Municipal and Official Handbook of the City of Auckland, New Zealand/Sanitation and Public Health
SANITATION AND PUBLIC HEALTH.
HISTORICAL.
The formation of the Sanitary Department practically dates from 1902, when the Council decided to separate the duties of Inspector of Nuisances from the Traffic Inspector's Office, and to establish a department responsible only for the health and sanitation of the City. This step was the outcome of the new health legislation, which brought matters affecting the health and welfare of the community into prominence, and necessitated increased activity on the part of local bodies.
Previous to this, the statutory duties of preventing and suppressing nuisances, and protecting the people against any outbreak of infectious diseases, had been carried out in a manner conformable with the opinions then prevalent respecting such matters. The Inspector's powers were extremely limited. He reported to the Council upon the cleanliness of all streets, public places, and drains, and as to any nuisances: visited and inspected back yards and premises, rubbish receptacles, and "all buildings in which any manufactory, trade, or business is carried on which, from its nature, may become offensive to the inhabitants of the borough or injurious to health," but, for some reason difficult to comprehend, "the decision of the Council as to what building" should be inspected hereunder was "final."
Commencing with a staff of two, the Department's career has been one of continuous, if somewhat irregular, development, the officers to-day numbering nineteen. This expansion is not alone due to the fact that the population has considerably more than doubled, or that the area of the City, by the inclusion of suburban districts, has increased over five-fold, but to the greater vigilance and efficiency that is now needed to meet the demands of a continuously rising standard of civic hygiene, and in particular to the necessity of having a sufficient and well-equipped staff to provide against the introduction of epidemic disease, to which Auckland, as an important shipping centre, is normally exposed.
During the time the Sanitary Department has been in existence, conceptions of health, public and private, have undergone the most radical changes. Sanitation, with its many and complex problems, has now become one of the foremost of municipal undertakings. Health is conceived as something more than the mere absence of disease, and to a great extent as being purchasable. The keynote of modern health principles and practice is prevention.
For several years supervision was exercised over the sanitary and refuse removal services, then carried out by contract. This system was, needless to say, an almost constant source of dissatisfaction to the public and an anxiety to the Council. Ultimately, the contracts had to be terminated and the work undertaken by the City Engineer. Until a year ago all plumbing and drainage was done under the Department's direction: its inception necessitating the preparation of by-laws, the teaching, examining, and licensing of plumbers and drainers. Practically all premises in the City were re-drained in accordance with the requirements of the by-laws, and the owners of some 8,000 places dependent on the conservancy system were compelled to connect with the sewers.
LEGISLATION.
The work of the Sanitary Department is largely based upon and governed by the following Acts of Parliament, namely, the "Municipal Corporations Act," the "Public Health Act, 1900," and "Health Act, 1920." An epitome of these follows:—
"MUNICIPAL CORPORATIONS ACT."
This Act requires first consideration, not only as the foundation of municipal administration, but as the main support of the activities of the Sanitary Department since its inauguration. In its present form, as consolidated in 1920, it is the principal source of authority for by-laws relating to sanitation in its widest meaning.
Under this Act, "the Council may do all things necessary from time to time for the preservation of the public health and convenience, and for carrying into effect the provisions of the 'Health Act, 1920,' so far as they apply to boroughs."
Although the adoption of these powers was optional until recently, the Council had availed itself of them to the fullest extent, and the sanitary by-laws made thereunder leave little to be desired, even with the amplified meanings given to nuisances, and the additional means provided in the Health Act for dealing with unhealthy and other conditions.
"THE PUBLIC HEALTH ACT, 1900."
In many respects this Act was of striking importance. It eliminated the Central Board of Health, took away the powers vested in local authorities as Local Boards of Health, and substituted a Ministry of Health, the safeguarding of the health of the people becoming a matter for the State. The country was divided into a number of health districts, with district health officers in the principal cities, thus rendering the local Medical Officers of Health unnecessary.
The transference of other health powers hitherto of local control followed, for in 1907, by the "Sale of Food and Drugs Act," the supervision of foodstuffs and the taking of samples by the Council's officers for analysis under the "Adulteration Prevention Act, 1880," became the duty of the Department of Health. In 1910, by an Amendment of the definition of "Local Authority" in the "Public Health Act," Hospital and Charitable Aid Boards became responsible for everything relating to infectious diseases, including the inspection and disinfection of premises.
