Why does carnegie think it is better to build public institutions than to give charity to the poor?

Carnegie thinks it is better to build public institutions than to give charity to the poor because it will benefit them more. They would be able to use the contributions and better educate themselves, that way it can help the people who actually want to help themselves. Makes sense right?

Urban growth invariably feeds increased commercialization and industrialization. it requires continually expanding land areas. when urbanization rates are high, and countries do not have the institutional and managerial capacities or economic wherewithal to manage such rapid growths, they exert intense pressure on the types and nature of the resulting settlements. they contribute to the development of overcrowded slums and shanty towns without adequate essential services and necessary infrastructure.-by asit k. biswas and cecilia tortajada

Ithink it would be choices a and b. hope this !