipts of $775,000. Other in- dustries besides tobacco and textiles are: food and kindred products, enploying 408 workers; lumber and timber basic products employing 239; printing, publish- lng and allied industries, employing 194; chemical and allied products with 112 employees; metal, metal working, and metal products with 68 employees; and miscel- laneous occupations such as furniture finishing, laundries, etc., employing about 350 workers. In all some 13,000 persons in Durham are engaged in industry. As a transportation center Durham is serviced by the Southern, Seaboard, Norfolk Southern, Norfolk and Western, and the Durham and Southern Railroads. The Atlantic Greyhound, Carolina Coach, and Virginia Stage bus lines also operate through Durham. The status of the Negro in Durham is notable. Property holdings by Negroes in Durham amounted to more than four million dollars in 1935. Besides this, busi- ness assets aggregating seven million dollars are owned and controlled by Negroes. The North Carolina Mutual Life Insurance Company has grown from a small beginning in Durham in 1898 to the largest Negro insurance company in the world, operating in eight states and employing 1,067 persons. Development of the insurance business 2 inspired the organization of the Mechanics and Farmers Bank in 1907, now one of the largest in Durham with total resources of $1,489,000. The city's growth is show^in the table below. While the increase in popu- lation during the decade from 1930 to 1940 has not been nearly so phenomenal as that for the period 1920-1930, there has been an unmlstakeable growth, as the pre- liminary 1940 figure of almost 60,000 reveals. Year Population 1890 5,485 1900 6,679 1910 18,241 1920 21 , 719 1930 52,037 3 LEGEND SHADED BANDS REPRESENT STREET FRONTAGE BY USE NOT ACTUAL AREA OF BUILDING 1 SINGLE FAMILY, ATTACHED OR OETACKO. STRUCTURES INCLUDING ROW HOUSES AND TERRACES . □ TWO TO FOUR FAMILY STRUCTURES, j APARTMENT WITHOUT BUSINESS UNITS. | APARTMENT WITH BUSINESS UNITS . j MIXED BUSINESS ANO RESIDENTIAL . I COMMERCIAL □ INDUSTRIAL ED PUBLIC 8UIL0INGS S SCHOOL F FIRE HOUSE C CHURCH M HOSPITAL P POST OFFICE OR FEDERAL BUILOWO I INSTITUTION: CM.CA..Y.WCA, SALVATION I + I TEMPORARY BUSINESS USES ARMY. ASYLUM. OLD PEOPLES’ HOME. JAIL. ETC. I ... I PARKING OR USED CAR LOTS I I UNUSCO LAND USE MAP DURHAM NORTH CAROLINA 'V . CHAPTER II LAND USE The uses to which Durham's land is put are naturally affected by the city's industrial character. Uses for industrial and commercial purposes usually take o precedence over uses for residential, educational, and recreational purposes and determine their nature and extent. The location of much of the living space, the tenure of the homes, their types of construction, the mobility of the population, the valqe of the land and the buildings, the rents which they command, as well as the extent to which all the amenities of life are provided are all affected by the importance of manufacturing and trading in the city's economic make-up. Mill and ,, factory settlements, changing areas within the heart of the city — blight and the subsequent slum, unsatisfactory living conditions for the poor whites as well as for practically all the Negroes in their areas of segregation and the border areas of mixed races — these go hand in hand with the rise of new, exclusive residential districts along the periphery of the city and the building of parks and recrea- tional centers , of schools and hospitals. Attempts at control and limitation of the growth of the Industrial city have usually arisen too late to halt the developments already taking place. Consequent- ly, their efforts have been centered on attempts to prevent their occurence else- where — mainly through the use of zoning regulations. Such limitations, being of a negative nature insofar as they prevent certain types of uses in certain predeter - + mined areas, are of limited value. Since most of the damage has been done by the time the city has awakened to the importance of some control, the fact that the zoning regulations are not retroactive are a definite hardship to constructive planning. Nor are these laws usually based upon a scientific examination of exist- ing conditions and future needs as much as upon a desire at least to maintain the status quo. The real Property Survey, in its Land Use Section, did not attempt to deter- mine, nor does it attempt to present, a land use program. Its only purpose was to find out what the existing conditions are and to present them as graphically as possible. This it does with the use of two maps, particularly: the Land Use Map and the Land Coverage Map. The first of these maps shows all parcels of land, in