24 SPECIAL HAWKE’S BAY NUMBER. The Dominion
Reconstruction of Tokio and San Francisco
WHAT HAPPENED OVERSEAS
How Cities Were Reconstructed
Following earthquakes of exceptional severity when the cities of San Francisco and Tokio were raised to the ground, and then destroyed by subsequent fire, the stupendous task of reconstructing the cities had to be faced with promptitude. In both instances fire did far more damage than the earthquake which if followed. In both instances, too, within the space of a very few years new cities had arisen Phoenix-like from the ruins, it being very difficult to discern any traces of the disaster which had caused so much destruction. A visitor to San Francisco in 1913 remarked that it would be hard to believe that the stories of the fire of seven years before were not exaggerated, and that 450,000,000 dollars of property was then represented by smoking ruins. Practically no trace of the disaster remained. In Tokio and Yokohama, the reconstruction process has transformed these cities into a type hitherto not seen before in Japan. A visitor may now walk down spacious highways planted with trees and between rows of vast white buildings of great height, where business does its best to reproduce the department stores of the American cities. In these two cities over 500 bridges, proof against fire and earthquake, have been built.
AFTER the San Francisco catastrophe of April, 1906, the question often asked was, “Are they really rebuilding San Francisco? Why haven’t they removed it somewhere else?’ The obvious reply was that there was nowhere else for it to be situated. All the western coast of both North and South America is peculiarly lacking in harbours. There is scarcely a port worthy of the name within 600 miles of San Francisco, north or south; but the Golden Gate at San Francisco gives in all weather safe entrance between its towering cliffs to one of the finest land-locked harbours of the world.
Earthquakes had been common, but of little importance, in California until 1902. Heavy earthquake shocks on the morning of April 18, 1906, followed by a fire which lasted three days, and a few lighter shocks, practically destroyed the business portion of the city and some of the adjoining districts. The damage by earthquake to buildings in San Francisco was, however, small in comparison to that wrought by the fire which began soon after the principal shock on the morning of the 18th. About half the population of the city, it was estimated, spent the night out of doors while the fire was in progress, with practically no shelter. The difficulty of checking the fire was increased through the breaking of the water mains by the earthquake, draining the principal reservoirs.
To stop the fire, rows of buildings were dynamited. General Frederick Funston, in command at the presidio, with the Federal troops under him, assumed control, and the city was put under military law, the soldiers assisting in the work of salvage and relief.
Generous Assistance.
On April 21 the fire was reported under control. Assistance with money and supplies was immediately given by the nations and by foreign countries, a committee of the Red Cross Society being put in charge of its administration. By April 23 about £2,000,000 had been subscribed by the people of the United States; Congress voted £500,000 from the national treasury. The committee organised by the Red Cross Relief Corporation completed its work in 1908, having spent for the relief of the hungry, for the sick and injured, and for housing and rehabilitation of individuals and families, in round numbers £2,000,000.
As a result of the earthquake and fire, about 500 persons lost their lives of theses, two were shot as looters. Buildings valued at approximately £21,000,000 were destroyed. The total loss in damage to property has been variously estimated at from £70,000,000 to £100,000,000. To cover the loss there was about £17,000,000 of insurance in some 230 companies.
Reconstruction in the burned section began at once, with the result that it was practically rebuilt in the three years following the earthquake. Wages for men employed in building, owing in part to scarcity of labour, but chiefly to action of the labour unions, rose enormously, masons being paid £2 8s for a day of eight hours. High prices of materials and of haulage and freight rates added difficulty to the task of rebuilding, which was accomplished with remarkable energy and speed. Van Ness Avenue, which during a process of rebuilding had assume the character of a business thoroughfare, did not maintain this status, the business centre returning to the reconstructed Market Street.
Reasons for Recovery.
Two factors, it would appear, account for the remarkable recovery of San Francisco from the disaster. The first was the preservation of her waterfront. If fire had destroyed her water facilities, she would not only have suffered grievously from lack of food supplies, but the stream of reconstruction material that began at once to flow toward the city would have been blocked. But the wharves were uninjured, and were able successfully to meet the ensuing strain upon the capacities.
The second was the vast amount of wealth the city had accumulated during the preceding half a century. By reason of that wealth alone could the recovery from the disaster have been so rapid. Of the enormous sum of money that was spent in building operations during the two and a half years following the earthquake, only £1,000,000 came from outside.
The money received from the insurance companies was largely spent in temporary repairs, and, as one report states, in diamonds and automobiles; for a great wave of extravagance seemed to have set in during the first year after the catastrophe. The greater part of the funds for reconstruction came from stored-up capital, which had been lent in other western cities, and even in New York, though afterwards, much of the insurance went in that way as well.
