of removing problematic pockets of the city; for the most part this just displaced existing residents because the new dwellings built by private developers were often far too expensive for the previous inhabitants to afford. In the mid to late 19th century, philanthropists like Octavia Hill and charities like the Peabody Trust focused on building adequate housing for the working classes at affordable rates (George Peabody built his first improved housing for the "artisans and laboring poor" on Commercial Street in 1864). The Metropolitan Board of Works (the dominant authority before the LCC), was empowered to undertake clearances and to enforce overcrowding and other such standards on landlords by a stream of legislation including the Labouring Classes Dwelling Houses Acts of 1866 and 1867. Overcrowding was also defined as a public health 'nuisance' beginning in 1855, which allowed Medical Officers to report landlords in violation to the Board of Health. In 1890 the shortcomings of the existing legislation were refined and condensed into one comprehensive piece of legislation, the Houses of the Working Classes Act. This empowered the LCC to construct its own housing on cleared land, which it had been prohibited from doing before; thus began a social housing building program in targeted areas like Bethnal Green and Millbank that would accelerate in the next century. The East End The East End of London, with an economy oriented around the Docklands and the polluting industries clustered along the Thames and the River Lea, had long been an area of working poor. By the late 19th century it was developing an increasingly sinister reputation for crime, overcrowding, desperate poverty, and debauchery. The 1881 census counted over 1 million inhabitants in the East End, a third of whom lived in poverty. The Cheap Trains Act 1883, while it enabled many working class Londoners to move away from the inner-city, had the effect of accentuating the poverty in areas like the East End, where the most destitute were left behind. Prostitution was rife, with one official report in 1888 recording 62 brothels and 1,200 prostitutes in Whitechapel (the real number was likely much higher). The American author Jack London, in his 1903 account The People of the Abyss, described the bewilderment he was met with by Londoners when he mentioned that he planned to visit the East End, many of whom had never been there despite living in the same city. He