READING, PENNSYLVANIA UC-NRLF *B 5 A3 7ME Report on a Survey OF The Municipal Departments AND The School District Prepared for The Chamber of Commerce of Reading by the New York Bureau of Municipal Research DECEMBER, 1913 AND DURING YEAR 1914 22 HEALTH DEPARTMENT. cents per capita. For the next 3 x / 2 months the present service requires $3,500 to $4,000 at the very least, or only 3 or 4 cents per capita. Public health is purchasable. Dr. William H. Park, Director of the Bureau of Laboratories of the New York Health Department, says: "Cities ranging from 30,000 to 50,000 in population should have a minimum per capita cost of 50 cents. Cities ranging from 50,000 to 100,000 should have a minimum per capita cost of 75 cents; cities from 100,000 to 300,000 should have a minimum per capita cost of 85 cents, and all cities over 300,000 should have not less than $1.00 per capita." New York City spends 65 cents per capita for health service, and other progressive American cities spend 30 cents to 60 cents. The last report of the United States Bureau of the Census shows that Reading spent only 8 cents per capita for health conservation. There were only three cities in the United States in Reading's class spending less for health conservation. These cities were Wilkesbarre, Pa., Allentown, Pa v and Pawtucket. R. I. That Reading has increased her per capita cost so little in the last few years does not indicate that Reading has .awakened to her health problem. BUDGET ESTIMATES UNSUPPORTED. The estimates prepared by the Board of Health for submission to Coun- cils, on which appropriations for the current year were made, were set up as follows: For abating nuisances $21,600 For salary of contagious disease nurse 900 Miscellaneous (supplies, additional salaries, etc.) 5,000 Salary of child welfare nurse 600 Cost of site of municipal hospital 10.000 Salary and expenses for an assistant meat and milk inspector 1,500 Emergency fund 5,.ooo • $44,600 Upon what basis these estimates were made is a matter of conjecture, as no supporting facts were submitted. The action of Councils in granting less than one-fourth of the estimate was entirely justifiable. So long as budget estimates are prepared in this way, health department officials have no right to expect an increase in funds. To allow the department $21,600 for the abatement of nuisances arising from unsanitary private alleys, which owners of the abutting property should be compelled to keep clean, would have been criminal. To have allowed $5,000 "for miscellaneous purposes" in the pur- chase of supplies and for additional salaries without obtaining a detailed statement of the need and of the specific items included in -each request, would have been a misuse of public money. PAVING, REPAIRING AND CLEANING ALLEYS. The funds available for paving and cleaning alleys are used at the discre- tion of the Board. The cost is divided among owners of property abutting on the alley, according to the number of square yards owned by each. The total cost includes the cost of construction and the cost of inspection by the HEALTH DEPARTMENT. 23 Health Commissioner. When the work is completed, each property owner receives a bill for the amount of his indebtedness, payable to the City Treasurer. REVENUE ACCOUNTING METHODS. The Board of Health does not keep any of the funds it receives. All moneys received for permits, licenses, or other fees are turned over to the City Treasurer once a month. The stubs of permits and licenses, upon which the amounts received by the Board are entered, are audited by the Comptroller and checked against the amount received by the City Treasurer from the Board. In the case of permits to sell meat and milk, the permit is issued only when the Treasurers receipt for the fee is presented to the Meat and Milk Inspector. No money passes through the hands of this official. ,FOOD INSPECTION SELF-SUPPORTING. Licenses for the sale of meat and milk cost $10.00 a year. As there are approximately 550 dealers in meat and milk, the revenue from this source alone is over $5,000 a year. This,, as has been stated, is paid into the city treasury. In the fiscal year 1911-1912, the Board received $1,284.29 for other fees, permits, licenses and fines, all of which was also turned over to the City Treasurer. The City Treasurer thus receives approximately $7,000 per annum from the Health Department which is about equal to the amount now spent for salaries of all health officials. The sum received from meat and milk permits is alone equal to the entire cost of maintaining meat and milk inspections, even with the increased staff recommended. PURCHASE AND PROVISION OF SUPPLIES LOOSE METHODS COSTLY. No inventory of supplies is kept, and no records are available to show what the department is spending for supplies or how its supplies are being used. Looseness in handling supplies naturally results in their being lost or misused, which means increased expenses. The Board of Health should be required to furnish complete and detailed records of all supplies purchased,, to whom delivered, how and when used and all other data necessary in checking this important item. Employees now purchase supplies as needed and have them charged to the Board. Except for purchases involving large sums, little restriction is placed upon the action of employees in this respect. The fact that the Board, which is the sole authority, meets but once a week, makes it inconvenient, or impossible, for employees to obtain orders for supplies needed in emergencies. No purchases should be made without proper authority or without proper supervision and control of the methods of pur- chasing and the quality of articles purchased. r GIFT OF READING, PENNSYLVANIA Report on a Survey OF The Municipal Departments AND The School District Prepared for The Chamber of Commerce of Reading by The New York Bureau of Municipal Research DECEMBER, 1913 AND DURING YEAR 1914 J IFT • • • • • «P. \ ^ rb ^ ^ w XI rt H pa CJ G HH> X ft MH W "1 - C t-H o >— H .2 I4H h | a < )-* JC si ■■>— • U § O < Bfl- o 13 o 1 r Q 8 a O - to +j- u Q •a Z 1 n to T* 'y s a 1=3 s X o w u to tf HEALTH DEPARTMENT— SLMMaRi t . HEALTH DEPARTMENT SUMMARY OF CRITICISMS AND CONSTRUCTIVE SUGGESTIONS, ALL OF WHICH MAYBE IMMEDIATELY ADOPTED BY COUNCIL ADMINISTRATION AND ORGANIZATION. The present Board of Health lacks an aggressive and definite program for health protection and education and is not adapted to the proper per- formance of the varied functions which modern health service demands. The Board of Health should be abolished and its powers and duties vested in the Council, which should begin immediately to reorganize the service. SUPERVISION. The health service in Reading lacks a supervising head who can direct intelligently the efforts of employees. Council should select a thoroughly trained physician or sanitarian, and showld require full time service with full time pay. RECORD KEEPING. The present Secretary of the Board of Health is not trained to use the improved record keeping methods recommended. A clerk familiar with stenography and typewriting and with some experience in record keeping and filing should be employed. PERSONNEL. The present health staff is not organized or qualified to cope with health problems. In addition to the full time health officer and clerk previously recommended, there should be a full time physician, three food inspectors, two child welfare nurses, two plumbing inspectors, two sanitary inspectors and a smoke inspector for immediate service. PROMOTIONS AND SALARY INCREASES. The administrative body has no records upon which it may determine the need for salary increases or promotions. No promotions or increases of salary should be granted without such records. HEALTH APPROPRIATIONS. The present appropriations for health service are too small. Reading's per capita cost for health service is only 13 cents. Public health can be purchased, but not for 13 cents per capita. • • ~ » • • • • • • • • • - io « « • .; ••:h m e # autb Department— summary. ^ht* ' ; ■* - *-* »**"■ * • Budget estimates are not properly supported or segregated. Estimates furnished by the health officials should be accompanied by all the informa- tion necessary to show the need for funds requested. All items of requests should be shown in detail. PURCHASE AND PROVISION OF SUPPLIES. No inventory of supplies is kept, although this is necessary for accurately determining" future needs and requests. The present loose methods of purchasing and inspecting supplies should be abandoned. No supplies should be purchased without proper written authority, and no supplies not conforming to standards or specifications should be received. PROVISION OF BUILDINGS. The health office is entirely inadequate in space and arrangement. New offices should be provided,, even if it is necessary to rent private rooms. The lack of office and laboratory facilities for the meat and milk inspector greatly reduces the efficiency of this division of service. Larger quarters and improved facilities are needed at once. PUBLICITY. The annual report of the Board of Health lacks information of interest or value to citizens, and certain statistical information contained in it is inaccurate. More information should be furnished through improved tabu- lations and charts. Newspaper publicity of facts about health is limited and ineffective. The health officer should prepare interesting and timely articles on these topics to increase citizen interest and co-operation. No systematic attempt has been made to popularize knowledge of subjects relating to health by bulletins, pamphlets, lectures, exhibits, etc. An educa- tional health program along these lines should be carried out under the new administration. PREVENTION OF TRANSMISSIBLE DISEASES. The methods in use in Reading for the control of transmissible diseases are based upon a State act forty years behind the times. A new program based upon present needs and present resources is needed. There is no medical officer to examine persons suspected of having transmissible diseases and to supervise and regulate quarantine. A physician should be appointed for this post and full time service should be required. The law requiring that certain communicable diseases shall be reported to the Board of Health in writing within six hours after such cases are known of, is not observed. Prompt prosecution of violations of the law is the only remedy. No attempt is made to secure complete registration of all cases of tuber- culosis. Tuberculosis registration, which is left to the State dispensary in this district, should also be performed by the bureau of health. HEALTH DEPARTMENT— SUMMARY No continued effort has been made by the Board of Health to supply typhoid vaccine, smallpox vaccine, diphtheria antitoxin or anti-meningitis serum to physicians free of charge. This service is a valuable aid in improv- ing registration of these diseases. All records of communicable diseases are unsatisfactory. A complete record of each case from report to termination of disease by disinfection or otherwise should be made and properly hied by name of disease, name of patient, or street address. Cases of communicable diseases reported to the Board are rarely inves- tigated. All cases of communicable diseases not under private care should be investigated by a physician or nurse of the health bureau. Xo pin charts or maps of communicable diseases are kept, although those are valuable aids in visualizing the problems of disease prevention. The rules and regulations of the Board, in accordance with the State law, require placarding for malaria and typhoid fever. This practice is unnecessary. .and steps should be taken to amend the State law. Quarantine regulations are ineffective because intermediate visits to quar- antine patients are not made by health officials. Cases not under private ,care should be visited to see that quarantine is observed. Quarantined patients are released without examination and, in the case of diphtheria, without a negative culture. Examination should be made of all patients before release from quarantine unless at the expiration of quar- antine the attending physician gives a signed statement that recovery is complete. Xo diphtheria patient should be released without a negative culture. Tt is a useless quarantine regulation which excludes a child from school but allows him to play with other children on the street. Children should be allowed to return to school following release from quarantine; they should, however, be kept out even longer if the medical inspector thinks they are still likely to transmit the disease. The disinfection records are very incomplete. To determine the value of fumigation and disinfection in the prevention of communicable "diseases accurate detailed records of the work and of its cost should be kept. Fumigation for diphtheria and measles is continued at considerable expense in Reading, although other cities, notably New York City and Providence, R. I., have found fumigation unnecessary for these diseases. Reading should discontinue unnecessary fumigation as soon as amendment of the State law can be secured. Reading has no facilities for the disinfection or destruction of bedding, carpets, hangings, etc., which have been dangerously contaminated. A dis- infection station and facilities for transfer of infected materials should be provided. PROTECTION OF THE HEALTH OF CHTLDREX There is no program for child welfare and for the reduction of infant mortality. Under the reorganized health service, Reading's infant mortality rate of T33.4 per t.ooo births should be reduced at least twenty per cent, in the next year. There are no visiting nurses who could play an important part in an HEALTH DEPARTMENT— SUMMARY. effective child welfare campaign. Two child welfare nurses should be pro- vided. Supervision of midwives is lacking. It should be provided immediately. Outfits for the prevention of opthalmia neonatorum (a disease causing blindness in the newly-born) are not supplied to physicians and midwives. Preventive treatment should be required in all cases and the necessary out- fits furnished. Infant clinics play an important part in a child welfare program. They can be secured in Reading by the co-operation of the health authorities and physicians. Supervision of foundlings, foundling homes, and day nurseries has never been maintained. Such supervision intimately affects the health of children. Co-operation between the bureau of health and the existing charitable organizations has not been developed as it should be. All institutions of the city interested in the protection of health should be asked to co-operate in securing and safeguarding it. MEDICAL INSPECTION OF SCHOOL CHILDREN. The reports of the number of children treated or under treatment are made upon insufficient evidence. Parents should be required to submit written evidence from a physician or institution that the child has been treated or is under treatment. The records of treatment for hypertrophied tonsils and adenoids are unsatisfactory. Out of 5,890 cases found by the medical examiners, only 129, or 2 per cent., were reported as treated in the last school } r ear. More vigorous following up by school nurses is needed. A clinic for the operative treatment of tonsils and adenoids should be provided by the School Board. Working papers are issued without physical examination by school physi- cians. No employment certificate should be issued without a certificate by the medical inspector that the child is in good health. No special physical examinations are provided for graduates or for others leaving school. This should be a matter of routine procedure. The provision of sanitary drinking cups or fountains is inadequate. The installation of sanitary drinking fountains in all schools should be begun immediately. The dental dispensary now under the direction of the Reading Dental Society should be made a part of the school medical service, and dentists should be employed by the School Board. Open air classes for anemic and tuberculous children are not provided, this pressing need should be met at once. PROTECTION OF FOOD SUPPLY. No standards or grades have been established for the regulation of the milk supply. A maximum bacterial count should be fixed for each grade and milk showing a higher count should be destroyed. Dealers should be required to conform to the standards set for the particular grade denoted by the label. HEALTH DEPARTMENT— SUMMARY. 13 No standards of sanitary conditions have been established for places where milk is produced or handled. Certain standard conditions should be fixed for dairies according to the grades of milk produced. Meat inspection records are inadequate. Each abattoir or market should be scored so as to show its sanitary conditions. Records of condemnation should contain all necessary facts as to reason for condemnation, amount condemned and method of disposal. No inspection is provided for foods other than meat and milk. Bakeries, confectionery and fruit stores, ice cream plants and soda fountains should all be under constant inspection by an official of the health bureau. A special food inspector should be appointed for this service. Reading's market system of five markets under private control is not properly supervised. A market system owned by the city and supervised by the food inspectors of the health department is recommended. Supervision of small country slaughter houses is extremely difficult and at present inadequate. A central municipal abattoir is needed. No control of the manufacture, handling or sale of drugs is attempted by the Board of Health. It is important that provision be made for carrying out in Reading the regulations of the United States Pure Food and Drug Act. INDUSTRIAL DISEASES AND ENAMINATION OF EMPLOYEES. Reports of industrial diseases, such as lead and arsenic poisoning, phos- phorus poisoning, and other diseases due to inhalation of dust, fumes, etc., are required by the State Health Department. For the proper protection of the health of workmen the local health bureau also should require physicians to report such diseases to it. Physical examinations for workers in dangerous trades are not required. The health bureau should oblige employers in these trades to furnish certi- ficates of the health of their employees. Physical examinations of individuals engaged in the handling and prepara- tion of food-stuffs are not required. Bakers and confectioners should be compelled to show evidence of freedom from communicable disease before being allowed to practice their trades. City employees are not required to furnish any evidence of physical ability to perform their tasks. As health is a pre-requisite to efficiency, evidence of it should be required of all city employees. RECORDING OF VITAL STATISTICS. Births are not reported within the ten day limit, as required by law. Prosecution of violators of the law will remedy this. Birth returns are not checked by baptismal records. This should be done to ensure complete reporting and to protect the individual against future inconvenience or loss of citizenship. Death returns are not made out according to the international list of the causes of death. This is a necessity for the proper recording of vital statistics. Deaths from diarrhneal diseases are not tabulated. This should be done . as a basis for work in the reduction of infant mortality. H HEALTH DEPARTMENT— SUMMARY. Death rates are incorrectly calculated. The procedure of the United States Bureau of Census should be followed in all determinations and tabu- lations. Death returns are not checked by cemetery records of burial. For insur- ing completeness of death records this is a necessity. Vital statistics are not properly studied and tabulated so as to furnish a basis for work for the reduction of the death rate. CARE OF THE SICK AND INJURED IN HOSPITALS. Reading greatly needs a city hospital where contagious' and venereal diseases may be cared for and placed under proper quarantine regulations. The building at present used for the isolation of smallpox cases is a relic of the past. Other facilities should be substituted for it at once. LABORATORY RESEARCH. The control of communicable diseases and the protection of the food supply is greatly hampered by the lack of proper laboratory facilities. This pressing need should receive immediate attention. The department has no bacteriologist and chemist, although the meat and milk inspector makes milk and meat bacteriological and chemical exam- inations. With increased facilities for laboratory work,, a bacteriologist and chemist will be needed. Private water supplies are not analyzed by the Board of Health. As a part of the campaign to reduce the amount of typhoid fever, this is an im- portant service, which the health bureau should supply. The city needs a municipal laboratory in which all the laboratory work required for the different branches of the bureau's service could be combined. It could make all analysis necessary in controlling communicable diseases, supervising the water supply and regulating the disposal of sewage. It should be required also to test and approve all supplies purchased by the city. SANITATION. There is no sanitary code embodying all the laws, rules and regulations affecting public health. All health laws should be revised and codified for the guidance of Council and for the instruction and information of officials and citizens. Sanitary supervision is limited principally to the investigation of com- plaints. The bureau of health should take the initiative and begin more extensive and definite work for general sanitary improvement. Two sanitary inspectors should be provided to supply the service now ineffectively performed by the Commissioner of Health and the assistant commissioner. Complaints are not properly recorded and filed, and the records of action on complaints are incomplete. A complaint register should be kept showing all facts needed for the control of nuisances. Anonymous complaints are not investigated. All complaints, whether anonymous or signed, should be investigated and reported upon by sanitary officers. HEALTH DEPARTMENT— SUMMARY Privies and cesspools on premises where sewers are accessible are con- tinued in violation of the law. An aggressive campaign to end this nuisance should be begun. Protection against dangerous nuisances is not provided. Promiscuous spitting, common drinking cups and common towels should be prohibited by ordinance. ' Unsanitary conditions in houses, barber shops, factories,, moving picture shows, etc., are not investigated. Provision should be made for this branch of sanitary supervision. The smoke nuisance is not controlled. The law prohibiting smoke nuisance should be enforced. A smoke inspector should be appointed to collect evidence showing the existence of the nuisance. "Clean-up" days have been inaugurated by the Mayor and should be continued by the bureau of health. The bureau should ask for the co-operation of all city departments and civic organizations in observing it. The bureau of health, with the co-operation of all city departments, the Chamber of Commerce and other civic and social organizations, should make a complete field survey of the entire city. Such a survey should cover gen- eral sanitary conditions,, food manufacture and sale, housing, hospital and out-patient service,, ambulance service, poor relief, charities' organization work and all other businesses or institutions directly or indirectly affecting the public health. The present bathing facilities along the river front are to be commended: their extension should be encouraged. They should be rendered available for both sexes. 16 HEALTH DEPARTMENT. HEALTH DEPARTMENT CRITICISMS AND CONSTRUCTIVE SUGGESTIONS ON ADMINISTRATION, PERSONNEL, APPRO- PRIATIONS, REVENUE AND GENERAL HEALTH PROGRAM. ADMINISTRATION REORGANIZATION NEEDED. The authority under which the present Board now operates is a special State act of 1873, providing for the establishment of a Board of Health in Reading. This act provided for a Board to consist of seven members. Five of them were selected by Councils according to districts, as set forth in the act, and they chose two physicians to complete the roll. Thus for 40 years the Reading Board of Health has been operating under a law which has been rendered obsolete by 40 years' advance in medical and sanitary science. The first step in reorganization under the new city government is the abolition of the present Board. According to the terms of the act under which the city government of Reading will hereafter operate, Council has power to exercise all the rights, duties and obligations imposed by existing legislation upon boards of health in cities of the third class. In order to simplify and expedite the procedure of health administration, the recently elected Commission or Council should act as the Board of Health through that member of Council who is charged with the administration of the department of public safety. MEETINGS OF BOARD INFREQUENT. The act of 1873 requires that meetings of the Board of Health shall take place at least once a week. This particular section of the law has become a dead letter, however, for the meetings are sometimes several weeks apart. The President of the Board religiously notifies the members each week that a meeting is to be "called." If the notice is written in red ink, the member knows that the meeting will be important and that his presence is desired.. If the notice is written in black, however,, he knows that his presence is not required, and pays no attention to it. On those nights a quorum is never present, of course, and so the Secretary simply records in his minutes that on account of the lack of quorum no meeting was held. HEALTH DEPARTMENT. 17 PERSONNEL HEALTH FUNCTIONS AND PERSONNEL. It is evident from this review of the organization of the Board of Health that there has been no well defined plan as to the selection or appointment of officials. The things which a health department should do are well defined. They may be briefly enumerated, according to functions, as follows: 1 — Prevention of transmissible diseases. 2 — Preservation of the health of children. 3 — Protection of food supply. 4 — Care of the sick and injured in hospitals. 5 — Protection of the health of laborers. 6 — Recording of vital statistics. 7 — Sanitation and the abatement of nuisances. 8 — Laboratory service along all these functional lines. A HEALTH OFFICER SERVING FULL TIME IS NEEDED. According to the act of 1873, the Board was empowered to appoint a Commissioner of Health, who should be one of its own number. The sole stated qualifications for the officer is that he shall be a citizen of Reading. No other qualifications are imposed. The opinion of the Board as to the Commissioner's personal fitness is all that is required. His tenure of office is unlimited except that the Board may dismiss him if it deems him unsatis- factory. He receives a salary of $880 per year. The present health service lacks a head, and consequently the supervision which only a responsible head can give. Serious matters vitally affecting the public health must wait for action by the Board,, for the present Health Commissioner, lacking authority and initiative, depends upon its decision. How serious this lack of organization and supervision may be is well illus- trated by a recent instance which came under the observation of the investi- gator. The Commissioner of Health was called upon to restrain and quaran- tine an individual who had been exposed to smallpox. Through timidity and lack of knowledge of his power, he was uncertain what action he could take. By appealing to the Board at its meeting several hours later, he found out, after considerable discussion, that his authority was clearly defined and his duty plainly stated in the rules and regulations of the Board. Smallpox and other matters requiring immediate control need prompt and effective action. Such dilatory tactics in dealing with dangerous diseases is a very clear indication of the rueed for reorganizaton. The health officer, in the reorganized service that is proposed, should be a sanitarian — either a physician trained in sanitary science, or a sanitary engi- neer. He should be a full time official, at a salary of at least $2,500. Full time service is essential for efficient health administration. It would not be considered for a moment that the city could get the best service from a part time superintendent of the Water Department; yet, part time service in that department would not mean such a serious loss as in the health department. The present efficiency of the Water Department is due to the fact that the department is supervised by a full time, technically trained, competent head. The Commissioner in charge of the Department of Public 18 HEALTH DEPARTMENT. Affairs should be allowed to recommend the health officer who should be finally chosen by the entire Council. Extreme latitude should be allowed Council in selecting this officer so that the best man may be secured regard- less of his residence. Proved incompetence or malfeasance should be ground for immediate dismissal. MEDICAL OFFICER AS ASSISTANT COMMISSIONER. To aid the Commissioner of Health in investigating complaints and nuis- ances and in placarding and disinfecting, there is an Assistant Commissioner of Health, appointed by the Board. His qualifications and duties are no more and no less than those of the Commissioner. His office is not statutory but was created by the Board. He is allowed a salary of $600 by Council. The Board should appoint a physician whose duty it would be to super* vise the registration and control of disease, to investigate all cases of disease which require special investigation, and to make examinations before release from quarantine. He should be a full term official, if possible, at a salary of $1,800 per year. Other health departments have found it advantageous to offer this post to a recently graduated physician, who has his reputation to make. He should be selected in the same manner as the health officer and should hold office indefinitely, though subject to dismissal for incom- petence. IMPROVED CLINICAL SERVICE NEEDED. The Secretary of the Board of Health is chosen by the Board arid his tenure of office, like that of other officials, is limited by the will of the Board. It is his duty to keep the minutes of the Board meetings and to act as Reg- istrar of vital statistics and clerk in charge of the registration of commu- nicable diseases. His salary, fixed by Councils,, is $750 per year. It is recom- mended that a clerk thoroughly experienced in typewriting, stenography, office practice and record keeping be employed, at a salary of $750 per year. PLUMBING INSPECTION. A Plumbing Inspector and an Assistant Plumbing Inspector are appointed by the Mayor to carry out the provisions of the State act of 1909, regarding the supervision of plumbing. The Plumbing Inspector, who is a journeyman plumber, has charge of all plumbing records and passes upon all plumbing plans. He acts also as a member of the Examining Board for licensing plumbers and inspects and passes upon plumbing installations. He receiv - a salary of $1,000 per year, which is fixed by Council. The work of his assistant is wholly that of inspecting plumbing work as directed by the chief. He receives a salary of $780 per year. As the State law requires plumbing inspection and the licensing of plum- bers to be under the direction of the department or Board of Health, this work must be continued for the present,, at least, as part of the health ser- vice, although it is not properly a function of the health bureau. HEALTH DEPARTMENT. 