By an arrangement with the Health Department and the Hospital and Charitable Aid Board, Auckland retained control over infectious diseases, and although it was the only city to do so, its action was fully justified, when the Health Authorities ten years later, as a result of their experience here and elsewhere, restored the responsibility to the municipal authorities.
"The Public Health Act, 1900," as amended from time to time, was consolidated in 1908, and with further occasional amendments up to 1919, it became gradually more complicated, uncertain in meaning, and unnecessarily costly in administration. The powers given to local authorities were numerous and varied, but most, if not all of them, as well as the funds and machinery of the local authorities to a considerable extent, were at the disposal of the Chief or District Health Officer or the Minister, and could be controlled by the Health Department "both legally and practically to an almost unlimited extent."
"THE HEALTH ACT, 1920."
Included in the many improvements this Act possesses over its predecessor, the following are worthy of mention:—It defines the relative responsibilities of the State and local authorities for safeguarding the health of the people, eliminates some overlapping of sanitary control that previously existed, gives extended powers for dealing with unhealthy conditions, sets a much higher standard of sanitation, and delegates to local authorities certain powers for the promotion and conservation of health in their districts.
BY-LAWS RELATING TO SANITATION.
To keep abreast of the requirements of the City and to maintain an efficient sanitary administration, the Council has exercised its powers to the utmost in the making of by-laws.
In addition to the adoption of Section 26 of "The Health Act" defining nuisances, which in itself almost constitutes a sanitary code, by-laws are provided fully covering public health and sanitary interests.
DEPARTMENTAL ACTIVITIES.
As practically everything required for dealing with matters affecting the health of the public and the sanitation of the City is provided in the By-laws and Regulations under the Health Act, their application in detail comprises the duties of the Department.
The relative importance attached to the different branches of the work varies from time to time, but the vulnerability of the waterfront district, and the possibility of the introduction of disease from overseas are always kept in view, and the work in many respects organised to meet such a contingency.
The City is inspected systematically, house to house, averaging under normal conditions from two to three inspections per year, but certain localities and premises receive more frequent visits, while others in suburban districts require less frequent attention. Special inspections are made of places where food is stored or handled, stables, and premises occupied by Asiatics and others.
Special inspectors undertake the inspection and licensing of places used in connection with the preparation, storage, or sale of food, the investigation of cases of infectious disease and the disinfection of premises, also the supervision of stores and depots where dangerous goods are kept. A woman sanitary inspector is employed visiting the homes of people requiring her advice and attention. Her work is really an extension and rounding-off of sanitary inspectors' work, more reliance being placed on persuasion to secure the improvements sought. She also serves as a connecting link between the various social workers and the Department, bringing together the supply and demand of social service.
The figures given in the following summary of work will indicate to some extent the efforts made during the past year to keep the City clean and healthy:—
SUMMARY OF WORK
For the Year Ending 31st March, 1922.
| Number of inspections made | 41,787 |
| Number of complaints received and investigated | 982 |
| Notifiable infectious diseases dealt with | 571 |
| Number of rats caught | 8,296 |
| Letters, etc., received and despatched | 4,025 |
| Departmental reports and reports to Medical Officer of Health | 1,016 |
| Licenses issued | 1,283 |
| Notices issued under Health Act and By-laws | 3,555 |
| Premises disinfected | 397 |
| Buildings recommended for demolition | 5 |
| Prosecutions for non-compliance with By-laws | 138 |
Vital statistics covering the last twenty years are given in tabular form on the following page.
VITAL STATISTICS for the Period 1901–1921.
As shown by the Offician Census Returns.
| YEAR | POPULATION AT CENSUS YEARS. |
BIRTH RATE PER 1000 OF POPULATION. |
DEATH RATE PER 1000 OF POPULATION. |
INFANT MORTALITY– i.e., deaths of children under one year of age per 1000 births. |
| 1901 | 34,213 | — | 13.10 | 115.7 |
| 1906 | 37,736 | — | 12.51 | 99.2 |
| 1911 | 40,536 | — | 13.68 | 68.6 |
| 1916 | 64,951 | 23.26 | 11.10 | 74.1 |
| 1921 | 81,712 | 19.41 | 10.50 | 64.3 |