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95
" It became necessary to issue a summons in one instance only—with reference to an effluvium
nuisance at a confectioner's, the requirements of the Council's notice having been disregarded. A
fine of ten pounds was imposed."
BAKEHOUSES.
The bakehouses to the number of 111; 68 in North Kensington and 43 in South Kensington,
were periodically inspected during the year, and action was taken, when necessary, to ensure
compliance with the sanitary provisions of the Public Health Act and the Factory and Workshop
Act relating thereto. The latter Act, which came into operation, generally, on the first day of January,
1902, re-enacted the provisions of the former and now repealed Acts (1878-1895), with an important
addition contained in section 101, materially affecting the future of underground bakehouses—a
subject frequently dealt with in these reports during the last quarter of the nineteenth century. In
the third report for 1902 (March 29th, p. 69), the subject was fully dealt with, in order that the
Council should be in a position to appreciate the new condition of affairs. The matter was and is
of great importance, whether regarded from the point of view of the interests of " the trade "
or those of the public health.
If the object of the legislature, viz., abolition of insanitary underground bakehouses, is to be
attained, uniformity of action on the part of the Borough Councils is essential, and to ensure this,
by-laws for the Metropolis, as a whole, regulating the structure of the premises and the conduct of
the business, should be framed by a central authority. But at the present time there is no power
to make by-laws for the purpose. It would be well, I think, to make the County Council
the central authority in consultation with the Borough Councils, with power to make by-laws subject
to confirmation by the Local Government Board. A short Act, or a section in the London County
Council's General Powers Act, is needed to give effect to this suggestion.
With this brief preface I submit the report above referred to, as follows :—
" The Factory and Workshop Act, 1901: Bakehouses.—Regarded from the public health
point of view, probably no part of the new Act is of more immediate or greater interest to
the sanitary authority than that relating to bakehouses. As respects London, the defects of
the places where bread is made are largely dependent on two factors : (1) that the premises
were not constructed for the purpose, and (2) that they are underground. Ere long, the
Borough Councils will have to face the question whether these underground premises are sanitarily
' suitable.' When the Factory and Workshop Act, 1895, became law, it was hoped that
(by sub-section (3) of section 27) a step towards the abolition of underground bakehouses had
been achieved; but this hope was not realised; and although the defect in the sub-section
had been demonstrated, under circumstances to be related later on, the Act of 1901 did
nothing immediately to secure the desired object. But there is hope in the future, and I wish
to draw the attention of the Council to the matter while there is yet time to avoid, in respect
of bakehouses, the fatal mistake resulting from the inaction of the sanitary authorities, between
1856-1873, in regard to private slaughter-houses. The Metropolis Buildings Act, 1844,
section 55, made provision for the discontinuance in London of certain offensive businesses,
including that of a slaughterer of cattle, at the end of thirty years; but public abattoirs not
having been established, the private slaughterhouses obtained a new lease *—under conditions,
it must in fairness be admitted, which mitigated the danger to public health from their
existence, often in crowded and insanitary localities. But to return. It would appear that
by section 101 of the new Act, the legislature intended to confer power on ' District Councils'
throughout England and Wales, enabling them to close, in January, 1904, insanitary underground
bakehouses, which are in large measure (I think) peculiar to London. But if this is
to be done, steps to that end should be inaugurated forthwith—in justice to the trade, and
in the interests of public health—for the underground bakehouses (and the majority of bakehouses
in London are underground) will surely not be closed, however unsuitable they may be,
if steps be not taken, soon, to provide substitute establishments above ground.
" Before proceeding further, it may be well to explain the course of legislation in regard
to this matter. By The Bakehouse Regulation Act, 1863, bakehouses were first brought under
a measure of control by the sanitary authorities; and if no material structural improvement
resulted from such powers of supervision as were then conferred, at least some effort was made,
by periodical inspection, to ensure cleanliness of the premises. In 1879, by the Factory and
Workshop Act, 1878 (the ' Principal Act'), control of the bakehouses was taken from the sanitary
authority, and handed over to the factory inspector—apparently with a view to the
* By the passing of the Slaughter Houses (Metropolis) Act, 1874.