each block, in terms of street frontage, according to their uses, as follows: single-family residential structures, two-to four-family residential structures, apartment houses without business units, apartment houses with business units, other mixed business and res- idential structures, commercial property, industrial property, public buildings (schools, fire houses, churches, hospitals, institutions, governmental buildings, etc.), permanent open space (parks, playgrounds, cemeteries,) temporary business 5 Table 1 AREA OF LAND BY USE Type of Use Area (in square feet) or percent Total area of land 356,843,520 Area of 'land in permanent use 185,747,410 Land in permanent use as percent of all land 52.1 Land coverage of major structures 26,779,442 Land covered by major structures as percent of land in permanent use. 14.4 uses, parking or used, car lots, and unused land. The second map shows, by propor- tions of each block, these three factors of land coverage therein: the land not in permanent use, the land in permanent use, and that part of the latter covered by major structures of all kinds. Two other maps, the Identification Map and the Block Data Map, present aids in the determination of the land's uses as well as information secured in the Real Property Survey proper. The first of these shows the number assigned to each block included in the area covered, thus aiding in the identification of each in connection with data presented elsewhere by blocks. The Block Data Map presents for each block eight pertinent items dealing with structural and dwelling unit facts as well as with non-residential structures. The importance of industry in the composition of Durham is indicated by the fact that virtually one-seventh of all the land covered by major structures is de- voted to industrial uses, among which the manufacture of textiles and tobacco in its various forms predominates. Practically all industrial establishments are sit- uated near or along side the railroads, which were either there first or were ex- Table 1 1 DISTRIBUTION OF LAND BY TYPE OF USE Type of Use Area of land Percent distribution (square feet) of area Total 356,843,520 100.0 Land in permanent use 185,747,410 52.1 Temporary business uses 32,720 Parking and uses car lots 97,480 * Unused and vacant land * Less than 0.1% 170,965,910 47.9 6 (~~i LAND COVERAGE MAP DURHAM. NORTH CAROLINA REAL PROPERTY SURVEY JUNE 1939 W P A PROJECT NO 3633 STATE PLANNING BOARO- SPONSOR tended to serve the mill, factory, warehouse, etc. In some cases, especially among the textile factories, land owned by the mills has been used for the erec- * tion of workers' residences. The principal commercial section is located in the center of town, serving also as a dividing line between the chief Negro section to the south and that part to the north inhabited mostly by white people. To the west of this Negro district and in the western part of the city in general are located the most exclusive resi- dential sections. One of these, Forest Hills, begins where the Negro development ends, a not unfamiliar sight in southern cities. Public and institutional buildings of various kinds cover about one-tenth of the total land with major structures. These especially include the two sites of of Duke University, with its large hospital, other schools, and various city and county buildings. Recreational facilities are provided principally by these parks: Forest Hills Park in the southwestern, Duke Park In the north central. Long Meadow Park in the south central parts for the white residents, and Hillside Park in the southern part for the Negroes. Multiple apartments are located in the various sections of town, the largest of these, the University Apartments, being located, as are many of the others, in the western part, following the general trend of the city's growth. While the discussion of land use is concerned with all phases of real proper- ty in a city and its environs, the more particular purpose of the Real Property Survey is to consider such phases as. concern use for residential purposes. This means a determination of the nature of such use, as regards the kinds of buildings devoted to living quarters, their condition, age, etc., as well as a detailed ex- amination of the living quarters themselves, their adaptability and adequacy. 