19 MORE FOOD INSPECTORS. The Meat and Milk Inspector, who is a veterinarian, is under the direc- tion of the Board, although appointed by the Mayor. He is required to inspect dairies, milk stores, meat markets and abattoirs, and to make such laboratory tests as may be necessary to control the handling and sale of meat and milk. He receives a salary of $1,800 per year. Within the past year the Board has appointed an Assistant Meat and Milk Inspector, who is required to assist in the field inspections of places where meat or milk is sold or handled. The salary for this office — $1,200 per year, has been allowed by the Board from its miscellaneous funds. The inspector has been furnished by the Board with a clerk, who, in addition to the necessary cleri- cal and stenographic service, assists in the laboratory work. Though having no technical training, he performs the chemical analyses of milk under the training and direction of the inspector. His salary — $60 per month — is also paid from the miscellaneous funds of the Board. For the protection of the food supply, it is recommended that the present personnel be continued, with the exception of the clerk. He may be assigned to laboratory service under the director of the laboratory which is recom- mended in this report. The work, however, should be arranged differently. The present inspector should be appointed meat inspector and should have sole charge of the inspection of meat, at the salary he now receives. The present assistant inspector should be appointed milk inspector with entire charge of that work. Subsequent selections for these positions should be based on examination, but for the present it is advisable to continue the existing force in office, because of their familiarity with conditions and their general competence — which will be increased fully too per cent, by the re- organization of the service. An inspector of foods, other than meat and milk, should also be provided, at a salary of $1,200 per year. His work would consist of inspecting all other stores handling and selling food — including eggs, vegetables, fruits, confectionery and ice cream, bake-stuffs, etc. CHILD WELFARE NURSES. For carrying on the work of protecting the health of children, there should be at least two nurses to visit homes where there is need of nursing care or advice. They should be under the direct supervision of the Health Commissioner. Their salaries should be at least $750 per year. IMPROVED SANITARY INSPECTION. The Commissioner of Health and his assistant are now required to make all necessary sanitary inspections. Under the new regime the health officer should not be required to perform this work. There should be at least two sanitary inspectors, at salaries of $900 each, under the direction of the Commissioner. SMOKE INSPECTION AND PREVENTION. Although there is a smoke prevention ordinance, no officer has been appointed to supervise this service. There should be a smoke inspector 20 HEALTH DEPARTMENT. to secure evidence against persons violating this ordinance and to carry on a campaign of education. He should receive a salary of $1,200 per year. LABORATORY SERVICE. A bacteriologist and chemist is needed — but until sufficient money is appropriated to provide, equip and maintain a health laboratory, this appoint- ment need not be made. The Bacteriologist and Chemist should be a thor- oughly trained expert. He should receive at least $1,500 per year, and should devote his entire time to the work. He should be selected by a competitive examination. The clerk now employed by the Meat and Milk Inspector could be very advantageously used in the chemical analysis of milk, in which he has been trained by the Meat and Milk Inspector. The present salary allowance for this assistant ($60 per month) is ample. SUMMARY OF PROPOSED ORGANIZATION. 1 — For immediate service — Position Salary Health officer $2500 Assistant health officer 1800 Plumbing inspector 1000 Assistant plumbing inspector 780 Meat inspector 1800 Milk inspector 1200 Food inspector (other foods) 1200 Child welfare nurses (2 at $750) 1500 Sanitary inspectors (2 at $900) 1800 Smoke inspector 1200 Clerk 750 2 — For future additional service — Bacteriologist 1500 Assistant ($60 per month) 720 $15,530 2.220 $17,750 EXAMINATIONS, PROMOTIONS AND SALARY INCREASES. None of the officials in the Health Department obtain their positions by examination. Except for those employees who are appointed by the Mayor, the Board is the sole judge of their qualifications and fitness. N"o provision is made for salary increases or promotions; the Board acts in these matters as it sees fit. One instance of salary increase granted by the Board came to the notice of the investigator. On the recommendation of the Meat and Milk Inspector, the Board decided to grant an increase of salary to a clerk in his office. On the verbal recommendation of the inspector, unsupported by service records or time sheets, the Board granted an increase of $10 a month. As the Board had before it no records showing the need or advisability of this salary increase, its action in this particular case cannot HEALTH DEPARTMENT. 21 be commended, however deserving of salary increase the employee may have been. No increase of salary or promotion should be granted by the Board without an exact statement of the facts, supported by the time and service records of the employee in question. TEMPORARY EMPLOYEES. For the care and control of smallpox patients, the department now employs at the pesthouse a physician at $7.00 per day, a nurse at $5.00 per day and a caretaker at $3.50 per day. In addition, four watchmen are em- ployed at $3.00 per day each to guard the rooms of patients quarantined for smallpox. The total daily cost for this entire service, $27.50, is paid from the miscellaneous funds of the Board. The necessity for such great expense would not exist had proper measures of control been instituted by private physicians and health officials at the beginning. Health protection is cheap; ineffcient health measures, however, exact an excessive toll. " HEALTH APPROPRIATIONS LITTLE SPENT FOR HEALTH. Only $15,810 was appropriated for use by the Health Board during the current year. Of this sum $10,000 was appropriated as follows: For abating nuisances — chiefly those requiring improving and paving, of alleys $6,,ooo For miscellaneous purposes 3-500 Including the following salaries: Assistant Meat and Milk Inspector (9*4 mos.) $925 Laboratory Assistant (9 T / 2 mos.) 750 For the suppression of epidemics 500 $10,000 In addition to the above items, special salary appropriations were made as follows : Secretary to the Board $ 750 Meat and Milk Inspector 1,800 Plumbing Inspector 1,000 Assistant Plumbing Inspector 780 Health Commissioner 880 Assistant Health Commissioner 600 5,810 $15,810 Of the $6,000 for improving and paving alleys, $3,000 has been transferred recently to an emergency account for the suppression of contagious diseases. The appropriations for health purposes, therefore, amounted to $12,810, all of which, except reserves for salaries, has been spent already. There are also several bills outstanding and no funds available for the next y'j months. On the basis of the above appropriation actual health service costs only 13 HEALTH DEPARTMENT. cents per capita. For the next 3^ months the present service requires $3,500 to $4,000 at the very least, or only 3 or 4 cents per capita. Public health is purchasable. Dr. William H. Park, Director of the Bureau of Laboratories of the New York Health Department, says: "Cities ranging from 30,000 to 50,000 in population should have a minimum per capita cost of 50 cents. Cities ranging from 50,000 to 100,000 should have a minimum per capita cost of 75 cents; cities from 100,000 to 300,000 should have a minimum per capita cost of 85 cents, and all cities over 300,000 should have not less than $1.00 per capita." New York City spends 65 cents per capita for health service, and other progressive American cities spend 30 cents to 60 cents. The last report of the United States Bureau of the Census shows that Reading spent only 8 cents per capita for health conservation. There were only three cities in the United States in Reading's class spending less for health conservation. These cities were Wilkesbarre, Pa., Allentown, Pa v and Pawtucket, R. I. That Reading has increased her per capita cost so little in the last few years does not indicate that Reading has awakened to her health problem. BUDGET ESTIMATES UNSUPPORTED. The estimates prepared by the Board of Health for submission to Coun- cils, on which appropriations for the current year were made, were set up as follows: For abating nuisances $21,600 For salary of contagious disease nurse 900 Miscellaneous (supplies, additional salaries, etc.) 5,000 Salary of child welfare nurse 600 Cost of site of municipal hospital 10,000 Salary and expenses for an assistant meat and milk inspector 1.500 Emergency fund 5„ooo • $44,600 Upon what basis these estimates were made is a matter of conjecture, as no supporting facts were submitted. The action of Councils in granting less than one-fourth of the estimate was entirely justifiable. So long as budget estimates are prepared in this way, health department officials have no right to expect an increase in funds. To allow the department $21,600 for the abatement of nuisances arising from unsanitary private alleys, which owners of the abutting property should be compelled to keep clean, would have been criminal. To have allowed $5,000 "for miscellaneous purposes" in the pur- chase of supplies and for additional salaries without obtaining a detailed statement of the need and of the specific items included in -each request, would have been a misuse of public money. PAVING, REPAIRING AND CLEANING ALLEYS. The funds available for paving and cleaning alleys are used at the discre- tion of the Board. The cost is divided among owners of property abutting on the alley, according to the number of square yards owned by each. The total cost includes the cost of construction and the cost of inspection by the HEALTH DEPARTMENT. 23 Health Commissioner. When the work is completed, each property owner receives a bill for the amount of his indebtedness, payable to the City Treasurer. REVENUE ACCOUNTING METHODS. The Board of Health does not keep any of the funds it receives. All moneys received for permits, licenses, or other fees are turned over to the City Treasurer once a month. The stubs of permits and licenses, upon which the amounts received by the Board are entered, are audited by the Comptroller and checked against the amount received by the City Treasurer from the Board. In the case of permits to sell meat and milk, the permit is issued only when the Treasurers receipt for the fee is presented to the Meat and Milk Inspector. No money passes through the hands of this official. ,FOOD INSPECTION SELF-SUPPORTING. Licenses for the sale of meat and milk cost $10.00 a year. As there are approximately 550 dealers in meat and milk, the revenue from this source alone is over $5,000 a year. This,, as has been stated, is paid into the city treasury. In the fiscal year 1911-1912, the Board received $1,284.29 for other fees, permits, licenses and fines, all of which was also turned over to the City Treasurer. The City Treasurer thus receives approximately $7,000 per annum from the Health Department which is about equal to the amount now spent for salaries of all health officials. The sum received from meat and milk permits is alone equal to the entire cost of maintaining meat and milk inspections, even with the increased staff recommended. PURCHASE AND PROVISION OF SUPPLIES LOOSE METHODS COSTLY. No inventory of supplies is kept, and no records are available to show what the department is spending for supplies or how its supplies are being used. Looseness in handling supplies naturally results in their being lost or misused, which means increased expenses. The Board of Health should be required to furnish complete and detailed records of all supplies purchased, to whom delivered, how and when used and all other data necessary in checking this important item. Employees now purchase supplies as needed and have them charged to the Board. Except for purchases involving large sums, little restriction is placed upon the action of employees in this respect. The fact that the Board, which is the sole authority, meets but once a week, makes it inconvenient, or impossible, for employees to obtain orders for supplies needed in emergencies. No purchases should be made without proper authority or without proper supervision and control of the methods of pur- chasing and the quality of articles purchased. 24 HEALTH DEPARTMENT. PROVISION OF BUILDINGS FLOOR SPACE LIMITED. Only one room is allowed in the city hall for the offices of the Board of Health. In this one room the Secretary has his desk and records, the Plumbing Inspector his desk and records, and the Commissioner and other employees their quarters. The room is used also for Board meetings, and a large share of the limited floor space is occupied by a long library table, around which the Board sits at its weekly meetings. In a corner of the room is another large table piled high with a miscellaneous assortment of reports of plumbing inspection, vital statistics, Board minutes and other records. In a closet or vault opening into the office are stored supplies, copies of birth and death records, reports, pamphlets and miscellaneous records. As no attempt is made to keep different kinds of records separate or to separate current files from matters that have been disposed of, searching for any particular record is a long and tedious process. MEAT AND MILK INSPECTOR'S QUARTERS INADEQUATE. The Meat and Milk Inspector has been given a small room about 12 feet square on the top floor of the city hall. In this one room he has to transact all his business. Here he has his desk and records, together with all the apparatus he needs for bacteriological and chemical tests. No matter how carefully he performs his work, his efficiency and that of his staff is impaired fully 50 per cent, by the inadequacy of his quarters. PREVENTION OFTRANSMISSIBLE DISEASES COMMUNICABLE DISEASES UNCONTROLLED. Ten cases of smallpox in Reading are equivalent to more than 500 cases in New York City, and yet New York City had but 19 cases in 1913. The 489 cases of typhoid fever reported in Reading during 1913 are equivalent to 25,000 cases in a city the size of New York; and yet for the same period in New York there were but 2190 cases — not 10 per cent, as many as in Reading. HEALTH FACTS CONCEALED. The record of the Board of Health showing the prevalence of communi- cable diseases during the last year is misleading. In the last report read at the Board meeting November io„ 1913, ten cases of varioloid were men- tioned. This is a deception which should not be countenanced. Varioloid is a disease closely allied to smallpox, in that it is due to the same cause. It differs, however, from smallpox in that it is much milder and consequently of less danger to the patient and to those with whom he comes in contact. Practically, however, it is genuine smallpox modified and mitigated by the previous vaccination of the patient. As far as the supervision and control of health are concerned, it must be treated in precisely the same way as smallpox. Of the ten cases reported as varioloid since October 2, 1913, six were undeniably smallpox, as the records of the Health Department show HEALTH DEPARTMENT. clearly that the individual had never been previously vaccinated. Two cases were really varioloid, because those, two patients had been vaccinated. In two cases reported as smallpox, no data are recorded as to whether the patients had previously been vaccinated. A smallpox epidemic, for which the Board of Health is not prepared, is imminent in Reading. REGISTRATION OF DISEASE. The diseases which must be reported are fixed by State law. This law requires the medical attendant, if there be one, or the head of the family, or the nurse, to report in writing all cases of diseases named in the act within six hours after receiving knowledge of such cases. At present this six-hour requirement is not observed. Physicians report chiefly by telephone, and are then requested to send in the regular written report form. This is not commonly done within six hours, according to the statements of the clerk who receives such communications. As no prosecutions are instituted against persons breaking the law, the reporting is incomplete. In all proba- bility it will continue to be incomplete unless the law is enforced. All persons violating this law should be prosecuted relentlessly, for the health officer must know immediately where diseases are in order to surround each case with proper safeguards. AGGRESSIVE POLICY LACKING. At present no investigation is made of cases reported to determine what measures shall be taken and to search out the causes contributing to the spread of the disease. There is no medical officer in charge of this work except the chairman of the contagious disease committee. This officer is unfitted for this work on account of the demands of his private practice and his lack of aggressive policy. Under the reorganized health service,, this work would fall to the full term medical officer of the department. The alarming prevalence of typhoid fever (489 cases in less than 11 months) is sufficient evidence of the inadequacy of the supervision of this disease. The increase of 2,739 cases of communicable disease in T913 can mean nothing but ineffi- ciency, which should be remedied at the earliest possible moment. TUBERCULOSIS REGISTRATION UNPROVIDED FOR. No systematic effort has been made to obtain proper registry of cases of tuberculosis. This work has been left to private agencies and to the State dispensary authorities. The Board of Health, however, should at once assume charge of it. Tt is the business of the Board of Health to keep records of all cases of disease; for no disease is this more important than for tuberculosis. UNSATISFACTORY RECORDS. Records of communicable disease are extremely unsatisfactory. No attempt is made to file the original reports sent in by physicians. They are simply thrown into a pigeon hole in the vault at the Board's office, after the principal facts as to the location of the case and the name of disease have 26 HEALTH DEPARTMEN T. been entered in a large register. This register does not, however, give any information as to the action taken in placarding, disinfecting, or excluding from school. Reports of communicable diseases should be filed by disease, name of patient,, or street number, in order that the original record made by the physician may be promptly available to the health officer. All the facts about a case should be kept together; the chief executive or supervisor should have, in a card index or a register, a complete record of each case from the first report to the termination of the case by death or otherwise. LOCATION CHARTS. OF DISEASES NEEDED. No pin maps or charts are kept to show the location of various diseases such as scarlet fever, diphtheria, tuberculosis and typhoid. These are a valu- able aid to the health officer in visualizing the problem of preventing com- municable disease. PLACARDING FOR COMMUNICABLE DISEASES. The rules and regulations of the Board, in accordance with the State laws, require placarding for certain diseases, among which are malaria and typhoid fever. Placarding of these diseases is unnecessary, as neither malaria nor typhoid is transmitted directly from one individual to another. Proper supervision of methods of care and treatment, and cleanliness are all that are needed. To spend time and money in placarding malaria and typhoid fever, and no time or money in searching out the breeding places of mos- quitoes that carry the malaria and the sources of the typhoid infection, is unwarranted and steps should be taken to amend the State law. QUARANTINE REGULATIONS INEFFECTIVE. Placards are posted by the Commissioner and his assistant. From the time the placard is posted to the time it is removed and the house is disin- fected, no attempt is made to exercise any supervision over the case, beyond the mere distribution of printed circulars to the family when the placard is put up. In cases of transmissible disease not under the care of private physicians, constant supervision by representatives of the bureau of health is needed. This should be provided for. EXAMINATION NEEDED BEFORE QUARANTINE IS RELEASED. Quarantine periods have been fixed by the Board, at the end of which cases are automatically released. No case of communicable disease should be released until the quarantine period has ended and until the attending physician has submitted a written certificate that release is proper. All cases not under private care should be examined by the medical officer of the Board before release. In cases of diphtheria, no patient should be released without negative cultures from the throat on two successive days. DIPHTHERIA CULTURES NOT REQUIRED. No arrangement is now made to obtain cultures from the throats of diph- theria patients before release from quarantine, as no facilities for laboratory HEALTH DEPARTMENT. 27 examinations have been provided by the Board. In spite of the fact that the State Board of Health is ready and willing to do this work, physicians in Reading do not make use of its services. It is well recognized that persons apparently cured of diphtheria may long remain capable of transmitting the disease to others, on account of the persistence of the diphtheria bacteria in their throats. In this particular disease the danger of releasing a patient from quarantine before a bacteriological analysis has proved him cured is very great. That the laxity of quarantine regulations in Reading is responsi- ble for the spread of diphtheria and other diseases can only be surmised; what has proved true in other cities, however, must necessarily hold true in Reading as well. EXCLUSION FROM SCHOOL. The periods of exclusion from school,, which are fixed by the rules and regulations of the Board, are longer than the quarantine periods for the same diseases. The lack of proper examination of children at release from quarantine makes long periods of exclusion from school necessary, particu- larly for those cases not under private care. The lack of adequate provision for taking and examining diphtheria cultures means the loss of at least one week's school time for the child. The loss of school time by the child could be greatly diminished by proper supervision of all cases before release from quarantine, and examination of children before readmission by school physi- cians. The spread of contagion is increased rather than diminished by releas- ing the child from quarantine and allowing him to play in the street f.br a week to three weeks before he can return to school. It would be far better to let him return to school at the end of quarantine; for there, at least, he can be under the observation of a physician. DISINFECTION RECORD INCOMPLETE. The records of disinfection are too fragmentary to give a basis for accur- ate judgment of the efficiency of this service. The record of disinfection consists merely in an entry of the date of disinfection, following a previous entry of the date when the premises were placarded. No records are available to show that disinfection has been properly performed. In fact, the evidence tends to show that it is very inefficiently performed. The Board uses a formaldehyde generator which is a good one of its type — a one-ounce gen- erator supposed to be sufficient to disinfect 1,000 cubic feet. There are. however, no records showing the capacity of rooms fumigated or the number of generators used at each fumigation. No tests, laboratory or otherwise, are applied to determine the efficiency of the process. AN INSTANCE OF INEFFICIENCY. The chief nurse of the department of school hygiene cites an instance which was reported to her by one of her nurses. When the health official came to disinfect the premises, it was inconvenient for the woman to have the work done at that time. Accordingly, the official simply left the generator in her charge to use as she saw fit. 28 HEALTH DEPARTMENT. UNNECESSARY FUMIGATION. As no provision is made for the disinfection or sterilization of bedding, hanging, carpets, etc., which cannot be effectively disinfected by the methods now in use, the value of disinfection as now practiced is probably very slight. In the City of Providence, Dr. Chapin, one of the most progressive and able health officers, abandoned disinfection for diphtheria, measles and scarlet fever many years ago, and he reports that no increase in the prevalence of these diseases has resulted. In New York City no fumigation has been per- formed since 1912 for diphtheria and measles. There were 2,250 cases of these two diseases in Reading this year. Each generator of the size that is used costs the department 15 cents. Calculating the time required for each disinfection at one hour and the hourly cost of the inspector's time at 50 cents, each fumigation costs the department at the very least 65 cents; this gives a total for diphtheria and measles alone of $1,462.50. For the expenditure of this sum, which is only a portion of the cost of fumigation, there are no records of any value. The department should keep thorough records of all this work, including the number and size of rooms fumigated, the time spent in fumigation and the materials used. From these facts conclusions may be drawn as to the value of fumigation. The State law specifies that fumigation must be provided for certain transmissible dis- eases. Reading should, however, be the first city to recognize the inadequacy of the State law and should begin the movement which will result in more freedom for local health departments. STERILIZING AND DISINFECTING STATIONS NEEDED. The Board should be prepared to sterilize, disinfect or destroy at a disin- fection station all materials which cannot be properly disinfected in the homes of patients. It frequently happens that bedding, carpets, etc., which have been used by patients ill with dangerous communicable diseases are in such a filthy state that they cannot be disinfected by fumigation. Such material should be removed and disinfected or destroyed by the Board, under the supervision of one of its sanitary officers. PROTECTION OF THE HEALTH OF CHILDREN INFANT MORTALITY HIGH. Three hundred and six babies under one year of age (exclusive of still- births) died in Reading during 1912. It is well known that unclean, bacteria laden milk is the greatest single cause of infant mortality. The percentage of these deaths due to diarrhoea and enteritis cannot be accurately determined, as the death records of the department have not been so recorded that the figures can be compiled. From such tabulations as arc available, however, it is estimated that one-third of the deaths of children under one year of age- were due to diarrhoea and enteritis. Reading's infant mortality rate, 133.4 per 1,000, is excessive. New York City, with its intensely congested, unsani- tary districts and its milk supply drawn from an extended area, had a rate of only 105.3 per T.ooo for 1912. Philadelphia has an even lower rate of HEALTH DEPARTMENT 102.4 per 1,000. An aggressive program for the reduction of infant mortality by requiring definite milk standards, by educating and instructing mothers through visiting nurses and by supervising midwives, day nurseries and foundling homes will save the lives of hundreds of Reading babies. CHILD WELFARE PROGRAM LACKING. It cannot be said that the Board of Health has evidenced any great inter- est in the protection of the health of children. Apart from the efforts to improve the milk supply, the health of Reading children is apparently a matter which the Health Board has not considered at any length. Although the Board asked for a child welfare nurse last year, it did not support its request with the facts proving the need, and the request was denied by Councils. Six hundred dollars was asked for the salary of a child welfare nurse — a pitifully small sum — while $21,600 was requested for the abatement of nuisances in alleys. No more serious arraignment of Reading's public health policy than this can be made. The protection given to the health of the city's children is one of the most important functions of the Health De- partment, and affords a good index of the progressiveness of the service. SUPERVISION OF MIDWIVES LACKING. Xo supervision of midwives is at present maintained. Midwives are registered only as their names are found attached to birth certificates, but aside from the entry of their names and addresses nothing is done. An examination of 100 birth records shows that 14 per cent, of births were reported by midwives. In a manufacturing city with a large foreign popu- lation rigid supervision of the methods and equipment of midwives is im- perative. An act of the Legislature of June 5th, 1913, providing for examination and license of midwives according to rules established by the Bureau of Medical Education and Licensure, becomes effective on December 5, 1913. For the State to supervise their examination and license is well enough so far as it goes, but it leaves their equipment and their methods of operation un- controlled. The City of Reading should supplement the State law by having a medical officer or a nurse of the Health Department inspect and, if neces- sary, add to the equipment with which midwives are supplied, and supervise the methods they use in caring for the child and the mother. XO MEASURES TAKEN TO PREVENT OPHTHALMIA NEONATO- RUM. Birth certificates do not contain any statement of the methods used to prevent ophthalmia neonatorum. As there is no supervision of midwives, nothing is known about the methods they use to prevent this very frequent cause of blindness in children. The Board of Health should supply physi- cians and midwives with outfits of silver nitrate for preventative treatment of the eyes of the newly born. The cost of these outfits is very small and the possible result in saving eyesight great. Although only one case of ophthalmia neonatorum has been reported thus far this year, there is reason for believing that more cases exist than are reported. In 1909 only 12 cases 30 HEALTH DEPARTMENT. of ophthalmia neonatorum were reported in New York City. As the result of an investigation in 1910 however, covering the period from April 15 to September 15, 26 cases were discovered, 23 of which, or 89 per cent., had been attended by midwives. LIVES SAVED BY VISITING NURSES. The last annual report of the Board of Health shows that 99 babies were still-born and 93 prematurely-born in 1912. Many mothers have never been taught how to take care of themselves during pregnancy and confine- ment in order to prevent the death of their babies before or at the time of their birth. The remarkable results obtained in New York City through the employment of nurses to visit mothers during pregnancy and immediately after confinement proves clearly that a real need is being met by this work. Reading ought to appoint a trained child welfare nurse to meet both these needs — to supervise the methods and practice of midwives. and to give mothers medical care and advice during and after confinement. The nurse should have thorough training in maternity work and nursing and should be a person with tact, as well as ability. INFANT CLINICS NEEDED. No infant milk stations or clinics are provided or planned under the present health administration. The remarkable saving of the lives of more than 2,000 babies in New York City in the past two years was largely due to the establishment, under the direction of the Board of Health, of infant clinics, where mothers can obtain pure milk at a low cost. Physicians, in attendance at these clinics, advise and instruct mothers in the care of their children and in the preparation of milk to suit their babies' needs. The maintenance of one or more such clinics under the direction of the bureau of health would be of incalculable benefit to many mothers and babies. The bureau could ask private physicians to supply volunteer service, and could invite charitable organizations to co-operate in providing other neces- sary aid. FOUNDLING HOMES AND DAY NURSERIES UNSUPERVISED. The Board of Health does not attempt to supervise children in" foundling homes, day nurseries or other institutions for the dependent. All such insti- tutions should be registered by the bureau of health and frequently inspected by a Board physician or nurse. Without supervision of these institutions abuses are likely to occur which seriously impair the health of children en- trusted to their care. CO-OPERATION NEEDED. The co-operation of all charitable organizations should be enlisted in this program for child welfare. Through their contact with needy persons and their families, they are able to discover many Conditions which the Board of Health should remedy. HEALTH DEPARTMENT. 