Beautifying Scheme Fails.
Some initial delay was caused by the visions of enthusiasts who saw in the catastrophe an extraordinary opportunity for re-creating the city upon a new and more beautiful plan. The early architects of San Francisco were mot burdened with a sense of aesthetic responsibilities. Beauty was not a factor in their estimate of values. But a city, even a destroyed city, that contains a thousand property boundary lines cannot be rearranged as though it were a garden. For a time the civic idealists continued to see visions and to dream dreams, and the property owners waited to see what would come of it all before signing contracts for rebuilding. Then the inevitable happened – the old boundary lines were restored, and the building began.
Up to the end of 1908, two and a half years from the earthquake, building permits to the value of £26,000,000 were issued. Of this enormous sum, only £3,500,000 was expended on class A buildings. Class A represented the absolutely fireproof, earthquake proof, steel and stone building, with wire glass windows, automatic metal doors, and metal interior fittings. All the old A class buildings, so far as it is known, withstood the earthquake perfectly, and even after the fire had raged about them they were in a condition to be refitted. Class C buildings, on the other hand, on which £7,250,000 had been expended, consisting of brick walls and steel girders, and corresponding to the common style of construction in English cities, suffered some damage from earthquake, and were a total loss in the fire.
Insurance Payments and Premiums.
In the matter of insurances, the total amount paid by the various companies up to the end of 1908 was something over £40,000,000. All the English companies doing business there were considered to have behaved admirably, some of them settling on a “dollar for dollar” basis, but three (which had special conditions inn their policies regarding earthquakes) reduced their payments by 10 to 25 per cent. The English companies paid in all about £13,000,000. One of the heavy losers, owing to their loss paying record, have since, it is stated, doubled their business on the coast.
The American companies also, for the most part, met their obligations well. The Fireman’s Fund, the largest San Francisco company, levied three 100 per cent, assessments on all its stock.
Optimism Prevalent.
Just at the time of the San Francisco earthquake America was experiencing a period of acute financial depression similar to the present, and one writer at the time remarked that the downward tendency of prices was a blessing very much disguised to the city. For such was the optimism of the people that there was grave danger of their entering upon a grave building “boom,” and over-building far beyond any possible needs of the city. The panic of the time made building cheaper for those who could afford to build at all, but prevented much wild speculation.
It is a notable fact that at the time of the fire the mortgage indebtedness of San Francisco was £12,000,000, or about 16 per cent of the actual value of the property. This was probably the smallest mortgage percentage of any American city, and would have permitted of much more borrowing if necessary.
The next feature of the reconstructed Tokyo is found in the streets. These were built under the separate supervision of the central Government, the municipality and the ku (wards). The city streets have all been completed. The Government built what are called the 52 trunk routes that are a feature of the new capital of Japan. As compared with the former streets, the new ones are much wider and are thoroughly paved, extending for a total of many miles. For example, the Showa-Dori, the first trunk route, is itself 1450 yards long.
One or two things may be said of the streets. The plaza in front of the Chiyoda Palace is 240 feet wide and 220 yards long; the Giin-Dori is 117 feet wide and 590 yards long; the boulevard at the Toyko [Tokyo] station is 1200 yards long, in width ranges from 24 to 48 yards. The street last named is divided by four rows of trees. Another street is from 30 to 40 yards wide. In building the new streets the surface communications were in many places transferred underground to give better facilities for the rapid movement of traffic.
In Yokohama.
While speaking of the reconstruction of Toyko, mention of the admirable work accomplished by Kanagawa Prefecture and the City of Yokohama must not be omitted. The port city suffered more than the capital in the 1923 disaster. Yokohama, excepting its less important parts, was completely reduced to ashes. In the reconstruction, however, the city was fortunate, as there were the city planning regulations enacted in 1920 and the city building law of 1920 to work with.
The reconstructed Yokohama presents a striking contrast to the city before the disaster. In such important municipal enterprises as sewerage, water works, hospitals, sanitation and schools, the post-quake residents are much better off than ever before. Thanks to the drastic measures taken, the city has a supply of water sufficient for 1,000,000 people. While there were only three parks before, the city now possesses eight large ones, five of which have been newly built.
Gradually the debris was cleared away and the readjustment of land effected and the reconstruction work launched in earnest in 1924. Three years later, by the consolidation of nine contiguous villages and towns, the city became much larger than before the 1923 disaster. In population the city grew to 501,000 from […]2,000 and in area it increased to 40,710,000 tsubo from 11,400,000 tsubo. (A tsubo equals 4 square yards.)