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Differences between the housing of the races in the degree of structural inadequacies as well as of other undesirable housing char- acteristics are even more marked, both for owners and tenants. Fully one-third of all dwelling units occupied by Negroes are in the poor structural condition categories, as compared with one-tenth of the units occupied by white groups. Although dwelling units occupied by white and "other" families exceed those occupied by Negroes by 3,306 units, Negro-occupied dwellings not only show greater proportions in poor repair, but they actually are more than twice as numerous as dwellings in the poor structural condition categories occupied by white groups. These differences between the housing of the races are as con- sistent among owner-occupied as among tenant -occupied units. Although Negroes comprise less than one-fourth of all owners in the city, Negro owners inhabit ^ over half the owner-occupied units in poor repair. Negro tenants constitute about two-fifths of all tenant-occupants, but they inhabit almost 70 percent of all tenant-occupied units in need of major repairs or unfit for use. Negroes in Durham also occupy the greatest proportions (almost two-thirds) of all dwellings with a rental value of less than $15 a month. While less than one-fifth of all white residents occupy dwellings with these low rental values, almost three-fifths of all Negro families occupy units of similar low rental value. More than half of all white families in Durham pay rentals of $25 or more per month; the same is true of only one-tenth of the Negroes. As in practically all cities throughout the country, almost every sig- nificant aspect of the housing problem is present in more acute form among Negro families. Not only are Negroes preponderant in the dwellings with low rental value and among those in poor repair, but Negro groups, on the whole, while averaging a slightly larger number of persons per family than do white groups, occupy most of the units of smaller size. The consequent overcrowding, there- fore, becomes a greater problem among Negro than among white groups. However, the fact that almost 45 percent of all white families, along with more than four-fifths of all Negro families live in dwellings which are inadequate in some respect, is proof that the housing problem in Durham is not confined to the one race. Dens ity The average number of persons per occupied dwelling unit in Durham is 3.9 ? persons for white groups and 4.0 persons for Negroes. Tenant- and owner-occu- pied units, respectively, report these same averages in the order named. The largest number of units in the city contain two or three people and comprise slightly more than 45 percent of all occupied units. About 30 percent of all dwellings are occupied by groups of four or five persons, and about 15 percent by groups of six or seven persons. The remaining 10 percent of all occupied 31 dwellings consist of groups with either one or eight or more persons. There is little difference between owner- and tenant-occupied units in the propor- tionate incidence of the various size groups, although the former indicate a slightly greater prevalence of groups containing from four to seven people than do the latter. Nor is there much variation in size of family between white and Negro occupants, although the latter show a somewhat higher incidence of groups with one or two people, and of groups with six or more people, than do white families. The largest average group size (4.7 persons) is found in the single-family detached dwelling. Dwellings in apartment houses and converted structures average less than three persons per unit. The standard used by the Real Property Survey for determining the adequacy of dwelling unit space is one and one-half persons per room. The presence of more than this standard number of persons per room is reported by 2,069 dwellings or about one-seventh of all occupied units. The greatest proportion of such overcrowding exists among tenant-occupied units, which report over one-sixth of their total inadequate for the size of their groups, as compared with only 2.7 percent of the owner- occupied dwellings. For both types of tenure overcrowding is proportionately greater among Negro than among white groups, as Table XI il- lustrates . Table XI DWELLING UNITS WITH MORE THAN ONE AND ONE-HALF PERSONS PER ROOM AS PERCENT OF ALL OCCUPIED DWELLING UNITS IN EACH GROUP, BY RACE, BY OCCUPANCY STATUS All-occupied Owner-occupied Tenant-occupied Race of household dwelling units dwelling units dwelling units Total reports on color or race 14.0 2.7 17.6 White* 7.9 1.4 10.6 Negro 23.7 6.6 26.7 * Includes "other" races These 2,069 dwellings house, in inadequate space, 22.7 percent of all the in- dividuals reached by the survey. Nearly two-thirds of these are Negroes. In fact, almost two-fifths of all Negro persons in Durham live in overcrowded homes, as do one-eighth ol all white persons. Here again tenant-occupied units show the great- est proportion of