31 MEDICAL INSPECTION OF SCHOOL CHILDREN The Department of School Hygiene is still in the transition period; its tendency, however, is toward wider and more aggressive action in matters connected with the health of school children. Under the Board of Education, this department is well organized and equipped. It has the definite policy and purpose of giving each child at least one examination each year and of carrying on a thorough "follow-up" campaign into the homes of children who require treatment. The chief of the department thoroughly understands the problem, and is well fitted for the work. The difficulty he and his chief nurse find is that the idea of medical inspection in schools is new and seems somewhat revolutionary to many conservative citizens of Reading. He ex- pressed confidence that the situation would improve from year to year as the beneficial results of treatment become more evident. ORGANIZATION AND PROGRAM. Four physicians and four nurses are employed, the nurses giving full time and the physicians part time. There are approximately 13,000 children in the public schools and between 2,000 and 3,000 in private and parochial schools. Children in private and parochial schools are not examined by the school physicians and nurses. They should, however, be included in this work, for they need medical inspection just as much and just as often as do children in public schools. It is the purpose of the Department of School Hygiene to give each child a thorough examination each year. The report of the chief medical inspector for the school year 1912-1913 shows that this purpose was carried out. 12.857 pupils were examined and 8,896, or 69.2 per cent., were found to have defects of various kinds. FREE TREATMENT PROVIDED. Pupils having defects are referred to private physicians if they are able to pay, while those unable to pay are treated at the school dispensary. Cases requiring operative treatment are treated free of charge at private hospitals. At the school dispensary, eyes are examined and prescriptions for glasses given by the medical examiner. By an arrangement with a local optician, needy children are supplied with glasses at cost, or in certain cases without charge. IMPROVED RECORDS NEEDED OF CASES THAT HAVE BEEN TREATED. During the year 1912-1913, only 666, or 7.5 per cent, of children having defects were reported, after home visits by nurses, as having been treated. As the word of the child or parent is accepted as evidence of treatment, without re-examination by the medical inspectors, even this figure is probably too high. Institutions or private physicians who are treating children should be required to return written evidence of the treatment upon forms issued by the Department of School Hygiene. Only in this way. can ac- curate records of the treatment of cases be kept. 32 HEALTH DEPARTMENT. The records of the school dispensary show that 1,316 visits were made to the dispensary by children; 548 of them were treated for various ailments. FEW CASES TREATED. Although 5,890 cases of enlarged tonsils and adenoids were discovered, yet only 129, or 2 per cent, were reported as having been treated either by operation or otherwise. This is a very unsatisfactory showing, as the efficiency of medical inspection can be determined only by its results. Hyper- trophied tonsils and adenoids, two of the most common and serious defects among school children, are ones in which the beneficial results of proper treatment are most marked. A more vigorous following up of such cases, which is greatly needed, could . be obtained by greater co-operation with private institutions. The establishment of a special school clinic where tonsils and adenoids could be treated and operated on is very desirable, and the mental improvement such treatment would bring about would result in a distinct saving in the time the child has to be taught. Such a clinic should be provided with a few beds so that children might be kept for at least two nights — one night before the operation and one night after it. This plan is followed with great success in New York and has resulted in the treatment of 28 per cent, of those requiring operative treatment. If it were carried out in Reading, 20 per cent, or more, instead of 2 per cent., of children needing treatment would avail themselves of the opportunity. PHYSICAL EXAMINATION "fOR WORKING PAPERS NEEDED. Working papers are issued by the truant officer without any physical examination of the applicant. This is a serious defect. The investigator was informed by the chief nurse of the Department of Hygiene that she thought that many children were allowed to go to work who were not physically fit to do so. Working papers should not be issued to any child unless a careful physical examination by the school medical officer shows him to be in good condition. The report of the truant officer for the school year 1912-1913, shows that 1,165 employment certificates were issued to 1,568 applicants. Of the 423 unsuccessful applicants only 30 were refused as physically disqualified by non- attendance due to illness. If a thorough physical examination had been given, the number of those disqualified for physical disability would doubt- less have been considerablv increased. OUTDOOR CLASSES. No provision is made by the Board of Education for outdoor classes for anemic or tubercular children. If a child is found to have tuberculosis, he is promptly excluded from school and his chance at school may end then and there. For such children and for anemic and undeveloped children as well, special outdoor classes should be provided, where the children could continue their work without danger to others. While in these classes they should be under the continuous medical supervision of the Department of Hygiene. HEALTH DEPARTMENT. 33 PHYSICAL EXAMINATION FOR GRADUATES. Children graduating from school and those leaving school without asking for working papers are not given a special examination,, although it is advisable that such examinations should be given in all cases. Each year it is customary to begin the routine physical examination with the children in the primary grades and to work on up. The result is that the examiners may not get around to the graduates or others leaving school, who may leave without having recently been examined. Serious physical defects among children old enough to graduate or to leave school are more frequent than among those just entering. It is recommended that the entering classes be examined first each year, and then the graduating classes and others about to leave school. In this way the two classes most in need of examination would be sure to get it. SANITARY SUPERVISION OF SCHOOLS COMMENDABLE. Sanitary supervision of school buildings is exercised by the school physi- cians whenever they visit school buildings to " make routine examinations. Each year in September, before the schools are opened, the chief medical inspector visits all the school buildings and makes a thorough sanitary in- spection of each one. The results of this work are shown by the uniformly good lighting, ventilation and general cleanliness of the school buildings. IMPROVED DRINKING FACILITIES .NEEDED. Children are supplied with individual drinking cups. Although this is a decided improvement over the common drinking cups formerly used, it is not a satisfactory arrangement, for there is nothing to prevent children from exchanging cups or from using each other's. Fountain cups should be installed immediately. FREE DENTAL TREATMENT. Reading was one of the first American cities to begin this work. The Reading Free Dental Dispensary, which was established in 1910, through the efforts of the Reading Dental Society, is to be commended for the efforts which it has made to improve the health of school children by proper dental treatment. The first examination of school children in September, 1910, for defects in teeth revealed the fact that more than 97 per cent, of 8,925 pupils had imperfect teeth. In the succeeding eighteen months 275 pupils were treated. During the school year 1912-1913, 3,148 or 24 per cent, of the 12,857 pupils examined by medical inspectors were found to have decayed teeth. Statistics of the number treated this year by the dental society are not yet available. It would improve this service considerably to have the dental inspection done by dentists employed by the Board of Education in a free dental dispensary connected with the school system. Although no criticism is made of the present methods of treatment, it has been found in other cities that where the responsibility for dental treatment has been placed upon dentists employed by the Board of Education, a greater degree of co-operation between dentists, school physicians and school nurses hns been obtained. HEALTH DEPARTMENT PROTECTION OF THE FOOD SUPPLY INCREASED SERVICE NEEDED. Only within the past four years has the protection of the food supply been a matter of health service in Reading. Even at the present time the only foods supervised in any way are meat and milk. The handling and sale of eggs, bake-stuffs,, confectionery, ice cream, soda water and other foods and drinks are not supervised in any way. Recent investigations by the writer of the egg industry in other cities has revealed most revolting practices. It is a common practice for bakers to use putrid bacteria-contaminated eggs. Although the State of Pennsylvania has recently passed an act prohibiting the use of such eggs, no inspection of the egg business is made in Reading. Bakers, confectioners, ice cream and soda water manufacturers commonly use unwholesome, adulterated and poisonous material in the manufacture of their products, yet against such dangers Reading remains absolutely un- protected. GOOD RESULTS OF MEAT AND MILK INSPECTION. Meat and milk inspection, for which the Board has provided a veterinarian meat and milk inspector and an assistant who is also a veterinarian, is being carried on with beneficial results. There are now 382 milk-producing dairies and 223 retail dealers in the city licensed by the Board and inspected by the Meat and Milk Inspector and his assistant. As the producing dairies are distributed through the surrounding country at distances varying from one to fifteen or twenty miles, it is impossible to inspect them frequently, and the entire field cannot be covered more than once each year. LABORATORY FACILITIES LACKING. With proper laboratory facilities, however, the milk supply could be pro- tected without more frequent inspections. At present, the clerk or sten- ographer of the meat and milk inspector's office, who is a young man of intelligence, but without previous technical training or experience, makes the chemical analysis of milk. The Meat and Milk Inspector makes the bacterio- logical tests. Milk tests are made only twice each week,, eight samples being taken at each time. As no maximum bacterial standard has been fixed by the Board, nothing is gained by bacterial analysis, except that evidence is obtained that uncleanly, bacteria-contaminated milk, which is a menace to health and the most common cause of sickness and death among infants, is being sold in the city. No prosecutions have been brought although the analyses of milk commonly sold to Reading citizens show constant and dangerous bacterial contamination. Analyses showing contamination of milk of over i,,ooo,ooo bacteria per cubic centimeter (a cubic centimeter equals a drop) are common. It must be said, however, that the efforts of the Meat and Milk Inspector have produced considerable improvement. Tn 1911 the average bacterial count was 9,382,809 per cubic centimeter; in 1912 it had fallen to 511,634 per cubic centimeter. HEALTH DEPARTMENT. 35 IMPROVEMENT IN DAIRIES SHOWN. The Meat and Milk Inspector has devised a form upon which the sani- tary conditions of dairies are noted at the time of inspection. These forms give a very satisfactory statement of conditions. The records show that the situation is improving. PROSECUTIONS FOR ADULTERATION OF MILK. The State law fixing a standard for the chemical constituents of milk is enforced to some extent in Reading. From November 13, 191 1, to Novem- ber 8, 1913, there were ten prosecutions for adulterating milk by watering it. Seven of these offenders were fined $25.00 and three $10.00 each. The analysis of only sixteen samples a week cannot, however,, go far in detecting adultera- tions. As the apparatus used for making the chemical test of milk holds only eight samples, only eight are collected at one time. As the clerk and sten- ographer is required to take and analyze milk samples, and to keep the meat and milk inspector's office open, it is impossible for him to make analyses more often than he does. If, however, he were provided with apparatus holding thirty-six samples instead of eight, his efficiency would be increased more than four times. The work required to analyze thirty-six samples is little more than that required for eight samples. MILK STANDARDS NEEDED. Milk standards should be established at once. Dr. Wm. H. Park, Director el" the Research Laboratories of the New York Department of Health, states that any intelligent farmer can use sufficient cleanliness and apply sufficient cold to supply milk 24 to 36 hours old, which will not contain at the maximum over 50,000 to 100,000 bacteria per cubic centimeter, and that milk with a higher bacterial count should not be used. A regulation or ordinance pre- scribing- certain milk standards, and providing for the grading and labeling of milk according to the conditions under which it was produced is the next step that must be taken in the program for health. The shutting off of dangerously contaminated supply, the destruction of milk found below the standard, and the prosecution of all persons who break the law, will result in saving hundreds of lives yearly. RECORDS OF MEAT INSPECTIONS INADEQUATE. Meat inspection is required for 312 meat dealers in Reading. This work is clone by the Meat and Milk Inspector who endeavors to visit each store at least once during the year. A license must be obtained by every meat dealer. Small country slaughter houses where only a few cattle are killed, arc not supervised except by the Assistant Milk Inspector when on his round over the dairy farms. The five abattoirs in Reading are inspected by the Meat and Milk Inspector several times each week, but no detailed record is kept of these visits. As the record of the service does not show what conditions were found, the only basis for judgment of the work of meat and milk inspectors is the inspectors' records of condemnations. During 1912, 87.721 pounds of meat were reported as destroyed. In each case of con- 36 HEALTH DE PARTMENT. demnation the inspector reports only the number of pounds condemned. In order to give a better record of this important service, he should make a detailed report of the cause of condemnation,, the method of disposal and the amount condemned. Such a record was formerly kept, but of late has •been discontinued. That the meat inspection has given some protection to Reading citizens, is probable, but without adequate records of work done, it is impossible to determine the efficiency of service. The evident intelligence and technical ability of the inspector, however, indicate that defects which exist in the service are due to lack of resources rather than to lack of purpose. The inspector has a definite plan, which he is endeavoring to carry out to the best of his ability, though hampered greatly by lack of laboratory facilities. IMPROVED ORGANIZATION FOR TPIE INSPECTION OF FOOD. A staff charged with the inspection of food should be organized under the direction of the present Meat and Milk Inspector. This staff should consist of a meat inspector, who should be a veterinarian, a milk inspector, preferably a veterinarian, and an inspector of other foods. The present assistant meat and milk inspector, who is capable and competent, and has recently graduated from a veterinary school, should be continued as milk inspector. The inspector of other foods need not be a technical expert, but, to be an efficient food inspector, he certainly must have intelligence and the power of exercising hrs intelligence aggressively. He need not be a butcher, a baker or a grocer,, and indeed, an inspector who is not himself a tradesman has the advantage of being free from previously acquired preju- dices or friendships. MUNICIPAL MARKETS NEEDED. Reading has five public markets which are owned by private dealers and are only nominally under the supervision of the Commissioner of Mar- kets. City ownership and supervision of public markets would greatly im- prove this service. It has also been found in other cities that such markets can be conducted at a profit to the city and to the consumer. European cities have found that the maintenance of municipal abattoirs result in improvement in the meat supply and in the supervision of slaughter- ing. Instead of a number of small unsanitary slaughter houses, Reading should have one clean, thoroughly supervised plant under municipal control. ENFORCEMENT OF THE PURE FOOD AND DRUG ACT. With the present organization for health service, local enforcement of the United States Pure Food and Drug Act is impossible. It is recommended that the provisions of this act which are applicable to Reading be incorpo- rated in the revised sanitary code. Future ordinances for regulation of the handling and sale of foods and drugs should follow the standards set up by the federal government, but the responsibility for the enforcement of regulations should rest with the local health authorities. HEALTH DEPARTMENT. 37 INDUSTRIAL DISEASES AND THE EXAMINATION OF EMPLOYEES INFORMATION LACKING ABOUT INDUSTRIAL DISEASES. In spite of the fact that Reading is an industrial center, the Board has made no effort to obtain information about .industrial diseases. The State Health Department requires physicians to report industrial diseases to it. The City Health Department should also require that industrial and occu- pational diseases shall be reported to it, for it cannot control the local situation unless it knows where such diseases occur and investigates the conditions that tend to produce them. PHYSICAL EXAMINATION FOR WORKERS. Physical examination of employees in occupations which may closely affect the health of an individual or of the public, should be required. Em- ployees in bakeries, for instance, should be examined periodically. It not infrequently happens that an employee suffering from tuberculosis or some other contagious disease is employed in the manufacture or handling of food products. Such persons should be barred from this kind of work. The de- partment should try to obtain the co-operation of employers in raising the standard of health among laboring men. Trade unions and fraternal organi- zations are glad to co-operate in any effort to reduce sickness and death among their members. PHYSICAL EXAMINATIONS FOR CITY EMPLOYEES. Good health should be one of the qualifications for employment in the city service. No physical examinations for city employees are now made. This work should be begun immediately by the physicians of the Health Department. RECORDING OF VITAL STATISTICS Under the present law ten days is allowed for reporting births. As a result, physicians and midwives delay registration. The registrar states that frequently physicians do not report within the required time. The law is liberal — too liberal — which is all the more reason why it should be promptly enforced. In order to control the practice of physicians and midwives, and to carry on the campaign for the reduction of infant mortality the health officials must know immediately where births occur, by whom they were attended, and all other facts necessary for the investigation of still births and premature births. BIRTH RETURNS NOT CHECKED. No attempt is made to check birth returns by baptismal records. Lack of proper birth records frequently results in great inconvenience to the in- dividual in later years. That every possible effort should be made to see that birth records are complete and accurate goes without saying. 38 HEALTH DEPARTMENT. DEATH RECORDS UNSATISFACTORY. The death records arc very unsatisfactory. Physicians in Reading do not report deaths according to the international list of the causes of death, which is the basis for all proper registration of deaths, and the Board of Health does not insist that the records be corrected to conform to it. The annual report for 1912 furnishes frequent illustrations of improper reporting. "In- anition," "marasmus," "paralysis," "acute indigestion" and many other causes of death that cannot be classified according to the international list are given in the annual report. For statistical purposes such records are of little value. The board should return for correction death records not properly filled out,, and should see that in all cases the returns conform to the, international list. DEATHS FROM D1ARRHOEAL DISEASES NOT TABULATED. No tabulation of deaths from diarrhoea! diseases has been made, although infant' mortality from these diseases furnishes a very important index of the efficiency of the Board of Health. . The aim of an efficient Board of Health is to lower the rate of infant mortality, and the lirst step in doing it is by closely watching the deaths from diarrhoeal diseases, which usually indicate that the children are not being properly fed. Tabulations of mortality at the age of three months, six months, one year, two years, live years, should be begun with special tabulations of those dying from diarrhoea and enteritis. DEATH RATE INCORRECTLY CALCULATED. In the report of the Board of Health for 1912, Reading's death rate i& incorrectly stated as 13.22 per 1,000. This rate has been obtained by de- ducting 99 still births and 93 premature births from the total number of deaths,, wdiich was 1,507. This gives an incorrect total death record of 1,315. The proper practice, however, is to deduct only still births from the total. The death rate, calculated by the actual number of deaths, exclusive of still births, or 1,406. is T4. r6 per T,ooo. While this is not an abnormally high death rate, it is higher than it should be in a city with Reading's natural advantages. There are other errors in the T912 report in the calculation of numbers of deaths and death rates. All rates should be calculated as exclusive of still births, and the practice of the Census Bureau should be followed in making tabulations. • DEATH RETURNS UNCHECKED. The Board does not check the death records by returns from cemeteries as to the interment of bodies. As an additional check upon the reporting of deaths this is an extremely valuable practice, which the Reading health authorities should adopt. LACK OF STUDY OF VITAL STATISTICS. No calculation has been made of the number of deaths n\ non-residents. HEALTH DEPARTMENT. 39 the number of deaths in hospitals and institutions, the number among those dependent upon the eity, or among different nationalities, trades and occupa- tions, etc. All these facts are needed for proper control of the health of the city. • CARE OF THE SICK AND INJURED IN HOSPITALS CITY HOSPITALS NEEDED. The lack of a city hospital deserves the very serious consideration of all Reading's citizens. The alarming and increasing prevalence of transmissible diseases is directly due to the lack of a public hospital, where such diseases, not otherwise controlable, may be properly cared for. This is one of the most vital of Reading's health needs. A general hospital with a special isolation ward or pavilion for the care and treatment of contagious diseases, tuberculosis and venereal diseases is needed now more than ever before, and the reorganized Bureau of Health should provide at once for this n^vd. CARE OF SMALLPOX. The building at present used for the isolation of smallpox cases is a relic of the past and should be abandoned or improved. Since the degree of isolation needed for smallpox is not greater than that needed for many other contagious diseases,, the simple isolation of smallpox patients in a hospital ward or pavilion would be more effective and more economical than the present practice of removing smallpox patients to a distant and improperly equipped building. LABORATORY RESEARCH LABORATORY CONTROL OF TRANSMISSIBLE DISEASES. The importance of the laboratory in the control of transmissible diseases can hardly be overestimated, and yet Reading has made no effort to supply this service. A city laboratory facilitates the registration of disease by promptly making laboratory examinations for physicians of blood from typhoid fever patients, sputum from tubercular patients, diphtheria cultures and other bacteriological and pathological specimens. At present physicians are obliged to send all specimens to the State Health Department for analysis, and the consequent inconvenience and delay greatly modifies the value of the service. Reading needs a Health Laboratory to assist its physicians and the department in control of transmissible diseases. FOOD LABORATORY NEEDED. For properly controlling and protecting the food supply by the bacterio- logical examination of milk and the chemical examination of milk and other foods for adulterants, laboratory service is a vital necessity. A beginning 40 HEALTH DEPARTMENT. has been made by the meat and milk inspector. Contamination of foods other than meat and milk is, however, common, and the citizens of Reading have the right to be fully protected against adulterations of all kinds. For this combined service in bacteriological and chemical analysis, a bacteriologist and food chemist is needed. The cost of his work is of little importance compared to the health protection which he could give. ANALYSIS OF PRIVATE WATER SUPPLY. Many homes in Reading get their water supply from springs or wells which have never been inspected by the department. The Health Depart- ment should analyze this private water supply at once as the prevalence of typhoid fever in the city may very possibly be partly due to the contamina- tion of water from these sources. THE MUNICIPAL LABORATORY. In the prevention of communicable diseases,, a great deal of bacterio- logical and chemical work is necessary. Blood, sputum, diphtheria cultures and other specimens must be examined. Water must be analyzed not only for the health authorities but also for the bureau of water supply; sewage must be examined to determine the effectiveness of sewage disposal methods; milk and other foods must be examined to determine their fitness for human consumption. In addition to the bacteriological and chemical examinations required for the prevention and control of disease, the municipal laboratory would be of the greatest possible service in the analysis of materials purchased by the city in order that the city may be secure against any substitution or inferiority of materials purchased. SANITATION SANITARY CODE NEEDED. The council should at once take steps- to revise, bring up to date and codify all health regulations. A sanitary code is needed which will define, in accordance with State laws, just what measures are to be enforced and the manner of their enforcement. Many State laws which have been enacted for the protection of the health of the public have had but little effect because the health authorities did not apply them to the local conditions. The proper revision and codifying of existing laws and regulations will be of great benefit to the new council in exercising their exceedingly broad powers in. making and enforcing public health measures. Such a code would be of value to the health officials themselves and would also be of use to citizens as a manual of information. At the present time there is merely a small book of rules and regulations outlining a few of the health laws under which the board operates. HEALTH DEPARTMENT. 4' SANITARY SUPERVISION NEGLIGIBLE. Sanitary supervision in Reading has practically no influence upon the public health, for it is limited to the investigating of complaints of nuisances and the inspecting of plumbing — neither of which has any considerable influence upon the health of the community. Aside from the sanitary super- vision exerted over meat markets and dairies in the very limited way described in another section of this report, there is no sanitary service performed by the Reading Board of Health which can be favorably com- mended upon. COMPLAINTS INEFFICIENTLY HANDLED. Complaints are very badly handled. When a complaint is received by telephone or in writing no permanent record is made of it. A memorandum made on a slip of paper is stuck on a pin tile on the Health Commissioner's desk. Nowhere is there a complete record of any complaint showing the nature of the complaint, the location of the nuisance., the action taken by the department and the date when the action was completed. A proper register of complaints giving all facts and dates of the action taken by the department should be kept in a permanent hie. Anonymous complaints are not investigated except in the occasional in- stances when the matter seems to be one of considerable importance — and the commissioner decides what is important. This is a serious fault. For obvious reasons a tenant might be reluctant to make a signed complaint against his landlord even if a real and serious nuisance were at his very door. All complaints should be investigated for citizens are most easily induced to cooperate by the prompt abatement of the nuisance that annoy them. RECORD PROVES INEFFICIENCY. One week's record of the work of the Commissioner and his assistant in the investigation of nuisances shows clearly how futile such inspection is. The report of these officers for the week November 5, 1913, to November 10, tot 3. is here reproduced. 4a HEALTH DEPARTMENT. > a to >> h4 'C a. to u u g >. a 11 Filthy Location Ward Owner S- Oh C v k— 1 u <-> U ft O U 1047 Buttonwood 1 1 1 150 Elm St 817 Pear St 516 7th St. — Leaky privy 517 Strong Alley — Privy water in cellar U48 Elm St. — Leaky privy.... 1146 "Elm St. — Privy water in cellar 819 Pear St. — Defective privy. . 825 Pear St. — Defective privy . 3245 16th St. — Leaky privy.... 642 Eisenbrown St. — Clogged drain Even if the facts had been properly entered the record would be worth little in determining the value of this service, but this record carelessly made, and giving no information about the method of the abatement of the nuisance or about any reinspection to ensure compliance with the inspections orders is worthless. ENFORCEMENT OF LAW NEEDED. The City of Reading has power to compel the abandonment of privies and cesspools. Rule 66 of the rules and regulations for the construction of plumbing, house drainage and cesspools, compiled in accordance with the act of assembly of May 14, 1909, and in effect after June 1, 1912, provides that "it shall not be lawful to continue a privy vault or cesspool on any lot, piece or parcel of ground abutting on or contiguous to any public sewer within the city limits. The Board of Health shall have power to issue notice giving at least three months time to discontinue the use of any cesspool and have it cleaned and filled up." In spite of the power thus given it, the Board of Health has made no effort beyond the futile inspection previously noted to abate the nuisances arising from privy vaults and cesspools. No systematic survey of such con- ditions has been attempted. NEED FOR THOROUGH SURVEY OF SANITARY CONDITIONS. A thorough survey of the entire city should at once be made to determine HEALTH DEPARTMENT. 43 to what extent the privy and cesspool nuisance may be abated, and prompt steps should be taken at once to compel owners to connect dwellings with the sanitary sewer wherever possible. Similar action was taken by the City of Dayton after the flood this year. In spite of the delays and barriers from the conditions caused by the flood, the plumbing inspector, by aggressive action, forced the abandonment of practically all privies on property accessible to sewers. The result on the health of its citizens and the appear- ance of the city has been extremely beneficial. PLUMBING INSPECTION IS MADE A HEALTH FUNCTION BY LAW. Plumbing inspection is made a function of the Health Board by the act of Assembly of 1909. This act also fixes the conditions for the appointment of plumbers and the installation of plumbing and provides for fhe various inspections that are to be made. It is a well established fact that plumbing inspection, apart from the abatement of privy nuisances, has no particular bearing upon health. Leaky water connections, for instance, are not nearly so harmful to the health of the community as leaky gas pipes or smoking chimneys. In Reading, however, inspection of plumbing is unquestionably regarded as a very vital part of the department's work. DANGEROUS NUISANCES UNABATED. Promiscuous spitting, prohibited by the State and the city, is not con- sidered a matter to be controlled by the Health Department. The enforce- ment of the anti-spitting ordinance is charged upon the Police Department. No ordinances have been provided prohibiting the use of common drinking cups and common towels, although these nuisances have long been known to be dangerous factors in the spread of disease. Ordinances or rules of the Board should at once be passed prohibiting the use of common drinking cups and roller towels in all public places, and the Department of Health should enforce these ordinances or rules. UNSANITARY CONDITIONS NUMEROUS. No attempt is made to inspect sanitary conditions in tenement houses, lodging houses and hotels, barber shops, bakeries, food stores, cigar factories (of which there are many in Reading) and other factories, breweries, moving picture theatres, assembly halls and the countless other businesses or estab- lishments which, even in cities where supervision over matters affecting health is of a high order, require frequent inspection. The danger resulting from unsanitary conditions in these places are not imaginary. Unsanitary practices in barber shops are frequently the cause of serious., sometimes fatal disease, and instances of the transmission of veneral diseases in this way are not rare. The conditions which have been revealed by thorough field studies of bakeries and other food manufacturing places in other cities have been startling. Moving picture theatres need thorough supervision, for it is in such closely crowded assembly halls as these that contagious diseases are frequently spread. The investigation of cigar factories in other States and 44 HEALTH DEPARTMENT. cities has also revealed many undesirable conditions and practices dangerous alike to the citizen and the worker. Provision of sanitary inspection for all such establishments is a pressing need. Barber shops should be allowed to operate only upon the certificate of the Health Board after inspection by one of the sanitary inspectors. Bakeries should be required to operate under a similar license and all other businesses in which defective sanitary conditions may result in disease or in impairment of health, should be required to obtain the approval of the Health Bureau through its inspectors. For the control of such businesses the council should pass regulations based upon measures which have been found effective in other cities. SMOKE NUISANCE ABATED. Reading, in common with other manufacturing cities, suffers from the smoke nuisance. The research of the Mellon Institute of the University of Pittsburgh "has demonstrated clearly the deleterious effects of smoke upon the health of citizens. A smoke ordinance designed to prevent such nuisance is now in force in Reading, but as no inspector has been provided no results can be obtained. The City of Reading should employ a smoke inspectior under the direction of the Health Bureau. He should have a thorough knowledge of the methods of smoke prevention and practical experience in the operation of furnaces and boilers. It should be his business to visit manufacturing plants and apply test to determine whether the smoke nuisance exists, to use proper means to abate the nuisance by instructing employees and conferring with owners of plants, and, when his efforts to abate the nuisance are unavailing, to institute proceedings against the owners. For prosecution of violators of the law concerning the smoke nuisance, complete and detailed records of tests should be available. "CLEAN-UP" DAYS. Annual "clean-up" days, established by the mayor, should be continued under the supervision of the Board of Health, aided by the Police and Fire Bureaus. In this way the entire city gets a thorough overhauling at least once a year. Publicity of the right kind should secure the cooperation of the citizens. In this way many of the nuisances which now require frequent and costly inspection could be removed in one day. FIELD SURVEY NEEDED. The study upon which this report is based has touched chiefly upon the administrative side of health service. The time allotted for the study has not permitted an extensive survey of field conditions in food trades, housing and sanitation, work of charities organizations, hospital facilities and many other important factors in health control. It is recommended that following the establishment of a Bureau of Health competent to carry out the pro- gram outlined in this report, a general survey of the kind described above be made under the auspices of the Bureau of Health and with the coopera- tion of city departments, the Chamber of Commerce and all other civic and social organizations. HEALTH DEPARTMENT. 