The cost of restoration work in Yokohama was as follows: – Streets £846,434; roads and bridges £1,200,845; rivers and canals £1,132,547; land re-adjustment £827,900; parks £116,600; water-works £427,000; sewerage-works £381,605; electric enterprises £1,363,277; primary schools £1,551,654; commercial schools £77,000; libraries £58,178; hospitals £253,933; incinerators £66,105; settlement houses £123,000; markets £400,000; social welfare £343,595; hotels £136,595; buying perpetual lease land £600,000; municipal offices £93,260; emergency expense of primary schools £164,890; emergency expense for roads and bridges £237,918; expenditure for annexed villages and towns £90,980; reconstruction expense paid by state £8,870,233; paid by Kangnawa Prefecture £915,390; grand total (about) £20,736,300.
The city of Tokyo has been reborn from the debris of the 1923 catastrophe, more imposing and resplendent than ever before. Trying as was the ordeal of the great earthquake and fire which took a toll of 58,000 lives, thanks to the generous assistance rendered by foreign nations, the people have completed the reconstruction of the Capital of Japan.
The untiring efforts of the people of Tokyo, have finally borne fruit not only in rebuilding the city but also in laying the foundations for further development. Willingly people made mutual concessions when sacrifice was needed for drastic city planning.
The narrow and irregular streets were widened and straightened and where there were flimsy wooden buildings before the disaster, new, up-to-date fire and earthquake-proof edifices are now built. In fact, the lively and thriving post-quake spectacle of Tokyo is so delightful to the eye that it makes one ponder on whether the city is not better off after all, for the disaster, notwithstanding the colossal damage suffered.
Cost of Reconstruction.
The area of the city which was devastated by the unprecedented earthquake and fire was more than 34,600,000 square metres. It was, in fact, 43.5 per cent. of the whole city. The houses and dwellings that were reduced to ashes totalled 366,000. On account of the catastrophe more than 1,484,000 people, or 59 per cent. Of the population of the city, were suddenly made homeless.
With regard to the amount of the damage to property, it is estimated to be not less than £370,000,000.
Various departmental expenditure undertaken by the Japanese Government amounted to £82,590,000, and work undertaken by the Tokyo Prefecture (county) and municipality in five years required a total sum of £4,800,000.
The money was spent for rebuilding the prefectural office buildings, the county offices, schools, hospitals and laboratories under the prefectural jurisdiction, and the rebuilding of ward offices, primary schools, libraries, hospitals, parks, street repairs, etc., by the City of Tokyo.
These enterprises of the central Government and local governments were inaugurated in 1924 and were brought to a successful termination in April, 1930.
Among the amounts quoted below it will be noticed that the expenditure from all source s in the Tokyo area alone included £37,077,764 for the construction and restoration of streets and bridges and £10,270,100 for land re-adjustment.
The following amounts were disbursed for restoration work: – Government enterprises: Buildings and repairing of principal thoroughfares, £25,745,840; canals, £2,887,906; large parks, £1,190,000; land readjustment, £875,000; subsidies fir fireproof buildings, £3,000,000; total, £33,698,746.
Tokyo prefectural (provincial) enterprises: – Repairing of national highways, £1,125,403; encircling and radiating streets, £750,000; educational work £325,000; total, £2,200,403.
Tokyo municipal enterprises:- Land readjustment, £9,395,100; construction and repairing of small streets, £8,211,199; paving of streets and construction and repairing of bridges, £1,245,322; improvement of sewers, £4,021,132; construction of playgrounds, £1,434,119; equipment for disposal of garbage, £185,000; wholesale markets, £1,650,000; primary schools, £4,093,909; social welfare work, £452,500; building hospitals, £310,000; reconstruction municipal water service, £1,000,000; electric enterprises, £3,420,000; total, £35,040,282. Grand total, £70,939,432.
Miscellaneous Costs.
Immediate earthquake relief cost £2,975,000. Two markets other than that mentioned above, and the laying of additional electric lines, cost £5,374,000.
The total amount spent by the municipality alone thus reached £41,779,000.
Photo captions –
In a picturesque setting, suggestive of the South Seas, Napier business men carry on. A section of the attractive little community shops in Clive Square, Napier’s temporary business centre. The Mayor, Mr. J. Vigor Brown, is seen taking an interest in the activities of a municipal garden.
Many Hawke’s Bay schools were badly hit by the earthquake, but prompt measures were taken to establish the education system. Above is one of the temporary buildings of wood and iron erected at Napier to house pupils until more pretentious structures are decided upon.
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