overcrowding, with well over one-fourth of all persons in these dwellings, as compared with only 5 percent of those in owner-occupied dwellings, living in units which house more than one and one-half persons per room. 32 Smaller dwellings report a greater degree of overcrowding than larger units. Almost one-fourth of that considerable number of occupied dwelling units which contain three rooms or less are overcrowded, while only about 6 percent of those with four rooms or more house more than one and one-half persons per room. On the other hand, the proportion of overcrowding mounts strikingly as the size of group increases. Less than 4 percent of the units which house four people or less are overcrowded, but over one-fourth of the units housing five or six per- sons, and more than two-fifths of those with seven persons are overcrowded. A- bout three-fifths of the units with eight or nine persons and an even larger pro- portion of the units with more than nine persons report inadequate space. That the different factors which constitute 'housing problems tend to occur in the same places or in the same structures is further evidenced by the fact that dwellings in need of major repairs or unfit for use are more common among overcrowded families than among those in units of adequate size. As in the case of dwellings in poor repair, dwellings with low rental values & report the largest proportions of overcrowding. Almost one-fourth of those units with a rental value of less than $20 a month, which Includes more than half of all occupied dwelling units in Durham, are overcrowded. In contrast, only 4.1 percent of those units with a rental value of $20 or more a month are inadequate in size. About one-half of all occupied dwellings in Durham report the presence of children under 15 years of age. One-fourth of the dwellings with children are overcrowded, while less than 3 percent of those without children are overcrowd- ed. Table XI 1 NUMBER OF PERSONS IN UNITS WITH MORE THAN \i PERSONS IN EACH GROUP BY OCCUPANCY PERSONS PER ROOM AS PERCENT OF ALL STATUS BY AGE OF PERSONS All-occupied Owner-occupied Tenant-occupied Age of persons dwelling units dwelling units dwelling units Total reports on age 22.7 5.2 28.4 Under 1 year 41.4 12.5 46.6 1-4 years 41.2 11.9 46.5 5-9 years 40.1 9.8 46.5 10-14 years 35.6 10.6 42.2 15-19 years 28.2 7.9 35.0 20-64 years 16.1 3.5 20.6 65 years or over 13.3 2.0 21.3 33 Of all persons enumerated in the survey, almost one-fourth were children under 15 years old, and over one-third were under 20 years of age. Youth in Durham bears the brunt of overcrowded conditions, the proportion of such inad- equacy among them being more than twice that among people who are 20 years old or more. Although persons under 20 years of age represent one-third of the enu- merated population, they constitute more than half of all individuals living in dwellings with inadequate space. Children under 15 years of age, while com- prising about 25 percent of the enumerated population, represent more than 40 percent of the individuals living in overcrowded dwellings. Overcrowding in itself, that is, the presence of more than one and one- half persons per room, is not the only factor to be considered in examining the adequacy of a dwelling for its particular occupants. Frequently rental pay- ments can only be met by "doubling up" and taking in roomers, with the subse- quent undesirable effects of such action on the familial organization within the home. For the purposes of the dwelling survey, only those families who reported "doubling up" for economic reasons were considered extra families, others were merely included as roomers. Within the limits of this definition, 317 units, or 2.2 percent of all occupied units, report the presence of extra families, with 19 units reporting two or more extra families. Owner-occupied units show a slightly higher proportion of their number shared with extra families than do tenants. About two-thirds of all extra families consist of two persons, and almost 30 per- cent of three persons or more. In about one-third of the dwellings reporting the presence of extra fam- ilies the latter are probably the cause of the overcrowding which exists. In any event, dwellings with no extra families show a much smaller proportion of overcrowding (13.6 percent) than those with extra families (32.8 percent). More than 12 percent of all occupied units, or 1,859 dwellings, report the presence of roomers. The greatest number of these units report one or two room- ers. Three or more roomers are reported in 376 dwellings. About the same pro- portion of dwelling units in good condition as those in poor repair take in room- ers, but in the