45 The present bathing facilities along the river front are to be commended; their extension should be encouraged. They should be rendered available to both sexes. PUBLICITY IMPROVED ANNUAL REPORT RECOMMENDED. The annual report for 1912 contains considerable statistical information which, however, is of doubtful value to citizens in general. Many of the statistical tables such as those showing the number of male and female births by months and by wards should be included in other tables and the space saved. Graphic charts showing diseases and deaths according to causes, seasonal conditions, ages, wards, etc., are much more readily interpreted than tables of figures. The report of the Commissioner of Health shows commendable activity in the remedying of nuisances arising from privies, cow stables and drains, but gives no information regarding general sanitary conditions in the city which might be valuable to citizens interested in health protection. The inclusion of several pages of meteorological observations in the annual report is of no particular interest to any one unless the temperature, rainfall, wind and atmospheric records are charted to show any possible influence which they may have had upon mortality or the prevalence of disease. Tables showing these facts combined with the* disease and death records might be of considerable interest to health officials and to citizens in general. LACK OF EDUCATIVE NEWSPAPER PUBLICITY. The daily newspapers with which Reading citizens are abundantly supplied furnish the very best means for circulating information on matters of health. Reports of Board proceedings and statistical tables of diseases and mortality furnished to newspapers must be supplemented by articles pointing out effective ways of avoiding disease and ill health. Readable and timely articles adapted to local conditions should be prepared by the health officer. Nothing is to be gained and much may be lost in effective health control by the mistaken policy of concealing facts concerning public health. Publicity is the first step toward cure and to no branch of city service is this truth more applicable than to health service. CONFERENCES,. LECTURES, EXHIBITS, ETC. Conferences between health and school and other city authorities should be held from time to time to determine the most effective methods of dealing with common problems relating to health. Lectures by the health officers or members of his staff upon general and special health topics are extremely valuable. Fraternal and trade organizations, civic and charity organizations need only to become acquainted with the facts about public health in order to become aids in securing it. Occasional exhibits of methods of preventing disease, of pure and adulterated foods, of children's needs, etc.. in which conditions bearing upon health are graphically shown, stimulate interest and cooperation among citizens. 46 HEALTH DEPARTMENT. MONTHLY AND WEEKLY BULLETINS. The publication for general distribution of monthly or weekly bulletins giving a brief review of the work of the department and timely facts re- garding local conditions of health are of much more value than the annual report which covers a period long past. The real service of publicity in matters of health is certainly to meet present and future needs rather than to comment on what has long since proved to be beyond the control of city authorities or citizens. Weilers Printing House ( ^^^ 440 Court St., Reading, Pa. PAMPHLET NUMBER TWO READING, PENNSYLVANIA Report on a Survey of the Department of Markets Prepared for The Chamber of Commerce of Reading by the New York Bureau of Municipal Research DECEMBER, 1913 i 10 CENTS CONTENTS Page Summary of Criticisms and Constructive Suggestions, all of Which May be Immediately Adopted by Council 51-52 Administration 53 Personnel 54 Revenue 56 Licenses 56 Sealing of Weights and Measures 57 New Ordinance Required 58 Records and Reports 59 Provision of Buildings 60 Annual Report 60 MARKETS DEPARTMENT— SUMMARY. 51 DEPARTMENT OF MARKETS SUMMARY OF CRITICISMS AND CONSTRUCTIVE SUGGESTIONS, ALL OF WHICH MAY BE IMMEDIATELY ADOPTED BY COUNCIL ADMINISTRATION. The Department of Markets should be abolished. All of its functions except the inspection and regulation of weights and measures should be transferred to the Department of Health. A bureau of weights and measures,, headed by a sealer of weights and measures, under the direction of the Mayor, should be established at once.* PERSONNEL. The selection of the sealer of weights and measures should be based on a competitive examination of candidates for the position. It is essential that the sealer be an active and aggressive employee physically fitted for the position and possessed of a thorough knowledge of the law with technical experience of weights and measures. An increase of salary for the sealer is recommended. If inspection was made all the year around, the sealer could perform his duties without assistance. REVENUE. All inspections should be made without cost to the dealer. The abolition of the present fee system for original sealing is recommended. LICENSES. As an aid to the sealer of weights and measures, all business places using weights and measures should be required by ordinance to take out a license; this license to be for the purpose of regulation and not for revenue. SEALING OF WEIGHTS AND MEASURES. Considerable time of the Commissioner of Markets is now given to the regulation and adjustment of scales and weights. It is recommended that the practice of regulating and adjusting scales and weights be stopped and that the sealer devote his entire time to inspection acL detective work. The department at present makes no provision for inaccuracies due to changes in temperature and uses of scales, weights and measures. * An ordinance providing for the appointment of a*, inspector was adopted by Council, December 24. MARKETS DEPARTMENT— SUMMARY. It Js recommended that the schedule of tolerances of the United States Bureau of Standards be adopted by the sealer. The present commissioner does not make any Saturday night inspections. Because of the unusually crowded conditions of the market places Saturday nights it is desirable that inspections be made then. Platform scales for weighing coal, hay, construction materials, etc., are not frequently inspected. These scales should be tested more frequently, as they are more likely to be inaccurate than small scales. Wagons, the capacity of which is supposed to be a cubic yard or other definite measure, are not tested by the Market Commissioner, although this should be a part of his duties. NEW ORDINANCE REQUIRED. The present sealer is without adequate power to enforce an honest use of weights and measures. Council should adopt a new ordinance giving the sealer power to create rules and regulations governing the use of weights and measures, and providing a penalty for the violation of these rules. It is recommended that the New York and Chicago ordinances on weights and measures be adopted in so far as they can be made to. apply to the local conditions.* RECORDS AND REPORTS. The records of the Department of Markets as at present maintained are incomplete and of no value. An entirely new system of records should be installed so as to provide for a card record of merchants, a record of com- plaints, a record of violations and prosecutions and a register of inspection. PROVISION OF BUILDINGS. The present office of the Commissioner of Markets is inadequate and not at all suited for the purpose for which it is used. It is recommended that the new sealer of weights and measures be provided with an office on one of the main thoroughfares. ANNUAL REPORT. The present form of annual report is of no use as an administrative guide in that it does not give sufficient information to indicate the efficiency or deficiency of the office. It is of no value to the citizen because it does not contain any advice or information upon the subject of weights and measures. It is recommended that the annual report contain a copy of the laws and ordinances governing weights and measures, and a list containing the names and addresses of all merchants prosecuted during the year, and 'that the widest publicity possible be given to the activities of this bureau. * An ordinance passed since the survey was made authorized the appoint- ment of an inspector of weights and measures. MARKETS DEPARTMENT 53 DEPARTMENT OF MARKETS CRITICISMS AND CONSTRUCTIVE SUGGESTIONS ON ADMINISTRATION, PERSONNEL, RECORDS AND SEALING OF WEIGHTS AND MEASURES ADMINISTRATION Although the protection of the public against fraud from the use of dishonest weights and measures is a most important function of city govern- ment, the citizens of Reading are not, and have not been receiving adequate protection. INSPECTION OF WEIGHTS AND MEASURES IN CHARGE OF COMMISSIONER OF MARKETS. The inspection and regulation of weights and measures is at present the chief function of the Department of Markets. This department was created by an act of the Legislature in the year 1875. At that time the law provided only for the supervision and regulation by the department of the handling and sale of food-stuffs in market,, so as to prevent the ''forestalling" of markets. The intention was that this depart- ment should prevent grocers and other dealers from buying up various commodities in the public markets in order to raise the prices of them. In j886 the Legislature placed the supervision and regulation of weights and measures under the direction of the Commissioner of Markets. In 1913 a State act placed the supervision under the control of an inspector of weights and measures. INSPECTION INADEQUATE. It is impossible to discuss in this report the amount or character of inspection of weights and measures or the efficiency of the supervision of the handling of food-stuffs in the markets in the past years, because of the absolute lack of records. But it is apparent, from an inspection of the few records which are now maintained in the Department of Markets, that there is at present no adequate inspection or supervision of the market places or of the weights and measures of the city. FOOD INSPECTOR CHARGED TO THE DEPARTMENT OF MAR- KETS. Although the duty of inspecting the food supply to prevent adulteration of food and the sale of impure and diseased food properly belongs to the 54 MARKETS DEPARTMENT. Department of Health, the cost of maintaining this inspection is charged to the appropriation of the Department of Markets. While the inspector of foods reports directly to the Board of Health and operates under its direc- tion, he is carried on the payroll of the Department of Markets under the title of "Inspector of Meat and Milk." FOOD INSPECTION DISCUSSED IN HEALTH REPORT. This report does not take up the work of the food inspector, but only recommends that the necessary appropriation for paying for his work be made through the Health Department. The detailed discussion of the work done by this inspector will be found in the report of the survey of the Health Department. It is recommended that the Department of Markets have nothing to do with the food inspection. DEPARTMENT SHOULD BE ABOLISHED. No attempt is made at present by the Commissioner of Markets to invest tigate or report upon the way in which foods are manufactured, handled and sold in the market places. The Commissioner admits that the regulation of weights and measures is now the chief function of his office. Therefore, it is recommended that the Department of Markets, as such,, be abolished, and that Council create a bureau of weights and measures, transferring all of the duties now imposed by law upon the Department of Markets to the Health Department; and that the title of the Commissioner of Markets to be changed to that of "Sealer of Weights and Measures." NEW ORDINANCE SHOULD PROVIDE FOR REORGANIZATION. The reorganization of the bureau of weights and measures should be provided for by an ordinance giving to the sealer added powers and providing increased penalties for violations. References will be made throughout this report to suggested ordinances upon the subject of weights and measures. PERSONNEL CHANGES IN PERSONNEL. The Commissioner of Markets is an appointee of the Mayor and may be removed at will. He receives $720 a year. The present Commissioner has been in office since May 28, 1913. He is entirely unfamiliar with sanitation and food inspection, and frankly admits that apart from a hastily acquired knowledge of his duties as sealer of weights and measures, he knows little about the methods of enforcing the law. The economic importance to the citizens of a proper supervision of weights and measures requires that this office should be efficiently conducted. It is not only essential that the sealer should be an active and aggressive employee, but it is important that he be thoroughly acquainted with the law, and have a technical knowledge of weights and measures. He should be familiar with the ordinances existing in other cities and with the work MARKETS DEPARTMENT. 55 of the sealers of weights and measures throughout the country. The selection by Council of a sealer of weights and measures should be made only after a competitive examination of candidates for the position. Since it is neces- sary in Reading for the sealer to perform the field duties of an inspector, Council should take into consideration the age and physical condition of the candidates. SALARY SHOULD BE INCREASED. The present salary of the Commissioner of Markets should be increased to $1,000 a year. This increase in salary would not involve an additional appropriation; it is recommended elsewhere that the position of Assistant Commissioner be abolished, and the $400 which he receives would furnish the money for the suggested increase. CONTINUOUS INSPECTION ADVISABLE. I The present ordinance requires that all scales, weights and measures be inspected and regulated at least once in each year, between the months of April and November. Thus the sealer is compelled by law to make a com- plete inspection of the city in seven months. To do this it has been neces- sary to appoint an assistant sealer. It is unwise to limit the period of in- spection for two reasons — because it involves additional labor, and also because it gives the dishonest merchant a definite schedule of time in which to prepare for the inspector. The ordinance should provide for the annual inspection of all weights and measures without stipulating any time limit. One full time sealer of. weights and measures could make an all year around inspection.* SPORADIC INSPECTION NECESSARY. The efficiency of weights and measures inspections as a protection against dishonesty depends, however, not upon routine annual inspection, but upon sporadic inspection and detective work. The annual inspection of scales is made merely for the purpose of pro- viding a census of scale owners, scales, weights and measures. The experi- ence of sealers of weights and measures throughout the country is that the purchasing public is defrauded in the majority of cases by manipulation of the scales and weights rather than by imperfect or dishonest weighing instru- ments. Routine annual inspections will never furnish a protection against manipulation of the scales. The most flagrant violators of the law in the City of New York, those who made a steady practice of defrauding their customers, were merchants in whose stores hung the very best type of scales which were never permitted to be out of order, but which were manipulated when used to the prejudice of the customer. :: An ordinance passed since the survey was made anuthorized the appoint- ment of an inspector of weights and measures. 56 MARKETS DEPARTMENT DETECTIVE WORK NECESSARY. To afford adequate protection to the public, the sealer of weights and measures must perform detective work. The best method of ridding the city of dishonest merchants and dishonest practices, is by obtaining the co-opera- tion of citizens. The sealer can turn every housewife into an unsalaried inspector of weights and measures if he is sufficiently progressive and quali- fied for his work. PUBLICITY THE BEST All). To secure the co-operation of citizens, public opinion is the best aid. Publicity in the form of pamphlets describing well known vicious practices in connection with scale manipulation; warnings to the housewife against carelessness in purchasing: advising her to have a scale and measures in the home; the method of reweighing purchases — all these measures help to arouse the public and put it on its guard. The best weaprin the sealer of weights and measures can use in pre- venting fraudulent practices is criminal prosecution, and newspaper publicity of the results of such prosecutions. REVENUE INSPECTION FEES. The Commissioner collects a fee for the original inspection and sealing of weights and measures. For such fees as he receives he issues a receipt, and turns over the money to the City Treasurer. These fees are distinct from charges for adjusting weights and measures. The fee system for inspections has been condemned by the best authori- ties on municipal government. In weights and measures the fee system has been condemned by the sealers' State organizations in the majority of the States in the country. It is recommended that Council abolish the fee system for such inspections in the city. The enforcement of the law pro- tecting the public should not be kept on a revenue-earning basis. If the sealer of weights and measures performs his duties intelligently and faithfully, the taxpayers will be repaid the cost of the free inspection system many times over. LICENSES LICENSING AN AID TO SUPERVISION OF WEIGHTS AND MEASURES. There is no better aid in the regulation and supervision of weights and measures than the enforced licensing of all businesses in which weights and measures are used. By this is meant licensing for regulation and not for revenue. It is recommended that Council adopt an ordinance requiring each business in which weights and measures are used to obtain a license from the license court. The fee for such licenses should be no higher MARKETS DEPARTMENT. than is absolutely necessary in order to defray the expenses of issuing the license. A printed form applieation should be filled out in eaeh case, on which the dealer should be required to state the character of business, loca- tion, number,, kind and capacity of scales, weights and measures in use. He should be required^ to bring to the office of the sealer of weights and measures all scales, weights and measures of a small capacity and have them sealed. The ordinance should also provide that the failure to have scales, weights and measures properly inspected and sealed, would be cause for revocation of license., and that two or more convictions for the fraudulent use of the scales, weights and measures by a dealer would also be cause for revocation of license. The special advantage of the licensing of such business places is that it not only provides an added weapon for the sealer to use in his campaign against short weights, but it also provides for the registering of all scales, weights and measures with the sealer when they are brought into the city .for use. SEALING OF WEIGHTS AND MEASURES MUCH TIME LOST IX REGULATING. A considerable part of the time of the Commissioner of Markets is now given to the regulation and adjustment of scales and weights. Adjusting and regulating scales and weights is nothing less than repair work which it is not the city's business to do. It is the business of the merchant owning the scale to keep it clean and in repair; the city's business is limited to penalizing the merchant who fails to do this. The regulation and adjustment of scales by city officials throughout the country has resulted in surrounding the dishonest merchant with protection against prosecution, and is an injustice to the merchant who keeps his scales clean and in good repair. If the sealer finds a scale in use which is inaccurate to such an extent as to work a fraud he should prosecute the owner of the scale regardless of how small the fraud may be. But the owner has no reason to fear the sealer's visit if he knows that when the sealer visits his shop and finds his scale inaccurate, he will adjust the scale instead of prosecuting him. TOLERANCES SHOULD BE PROVIDED. Spring scales are subject to contraction and expansion as a result of changes in temperature; weights are subject to change as a result of use. and platform scales are likely to become unbalanced as the result of rough usage. But all three conditions produce only a slight change in the scales and weights. On account of these unavoidable changes, the sealer should adopt a schedule of tolerances, following as early as possible the tolerances allowed by the National Bureau of Standards. But all cases where scales, weights and measures in use are found to be inaccurate in a greater degree than the prescribed tolerances should result in criminal prosecution. 58 MARKETS DEPARTMENT. SATURDAY NIGHT INSPECTIONS SHOULD BE MADE. The Commissioner and his assistant do not at present make any night inspection. On account of the unusually crowded condition of the market places Saturday night is the harvest time for dishonest merchants. It is, therefore, suggested that the sealer visit the large market places on Saturday nights. MORE FREQUENT INSPECTIONS OF PLATFORM SCALES IS NECESSARY. The requirement that scales be inspected and tested once a year is in- sufficient protection in the case of platform scales for weighing coal, con- struction materials, hay, etc. These scales should be more frequently tested because of the greater chance for error and the greater opportunity for fraud. In order to test a coal scale under the present system it is necessary for the Commisioner of Markets to transport a ton or more of weight to the larger scale. All owners of platform scales used in weighing coal, and of all other public scales should be required by ordinances to maintain a set of standard weights not less than One ton weight. These should consist of fifty pounds of test weights; they should be kept in a cabinet adjacent to the scale under lock and key. This would provide the owner of the scale with a means of testing his own scale from time to time and would end the city's paying for carting a ton or more of weights for each inspec- tion. The sealer sshould compare the privately owned standards with his own at stated periods during the year. CAPACITY TESTS FOR CONTRACTORS' WAGONS NEEDED. Considerable contract %vork is done in the City of Reading by the cubic yard or other definite measure of material removed. If a contract calls for the removal of a number of wagon loads, each supposed to represent a certain number of cubic yards,, the capacity of each wagon should be tested by the sealer of weights and measures and certified by means of a plate fastened to the wagon. NEW ORDINANCE REQUIRED MORE POWER FOR SEALER. The present weights and measures ordinance is inadequate in that it does not give the sealer power to make rules regulating the use of scales, weights and measures, and of the appliances attached to them. The ordinance should give the sealer ample power not only to make rules and regulations govern- ing the use of scales and their appliances, but also to direct owners of scales to put them in a place where the customer can read the weight without difficulty. Many scales were observed which were placed so far from the counter that it would be impossible for the customer to see the dial or the markings on the face of the scale. In the case of computing scales, unless the scale is placed upon the counter or just beside the customer, he MARKETS DEPARTMENT. 59 cannot possibly read the weight chart and hence fraud can easily be practiced. Under the present ordinance the sealer has no power to dictate in what part of the store the scale should be placed. Notwithstanding the fact that the most vicious type of attachment to scales is the open adjustment screw, many scales with this attachment were observed in use. No amount of inspection would be able to furnish adequate protection to the public against the manipulation of scales by these open adjustment screws. The ordinance should not only provide the sealer with the power to create rules, but should likewise create a penalty for violation of them. NO PENALTY FOR REMOVAL OF CONDEMNATION TAG. Weights and measures that are condemned are now labeled with a red tag attached by means of a wire loop. As the wire is only twisted together, there is nothing to prevent the dealer from taking the tag off and replacing it again whenever he thinks it is necessary. The condemnation label should be attached to the scale and sealed with the inspector's stamp in such a way that the tag could not be removed without leaving evidence that it had been tampered with. The ordinance should provide a penalty of $25 for the removal of the condemnation tag by any person other than the sealer of weights and measures. It is recommended that the New York and Chicago ordinances on weights and measures be adopted in so far as they can be made to apply to the local conditions. RECORDS AND REPORTS NO RECORD OF PREVIOUS SERVICE. The Market Commissioner stated that when he came into office on May 28, 1913, no records of previous service were to be found,, except a memoran- dum book in which pencil notes of visits had been made. PRESENT RECORDS OF SERVICE INADEQUATE. Aside from pencil entries in memorandum books carried by the Commis- sioner and his assistant, the only record of service to be found in their office now is a book in which the Commissioner enters each cfcay's trans- actions in diary form. It is therefore impossible to determine quantity and quality of the service rendered by these two officials without making a detailed analysis of each day's record. No file is kept of the various businesses using weights and measures or of the tests, Violations and con- fiscations made in each case. NO RECORD OF PROSECUTIONS MAINTAINED. No record of prosecutions is kept. The Commissioner states that during his term of office three prosecutions for "forestalling" have been brought, but as yet no decisions have been rendered. 6o MARKETS DEPARTMENT. NO RECORD OF COMPLAINTS. As no record of complaints is kept, it is impossible to say how many or what kind of complaints are received or investigated by the Commissioner of Markets. RECORDS WHICH SHOULD BE ESTABLISHED AT ONCE. The sealer should make a card record of all the merchants using scales, weights and measures. The best method of getting the material together for this card record is to provide the sealer with a book to be used when he makes his inspections. The book should contain printed certificate forms, with headings calling for complete information concerning the business inspected. At each inspection the sealer should give the owner a certificate of inspection. At the time of making out the certificate of inspection, the sealer, by carbon process, makes out a duplicate certificate on a card which at the end of the day's inspection he removes from the binder and files in an ordinary card cabinet. RECORD OF COMPLAINTS. When a complaint is received, it should be numbered and stamped with the date and time of receipt. A record of the complaint should then be entered on a complaint book. When the complaint is investigated, the sealer should make a written report, which should be attached to the original letter of complaint and filed with it. The result of the investigation should also be noted in the complaint book. Oral complaints made either over the telephone or to the sealer personally should be written out and handled in precisely the same manner as letters of complaint. All complaints against dealers should be noted upon the record card of the dealer. Each month the record of complaints should be recapitulated under headings which would furnish proper information for tables showing the number of com- plaints received, the subject complained of, and the action taken. RECORD OF VIOLATIONS AND PROSECUTIONS. A card record of violations and prosecutions should be maintained. Upon this card §hould be entered a short statement of facts as to the character of the violation. The results of prosecution should also be recorded on these cards. A REGISTER OF INSPECTIONS SHOULD BE KEPT. Each day's inspections should be recorded in this book. It should show the apparatus inspected, the character of places visited, and the result of the inspections. This information should be copied from the record cards before they are filed. The complaint book and the record of violations and prosecutions, as well as the register of inspection should be kept posted up to date. MARKETS DEPARTMENT. 61 PROVISION OF BUILDINGS NEED FOR IMPROVED QUARTERS. The office of the Commissioner of Markets and his assistant is a small room about ten by twenty feet in size. It contains the desk of the Com- missioner and a desk for the electrician in charge of the lire and police alarm system. The Commissioner of Markets also keeps confiscated apparatus in the office, and has a work bench where he repairs and alters weights. Council should provide the bureau with an office located on one of the main streets. The office should be so arranged as to provide for a mechanical work shop. Citizens should be encouraged to visit the office. The head- quarters of the bureau of weights and measures should be as familiar to housewives and merchants as the city hall itself. Merchants should be encouraged to visit the bureau to have small scales inspected and tested, while housewives should be urged to visit the bureau occasionally to have their purchases reweighed. For this purpose the sealer should be provided with adequate equipment, which should include a large sink or trough for testing of liquid measures, a spring scale, a counter balance scale, and a platform scale of sufficient capacity to meet the demands of those desiring to have commodities reweighed. The sealer should spend a certain number of hours each day in his office. These hours should be known to the public. ANNUAL REPORT REPORT SHOULD CONTAIN ORDINANCES. The annual report, in addition to containing the table, showing the number of inspections, number of articles inspected,, condemned and confiscated, classified as to type and capacity, and the number of violations, prosecutions and their result, should contain a complete copy of the laws and ordinances on weights and measures, and common tables of weights and measures for handy reference of the citizens. A list of the merchants prosecuted during the year, with a statement of the violations for which they were prosecuted should be printed in the annual report and should also be given the widest possible publicity. The dishonest merchant fears publicity much more than he does a fine. Weiler's Printing House '"*$!£&*■ 440 Court St.. Reading, Pa. PAMPHLET NUMBER THREE READING, PENNSYLVANIA Report on a Survey of the Public Library Prepared for The Chamber of Commerce of Reading by the New York Bureau of Municipal Research DECEMBER, 1913 10 CENTS CONTENTS Page Summary of Criticisms and Constructive Suggestions . . . ., 67-69 Administration 70 Personnel 70 Promotions and Salary Increases 71 Records of Employees' Service 71 Appropriations 72 Revenue 72 Purchase and Provision of Supplies and Equipment J2 Provision of Buildings 73 Library Service i yi> Publicity 76 READING PUBLIC LIBRARY— SUMMARY. 