case of overcrowded dwellings, a slightly higher proportion re- port the presence of roomers than do dwellings of adequate size for the groups they house. Units with a larger number of people in them tend more to attain their group size by virtue of the presence of roomers than do units with a small num- ber of people. Thus, while 5.7 percent of all units with two or three persons, and about 16 percent of those with four or five persons living in them report the presence of roomers, about one-fourth of all units with from six to nine persons, and more than two-fifths of those with 10 persons or more living in them are of these group sizes because of the presence of roomers. However, an 34 encouraging aspect of the rooming situation in terms of family life is the fact that the greatest proportion of dwellings renting to roomers are occupied by a primary group of one person. Although occupancy factors of inadequacy are not nearly so prevalent in Durham as are factors of physical or structural inadequacy, their extent is fair- ly sizeable and must be considered a definite element contributing to the housing problems of the city. Where overcrowding and other occupancy factors exist, the above analysis has attempted to show that they consistently occur along with other undesirable characteristics, and that for the most part they can all be lo- calized into a particular segment of the dwelling structures in Durham. The analysis of low-income families below deals further with this segment of the city's structures. 35 SUBSTANDARD DWELLING UNITS MAP 36 CHAPTER IV LOW INCOME HOUSING While the problem of housing cannot be confined within a city to any one group, distinct aspects of the problem exist for different income levels. Prob- lems of planning, construction, and encumbrance apply to all groups, but the pile-up of "lacks" in adequacy naturally falls almost entirely among groups with low incomes. The concept of adequacy for dwelling units cannot be defined too rigidly, since too many factors, a number of them subjective, enter into any considera- tion of the term. However, minimum standards were set up for determining ade- quacy, covering the most objective factors involved. As a result, a house was designated as "substandard" if any one of the following conditions was found to exist: (1) among the physical factors — need of major repairs or unfitness for use, lack of a private, indoor flush toilet, lack of a private bath, lack of run- ning water piped inside, lack of installed heating, or lack of installed light- ing facilities (gas or electricity); (2) among the occupancy factors — an average of more than one and one-half persons per room, and two or more families in the same dwelling unit; provided that monthly rent is less than $40 per month should only one of the above occupancy factors exist. Many of the substandard units in Durham are so because of a single one of these factors. The high incidence of plumbing inadequacy, for example, as re- vealed by the dwelling survey, indicates that a number of units now designated as substandard could probably be reclaimed as standard if water were piped into them and plumbing facilities installed. However, this would not necessarily make all these properties completely desirable, since, in terms of community life, it is of little moment for a family to live in a standard home in the midst of the squalor and poor housing conditions which exist among other dwellings in the same neighborhood. In this connection it must be noted that at least one-third of all substandard homes in Durham are so for more than one factor. It Is these houses that largely constitute the city’s slums and make the reclamation of less inadequate houses of doubtful value. Any housing program, to be effective, must encompass more than the mere repair of isolated unsafe and insanitary structures. It must recognize the fact that these houses convert whole areas into slums, as is revealed by the maps in this analysis which locate the different factors of Inadequacy and the substandard sections in the city. Slim conditions are costly to a city. Actually, for many degressive slum areas, a program of subsidization necessarily exists. Tax returns from these areas are at a minimum, tax delinquency is common, and the per capita tax re- turn is far below that of other sections of the city. On the other hand, all 37 DWELLING UNITS OCCUPIED BY WHITE AND NEGRO TENANTS DURHAM, N.C. Ev] SUBSTANDARD WHITE STANDARD NUMBER OF DWELLING UNITS 1500 NUMBER OF DWELLING UNITS 1500 NEGRO UNDER 5.00- 10.00- 1500- 2000- 25.00- 30.00- 4000- 50.00- $75.00 $5.00 9.99 1499 19.99 24.99 29.99 39.99 MONTHLY RENT 49.99 74.99 &0VER WORK PROJECTS ADMINISTRATION REAL PROPERTY SURVEY O.P. N? 65-1-32- 148 STATE PLANNING BOARD SPON-SOR 2500 2250 2000 I 75 0 1500 1250 1000 750 500 250 0 38 39 city services and facilities must be accentuated within these areas. Police costs are often in excess of thrice those for other areas. Costs for fire pro- tection are naturally higher. Public health nurses find practically all their work within the boundaries of slum sections. Many studies have shown irrefuta- ble evidence of the high incidence of crime and delinquency in slum areas. The removal of slums will not, of course, eliminate the conditions of poverty which contribute so heavily to their rise. It will, however, help eliminate those de- cidedly undesirable social conditions attendant upon this poverty which are directly traceable to inadequate housing and slum districts. It was the task of those conducting the Low -Income Housing Area Survey to gather data regarding the size, income, rental, employment status, and employ- ability, of the families living in substandard homes in Durham. The second en- umeration of those residential structures designated as substandard by the dwell- ing survey revealed that of the 15,334 units in Durham, 8,542 occupied dwellings, or well over half of all units in the city, were still substandard on the basis of at least one of the factors listed above. An additional 628 substandard units, excluded from this analysis either because they were vacant at the time Table XI I I NUMBER AND PERCENT DISTRIBUTION OF DWELLING UNITS IN EACH SUBSTANDARD CATEGORY, BY OCCUPANCY STATUS, BY RACE OF HOUSEHOLD Substandard occupied units Occupancy status Total Physically Occupancy Physically and occupancy No. % No. % No. a /C No. % All occupied sub- 24.7 standard units 8,542 100.0 6,318 74.0 112 1.3 2,112 White 3,611 100.0 2,802 77.6 85 2.4 724 20.0 Negro 4,931 100.0 3,516 71.3 27 0.5 1,388 28.2 Owner-occupied substandard units 952 100.0 770 80.9 26 2.7 156 16.4 White 466 100.0 398 85.9 19 4.1 49 10.5 Negro 486 100.0 372 76.5 7 1.4 107 22.1 Tenant-occupied substandard units 7,590 100.0 5,548 73,1 86 1.1 1 ,956 25.8 White 3,145 100.0 2,404 76.4 66 2.1 675 21.5 Negro 4,445 100.0 3,144 70.7 20 0.4 1,281 28.9 40 41 of re-enumeration, or because the families living in them refused to furnish the necessary information, brings the total proportion of substandard units up to almost three-fifths of all dwelling units in the city. Of the occupied dwellings which are substandard, merely 112, or slightly more than one percent, are substandard solely because of occupancy factors as defined above; i. e., overcrowding or the presence of extra families. The greatest proportion, about three-fourths of the total, are physically sub- standard, and almost one-fourth are both physically and occupancy substandard. Although the average size of families living in substandard homes is little different from that of more desirably situated groups, the incidence of occu- pancy factors of inadequacy is much higher among substandard homes than for the city as a whole. Since there is no preponderance of large families in substand- ard homes, the relatively greater degree of overcrowding and doubling up found there is probably due to the inability of families with low incomes to finance the cost of adequate space and dwelling privacy. Table XIII below indicates the number of dwelling units in each substandard category and the proportions they represent of each race and occupancy group: While overcrowding as the only factor of inadequacy is infrequent, there is a relatively high incidence of overcrowding in connection with physical fac- tors of inadequacy. The substandard category which is of least urgency, that of occupancy inadequacy alone, occurs in greater proportions among owners, and more Table XIV INADEQUATE DWELLING UNITS AS PERCENT OF ALL DWELLING UNITS, BY OCCUPANCY STATUS, BY PHYSICAL FACTORS OF INADEQUACY All dwelling Occupancy status Physical factors units Owners Tenants Vacant of inadequacy No. % No. % No. % No. In need of major repairs or unfit for use 3,022 19.7 218 6.2 2,602 23.2 202 33.9 Inadequate sanitary facilities 8,824 57.5 857 24.4 7,568 67.5 399 66.9 Inadequate lighting facilities 1,597 10.4 110 3.1 1,358 12.1 129 21.6 Inadequate heating facilities 90 0.6 6 0.2 43 0.4 41 6.9 42 NUMBER OF WHITE TENANT SINGLE" FAMILIES OF 2 TO 7 PERSONS LIVING IN SUBSTANDARD DWELLINGS BY MONTHLY NET AND GROSS RENT DURHAM, N.C. NUMBER of families number of families 3AAA ... 