67 READING PUBLIC LIBRARY SUMMARY OF CRITICISMS AND CONSTRUCTIVE SUGGESTIONS WHICH MAY BE EASILY ADOPTED BY COUNCIL ADMINISTRATION. The Library Board of 16 members is too unwieldy to assure efficient service. Its powers and duties would be better vested in the Council, but this change cannot be effected until the trusts and conditions under which the City of Reading received the library property are changed. A com- mittee of citizens will always be found useful as a book committee. There is no program for increasing the service of the library, which is now merely a storehouse for books. The librarian should be a man of experience in the kind of active,, extended library management that Reading now lacks and needs. Only one apprentice is now employed. Several more should be engaged and trained for the extended service that is recommended. The only service requirement now made is that the librarian must spend 40 hours a week on duty. They should be required to furnish evidence of the time and kind of service they render, as a basis for salary payments. APPROPRIATIONS. The present appropriations are too small for the increased service that is recommended. No more is needed for salaries, but more should be allowed for operation and maintenance. REVENUE. The revenue received from fees and penalties is only about $30.00 per month. This could be increased, among other ways, by furnishing extra copies of new and popular books at a rental of one cent a clay. PURCHASE AND PROVISION OF SUPPLIES AND EQUIPMENT. A book committee, acting in an advisory capacity only, should be appointed to advise the librarian in the selection of new books. PROVISION OF BUILDINGS. Lighting and ventilation should be improved, even if it is necessary to increase the window space of the basement rooms. A ventilating system 68 READING PUBLIC LIB RARY— SUMMARY. should be installed so that basement rooms, particularly the librarians' rest room and toilets, may be made serviceable. The office of the librarian, which is in a state of disorder, should be put, and kept in proper condition. LIBRARY SERVICE. No branch libraries are now provided, although the library is not now readily accessible from the centers of Reading's industrial population. Branch libraries should be installed at points easily accessible from these districts.* A business men's library, consisting of all available information of use to business men, should be arranged for their use, either in a branch library or in a room in the main library. The slight cost would be more than offset by the resulting convenience and saving of time of business men and such a library would help to obtain their continued interest and co-operation in library matters. No municipal reference library has been arranged although there are many books in the library dealing with various phases of municipal activity. These should be collected and made available for ready reference. The number of books dealing with the particular industries in which Reading is interested is limited. Such books or collections of books should be made a feature of Reading's improved library service. A "Made in Reading" directory, which would be a valuable aid to manufacturers, salesmen and buyers in this and other cities should be prepared by the librarian. Traveling libraries should be prepared for clubs, civic organizations, trade unions, etc.,, on particular subjects about which they may want informa- tion. They should be loaned for limited periods, subject to the same rules as other loans. No files of pictures and photographs, lantern slides, etc., or educational subjects are now available for schools, clubs, and other societies. This service, which need not cost much, would meet a real need, particularly in public school work. No special efforts have been made to secure and group a collection of books on pedagogical subjects for teachers. Publishers of such books will add copies to this collection free of charge or at a very low price. The periodical literature which is provided does not cover as wide a range as it should in a city of Reading's cosmopolitan character and diversi- fied interests. A selection better adapted to the needs of the community should be made. Federal, State and municipal health bulletins should be provided. The library has no museum or art gallery, but these needs are being realized through the museum and art gallery started in the school administra- tion building. * Since the writing of this report the opening of branch libraries has been authorized. READING PUBLIC LIBRARY— SUMMARY. 69 The library should be open on Sundays and holidays for reading and reference work. This would meet the needs of workingmen and others who are unable to reach the library on working days. The librarian could greatly increase the library's service by circulating as widely as possible information about the library's preparation for meeting the needs and desires of Reading's citizens. He should prepare news articles for the papers and weekly or monthly bulletins and circulars for general distribution. 70 READING PUBLIC LIBRARY. READING PUBLIC LIBRARY CRITICISMS AND CONSTRUCTIVE SUGGESTIONS ON ADMINISTRATION, PERSONNEL, APPRO- PRIATIONS AND LIBRARY SERVICE ADMINISTRATION ADMINISTRATION HAMPERED BY THE SIZE OF THE BOARD. The Reading Public Library Board consists of 16 members, five of whom are selected by the Board of Directors of the old Reading Library Corporation, and ten, including the Mayor as an ex-officio member, by the Councils. Such a large Board, representing as it does many different districts of the city and many different views about the purpose and the program of the library hampers rather than assists the extension of library service which is needed in Reading. The present Board is too unwieldy to assure efficient service, but under the deed of gift must be continued. A committee of citizens is always useful as a book committee to give advice in the selec- tion of new books. BOARD MEETINGS INFREQUENT. The Library Board meets but once each month, when the librarian sub- mits his monthly report. Although under the present administration the Board is supposed to direct the policy of the library, the meetings are usually rather perfunctory, consisting chiefly of the consideration of routine matters. It is evident that at present the real direction of the library and its policies lies with the librarian. The Board itself, composed of laymen with pressing private interests,, can hardly be expected to supply the neces- sary incentive for good public service. It must look to the librarian for plans for developing the service; but he fails to bring to the Board meetings the ideas which his experience and training have given him. PERSONNEL PROGRESSIVE SPIRIT LACKING. The librarian, who acts as supervisor of the library, and who is the person who should know what it could do, has no plan For making it really serve the citv. The modern tendency in library service is to make the READING PUBLIC LIBRARY. 71 library an institution for education and to develop as extended a service as possible — in short, to bring the library to the people. A library should be something more than a storehouse for books. It is therefore imperative that Council in selectiing a librarian should make an effort to secure one who has a definite plan for making the library meet the city's needs, and the necessary ability to carry this program into effect. The librarian now receives a salary of $1,500; his term of office is one year, subject to the ruling of the Board. A competent librarian for the City of Reading should command a salary of at least $2,000 and should hold office indefinitely. In selecting a librarian the choice should not be expected to be limited to citizens of Reading. INCREASED STAFF NEEDED FOR IMPROVED SERVICE. There are at present ten assistant librarians and one apprentice. This number is ample for the service now given; with the increased service recommended, however, an addition to the force may be necessary. The number of apprentices should be increased so that when the demand for new and extended service is made, there will be a sufficient number of trained librarians ready to take up the work. PROMOTIONS AND SALARY INCREASES SCHEDULE FIXED BY BOARD. Apprentices are appointed for library service for six months without pay. After this they receive $35.00 a month for the first year; $40.00 in the second and third years; $45.00 in the fourth, fifth and sixth years, and after six years $50.00. This schedule, which has been fixed by the Board, is adhered to inflexibly. As it is an equitable arrangement and is apparently satisfactory to all concerned, it should be continued. RECORDS OF EMPLOYEE'S SERVICE IMPROVED TIME RECORDS NEEDED. Assistant librarians are required to give 40 hours service a week, not including Sundays and holidays. Apart from a memorandum book kept by the librarian, no time records are required. In this department, however, as well as in all other branches of the city's service, definite service reports should be required. Each employee should make out weekly or semi-monthly time records showing the amount and kind of service he has rendered as a basis for salary payments. 72 READING PUBLIC LIBRARY. APPROPRIATIONS INCREASED APPROPRIATION NECESSARY FOR EXTENDED SERVICE. According to the terms of the Carnegie gift of the library,, 10 per cent of the amount of the gift, or $10,000, must be appropriated each year for its operation and maintenance. This amount has always been recognized as insufficient. If any plan for extended service is adopted, even the sum last appropriated, $15,440, will be found inadequate, as $7,740 of this sum was spent for salaries alone. In addition to the extension service that is recom- mended, changes should be made in the arrangement,, lighting and ventilation of the plant. The next appropriation should be in the neighborhood of $25,000 or $30,000. Before definite figures for the amount needed are suggested, however, a careful estimate should be made of the cost of all installations or extensions; so that budget estimates can show exactly why those amounts are requested and the use to which they are to be put. REVENUE INCREASED REVENUE POSSIBLE, About $30.00 per month is received from fines and penalties. This sum is turned over to the treasurer who keeps it as a contingent fund for the purchase of small supplies the librarian needs. This revenue will, of course, be increased as the circulation increases. It can also be increased in various ways, as, for instance, by providing a section containing several extra copies of each new and popular book to be loaned at one cent a day. This plan has been tried successfully in other libraries, where it has been found that patrons are glad to pay a cent a day for the extra accommodation. As the library report shows that 71,304 volumes of fiction and juvenile books were borrowed in 1912, it is quite probable that the revenue of the library could be increased in this way by several hundred dollars each year. PURCHASE AND PROVISION OF SUPPLIES AND EQUIPMENT Any order for the purchase of supplies must come from the Library Board, except that the small contingent fund previously mentioned is kept on hand by the treasurer for emergency use b}' the librarian. All purchases of books must be sanctioned by the Board. It is desirable that there be some advisory committee which the librarian may call upon in determining the need for new books, as leaving this matter entirely in the librarian's hands may result in unwise selections. Such a body should consist of three or five members chosen for their particular qualifications as judges of book values and readers' needs. Such a committee should be selected by Council from among the leaders of literary thought and training, teachers, business men, manufacturers, etc. READING PUBLTC LIBRARY. 73 PROVISION OF BUILDINGS LIBRARY NOT ADAPTED FOR PRACTICAL SERVICE. It is unfortunate that the architect who designed the Reading Public Library did not attempt to adapt his plans to the service for which the building is intended. There is but one floor which is of any practical use. The basement, which is about three-quarters under ground, and which has to be used for the children's room, the reference room, and for storage purposes is so dark that storage is the only thing it is fit for. When visited by the investigator the children's room, which should be bright, cheery and attractive, was just the reverse, and even at the brightest time of the day the room would have no attraction whatever for children. Other rooms in the basement are dark, cheerless and forbidding. Artificial light has to be used for the greater part of the day, and on a dull day it must be used all the time. Nothing can be done with these rooms without extensively altering the window space. The windows, which are close to the ground, are small and deep set and consequently let but little light through. This matter of im- proving the light in the basement should be taken up at once. IMPROVED VENTILATION NEEDED. Lack of proper ventilation was particularly noticeable in all basement rooms, particularly in the librarians' rest room and in the toilets. The librarians' rest room, which is doubly dark on account of the proximity of other buildings, was "stuffy" to the extreme. The toilet, lighted and ventilated by a single small window, also badly needed airing. Unless some means can be devised for improving the direct ventilation by increasing the window area, a ventilating system should be installed. LIBRARIAN'S OFFICE. Great disorder was found in the librarian's office. The librarian explained that this was due to the fact that a great deal of moving around of material had been necessary in getting things in order in the new building. Orderli- ness and neatness of desks and files are marks of good service in every office; and in an institution such as a public library, the office should be a model of its kind. LIBRARY SERVICE BRANCH LIBRARIES NEEDED. Reading's population is largely an industrial one. Rents are comparatively high for working people, and the cost of living makes any expense for library service inconvenient. Even so small an amount as the carfare expended by workmen in reaching the library works a hardship upon them. 74 READING PUBLIC LIBRARY. The single library is not so located that it is easily accessible to the center of Reading's industrial life. Branch libraries should be opened in school buildings or,, better still, in private buildings rented for the purpose; and they should be kept open at hours convenient for the persons whom they are intended to entertain and instruct.* BUSINESS MEN'S BRANCH. The public library in Newark, New Jersey, has taken a long step in advance in supplying a particular kind of library service to business men. A branch has been opened in the downtown business district to supply information on the varied topics which affect business life. This library is equipped with business reference books and periodicals, classified directories of manufactures and businesses in foreign and domestic trade, city directories and telephone directories of all the principal American cities, maps showing railroad lines and car lines, and railway time tables. By consulting these maps and guides a traveling man can arrange his entire days work in Newark and other cities in a few minutes, so that he can save several hours of valuable time in visiting his buyers. Information on all sorts of subjects, such as weather reports, market quotations, statistical data of the Census Bureau reports and other government documents is cheerfully given by telephone,, letter, or in person. Such a library would be exceedingly useful to Reading business men, and an effort should be made to establish it either in the public library building or in separate rooms. "MADE IN READING" DIRECTORY. The librarian of the business men's branch library in Newark, New Jersey, has compiled a "Made in Newark" directory which is extremely valuable both as a reference work for business men and commercial travelers and as an advertisement of Newark's place in the manufacturing world. The compilation and publication of such a directory of articles manufactured in Reading would serve a similar purpose for Reading's citizens. LIBRARY SHOULD BE OPEN SUNDAYS AND HOLIDAYS. The reading rooms and reference library should be open on Sundays and holidays. It is impossible for many workingmen and other persons to visit the library at any other time, yet, if the library is to be of service to all citizens their needs should be met. Proper distribution of the time of the employees would make it possible to supply this additional service without additional expense. * Since the writing of this report the opening of branch libraries lias been authorized. READING PUBLIC LIBRARY. 75 TRAVELING LIBRARY EXTENSION SERVICE. No effort has been made to supply small sets of series of books on special topics to clubs, schools, trade unions and other organizations. If the library authorities made it known that they were willing to supply this service, many persons would be glad to take advantage of it. These traveling library sets should be loaned for only a limited time, subject to the same rules as for ordinarv withdrawals. PICTURES FOR FREE CIRCULATION. The librarian should begin to make collections of pictures and photo- graphs on various subjects, such as history, natural history, botany, pictorial art, mechanical science, chemistry, literature, music, etc. When properly classified and arranged they should be loaned to teachers for class instruction or for the decoration of school rooms and to clubs and other organizations having any use for them. It is well known that in school work the use of a few well chosen illustrations helps materially to stimulate interest. Instead of keeping the same pictures on the wall until the children get tired of seeing them, the teacher could in this way change the pictures every week. Collec- tions of stereoptican views or slides on various topics of universal interest should also be made. The advantage of having such material where it is easily available for the use of any citizen or organization of citizens is well worth the effort necessary to acquire it. MUNICIPAL REFERENCE LIBRARY. Although the Reading Library has a considerable collection of works on municipal government and its functions, it should increase the size of this collection and broaden its scope. With the growing interest which Reading is taking in municipal afiairs, reference books upon these subjects will be increasingly in demand. TECHNICAL BOOKS ADAPTED TO READING'S INTERESTS. In choosing new books for the technical section of the library the com- mittee should take particular care to provide fully for Reading's special industrial interests. It is vastly more important to have a well chosen selec- tion of books on the hosiery and knit goods industry and on iron and steel working than on other industrial subjects in which Reading is not directly interested. EDUCATIONAL BOOKS NEED GROUPING. Although the library has a large number of books on pedagogical sub- jects, they are not properly grouped and so are of limited value to teachers. A special section of books on educational subjects should be arranged. Publishers of school books are usually glad to furnish copies of their publica- tions free of charge and an additional collection of this kind would be of 76 READING PUBLIC LIBRARY. real practical value to teachers and other members of the community. It may be mentioned that a teachers' library is maintained in the school ad- ministration building. PROFESSIONAL, MUNICIPAL AND TRADE JOURNALS LACKING. Although the periodicals on file in the reading room of the library cover a wide range of magazine literature, they include no medical or legal publica- tions and but few school, municipal or trade journals. A different selection of periodicals should be made which will meet the diversified interests and needs of the community. Federal and State health bulletins and municipal bulletins, such as the bulletin of the Chicago Health Department, the Healthologist of the Mil- waukee Department of Health, the weekly bulletin of the New York Depart- ment of Health and a score of others may be procured for the asking. These bulletins contain a great wealth of health information which would be of interest and benefit to citizens in every kind of business or activity. MUSEUM STARTED ELSEWHERE. The library has no museum or art gallery, but these needs are being realized for the city through the museum and art gallery started in the school administration building. PUBLICITY MORE PUBLICITY NEEDED. Aside from the occasional publication in the daily news of a list of books recently bought, the various facts which the citizen should know about his library are not brought to his attention. The librarian should prepare and circulate bulletins giving information about the service the library wishes to render to the community, and news articles telling special groups of wor- kers, students, etc,, the preparation the library has made for meeting their needs. Special circulars explaining either general or special lines of library work could be distributed at the library to visitors and borrowers. Weiler's Printing House <1 ^^ D 440 Court St., Reading, Pa. PAMPHLET NUMBER FOUR READING, PENNSYLVANIA Report on a Survey of the Department of Water Prepared for The Chamber of Commerce of Reading by the NewJYork Bureau of Municipal Research DECEMBER, 1913 10 CENTS CONTENTS Page Summary of Criticisms and Constructive Suggestions, All of Which May be I mmediately Adopted by Council 79-84 General Administration 85 Financial Administration $7 Operation and Maintenance of the Waterworks System X9 Inspection 94 Assessment and Collection of Rates 96 WATER DEPARTMENT— SUMMARY. 79 WATER DEPARTMENT SUMMARY OF CRITICISMS AND CONSTRUCTIVE SUGGESTIONS. GENERAL ADMINISTRATION. The Board of Water Commissioners is unnecessary and should be abolished. As supplying water and assessing the charges for it are distinct functions — one of an engineering nature and the other financial — they should be separated and placed under the administrative control of Commissioners responsible for functions of a similar nature. The technical direction of the Bureau of Water Supply should be in the hands of a chief engineer, who would be responsible to the Commissioner of Parks and Public Property, and the control over water revenues should be exercised by a registrar reporting to the Commissioner of Accounts and Finance. Appointments of all employees should be made by Council on the recommendation of the chief engineer or the registrar after approval by their respective Commissioners. Service records of all employees should be kept. The chief clerk's title should be changed to Water Registrar. He should be required to assume control of the revenue ledgers and other important matters. A junior clerk should be appointed to look after detailed clerical work. The method of handling complaints is unsatisfactory, Complete records of all complaints should be made and proper files maintained. A pamphlet containing all the rules and regulations of the department and the matters affecting the supply of water should be compiled and made available to consumers. FINANCIAL ADMINISTRATION. The financial methods of the Department are unsound. Consumers are paying approximately double the amount it costs to deliver water. Present profits are being used for the benefit of future generations. Over $1,000,000 of profits has been spent during the past ten years in the buying of property not always urgently needed. The cost of such improvements should be spread over a period up to thirty years. Water revenues should go into the general fund of the city and the expenditures of the Department should be estimated as for other Depart- ments, and should be subjected to the same scrutinity before appropriations are made. The former suggestion may need State legislation. Present appropriations are limited only by the amount of rates collected. Such procedure is not economical. Appropriations for park purposes should not be made out of water 8o WATER DEPARTMENT— SUMMARY. revenues. Funds required for maintenance of park properties should be appropriated directly to the Park Department. The financial records are kept on a disbursement basis, and do not show liabilities incurred nor contingent obligations. The cost of water as reported is incorrect as it does not include bills unpaid at end of fiscal year, nor does it include sinking fund installments. There is no proper general ledger showing all the assets and liabilities of the Department, nor complete operating costs. The books have never been audited. Expenditures are not properly classified. A definite functional classifica- tion of expenditures should be prepared and installed. Sinking funds are not scientifically managed. The amount set aside yearly for the redemption of bonds have been inadequate. If sinking funds had been properly established and maintained they would have amounted to over $150,000 more than was in them on April 5th, 1913. One fund alone was over $100,000 less than it should have been at that date. The amounts set aside for sinking fund purposes have never been in- vested so as to be sufficiently productive. Sinking fund earnings have amounted to only about half as much as they should. Departmental records show only cash 'collections, not earnings. Water rates should be accrued in order to obtain actual revenues. There is rio proper system of control over water revenues. OPERATION AND MAINTENANCE OF THE WATERWORKS SYSTEM. From an engineering standpoint the waterworks system is in excellent condition and shows exceptionally good management. A sanitary patrol should be provided for the Maiden Creek watershed as the population in this area is increasing rapidly and the water shows signs of contamination. The present system of chlorination is inadequate. A chlorination plant should be erected and operated for treating the water after it has passed through the filters. Statistics of pumping are inaccurately stated for the reason that no allowance has been made for slippage. Actual pumping costs cannot be obtained except when a proper slippage factor is taken into consideration. The quantity of coal consumed at the pumping station warrants its purchase on the British Thermal Unit basis., i. e., according to its heating value. A considerable saving could have been effected had such methods been adopted. The Department has recently issued an order for the purchase of pito- meter apparatus for locating water waste. This should have been purchased years ago. Records relating to hydrants do not show dates of inspection nor cost of maintenance. A card index system should be installed covering each and every hydrant. Steps should be taken to keep proper records of subsurface conditions disclosed when streets are opened up. The present per capita consumption of 141 gallons daily is very high WATER DEPARTMENT— SUMMARY. 81 and is steadily increasing. Where supplies are metered and pitometer tests systematically conducted the per capita consumption seldom exceeds 7° gallons per day. No campaign to prevent the waste of water has ever been conducted in Reading. Waste of water adds greatly to the cost of operation and makes the rates higher for' every consumer. Approximately 30 per cent, of the water distributed in Reading is unaccounted for. • A house to house inspection, supplemented by proper tests for leaks and waste, is recommended. One-third of the water consumed is supplied through meters. The meter- ing of all supplies would prevent water waste, reduce the cost of distribution and lower rates to consumers. Measurement by meter is the only equitable basis on which to supply water. All meters should be owned by the city. The consumer, however, should pay a nominal fee to cover the cost of installation. Meters now in service are well maintained and methods of installation are in advance of most cities. A system of card records should be installed at the meter testing station, which would show costs and particulars relating to purchase, installation, and maintenance of a meter. The sealing of meters has been entirely neglected. Such conditions prevent proper control over revenues. The storehouse and yards are ample and well managed. The records of stores, however, need revision, and a card record to provide a continuous inventory of stock on hand should be installed. The practice of inspecting cast iron pipe and fittings at the foundries, abandoned because of inefficiency of inspection in the past, should be re-established and maintained by competent inspectors. The cost records now maintained show only direct costs of labor and material. No proper allowance is made to cover overhead charges. This results in construction and repair costs being understated. INSPECTION. Only by properly controlled inspection can water revenues be safe- guarded. In Reading no one knows whether all the revenue that is due to the city is actually being charged and collected. Steps should be taken to systematize inspection work by the installation of proper records and supervision of inspectors. It is not physically possible for the two present inspectors to do the necessary inspection work. Inspection districts are too large and inspection duties are not appor- tioned in accordance with a definite plan. Water revenues could be increased by adding to the number of inspectors and definitizing their duties. Inspection records are in such shape as to make it impossible to ascertain whether inspection work is being carried on efficiently or not. No check is made of the data afforded by plumbers upon application for new supplies. Much revenue is lost through lack of proper inspection of plumbers' work. 82 WATER DEPARTMENT— SUMMARY. A house to house inspection is now being made by one man. This work should be expedited by the assignment of additional men. Roof tanks should be inspected periodically to determine whether they conform to the rules and regulations of the Department. Much waste of water can be prevented by such procedure. Tanks used for domestic pur- poses should be inspected as to cleanliness. ASSESSMENT AND COLLECTION OF RATES. Present charges for water have no scientific basis. Schedule rates are based not upon amount of water used but upon the opportunity to use water, resulting in discrimination against the careful user and encouragement to the wasteful consumer. The only equitable method of supplying water is by meter. Meters should be installed gradually; not by compulsion, but by reducing the rates for water supplied by meter. This will encourage users to request the installation of meters. It is suggested that on and after January 1st, 1914, no new supplies should be afforded except on meter basis. The present sliding scale of meter rates has no relation to the cost cf supplying the water. The charges now range from 30 cents to 2 2/10 cents per hundred cubic feet. A standard rate of 5 cents or 6 cents per 100 cubic feet to all consumers, large and small alike, would produce sufficient revenue to cover all operating expenses, maintenance charges,,, and interest and sink- ing fund installments on bonds. A minimum rate on metered supplies, based on the size of the meter to cover the "readiness to serve"' cost, is recommended. For small meters a minimum rate of 75 cents to $1.00 per quarter would be ample. For larger meters the amount should be proportionately higher. Water used by all city departments, schools, fire houses, etc., should be metered and paid for by means of an appropriation to the several depart- ments. The use of water for street sprinkling and flushing is not under proper control. The levying of tribute by fire companies and other street sprinklers is too unbusinesslike a proceeding for a city of Reading's size. The contractor who flushes the streets, gets the water he uses for nothing, is paid by the city for his services and also collects tribute from property owners in some sections. The citizens would save money if these services were performed by a city department. The practice of exempting contractors performing public work from paying for the water they use should be discontinued. Charitable institutions should be charged standard rates for water supplied. If the city desires to contribute towards such institutions it should be done by direct appropriations in the annual budget; it is not a proper charge against the Water Department. No rentals are received for tire hydrants. Tt is recommended that the city pay Jo the Water Department an annual rental sufficient to cover the cost of installation, maintenance, and inspection of all hydrants in service, and also of the estimated quantity of water used. Owners of manufacturing plants having private sources of water supply, obtain fire protection from WATER DEPARTMENT— SUMMARY. jfc the city without cost to themselves. The method suggested would place the cost of fire protection on the property protected. Charges for water supplied for building purposes should be based on the amount of water used in the construction work and not on the super- ficial area occupied by the building and the number of stories. Contractors' estimates should not be accepted blindly by the Department as at present. Such practices result in loss of revenue. Charges should be collected in advance. The reduction of fifty cents for the second bath, on the same premises, is not warranted. Reading's charges for such supplies are below the average rate charged in all the leading cities. A standard rate should be charged for each and every bath without regard to the number on any premises. Much of the water wasted in Reading occurs in leaking water closets. The present charge for such supplies should be increased to $2.50 per annum, which is the average charge in the larger cities. The present system of adding a higher penalty for non-payment of schedule rates than for meter rates is inequitable,. It is recommended that the penalty be made consistent on all rates. Allowances in respect to vacant premises are not well regulated. No allowance should be made where premises are supplied on a flat rate basis unless notice in writing is given to the Department to turn off the water, and a small fee paid before it is turned on again. Where the supply is metered the minimum rate should be charged as long as the meter remains on the service. A nominal fee should be paid for turning on and shutting off water, for the inspection of plumbers' work,, the installation of meters and similar ser- vices performed for consumers. Services rendered for the benefit of in- dividuals should be paid for by these and not by the water rate payers as a whole. The use of hose for any purpose should be prohibited except in cases where the supply is metered. The collection of rates should be simplified. It is recommended that schedule rates be collected annually in advance. This would place water rates on the same basis as city taxes and would be a decided convenience to most property owners who could thus pay their taxes and water rents at one time. Tt would reduce the work on schedule rates in the Treasurer's and Water Clerk's offices by one-half, and also save half the time of the inspectors in delivering bills. The collection of overdue rates by inspectors should be stopped. They should be paid to the City Treasurer as all other rates. The schedule rate ledgers are very unsatisfactory. There is no control over the entries made in them. Any adjustment or even the complete elimination of a rate could be made with only a very slight chance of detection. There is nothing to show why, when or by whom a charge is reduced or eliminated. No attempt has ever been made to balance any of the ledgers. The meter revenue ledgers are not properly controlled, and cannot be in their present form. They have never been properly balanced. Loose leaf ledgers should be installed to control schedule rates and a code should be established for all accounts, bills, files, etc. The form of code 84 WATER DEPARTMENT— SUMMARY. recommended would be capable of unlimited expansion and could be worked in conjunction with any record to be installed. Meters are read and accounts rendered too frequently. The reading of large meters every month should be continued. There is no need, however, to read small meters more often than once each quarter. The monthly bills now rendered are mostly for trifling amounts. There is no need to trouble citizens by rendering such accounts so frequently. If this recommendation were carried out, practically two-thirds of the work connected with meter reading and with the preparing and collecting of meter accounts would be eliminated. The form of meter reading sheets now in use permits the inspector, if he so desires, to estimate the quantity of water consumed without going near the premises where the meter is located. The present system of entirely erasing an entry on the ledgers when an allowance is made prevents any control over adjustment once they are passed. The entering of additional charges in pencil also requires attention. Lack of supervision over inspectors' readings of meters results in loss of revenue. Reports of meters "not read" should be followed up by the office force. No control is exercised over permits issued. The issuing of all revenue permits can be checked and efficiently audited by means of properly printed stationery. The revenue from hose supplies depends entirely upon an inspection that is admitted to be inadequate. The present rules of the Department covering the use of hydrants are frequently disregarded,, with a consequent loss of revenue and danger to the community. Unauthorized persons tampering with hydrants may make them useless when urgently needed for fire purposes. The recent ordinance compelling the metering of all automatic sprinkler systems will aid in preventing the unauthorized use of water. Plumbers should be required to obtain permits before connecting new supplies or making additions or alterations to existing fixtures. None but licensed plumbers should be allowed to do this work. There is no proper co-operation between the Building Inspector and the Water Department. If the Building Inspector reported on all plans lodged with him it would be possible to compel builders and plumbers to take out permits before beginning work. No permanent records are kept of violations created by plumbers. The revenue office is well equipped with time and labor saving devices, but they should be electrically driven instead of being operated by hand. Proper filing and storage vault facilities are needed. A central filing system should be established. The revenue ledgers should be protected from fire. WATER DEPARTMENT 85 WATER DEPARTMENT CRITICISMS AND CONSTRUCTIVE SUGGESTIONS ON ADMINISTRATION, MAINTENANCE, IN- SPECTION AND THE ASSESSMENT AND COLLECTION OF RATES. GENERAL ADMINISTRATION ORGANIZATION SHOULD BE CHANGED AND RESPONSIBILITY CENTRALIZED. The Water Department is governed by a Board of Water Commissioners consisting of four members, one from each of the four city districts. The Operation of the Department is under the direction of a Superintendent and Engineer, while its revenues are controlled by a Chief Clerk at City Hall. The Board of Water Commissioners is unnecessary. It should be abolished, and the Department put under the immediate jurisdiction of Council. It should be divided into two main divisions, the Bureau of Water Supply, to be managed by the Commissioner of Parks and Public Property, and the Bureau of Water Revenue, to be controlled by the Commissioner of Accounts and Finance. If the distinct functions of supplying water and of assessing charges for it were each under an administrative head, the public would know to whom it should look for results and whom to hold responsible for inefficiency. The technical direction of the Bureau of Water Supply should remain in the hands of the General Superintendent and En- gineer, who would be responsible to the Commissioner of Parks and Public Property. The immediate control over the Bureau of Water Revenues should be exercised by a Registrar, who would report to the Commissioner of Accounts and Finance. These two subordinate officials should be appointed on the recommendation of their Commissioners, subject to the approval of Council as a whole. APPOINTMENT OF PERSONNEL UNSATISFACTORY. While the Council should appoint all employees of the Water Department it should not appoint any one in the Bureau of Water Supply except on the recommendation of the Superintendent, after approval of the Commissioner responsible for the successful operation of the waterworks system. Similarly all employees in the Bureau of Water Revenue should be recommended by the Water Registrar and approved by the Commissioner of Accounts and Finance, before their appointment is submitted to Council. As no efficiency records of employees are kept, only those who come 86 WATER DEPARTMENT into personal contact with them can judge of their merit. The Superintendent or Registrar should have a voice in the promotion of efficient employees. In the past, promotions have not usually been based on merit. INCREASED STAFF NEEDED IN REVENUE OFFICE. It is not economical for the chief clerk to print and make out bills, as such work can be performed by a junior clerk at one-third the cost. The chief clerk should be freed from detailed work, and should be required to perform duties of a more responsible nature, some of which, like the con- trolling of the revenue ledgers,, are not now performed by any one. The appointment of a junior clerk is recommended. COMPLAINTS NOT PROPERLY RECORDED. The method of handling complaints is unsatisfactory. The only record now maintained is that the inspector to whose district the complaint refers, after making the inspection, makes a memorandum in a complaint diary stating the nature of the trouble. Unless the date of any particular complaint is known, it is difficult to trace it. It is a useless waste of time for a revenue inspector to investigate complaints involving leaks, waste, lack of pressure, dirty water, etc., which can be handled better through the Superintendent's office. Complete reports on all complaints should be made and kept in proper files in the clerk's office. Complainants should be duly notified of the result of the investigation at their request. A card record of complaints by loca- tions should also be kept to prevent having two investigations of one com- plaint made. All complaints referring to one piece of property should be recorded together. The clerk responsible for the complaint records should prepare a report at the end of each month showing, under proper classifica- tions, the number of the various complaints as follows: Complaints unsettled at the beginning of the month. Complaints received during the month. Complaints settled during the month. Complaints remaining unsettled at the. end of the month. The date of the oldest unsettled complaint should also be stated. Com- parison of the complaints of one year with another often proves valuable. Such a report would give the head of the Department sufficient information for judging whether complaints are being properly handled or allowances too freely made. COMPLETE RULES AND REGULATIONS SHOULD BE PRINTED. In the course of the survey, it has been found impossible to obtain a complete up-to-date list of all the rules and regulations of the Department affecting the supply of water and other matters incidental to it. It would be a step in the right direction to compile and issue a complete set of rules and regulations based on those already tried and found satisfactory in some of the larger cities. These should be printed in pamphlet form together with other facts and information which the consumer should know. The WATER DEPARTMENT 87 pamphlet which has already been prepared on the sources of supply should be supplemented by the rules and regulations of the Department, an article on waste of water and its cost to the consumer,, explanation as to reading of a water meter, a few facts relating to the proper sprinkling of lawns, and in- struction as to what to do in case of breaks in mains, lack of pressure and other emergencies. FINANCIAL ADMINISTRATION FINANCIAL METHODS NOT SOUND. Efficient management of the public waterworks should endeavor to charge only the cost of service rendered; not to take any advantage of the citizen to make a profit. The present consumers in Reading are not only paying for water approximately double the amount it costs, but are also giving to future generations the present profits. During the past ten years alone considerable over $1,000,000 has been taken from the profits from the water service, in addition to $500,000 provided by bonds, and used for the purchase of new equipment or for the acquisition or constuction of properties. This policy is undoubtedly doing much to retard Reading's progress. Consumers should at least challenge a procedure which takes away from them in one year the cost of improvements which should be spread over a period of at least thirty years, as it is largely an expenditure for the benefit of future generations. These financial methods are beginning to cause trouble. Bills amounting to many thousands of dollars are being held up, because the Board has no money to meet them and the sinking funds have also suffered from the lack of proper appropriations. APPROPRIATIONS LIMITED ONLY BY AMOUNT OF REVENUE. The expenditures of the Water Department for a fiscal period consist practically of the estimated revenues for that period. As the revenues are steadily increasing, this results in anything but economy. Such appropriations as are required for operation, maintenace, and fixed charges on bonds are set aside; after this the balance of the revenues is spent for construction work. Approximately $100,000 over and above the cost of operation and maintenance has been spent each year for the last ten years in the acquisition of properties not always urgently needed. While such acquisitions as additional land for watershed purposes may be desirable, they probably would not have been bought under ordinary circumstances. The financial system of this Department should follow exactly the same procedure as that of the other departments. The revenues it collects should be turned into the city treasury, and the expenses it must meet should be paid by appropriations based on the usual itemized estimates and subjected to the usual scrutinity. This method of keeping water revenues distinct from other city revenues should be avoided. It may be necessary for State legislation to be passed to make this effective. 88 WATER DEPARTMENT. WATER DEPARTMENT SHOULD NOT PROVIDE PARK APPROPRIATIONS. For many years the Councils have appropriated out of the water revenues, the sum of $2,500 a year for the maintenance of Mineral Spring Park, which was at one time Water Department property, but was trans- ferred to the Park Department in 1893. Funds for this purpose should be appropriated directly to the .Park Department, as it has sole jurisdiction over the maintenance of the property. WATER EXPENDITURES NOT CORRECTLY REPORTED NOR CLASSIFIED. The records of expenditures are kept on a disbursement basis and do not show all expenditures incurred. Last year over $10,000 of bills for materials supplied or services performed remaining unpaid at the end of the fiscal year were not included in the annual statement. This makes the cost of water reported still further inaccurate. The cost had already been understated, owing to the exclusion of the sinking fund instalments which, being in the nature of depreciation charges, should have been included as part of supplying water. There is no proper general ledger showing the assets and liabilities of the Department nor the operating expenses, maintenance charges, and fixed charges on bonded indebtedness. The Assistant Superintendent opens a book each year, primarily for the purpose of collecting data for the annual report, which contains accounts relating to labor and material, but no fixed assests or liability accounts. It is kept on single entry and is posted directly from bills and payrolls without any intermediate entry in a subsidiary journal. No audit of the books has ever been made. Expenditures are not properly classified. In several cases there is too much detail, in others not enough. A definite functional classification of expenditures should be prepared and installed. SINKING FUNDS NOT SCIENTIFICALLY MANAGED. It is evident that whoever was responsible for the establishment and maintenance of the present sinking funds had no practical knowledge of the customary methods of handling such important matters. The amount set aside each year for the redemption of the bonds has never been adequate, nor have such charges been equitably spread over the period between the issue and the maturity of each series of bonds. Moreover, the amounts that were appropriated have never been properly invested. Until the year 1912 they were merely deposited in banks and drew only 2 per cent, interest. On June 28, 1912, $100,000 was transferred from the deposit accounts and invested in city bonds; this was the first investment of sinking funds. On April 5, 1913, over $36,000 remained on deposit with banks uninvested, and drawing only 2 per cent, interest, when is could have been earning 4 per cent. If the sinking fund had been properly established and maintained, there would have been over $160,000 more with sinking funds than there was on April 5, 1913. One sinking fund alone, that provided for the bonds falling due July I, 1920, is over $100,000 short at this date. These deficits will have to be provided for out of future profits and will represent an excess charge against WATER DEPARTMENT 8q future years which would have been quite unnecessary had proper arrange- ments been made. WATER REVENUES NOT SHOWN ON DEPARTMENTAL RECORDS. There is no proper system of revenue ledger and journals which would disclose the Department's earnings. The change in the city's fiscal year would be a good time to begin having the water rates during each fiscal period properly accrued so as to show the actual revenues. The only figures now available are those relating to collections. It is essential that the water revenues should be adequately controlled both by efficient inspection and also by a system of internal checks. The Comptroller, in his new capacity as City Auditor, should, if possible, make a detailed audit of these revenues. OPERATION AND MAINTENANCE OF THE WATERWORKS SYSTEM WATERWORKS SYSTEM EFFICIENTLY MANAGED. The survey of the waterworks of the City of Reading, embracing the watershed, the filtration plants, the pumping stations, the store yards and the meter testing station, has disclosed, from an engineering standpoint, an exceptionally well managed undertaking. The General Superintendent deserves great credit for the excellent physical condition of the entire system. CHLORINATION NEEDED TO SUPPLEMENT FILTRATION. The water supply for the entire city is filtered, with the exception of the small supply derived from Hampden Spring and Hampden Drift; the latter is in no danger of becoming contaminated because of the inaccessibility of the region from which it comes. The process of filtration in use is the slow sand filter type, a type in which no chemicals are employed to destroy bacteria. The process,, which has many good points in its favor, has been successfully used all over the aq; jo spaau 9q; jaaui 'j3.\3Moq '}ou saop }t -Xj;unoD present situation in Reading. In view of the 489 cases of typhoid fever which have been reported in the past ten and one-half months, and of the presumptive evidence of B. Coli in the water obtained from Maiden Creek, both before and after filtration (as determined by laboratory test), it would be advisable to erect and operate a chlorinating plant for treating the water after it has passed through the filters. From the records available it is impossible to ascertain what proportion of the 489 typhoid cases, if any, can be attributed to polluted water. The recommendation for systematic treatment is urged as a preventative measure. The cost would be nominal. At the present time the Maiden Creek supply is, to a very limited degree, being treated with hypochlorite of lime. 90 WATER DEPARTMENT. The additional filter beds recently completed are excellent in design though of somewhat costly construction. MORE PROTECTION NEEDED FOR MAIDEN CREEK WATERSHED. The State Board of Health supervises and patrols all watersheds from which a supply of drinking water is drawn. The City Water Department also supervises and patrols Antietam Creek;, Bernhard Creek, Egelman Creek, Hampden Springs and Hampden Drift. It does not, however, patrol the Maiden Creek watershed, which is twenty times greater in area than all the other watersheds put together, and is the only one showing contamination of the water at the present time. The constant increase of population within this watershed makes closer supervision more and more necessary. It is recommended that the Department provide a sanitary patrol over the Maiden Creek watershed in addition to the patrol kept up by the State Board. COST OF PUMPING NOT ACCURATELY COMPUTED. According to the reports for the last five years, the cost of pumping per million gallons has decreased yearly. The report for 1912-1913 gives $4.87 as the cost per million gallons pumped, computed on a total pumpage of 3,119,035,444 gallons. No allowance, however, has been made for pump slippage in estimating the cost. Actual pumping costs are obtainable only when the correct amount of slippage is taken into consideration. Slippage tests are also valuable as a check on defective valves, leaky suction lines, etc. Tests made in Philadelphia some years ago showed a slippage of the pumps of the various stations varying from 8 per cent, to 56 per cent, with an average of 25 per cent, for all stations. Nearly 3,000 tons of bituminous coal at $2.75 per gross ton were consumed last year at the Maiden Creek Pumping Station. No analyses of this were made to determine its composition and heat value. A saving undoubtedly would have been effected had such analyses been made. SUGGESTIONS FOR IMPROVING DISTRIBUTION SYSTEM AND RECORDS. The need of tests to locate leaks in the mains is admitted, and the Department is buying the necessary apparatus for making them. This should prove a profitable investment, if the apparatus is used efficiently. A card record of all the services maintained by the Department,, would be useful, as would a card index of hydrants showing the location, type, cost of installation and maintenance, dates of inspection, etc. At the present time such records are kept in book form and are not readily available. Records of sub-surface conditions, disclosed when streets are opened for the laying or repairing of mains, would in time become very valuable if properly maintained and indexed by locations. WATER DEPARTMENT. 91 PER CAPITA CONSUMPTION TOO HIGH. In a city partially metered, as Reading is, the daily consumption per capita should not exceed 100 gallons a day. In Reading it is 141 gallons, and is steadily increasing. During the last year it increased six gallons per capita per day. Such conditions can be and must be changed. A systematic campaign against waste in New York City resulted in a reduction in the daily consumption per capita from 123 gallons to 95 gallons. In a city where all supplies are metered and where pitometer tests are made to locate leaks in the mains, the daily consumption per capita seldom exceeds 70 gallons per day. Reading cannot afford to neglect the conservation of all its resources. With the growth of the city the need for water will also increase. NEED FOR WASTE PREVENTION CAMPAIGN. No systematic campaign for preventing the waste of water has been conducted in Reading. This work might be carried on in connection with the house-to-house inspection now being made for revenue purposes. It will be necessary for more men to be assigned to this work, if an examina- tion of all fixtures for leaks and waste is to be made within a reasonable time. A strict "follow up" system should be installed in order to stop waste on consumers' premises. If the department were to exercise the powers it already possesses under ordinances of Councils, and were to fine consumers who waste water, it could soon adjust improper conditions while also increasing its revenues. Although the department has at present no apparatus for detecting leaks in mains, it has recently issued an order for the purchase of a pitometer outfit by which existing conditions may speedily be corrected. Competent authorities estimate that from 25 per cent, to 60 per cent, of all water supplied on an unmetered basis is wasted. Waste adds greatly to the cost of water, and makes the rates higher for every consumer. Every citizen who allows water to be wasted, places an unnecessary burden not only upon himself but upon every other consumer and delays the day when an abundant supply of pure water for every legitimate purpose can be furnished to every one at the lowest "possible cost. Wasted water would prove a source of both profit and accommodation if allowed to remain in the reservoirs or mains until needed. Few people realize that a leak as small as one thirty-second of an inch, at thirty pounds pressure, will waste 50,000 gallons of water a year, and a leak of one-sixteenth of an inch will waste about 208,000 gallons. Approximately 30 per cent, of the water distributed in Reading is un- accounted for, comparing the situation with average conditions in other cities. The consumers are paying 100 per cent, of the cost for 70 per cent. COMPLETE METERING OF SERVICE RECOMMENDED. Owing to constant adverse criticism from all sides and to the disap- proval of Councils, the Water Board became disheartened in its efforts to meter all services in the city. Nevertheless, the metering of all water 92 WATER DEPARTMENT. services is without doubt the most progressive step that any municipal water department can take. Only .ignorance of the benefits resulting from complete metering keeps Reading from taking this necessary step. At present practically nothing is being done to extend the installation and use of meters throughout the city. Efforts should be made to make the installa- tion of meters more popular. The reduction of charges for water supplied by meter would undoubtedly be a move in this direction. Experience has shown that the installation of meters saves money not only to the consumer but also to the city. Measurement by meter is the only equitable basis on which to supply water. The use of meters saves the supply by preventing waste, which not only reduces the cost of distribu- tion, but also postpones the necessity for costly extensions and additions to the distributing system and pumping plants. If the operating expenses were reduced, the department could afford to reduce rates still further. At the present time about 20 per cent, of the services are metered, although 33 1 /-, per cent, of the water consumed is supplied through meters. The number of meters now in service is slightly over four thousand, 2900 of which, or nearly three-fourths, have been installed since 1903. The majority of the meters are owned by the city, but the cost of install- ing them has to be paid by the consumer. This is as it should be, as it is the only plan under which a city can fully control metered services. The Superintendent is conducting endurance tests of meters and is preparing for the day when Reading will be as enlightened in the metering of supplies as are the more progressive cities. For some time past the department has based its purchases of meters on the actual results of endurance tests- (due allowance being made for repairs and unreliability), in order that the city may get the best meters at the lowest possible prices. METERS IN SERVICE WELL MAINTAINED. Although Reading has not installed meters to any great extent, those that have been installed show very good results. All meters set within the last fifteen years have been provided with test tees which enables them to be tested without removal from services. Very few cities have looked so far ahead in this regard. Meters are tested on an average of once in three years. The last general test of meters was made in 1907, when all meters in service over three years were tested. The following is the result of the test: 325 registered normal or slightly over 117 registered bet. 95 per cent, and 100 per cent, of water passing through 26 registered bet. 90 per cent, and 95 per cent, of water passing through 9 registered bet. 85 per cent, and 90 per cent, of water passing through 12 registered bet. 80 per cent, and 85 per cent, of water passing through 9 registered bet. 75 per cent, and 80 per cent, of water passing through 10 registered bet. 70 per cent, and 75 per cent, of water passing through 6 registered bet. 65 per cent, and 70 per cent, of water passing through 3 registered bet. 60 per cent, and 65 per cent, of water passing through WATER DEPARTMENT. 93 i registered bet. 55 per cent, and 60 per cent, of water passing through 1 registered bet. 50 per cent, and 55 per cent, of water passing through 1 registered only 47 per cent. 520 Total meters tested. The department has a well equipped meter repair shop which is doing good work at very reasonable cost. In some one place, preferably at the meter testing station, there should be a system of card records giving particulars of the installation of each meter, with all tests, changes, repairs, violations, etc., relative to it. PROTECT REVENUES BY SEALING METERS. The sealing of meters which effectively safeguards the revenue, has been entirely neglected. Any one can now take out a meter and replace it in service at any time without the knowledge of the department. Such conditions do not give proper control over revenues. Cases have been noted in Reading where meters have been entirely disconnected, a small piece of pipe inserted in the place of the meter and water used without the department being any the wiser. All meter connections should be sealed with the new kind of brass seal which does away with the necessity for carrying around the press which is necessary when lead seals are used. STOREHOUSE AND YARDS AMPLE AND WELL MAINTAINED. The storcyards controlled by the department, which are being enlarged, will be ample for all requirements for many years to come. The methods of storing and handling pipe and fittings are commendable, and excellent facilities for the transportation of material and supplies are provided. There is. however,, no continuous inventory of supplies on hand, and the accounting control over stores is somewhat weak. It is recommended that a system of stock record cards be installed, and the forms and reports be revised in accordance with the most approved methods. MATERIAL SHOULD BE INSPECTED AT FOUNDRIES. Inspection of materials at foundries and other places where they are manufactured is not being made at present, the practice having been abandoned because of the inefficiency or incompetency of inspectors in the past. The thorough inspection of all materials, which should include the inspection of ingredients and of parts often hidden in the completed article. can be made most effectively during the process of manufacture. It is recommended that the system of foundry inspection by competent men be re-established. If the amount of work is not extensive enough to warrant the employment of a permanent inspector, there are qualified agencies that make such inspections for a nominal fee. JOB COSTS SHOULD INCLUDE OVERHEAD CHARGES. The job cost records now kept show only the direct cost of material 94 WATER DEPARTMENT. and labor. The indirect expenses or overhead charges, recorded separately v under the heading of general maintenance charges, should be apportioned to each job in order that accurate costs may be obtained. Construction costs are now underestimated by the present methods. INSPECTION INSPECTION INADEQUATE AND UNSYSTEMATIC. The water revenues of a city depend to a very great extent upon effi- cient inspection. It is, therefore, almost incredible that no steps by the Water Department have been taken to make systematic inspections. Only by properly controlled inspection can water revenues be safe- guarded. In Reading, no one knows now whether all the revenue that is due is actually being charged and collected. It is physically impossible for the present small force of two men to make as many inspections as are needed. The staff must, therefore, be increased. This should not be looked upon as an additional expense, be- cause it is really an investment. Two or even three more inspectors doing efficient work could add several times their salaries to the revenues each year. The two inspectors in the Water Department are assisted by four additional men (three laborers and one caulker) in reading meters for five days a month. This would be unnecessary if the work were spread evenly throughout the month. Aside from meter reading, the inspection work now being performed by the department arises generally from com- plaints made by consumers. This work and the delivery of bills takes up about one-half of their time. For the other half they have no definite work and wander around ineffectively "looking for trouble." There is much necessary work that they might be doing in this spare time. For instance, they might check up the data given by plumbers in applying for new sup- plies. The particulars submitted by plumbers are now accepted without inspection, on the assumption that the plumbers would not make false statements because they would subject themselves to fines for so doing. There is no record of any such fines ever being collected from plumbers. Undoubtedly the department loses much revenue by these lax methods which efficient inspection would correct. INSPECTION DISTRICTS TOO LARGE AND WORK LACKS SUPER- VISION. By law the department is divided into four districts. Each inspector *ies to cover two districts, but owing to the great area to be covered it is almost impossible for him to do really efficient work. Each inspector, however,, is supposed to be responsible for all improper conditions in his district, although he cannot cover more than a small area within a limited time. There is no plan whatever for distributing the inspection work through- out the year. The meters are read at the end of each month; this creates a "peak-load" both for the inspectors and the office, when some four thou- sand bills have to be prepared and sent out in the course of two or three days. There is no reason why both the clerical and the inspection work WATER DEPARTMENT. 