2400 2000 1600 1200 800 400 0 2400 2000 1600 1200 800 400 0 D NET RENT GROSS RENT *0 $5 $10 $15 $20 $25 $30 $3 MONTHLY RENT ♦ EXCLUDES WORK PROJECTS ADMINISTRATION DWELLING UNITS WITH REAL PROPERTY SURVEY 2 OR MORE GROUPS 0 P. N? 65-1-32- 148 STATE PLANNING BOARD SPONSOR 5 $4( 43 frequently among white families than among Negroes. Tenants and Negro families, on the other hand, indicate much larger proportions in the substandard category which represents the greatest degree of inadequacy, that in which both physical and occupancy factors exist. Physically substandard dwellings constitute the major part of all substand- ard units. Table XIV demonstrates the frequency, among the different tenure groups, of those physical factors used as a basis for determining the physical inadequacy of dwellings. The figures reveal that these physical inadequacies occur in smallest pro- portions among owner-occupied dwellings. Since owners account for little more than 10 percent of all substandard dwellings, and vacancies for about 5 percent, it is obvious that tenant-occupied dwellings, which represent more that four- fifths of all substandard units, constitute the major housing problem with which the city has to deal. It is not surprising to find an excess of substandard dwelling units occu- pied by Negroes over those occupied by white groups, even though for the city as a whole white occupancy exceeds that of Negroes. However, the fact that fully two-fifths of all dwellings occupied by white groups were found to be inadequate in addition to the large proportion of those occupied by Negroes, precludes the possibility of the housing problem's being confined to one race in Durham. Group Data The low income survey is divided into two sections. In the first section the group, both family and non-family, is the unit basis of analysis, whereas in the second section the dwelling itself is used as the unit for analyzing data concerning its inhabitants. The total number dwelling units, as revealed by the survey, is of tenure: of groups as follows living in substandard for both races and types Total all races Total* 9,395 Owner* 1,089 Tenant* 8,306 White 3,922 508 3,414 Negro 5,473 581 4,892 Almost 90 percent of all groups covered by the survey are family groups which include either married couples or parents with unmarried children. Non- family groups, consisting of further-removed relatives than those included in family groups, or of entirely unattached persons, are more prevalent among Ne- groes, accounting for about 16.8 percent of all Negro groups. However, it can * Family and non-family groups 44 45 safely be said that inadequate housing conditions principally affect that basic unit of our social life — the family, and more particularly, the family with ten- ant-tenure. Parents with unmarried children, the majority of whom are 16 years of age, constitute two-fifths of all family groups in substandard homes. An additional fourth of all family groups are married couples without children, and one-fifth of all family groups are composed of one parent with unmarried children. These types of groups occur in similar proportions among both owners and tenants. The two races, however, report some difference in the proportionate occurrence of the various types of family groups. More than half of all white groups in substandard homes, as compared with only one-third of all Negro groups, consist of parents with unmarried childred. About three-fourths of all family groups living in substandard homes in Durham indicate the presence of less than three dependents in the household — that is, unmarried persons under 21 years of age whose gross income is less than $300 a year or who have no income whatsoever. Negro families show more minor depend- ents than white families, and tenants more than owners. Three hundred and thirty-seven families or about 4 percent of all family groups in substandard homes contain no employable member. Besides these families an additional 486 groups report no gainful employment for any member of the fam- ily at the time of the survey, bringing the total proportion of groups without any gainfully employed member up to 10 percent of all families in substandard homes. Slightly more than one-fourth of these unemployed groups are the recip- ients of some form of local relief, either in cash, kind, or service. The remain- ing unemployed families either subsist on incomes from lodgers, past earnings, or untraceable outlaw sources. About one-half of all family groups in substandard homes contain only one employable person, and nearly two-fifths contain two em- ployable persons. Less than 10 percent of all families report more than two em- ployable members in their groups. Dwel ling Unit Data The study of substandard dwellings which house families with low incomes is aimed particularly at an analysis of the market for standard houses which they create in Durham, and the extent