95 cannot be equalized by having a certain number of meters read each day. Steps should be taken to plan and properly apportion the inspection work. The inspectors are required to work eight hours per day and to re- spond to emergency calls at all other times. They report for duty at the office each morning, except when engaged on meter reading work. It is impossible, however, to trace or communicate with inspectors while at work in the field except when they call up the office by telephone. The route sheets used by many municipalities is an admirable method of keeping track of work in the field. There is no supervision whatever over inspection work, the whole matter being left entirely to the inspectors themselves. The two regular inspectors are provided by the city with a uniform and badge to prove their identity, but the extra men assigned each month for meter reading work are not so provided for. INSPECTION RECORDS NEED REVISION. From the present record it is not possible to ascertain whether the inspection work is being carried on efficiently or not. If the inspection is to be really valuable to the department, it will be necessary to install a complete system of inspection records. The inspectors are not provided with proper forms, which would facili- tate their work, and they do not report to the office on all matters for which some record is needed. No permanent record of inspection is kept; the reports the inspectors do turn in are not properly filed nor indexed in any way. The inspectors should be provided with small aluminum binders con- taining proper meter reading sheets and standard blank forms of the various notices, records and reports which they are called upon to make in the field. Such an arrangement would be more satisfactory and sanitary than the present mass of forms and papers now carried by each inspector. Inspectors are not now required to turn in proper reports showing the work performed by them during each day. This should be remedied as soon as possible. All daily reports should be summarized and tabulated in order to facilitate comparison of the work and the efficiency of inspectors. A monthly report of work each inspector has performed should be prepared from these records and submitted by the chief clerk to the Board of Water Commissioners. HOUSE TO HOUSE INSPECTION SHOULD BE EXPEDITED. It has been the policy of the department to begin a periodical house to house inspection about every five years. Such an inspection was begun in last February and is now being made. Previous inspections have been made by a corps of at least four men; the present examination is being made by one man only. It will take this man very many months to make a thorough inspection of the twenty-two thousand premises now supplied with water. As this work will result in an increase in revenue, it should be completed as soon as possible, so as to avoid further loss. 96 WATER DEPARTMENT. SUGGESTIONS FOR IMPROVING INSPECTION SERVICE. Although the inspectors supervise to some extent the use of fire hydrants, there is a feeling that proper steps are not being taken to remedy such violations as are brought to the notice of the department. It is very im- portant that fire hydrants should not be used except for specific purposes. The roof tanks on some of the higher buildings of the city are not in- spected now. While most of them are used only for fire purposes, a few are used in connection with the domestic services in the house. They should all be inspected to see whether they conform to the rules and regulations of the department as to automatic shut-offs and waste of water, and those used for domestic purposes should also be inspected as to cleanliness. The inspectors are well supplied with mechanical devices to help them in their work, all of which, except a pair of pliers, is supplied by the depart- ment. ASSESSMENT AND COLLECTION OF RATES SCHEDULE RATES HAVE NO SCIENTIFIC BASIS. The present schedule rates are based not upon the amount of water used but upon the opportunity to use it. Such a system discriminates against the careful user and encourages the wasteful one. The conscientious consumer, who would not waste water in any event, has a meter installed because he can save money by it> as he keeps his plumbing in good shape. The careless consumer naturally prefers the schedule rate basis, and con- tinues to waste water. This arrangement reduces only the revenue, and not the amount of water used. No gas or electric light undertaking would think for one moment of offering unlimited service on a flat rate basis, as the Water Department of Reading still continues to do. It is a generally accepted proposition in commercial circles that commodities should be paid for in proportion to the amount used. There seems to be but one solution of the present inequity of the charges for water, which is the installation of a meter on each and every service. This should be done gradually, not by making metered service compulsory but by reducing the rates for water supplied by meter, so that consumers will ask to have meters installed on their services. It cannot be too strongly urged that no further supplies should be in- stalled on a fiat rate basis. A start has to be made at some time. It is suggested that on and after January 1st, 1914, no new service should be supplied except through a meter. NO JUSTIFICATION FOR METER RATES ON SLIDING SCALE. The present sliding scale of meter rates has no relation to the cost of supplying the water, and there is consequently no justification for it. It costs Reading approximately 2 fi / 10 cents for each 100 cubic feet of water distributed. The present scale of meter charges ranging from 30 cents to 2*y i0 cents per 100 cubic feet is manifestly absurd. These are par- WATER DEPARTMENT. 97 ticularly unjust to small consumers. The city is now supplying water to large consumers at less than it costs, and charging small consumers twelve times what it costs. The only fair way of charging for water is to have all supplies metered and to charge a standard rate per ioo cubic feet to all consumers, large and small alike. A standard rate of 5 or 6 cents per ioo cubic feet would prob- ably produce sufficient revenue to cover all operating expenses, mainte- nance charges and fixed charges on bonds. MINIMUM RATE ON METERED SERVICE ADVISABLE. It is recommended that a minimum rate be established for water sup- plied through a meter. This minimum rate should be based on the size of the meter, and should also cover the "readiness to serve" cost incurred by the city whether the water is used or not. It is desirable that this minimum rate should be fixed high enough to prevent consumers from trying to econ- omize on water at the expense of cleanliness and the general health of the community. For the small meters a quarterly minimum rate of 75 cents to $1.00 would cover all reasonable use of water, while for the larger meters the amount would be proportionately higher. PUBLIC AND SEMI-PUBLIC USE OF WATER SHOULD BE PAID FOR. The water used by all city departments, schools, fire houses, etc., is now metered. It should be paid for at the standard rate out of the city taxes; each department should include in its budget an item covering the cost of the quantity of water it expects to use. These supplies, which are for the general benefit of the community, should be paid for by the tax- payers, not by the water rate payers. It may not be possible to obtain exact figures of water used for park purposes and through fire hydrants,, but there is no reason why such supplies cannot be fairly accurately estimated and paid for accordingly. The use of water for street flushing and sprinkling (except for house- holders who pay for water by meter measurement) is not under proper control. Fire companies do not pay for the water they use although they collect from owners for sprinkling the streets in front of their properties. The contractor who flushes the streets gets all water for nothing, is paid by the city for his services and also collects tribute from the property owners in some sections. The citizens would save money if these services were per- formed by 1 a city department. In any event, the Water Department should receive credit for the supply furnished for such purposes. Under clauses in the contracts, contractors for public works are frequently exempted from paying for water they use. This practice which is countenanced by the City Engineer, should be stopped. Organizations formed for semi-public purposes, such as charitable insti- tutions, hospitals, churches, parochial schools, homes and other institutions are practically exempted from paying for the water they use, as they are charged only one dollar a year. It would be more satisfactory to charge this class of consumers the standard rates on the actual quantity of water WATER DEPARTMENT. used. If the city, from charitable or other motives, desires to pay all or part of these bills, it should be done by an appropriation made to the or- ganizations for this purpose. DEPARTMENT SHOULD RECEIVE HYDRANT RENTALS. According to the last annual report of the department, there were 985 hydrants located at various points throughout the city. For these no revenue whatever is received from the city. The cost of the installation and of the water supplied to these hydrants, as well as the inspection and maintenance of them, is, therefore, borne by the water rate payers. Several of the large manufacturing plants, however, have their own artesian wells or other private sources of supply and take little or no water from the city. The owners of such properties contribute little or nothing to the department's revenue and are, therefore, obtaining fire protection without cost to themselves,, at the expense of the water rate payers. In order to remedy this condition it is recommended that the city pay to the Water Department, by means of an appropriation either directly or through the Fire Department, an annual rental sufficient to cover the cost of installation, maintenance and inspection for each and every hydrant in service, and also the cost of the water used. Only by these means can the charge for fire protection be placed where it properly belongs, namely, on the property protected. If this suggestion were carried out, the appro- priation would be included in the budget and would form a part of the tax rate on property valuations. This procedure would naturally help to reduce the price of water to consumers and would relieve them of a burden which they should not be called upon to bear. SUPPLIES FOR BUILDING PURPOSES NOT PROPERLY AS- SESSED. The present charges for water supplied for building purposes are based on the superficial area occupied by the building and by the number of stories it has. The charges should be based on the quantity of masonry, bricks, concrete, plaster,, etc., used in the construction of the building, in the setting or preparation of which water is used. The contractors' estimates should not be accepted blindly by the depart- ment as they are at present, nor should charges be collected after the building is completely erected. Such practices mean loss of revenue. These charges should be collected in advance, as in other cities, and should be based on estimated quantities figured from the original plans. After the building is completed a further inspection should be made, and if necessary, a supplementary charge may be collected to cover any deficiency in the original estimate or change in plans. Receipts in 4he form of permits should be issued for all collections for water used for building purposes. Such permits should be produced for the inspection of any employee of the department, or of the police, on demand. No charges have been made for boilers used by contractors in connec- tion with building operations, owing to the supposition that water for this purpose was included in the charge for building purposes. It will be readily WATER DEPARTMENT. 99 seen that water used for such boilers is additional to that used for building (purposes, and should be paid for accordingly. CHARGES FOR BATHS AND WATER CLOSETS NEED ADJUST- MENT. There seems to be no good or sufficient reason why the same rate should not be charged for every bath where there are more than one on the same premises. The reduction of 50 cents on the second bath does not seem to be warranted, especially as it is below the average rate charged in other cities. In the ten largest cities in the country, the average rate charged for water closets is $2.41 and for baths $2.45. It is suggested that an average rate of $2.50 be established for all baths and that the same amount be charged for all water closets in private residences, apartment houses or tenements, irrespective of the number there may be on any given premises. The present rate for water closets is $2.00 per annum. This is too low when it is considered that the bulk of water waste occurs in toilets in private dwellings and tenement houses, where quite a small leak may waste $10 to $12 worth of water a year. PENALTIES FOR NON-PAYMENT OF RATES ARE INCONSISTENT. The present system of adding a higher penalty to schedule rates than to meter rates is inequitable, especially as schedule rates are payable in ad- vance and meter rates are not until some months after the water has been used. By the present plan, a penalty of 5 per cent, is added to bills for schedule rate accounts if not paid before the 16th of January and of July, with a second penalty in case of continued default. To bills for meter rate accounts, a penalty of 5 per cent, is added to bills unpaid on the 15th of January, April, August and October, but no additional penalty is imposed. It is urged that the penalty be made the same on all rates, namely, that 5 pei cent, be added to all accounts remaining unpaid 14 days after they are due and payable, and that a further' 5 per cent, be added to those remaining unpaid one month after they are due and payable. In computing the penalty on all bills containing fractions of one dollar, the penalty should be imposed as though each fraction were a dollar. If payment is not received on or before the hour of closing on the date specified the penalty should be imposed. Failure to receive a bill should not entitle the owner or con- sumer to the remission of the penalty. A ruling should also be made to the effect that the water supply may be shut off where the charge remains unpaid ten days after it is payable, and that a charge of one dollar will be made 'and collected before the water is turned on again. RATES FOR VACANT PREMISES NOT PROPERLY REGULATED. The allowance to owners of vacant premises is not well regulated. Most cities make no such allowances as long as the water is turned on ready for use, on the ground that the water rate is a tax subject to regulations similar to those covering general taxes. It is suggested that no allowance be made in vacant premises supplied ioo WATER DEPARTMENT. on a flat rate basis unless notice in writing is given to the department to turn off the water. In this case a charge of $1.00 must be paid before the water is turned on again. In the case of premises supplied by meter, the minimum rate should be charged as long as the meter remains on the service. The minimum rate should be remitted only when written notice is given to the department to turn off the water and to remove the meter. Under such circumstances the consumer should pay the cost of resetting the meter when the service is again installed, plus the sum of $1.00 to cover the cost of the previous removal. CHARGES SHOULD BE MADE FOR ALL SERVICES RENDERED. There is no reason why a nominal charge should not be made for the turning on and shutting off of water,, for the inspection of plumbers' work, the installation of meters and similar services performed for consumers. Other cities make such charges and are able to collect enough money to cover the cost incurred. Services rendered for the benefit of individuals should be paid for by them and not by the water rate payer as a whole. SUPPLY SHOULD BE METERED WHEN HOSE IS USED. The use of hose for any purpose should be prohibited except where the water is supplied through a meter. Much water is being wasted now through the lack of such regulation. The present charge of $3.00 a year for this use is inadequate in many cases. COLLECTION OF RATES SHOULD BE SIMPLIFIED. Water rates are now payable directly to the City Treasurer at his office in city hall. This is an excellent procedure. In order to simplify the collec- tion of rates, it is suggested that the 18,000 schedule rates be made due and payable annually, in advance, on the first day of January in each year, instead of semi-annually. This would place water rates on the same basis as city taxes and would be a decided convenience to most property owners, who could thus pay their taxes and water rents at one time. It would, re- duce the work on schedule rates in the Treasurer's and the Water Clerk's offices by one-half, and also save half the time of inspectors in delivering bills. The collection of rates through the Treasurer should apply to all water rates. Overdue rates are often collected by inspectors. While the number and amount of rates so collected is small, it is not a good principle to allow inspectors to act as collectors. This field collection is quite unnecessary and should be dispensed with. Meter accounts should be due as rendered and should be payable on or before the first day of the following month. It should be distinctly understood that all charges made are subject to such addition or deduction as subsequent examination by the depart- ment may show is necessary. A comparative monthly report should be prepared with the object of keeping the Water Board posted as to the collections of water revenue. This WATER DEPARTMENT should be prepared by the Chief Clerk, countersigned by the Treasurer, and submitted to the Board at its first meeting after the close of each month. SCHEDULE RATE LEDGERS UNSATISFACTORY. The present schedule rate ledgers are large, cumbersome books con- taining forty-three accounts on each page. As the ledgers are ruled at present, they have to be written up every three years. This operation takes approximately two months. These ledgers show detailed particulars of the annual charge for each service. Many of these details have been entered in pencil, and most pages contain several alterations of figures. Whenever a rate is reduced, the particulars of the fixtures taken out are erased from the ledger. While the arrangement by street and house num- ber is fairly satisfactory, at times accounts have to be interlined in order to keep them in their proper location. It would be preferable to keep the account relating to each supply on a separate loose-leaf sheet. This need be only about one-third the size of the present ledger sheet, and would not have to be written up more frequently than once in twenty years. This would make it possible to keep a complete consecutive record of all the action taken with reference to any supply. Another very vital matter in regard to these ledgers is the total lack of control over the entries made in them. It would be an easy matter now for almost any adjustment or even complete elimination of a rate to be made with only a very slight chance of detection, as there is nothing to show why, when or by whom a charge was reduced. These ledgers should be put under proper control without delay. No attempt has ever been made to balance any of the ledgers. This should be done every month. METER REVENUE LEDGERS SHOULD BE IMPROVED. The meter revenue ledgers are not properly controlled, and cannot be in their present form. They have never been properly balanced. Loose leaf ledgers are used, but at least one-half of each sheet is wasted, and not all necessary particulars of each supply can be found on the sheets. REVENUE LEDGER ACCOUNTS SHOULD BE CODED. It is very essential that a code covering* consumers' accounts should be established. This code,, which can be readily compiled, should be used not only in connection with^the arrangements of accounts in the revenue led- gers, but also for the card index to services, general files, etc. It could also be used on all bills rendered to consumers. Some code is essential, if an adding machine is to be used. The form of code that is recommended would be capable of unlimited expansion, and could be worked in conjunction with any record which has been examined in the course of this survey. METERS READ AND ACCOUNTS RENDERED TOO FREQUENTLY. It is stated that all meters are read once each month. As there are over four thousand meters in service at present, this is quite a task. Such frequent reading is not considered necessary in progressive cities. Verv WXtfER DEPARTMENT few bills now rendered amount to more than one dollar. If the larger meters were read once each month and the small meters, on which the revenue is trifling, were read once each quarter, it would cut out practically two-thirds of the work connected with meter reading and with preparing and collecting meter accounts, and would also be more convenient to citi- zens. The time thus saved could be used to much better purpose. The form of meter reading sheets now in use is wrong in principle as it contains from one to thirty-six previous meter readings by means of which the inspector can,, if he so desires, estimate the quantity of water consumed without going near the premises where the meter is located. The average number of meters read by the inspectors (160 per day) appears very high and is not consistent with careful meter readings. As there is no supervision over the readings, except such check as the inspectors them- selves make on their work, considerable revenue is lost. Approximately eight to ten per cent, of the meters which the inspectors are required to read are reported "not read" for various reasons. This percentage is rather high. Inspectors so inclined can easily shirk their work under such conditions. The reports of meters "not read" should be closely followed up by the orifice force. A code should be prepared and established for the use of inspectors reporting defects they discover when inspecting meters. In New York City a list of over fifty things which may be wrong with a meter has been drawn up; all of which may directly affect the revenue ob- tained from metered supplies. ADJUSTMENT OF RATES NOT PROPERLY CONTROLLED. Allowances for over-charges are made on the report of inspectors. These reports, however, are not kept in such a manner that they can be referred to subsequently; and as the particulars of the supply on the books are erased when an allowance is made, it can readily be seen that practically no check can be obtained over adjustments that have once been passed. A permanent chronological record of adjustments should be maintained; instead of erasures being made on the ledgers, the particulars of the supply should be clearly corrected in red ink, with a reference to the adjustment authority, in which full particulars as to the reason for changes could be found. ISSUANCE OF PERMITS NOT UNDER PROPER CONTROL. No control is exercised over permits issued for cash, or otherwise. The issuing of all revenue permits should be checked by the use of properly printed stationer}'. Permits covering the use of water for building pur- poses are not issued until building operations are completed, when collection is often difficult. Tt is the exception rather than the rule for permits cover- ing the use of hose to be issued. The use of hose is allowed on nnmetered premises, and any revenue from such supplies depends entirely upon an inspection that is admitted to be inadequate. WATER DEPARTMENT. 103 UNAUTHORIZED USE OF FIRE HYDRANTS SHOULD BE STOPPED. Fire hydrants are often improperly used, and steps should be taken at once to regulate their use. Before a tire hydrant is used for/ any other purpose than to put out a tire, an application should be made and a permit granted. The permit should distinctly state the period during which the opening of the hydrant is to be allowed and the purpose for which the water is to be used. The police should be requested to oblige all persons found using hydrants to produce such a permit. The present rules of the department covering the use of hydrants are frequently disregarded, with a consequent loss of revenue and danger to the community. Unauthorized persons tampering with hydrants may make them useless when urgently needed for lire purposes. The recent ordinance compelling the metering of automatic sprinkler systems is an exceedingly good regulation, which has been found necessary in nearly all large cities, although it is opposed everywhere by boards of fire underwriters. It is one of the ways in which the unauthorized use of water can be prevented. LAN SUPERVISION OVER PLUMBERS' WORK. Plumbers are supposed to obtain permits before connecting fixtures. but they seldom comply with this rule. If they report at all. it is generally after the work is completed. There is no co-operation between the Building Inspector and the Water Department, although the former passes on all plans, both of new buildings and alterations to existing structures. If the Building Inspector reported on all plans lodged with him. it would be possible to compel builders and plumbers to take out permits before beginning work. The permit could be prepared in duplicate, by carbon process,, the De- partment retaining a duplicate copy to use in a subsequent inspection of the plumbers' work. Plumbers should be required to return their permits when work is completed, so that proper inspection can be made. By these means an effective control, which is not secured now, could be obtained over revenues from new supplies. No permanent records are kept of violations created by plumbers and discovered by department inspectors. Very flagrant cases are sometimes reported by the chief clerk to the Board, but even if tines are imposed at one meeting they are usually remitted at the next. Although plumbers are licensed and the rules of the Department impose fines for irregularities, no tines have -ever been collected. There is nothing to prevent a person who is not a licensed plumber from doing any work he likes in connection with his water service. It would be well to limit the installation or alteration of services to qualified or licensed plumbers. A card record should be kept of all licensed plumbers. All violations for which the plumber is responsible, which are discovered on inspection. ild be entered on his card. No further permits should be issued to him until all known violations for which he is responsible have been corrected. IQ4 WATER D EPARTMENT. EQUIPMENT OF REVENUE OFFICE NOT USED TO FULL ADVANTAGE. Although the office is well equipped with time and labor saving devices, all of them are operated by hand; they should be electrically driven. Although the adding machine was purchased two years ago, it apparantly has been used very little. Much of the revenue accounting work should be done on a machine of this kind. The addressograph machine should be used in payroll preparation and meter reading work, as well as for billing meter accounts. A machine for prebilling schedule rates would be a valuable addition to the office; it could also be used in the preparation of meter bills and for tax bills. Proper filing and storage vault facilities are needed. The revenue ledgers, at least, should be protected from fire. A central filing system should be established for all records relating to water revenues. The available filing equipment consists of a few sections of document drawer files — an obsolute type of filing. Weiler's Printing House <3 ^^ > 440 Court St., Reading, Pa. PAMPHLET NUMBER FIVE READING, PENNSYLVANIA Report on a Survey of the Department of Police Prepared for The Chamber of Commerce of Reading by the New York Bureau of Municipal Research DECEMBER, 1913 10 CENTS C O NTENTS Page Summary of Criticisms and Constructive Suggestions 111-120 Administration 121 Organization and Personnel 123 Rules and Regulations 128 Magistrate's Court : 131 Sanitary Condition of Cells 133 Distribution of Force 135 Traffic • 139 Appropriations 141 Appointments 141 Uniforms and Equipment 149 Promotions 151 Trials of Delinquent Policemen 153 Detectives 155 Records and Reports 161 Filing System 169 Annual Report 171 POLICE DEPARTMENT— SUMMARY. in POLICE DEPARTMENT SUMMARY OF CRITICISMS AND CONSTRUCTIVE SUGGESTIONS. ADMINISTRATION. The Police Department has been a part of the political system, con- trolled by partisan affiliations,, its appointments and policies influenced, its progress and efficiency impaired by political sentiment under the theory, r 'to the victor belongs the spoil." Efficiency in the management of the Police Department can never be attained so long as it is subject to political influence. The Mayor does not receive adequate information concerning the activities of the force, making intelligent direction and accountability im- possible. The Mayor should receive a consolidated daily report describing in detail the activities of the Police Department for each twenty-four hours. This information should be compiled in such a manner as to make comparison with previous periods possible. Considerable time which the Chief should be giving to the investigation of police cases and the direct management of his force he is compelled to devote to clerical duties because he is not provided with any clerical help. Council should provide for the appointment of a clerk who should be designated as Clerk of the Police Department, having charge of the bureau of criminal identification and property. As property clerk he should be required to furnish a bond. ORGANIZATION AND PERSONNEL. The efficiency of the police force has been destroyed because of the constant changing, not only of the force itself, but of the Chief as well. No Chief has had ample time to develop himself or his subordinates. It is recommended that the tenure of office for the Chief of Police be made permanent by ordinance and that he be removable only upon charges. The Chief is without sufficient power. While the Chief should be re- quired to fully report upon all his acts, to the Mayor and Council, he should have ample power in matters of routine police administration. The present number of sergeants is insufficient. With but six sergeants it is impossible to supervise the day patrol force. The appointment of two additional sergeants to supervise the day patrol is recommended. Neither the sergeants nor the patrolmen are required by rule to carry memorandum books nor to record the time and place they meet each other when on patrol. It is essential to good discipline that such a record be made. The offices occupied by the Police Department are inadequate. The Chief is without a telephone in his private office and there is insufficient room for the maintaining of proper records. POLICE DEPARTMENT— SUMMARY. The establishment of a properly equipped police station in the basement of the City Hall, in the room now used as a court room, is recommended. This would greatly add to the convenience of the public and make available an extra room for use as a record room. A telephone should be installed in the office of the Chief at once. The present procedure of arraigning prisoners is undesirable, in that the prisoners are not always arraigned before a superior officer when arrested; they are searched by the turnkey and no record of property taken from them is kept. All prisoners when arrested, should be arraigned before a desk sergeant and searched in his presence. Such property as is taken from the prisoner should be placed in an envelope, sealed in the presence of the prisoner and a record of same made. The Department does not maintain any property clerk's office and there is no method of handling property coming into the possession of the Police Department. Not even is there a record of such property. All such property should be turned over to the property clerk and care- fully preserved. An ordinance should be adopted providing for the record of such property, its destruction or sale, and disposition of moneys recovered from such sales. The City Scavenger is at present under the control of the Police De- partment. He should be transferred to the bureau of sanitation in the Department of Public Safety. It is the present custom for the desk sergeant to serve as conductor on the patrol wagon. This practice is not only undignified and not in the interest of good discipline, but wholly unnecessary. The rules should require the turnkey to accompany the patrol wagon when going for prisoners. RULES AND REGULATIONS. The present manual of rules and regulations does not provide specific ruels governing the discipline of the force, the records to be maintained and the manner of maintaining them and general directions for the force. It is recommended that Council promulgate a new set of rules and regulations, • and a number of amendments to the present rules, as well as new rules, are suggested throughout this report. The present method of issuing rules, special and general orders arid alarms for missing persons is inefficient. The Department should be equipped with a mimeograph or copying machine and all amendments to rules, general and special orders,, and alarms for missing persons containing their descrip- tions, should be prepared in the form of a daily bulletin to the force, and each member should receive a copy. The policemen do not carry any standard memorandum book. Efficiency in the reporting of matters concerning the conditions of their posts would be greatly increased by providing each policeman with a standard loose leaf memorandum book. The practice has been for policemen to report orally, conditions found on their posts. They should be required to make a separate written report upon each matter reported upon. Members of the Police Department are permitted to belong to political POLICE DEPARTMENT— SUMMARY. 