to which private capital can be utilized eco- nomically to provide such houses, using as a basis the data made available by the survey regarding the incomes of groups in substandard homes and the rents they can and are accustomed to pay. The fact that almost three-fifths of all dwellings in Durham are substandard indicates the critical need for such an analysis. Without emphasis upon -proximity to employment centers or to city services and the relation of these factors to construction expenses, a conservative esti- mate of from $2,000 to $2,400 might safely be hypothecated as the minimum cost, including land, for the construction of a standard unit of four rooms, under con- 46 NUMBER OF NEGRO TENANT SINGLE* FAMILIES OF 2 TO 7 PERSONS LIVING IN SUBSTANDARD DWELLINGS BY MONTHLY NET AND GROSS RENT *0 *5 *10 *15 *20 *25 *30 *35 *40 MONTHLY RENT * EXCLUDES DWELLING UNITS WITH 2 OR MORE GROUPS WORK PROJECTS ADMINISTRATION REAL PROPERTY SURVEY O.P. N? 65-1-32- 148 STATE PLANNING BOARD SPONSOR 47 ditions that currently prevail in Durham. To insure the minimal 10 percent re- turn, such an investment would have to command a net rental of from $200 to $240 a year, or about $17 to $20 a month. Gross rentals on such properties, which in- clude utilities and, as is customary in Durham, the cost of heating and cooking, would necessarily be in excess of $20 a month for such dwellings. Since the ac- cepted criterion for net rental expenditure is a maximum of one-fifth of the to- tal income (one-sixth in the case of three or more dependents), and for gross rental, one-fourth of the income, only families whose total Income is in excess of $1,000 a year can possibly be housed adequately by private capital with any assurance of an economic return to the investor. It must be borne in mind, how- ever, that cheaply constructed units will have a short "life span" and consequent- ly present the possibility through rapid deterioration of becoming substandard in a few years. Housing problems necessarily differ for owners and tenants. Although a high proportion of the substandard dwelling units occupied by owners report in- comes of less than $1,000 a year (44.6 percent), the number of owners in substand- ard homes is comparatively small and it is likely that the use of existing agen- cies for the extension or guarantee of long term loans, and the setting up of housing standards for compliance by property owners, would help eliminate a large portion of the inadequacy which exists among owner- occupied properties. Tenants, who occupy the largest number of substandard units, however, present a problem more difficult of solution. More than. one-half of all substandard dwelling units occupied by white ten- ants, and one-third of those occupied by Negro tenants, or some 40 percent of all tenant-occupied dwelling units, report annual incomes of $1,000 or more and can probably afford at least the minimum rental price of adequacy if it were fur- nished them by private investors. These tenant-occupied dwellings include a sub- stantial number which rent for less than $20 a month but are occupied by groups whose annual incomes are $1,000 or more and who, therefore, could afford to pay the higher rentals which privately owned adequate houses might demand. In ad- dition, about 18 percent of all substandard units occupied by white tenants and about 6 percent of those with Negro tenants now bring a net rental of $20 or more. Without increasing the rentals, many of these latter properties could probably be improved and still realize a profit for their owners. The market for improved properties, therefore, is comparatively large for the private investor. There are, however, 4,368 tenant-occupied units in Durham which report in- comes of less than $1,000 a year. One-third of these are occupied by white groups and the remaining two-thirds by Negroes. The only solution for the hous- ing problems of this considerable group of tenants whose incomes do not permit them to pay the price of adequacy, seems to lie in some form of subsidized hous- ing program. The cost of such subsidization might equitably be balanced against the social cost of permitting such a large segment of the city's population to 48 NUMBER OF WHITE TENANT SINGLE FAMILIES OF 2 T07 PERSONS LIVING IN SUBSTANDARD DWELLINGS BY ANNUAL INCOME AND MONTHLY GROSS RENT DURHAM, N.C. MBER OF FAMILIES 405 360 - 315 270 225 - 160 135 90 - 45 NUMBER OF FAMJ^ES 225 UNDER $200 aoo- ipoo- 1,200- 1400- 1,600— 1,800-5 2000 999 1,199 1399 1,599 1,799 1.999 L OVER ANNUAL INCOME * EXCLUDES WORK PROJECTS ADMINISTRATION DWELLING UNITS WITH REAL PROPERTY SURVEY 2 OR MORE GROUPS O. P. 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