113 organizations and there is no rule prohibiting their soliciting or contributing to campaign contributions. No member of the Police Department should be permitted to retain membership in any political organization and under penalty of dismissal he should be prohibited from soliciting or contributing to campaign funds. No provision is made for rewarding personal bravery. The establishment of a department honor medal as a permanent annual reward is recommended. MAGISTRATE'S COURT. Because there is no regular session of the Magistrate's Court on Sun- day, at times prisoners are detained in the City Hall for more than twenty- four hours. Not only is this unfair to the prisoners but it is a great incon- venience to the Police Department because of the lack of adequate equipment for the detaining of prisoners. Not only should a session of the Magistrate's Court be held each Sunday morning, but the aldermen should hold themselves in readiness and sit as magistrates at any time during the day should their services be required. Because of the inability of the Police Department to handle prisoners for more than a very short period, magistrates should refrain from com- mitting prisoners for twenty-four or forty-eight hours to the cells in the City Hall. Except when a prisoner is committed to jail, practically no records of the Magistrate's Court proceedings are maintained and no statements of wit- nesses reduced to writing.* A plan of procedure with regard to the arraignment of prisoners is recommended, which provides for the proper recording of information con- cerning persons arrested and arraigned before magistates. SANITARY CONDITION OF CELLS. The seven cells in the City Hall are of the ancient "torture dungeon'' type. They are unclean and unsanitary. Their reconstruction is recommended so as to provide for the admission of sunlight, sanitation, the installation of an electric light in each cell, modern plumbing and running water. No adequate provision for detaining women prisoners is made. They are detained in the same cell house with men. The only difference in the women's cell being that it is larger and has a wooden door. Provision should be made at once either to equip the basement with an entirely separate cell room for women prisoners or for their temporary detention in the county jail. DISTRIBUTION OF THE FORCE. The present method of patrol is antiquated and obsolete. It is unfair to the policeman and to the private citizen. It provides for no reserve * A card record which will partly correct this condition is now in course of installation. ii4 POLICE DEPARTMENT— SUMMARY. force. It leaves the city without a single patrolman on post for a total of four hours during each day. The tours of patrol are entirely too long. It is recommended that a new platoon system be provided at once, and that pending the installation of such a platoon system, arrangements be made to cover the beats during the hours they are at present unpatrolled. The present system of circular posts has long since been condemned by police experts, its chief objection being that it is difficult for the citizens as well as the sergeants to find the policemen on patrol. The establishment of the avenue and side street posts is recommended. The posts as laid out at present do not provide fon an equitable distribu- tion of the men, the business section of the city being over-policed while the residential streets are in need of additional policemen. A study of the posts with a view to re-apportioning the entire city is recommended and a plan for such study suggested. The present number of patrolmen is insufficient, but because of the absence of detailed crime records and the records of complaints, it is im- possible at -present to determine the actual number of patrolmen needed to increase the efficiency of the force. The appointing of two extra sergeants,, two detectives and two additional patrolmen (which increases would make the total force number one hundred men) is recommended. It is also suggested that a study of the crime con- ditions in the city be made in order' to determine the basis of the actual number of patrolmen needed. Such a study based upon the present records, would be impossible. There is need for additional red signal lamps throughout the city, and likewise for the redistribution of those at present in use. TRAFFIC. The extreme width of Penn Square makes the handling of pedestrians at crossings difficult because of the absence of safety zones. The establish- ment of safety zones for the use of persons desiring to board street cars, is recommended. The locations suggested are at the corners of Fourth & Penn, Fifth & Penn and Sixth & Penn Streets. Safety zones are com- paratively inexpensive and add greatly to the safety of persons crossing streets. APPROPRIATIONS. Because of the system of accounts maintained, it would be impossible to make an analysis of the cost of the police management, without an examination of all the vouchers in the Controller's office. Items of expense in connection with the management of the City Hall, which are not proper charges against the Police Department, are found listed in the appropria- tions for its management. The matter of budget appropriations is fully discussed in the report of the Finance Department and, therefore, not a part of this report. APPOINTMENTS. Appointments to Reading's Police Force have been controlled by politi- POLICE DEPARTMENT— SUMMARY. 115 Claris. Since 1890 the personnel of the Police Department has been com- pletely changed seven times. It should be unnecessary to point out the impossibility of securing police efficiency under such conditions as these. Men have been appointed to the Police Force in this city at an age which in other cities would compel their retirement. Applicants to the force receive no physical examination. The result is that the percentage of sickness among members of the Reading Police Force is -unusually high. To establish an efficient Police Force in this city a complete reorganiza- tion is necessary. Council should adopt an ordinance providing for the appointment of policemen under civil service rules and regulations. The ordinance should fix the minimum and maximum age of appointment and the minimum height of applicants. All applicants should be required to undergo a rigid physical and mental test,, such as is provided for in the civil service rules and regulations of New York, Chicago, Philadelphia and Pitts- burgh. The unusually high percentage of time lost due to sickness may in part be accounted for by the fact that the city pays full time to policemen when on sick leave. Except for time lost due to illness contracted in the actual performance of duty, the city should pay policemen only at the rate of half their salary when on sick leave. Policemen are not now required to serve a probationary period. The new ordinance providing for the reorganization of the Police Department should require all policemen to serve a probationary period of not less than six months. Policemen are given absolutely no training or instruction in police work. Because of the constant changing of the personnel of the department, they never even acquire training by virtue of continued service or experience. A training school for police service should be established at once. Such school should be in charge of an experienced police officer and should be used to determine fitness for police duty as well as for the instruction of recruits. No provision is made at present for the appointment of sub-patrolmen. Thus, the city is frequently without sufficient policemen on patrol because of vacations, sick leave and absences from the city of the regular patrolmen. The new ordinance should provide for the appointment of sub-patrolmen from a civil service list. UNIFORMS AND EQUIPMENT. The uniform now in use is both neat and serviceable. The policemen observed appeared tidy and well clad. The general appearance of the uniform would be improved by adding a belt to the present equipment for use, except during the summer months. The present form of mace does not comply with the standard night stick or mace used in most large cities and it is recommended that policemen on night turns be equipped with what is commonly termed a "night stick." The rules at present do not require policemen to carry revolvers and the result is that many of the policemen in this city are not so equipped. An examination of the revolvers carried, showed manv to be unfit for use u6 POLICE DEPARTMENT— SUMMARY. in police work. The revolver should be part of the regular equipment of policemen and should be supplied by the city. The chief should adopt a standard uniform make of revolver and no policeman should be permitted to go on duty without it. The present practice of carrying the pistol in the right hip pocket should be abandoned, and the regulations should require that the revolvers be carried in the left side of the blouse or coat so as to be available in emer- gencies. The present equipment is not now properly inspected at roll call, and no military discipline is maintained. It is recommended that the equipment of the patrol force be carefully and properly inspected at each outgoing roll call and that military discipline be maintained at all times. The policemen's equipment is not now properly, inspected at roll call, and no military discipline is maintained. It is recommended that the equip- ment of the patrol force be carefully and properly inspected at each outgoing roll call and that military discipline be maintained at all times. PROMOTIONS. Under the present system policemen are afforded no opportunity for promotion. Their officers are not always selected from the ranks, but are frequently appointed from outside the force. Thus, the Reading policeman is without any hope of reward beyond his salary check, and the chance of enthusiasm and ambition is destroyed. Promotions to the rank of sergeant and chief should only be made as a result of a competitive civil service examination open only to members of the force or to former policemen who have had not less than five years!' actual police service in this or some other city. No real efficiency records are maintained. If promotions are to be made pursuant to civil service examinations, as recommended, proper efficiency records should be installed at once. In giving efficiency ratings to members of the force, sergeants should consider carefully the ten points of service, referred to in this report. TRIALS OF DELINQUENT POLICEMEN. Except that the present law empowers the Mayor to drop from the rolls any member of the force, no provision is made for the manner in which charges against policemen should be heard. Thus, it is possible for men to be dropped for political reasons rather than for delinquency or incompetency. Having established the position of policeman as a permanent one during good behavior, Council should provide by ordinance for the method of re- moval of policemen upon charges. The procedure should include a proper service of the charges and opportunity for the defendant to be heard. The ordinance should include a detailed form of procedure to be followed in every trial. The trials of delinquent policemen should be public. The present forms of punishment which may be inflicted are dismissal, forfeiture of pay, reprimand or extra duty. The ordinance should also pro- vide for punishment for minor infractions of the rules by a demerit system. POLIC E DEPARTMENT— SUMMARY. 117 In cases where fines are imposed provision should be made so that not more than one-third of any policeman's salary will be deducted in any one month. DETECTIVES. Reading, with its population of almost a hundred thousand, is without any detectives. The two policemen performing duty in plain clothes have had no special training for detective work. The need for scientific training of detectives is now recognized the world over. As criminals specialize in their work and become more scientific in their methods of operation, it becomes more imperative. Thus, it is recommended that Council create a detective division of the Police Department, with at least four detectives, one of whom should be designated chief" detective. Provision should be made for their special training by permitting them to attend the detective school attached to the New York Police Department. They should also be permitted to visit the various large prisons to familiarize themselves with types of criminals. The detectives should receive a salary of not less than $1,200 a year. A separate set of records should be maintained by the detective division and a system installed which will provide accurate and detailed information concerning all of their activities and the cases coining under their super- vision. Although the department is equipped with a Bertillon measurement system and a partial finger-print outfit,, no one connected with the department has been given adequate instructions either in classifying finger prints or in taking Bertillon measurements of criminals. There is no bureau of criminal identification. It is recommended that a bureau of criminal identification be established at once and placed in charge of the clerk to the department whose appoint- ment is recommended in this report. The department should have a camera for photographing criminals and should maintain proper criminal records. The chief should be permitted to secure the service of the National Bureau of Criminal Indentification. The police have no control over pawnbrokers and second-hand dealers-. A proper control over both of these industries is essential to efficiency in the management of the detective division. Therefore, it is recommended that Council adopt an ordinance requiring all pawnbrokers and second-hand dealers to furnish the police with a daily list of property pledged with them. The same ordinance should provide for the creation of a "stop" ticket, and the installation of a "buzzer" in the telegraph bureau of the Police Depart- ment, connected with each of the four pawnbrokers. An ordinance requiring a daily report from all pawnbrokers became effective in January, 1914. RECORDS AND REPORTS. The records of the Police Department as maintained at present are inadequate. There are no rules governing the manner in which the records shall be prepared or filed. The present form of pay-roll in use is of an antiquated type. The prac- n8 POLICE DEPARTMENT— SUMMARY. tice of having the Police Department prepare, its own pay-roll should be abandoned and the department be required only to certify to the Bureau of Accounts the service time of the members. The sergeants' daily report now in use is incomplete and has resulted in policemen making oral reports instead of reporting in writing, thus preventing the proper filing of complaints and other information recorded thereon. It is recommended that the sergeants' daily report be abandoned and that each patrolman be required to make a separate written report upon accidents, fires, light outages, nuisances, etc.,, and all such matters as are observed by him while on patrol. Instead of the sergeants' daily report, the Mayor should receive a consolidated daily return which should be prepared on a printed form with proper headings. This report should contain a com- plete statement of the activities of the force for each twenty-four hours. It should give to the Mayor sufficient information to enable him to judge of the efficiency or inefficiency of the force. The Mayor at present receives a daily report from the two "plain clothes" men, which is incomplete and of no value. The rules should provide that detailed written reports upon all cases occurring during the regular hours, be prepared and filed with the Mayor as soon as they are brought to the attention of the chief. The daily, monthly and quarterly reports should contain tables showing by comparison the activities of the Police Department of the current period with that of the corresponding period of the preceding year. The magistrate's docket or pedigree book does not contain sufficient information concerning the pedigree of the prisoners and the history of each individual case. It is recommended that this book be abandoned and in its place a book to be known as the record of arrests be established, with proper printed headings to supply detailed information concerning the pedigree of each prisoner and the facts concerning the arrest. A card system to remedy these conditions will be installed early in February, 1914. The record now kept by the desk sergeants,, in which is entered without any uniform method, records of complaints and other matters occurring during the day, should be abandoned and a record to be known as the desk blotter should be established at once. The desk blotter should be a complete chronological record of the business conducted at the station. The rules of the department should specifically state what type of entries shall be made in this and all records, and what form shall be used in entering them. No special book is provided for the keeping of records of accidents, injured persons attended at the police station, dead bodies found and such other cases in which the police render aid. For purposes of maintaining accurate records of aided cases, it is recommended that a record be estab- lished to-be known as the record of aided cases and that all entries in this book and the method of making such entries be pursuant to specific rules and regulations. The use of the slate for recording prisoners' pedigrees should be aban- doned at once as the pedigree of the prisoners should be entered in the record of arrests in the presence of the prisoner. POLICE DEPARTMENT— SUMMARY. 119 Although much of the business of the Police Department is conducted over the telephone, no record of telephone messages is kept at the city hall, except signal box calls from policemen. It is, therefore, recommended that a record be established at once to be known as the telephone record, in which should be entered all incoming and outgoing telephone messages and sufficient information about them to make the record of value for future reference. The present method of recording citizens' complaints is most inefficient, particularly because most complaints are not recorded and those that are recorded are not properly entered. It is recommended that the present book us£d by the desk sergeant for this purpose be abandoned and that the large citizens' complaint book in which are printed forms be immediately put into service and used for records of complaints other than those requiring detective attention, which should be entered in the detectives' complaint book referred to elsewhere. Although the most convenient type of record is the card record system, the department does not maintain any such system with the exception of a card record of the patrol force and their assignment to beats. It is recommended that a card record system be established which will include a card record of arrests, aided cases, arrests for intoxication and lodgers. All of these cards should be of different colors and indexed alpha- betically. No adequate record of repairs and supplies is at present maintained. In fact so far as the Police Department is concerned it does not maintain any record of repairs and supplies. A specially printed record book contain- ing requisition forms should be procured at once, and the Police Depart- ment should have adequate record not only of material and supplies ordered, but also those received. The department maintains absolutely no records which are of any value, concerning the individual members of the force. Not even is there a record of the previous occupation of the members of the force. Individual records of members of the force should be established at once. The department does not require members of the force to file their photographs with the chief. The department should have a recent photo- graph of every member of the force for purposes of identification. An examination of the records in order to determine the causes of illness and the physical condition of the force could not be made with any degree of accuracy because of the absence of health records. It is, therefore, recom- mended that a card record be established to be known as the health record, and upon which will be noted detailed information concerning illnesses of members of the force, each member having a separate card. Although sergeants are supposed to be held responsible for the condi- tions in their districts, they merely report specific matters. They are not required to furnish any definite list of suspected places or to file a monthly report upon licensed places in their districts. It is recommended that each sergeant be required to file a monthly re- port showing that he has inspected or caused to be inspected during the month every licensed premises in his district. He should likewise file a monthly report of suspected places. If there are none in his district, he should be required to certify to that in writing and over his signature. POLICE DEPARTMENT— SUMMARY. FILING SYSTEM. The Department of Police has but one filing cabinet for its records. In this are kept practically all of the records of the department with the excep- tion of such matters as are filed in the office of the Mayor. It is recommended that a filing system be installed at once and that it be in charge of the clerk whose appointment is recommended elsewhere, and that the rules definitely prescribe the procedure with regard to the handling of mail and the method of handling complaints and the filing of same. ANNUAL REPORT. The present form of annual report is of no administrative value whatever. It contains no comparative tables. No mention of crimes for which there were no arrests, is made. No mention of complaints received, is made. It is recommended that for the information of Council and the citizens, a detailed annual report be issued and that it contain sufficient information to be of value in determining the efficiency or inefficiency of the force and the crime conditions of the city. POLICE DEPARTMENT 121 POLICE DEPARTMENT CRITICISMS AND CONSTRUCTIVE SUGGESTIONS ON ORGANIZATION, PERSONNEL, REGULATIONS, APPOINTMENTS AND GENERAL ADMINISTRATION. ADMINISTRATION MAYOR IS ADMINISTRATIVE HEAD. The Mayor is the administrative head of the Police Department, and as such has control over its management. In no branch of municipal government does efficiency depend so much upon security of tenure, experience based upon continued service, and free- dom from political influence,, as in the Police Department. Although Reading's Police Department has been a part of the political system controlled by partisan affiliations, Jts appointments and policies influ- enced, its progress and efficiency impaired by political sentiment under the theory "to the victor belongs the spoil," it is apparent that the policy of the present Mayor in his management of the police, indicates his willingness and desire to remove the police from the control of political influence. While police experts differ widely upon many points of police administra- tion, they are agreed that efficiency in police management can never be attained as long as it is subject to political influence. The present administration can place the department upon an efficient basis without any large expenditure of money or radical change in the plan of administration. ACCURATE INFORMATION NECESSARY TO EFFICIENT ADMINISTRATION. While the Mayor, pursuant to law, is the administrative head of the force, he is nevertheless responsible to the Council. To maintain proper control over the activities of the Police Force, it is necessary that the Council as well as the Mayor, receive current, concise, accurate and detailed informa- tion concerning the activities of the Police Force. Although an examination of the records of the department shows that the present Mayor has caused to be established a number of records which had not been in use prior to his administration, the kind of information he receives at present and the manner in which it is compiled and submitted does not enable him to direct the activities of the force intelligently. POLICE DEPARTMENT KIND OF INFORMATION COUNCIL NEEDS. To enable the Mayor and Council to maintain adequate control over the department, they should receive from the chief reports in tabular form showing whether — i — Crime is on the increase or decrease; 2 — The number of arrests exceeds that of preceding years; 3 — The number of convictions exceeds that of previous years; 4 — The number of complaints received exceeds that of previous years; 5 — Complaints received are being properly investigated; 6 — Investigations are conducted intelligently; 7 — The cell house is in good sanitary condition; 8 — There are many or few disorderly houses or houses of prostitution in the city; 9 — There are many or few gambling houses or pool rooms in operation; io — Juvenile delinquency is on the increase or decrease; ii — There is much or little sickness among the members of the force; 12 — Supplies are being properly distributed and honestly accounted for; 13 — Complaints against members of the force for delinquencies are many or few. A study of the records of the department as at present maintained would not reveal much of this information. The success or failure of police management in cities depends wholly upon the head of the department being properly and honestly advised as to all the activities of the department, by means of concise and accurate reports. The fact that he Mayor not only has charge of the Bureau of Police with its necessarily large amount of administrative detail, but is also re- sponsible for the supervision of all the city departments, makes the submis- sion of intelligent consolidated reports all the more important. NO ADEQUATE CLERICAL STAFF FOR CHIEF. Conceding the necessity of such reports,, it is necessary that clerical help be provided to make detailed compilations. At present the chief of the department performs most of the clerical work. The clerk to the Police Department is also clerk to the Mayor. However, the mayor's office has the prior claim on this clerk's services, and since, in addition to his other duties, he also acts as stenographer to the Mayor, he has not as much time to give to the Police Department as is necessary to maintain a proper system of records. Much time which the chief should be devoting to the direct management of his force is taken up by clerical work. Therefore, since the chief is provided with no other clerical assistant, it is. recommended that the Council establish the position of Clerk to the Police Department, and by thus relieving the Chief of Police from the routine, detailed clerical work, leave him free to carry on his police investi- gations. The Mayor's secretary could then give his entire time to the mayor's office. This change would not cause the Mayor to lose control over the Police Department,, because by the establishment of a proper report system, bringing to his desk current information concerning the force, his control will be strengthened. POLICE DEPARTMENT. 123 OTHER FUNCTIONS OF CLERK. In addition to serving as clerk to the department, the new appointee should act as property clerk and have charge of the bureau of criminal identification, both of which functions will be discussed elsewhere in this report. ORGANIZATION AND PERSONNEL The organization of the Police Department is as follows: 1 Chief; 6 Sergeants; 76 Patrolmen (2 assigned to duty in plain clothes); 3 Turnkeys; 3 Telephone Operators; 1 Matron; 1 Scavenger; 3 Patrol Wagon Drivers. Of the 76 patrolmen, 20 perform day duty; 54 perform night duty; two are assigned to duty in plain clothes; one is assigned to motorcycle duty, and six to mounted duty. Of the six sergeants, four are assigned to the supervision of the night patrol force; one to night desk duty, designated assistant chief, and one to day desk duty. CHIEF IS THE EXECUTIVE HEAD OF THE DEPARTMENT. The department is organized with the Chief of Police as the executive head. He was appointed by the Mayor and serves at the will of the Mayor. Under the new law, however, the chief must be selected by Council and must have come from the uniformed force. The department has had eight chiefs since 1890. With each change in the city administration there has been a change of police chief. The present chief has been in office since December, 191 1. Prior to his appointment as chief of the department he was engaged as an iron moulder. Although he has never served as a policeman, and frankly admits that he was totally unfamiliar with police procedure when appointed, it is interesting to note that practically all the records that are of any value he has established since taking office; that the present type of uniform which is of an approved type, was selected by him; and that, although the discipline of the department is scarcely up to the standard,, it is declared to be a vast improvement over the discipline maintained under previous chiefs. PERMANENT TENURE FOR CHIEF RECOMMENDED. Next in importance to the freedom of a Police Department from politics and political influence and interference, is the security of tenure of its mem- bers and its head. The policy of a Police Department and its direct manage- ment is in the hands of the chief of the department. While it is true that the administrative head, namely, the Mayor, creates a definite policy with regard to the enforcement of the law, it is nevertheless true that the practical 124 POLICE DEPARTMENT working out of the policy is under the control of the chief. Thus it follows that in order to have good discipline in a uniformed body, the rank and file must respect and have confidence in their superior officer. The Chief of Police can never secure the absolute confidence of his men and their continued respect to a degree productive of good discipline and efficiency if the rank and file are conscious of the fact that he is to remain in command only for a short period and is dependent for his position upon politics. Policing a city means the suppression of vice in all its forms and keeping a city free of thieves and vagrants — in a word, protecting the life and prop- erty of the citizens. Thus it will be seen that it is all important that this function of government should be carried on in the most efficient manner possible, and that to do this it must be placed on a scientific basis. This can be achieved only if the commanding officer is himself familiar with the science of police. Therefore, it naturally follows that in order for the head of the force to become scientific in his management of those under his com- mand and in the working out of the police problem of the city, he must be given ample time to develop himself as well as his subordinates. Although it is important that the man selected as the head of the police be an experienced policeman, it is vastly more important that, after having been selected, he shall be secure in his place during good behavior. Therefore, it is recommended that the Council adopt an ordinance pro- viding for the permanent tenure of office for the Chief of Police. Such ordinance should require that the chief, before being removed, should be served with charges, granted a specific time in which to answer,, and given a trial before the Council. CHIEF SHOULD HAVE MORE POWER. The chief possesses only such power as the Mayor and Council may delegate to him. Under the present administration all his acts, before becoming official, must receive the approval of the Mayor. While in all matters involving the general policy of the department, the chief should confer with the Mayor, and while all appointments, promo- tions and transfers of superior officers should be made by the Mayor and Council upon the recommendation of the chief, in matters of routine, such as the assignment of sergeants and patrolmen and their transfers from beat to beat,, the chief should have full power to act without consulting either the Mayor or Council. He should, of course, furnish the Mayor with a re- port stating that such transfers or assignments have been made, and the reason therefor. NUMBER OF SERGEANTS INSUFFICIENT. There are at present six sergeants. Four of these sergeants supervise the night force. The other two are desk sergeants. For purposes of admin- istration the city is divided into four districts. A sergeant has charge of each district. The function of the four patrol sergeants is to supervise the work of the patrol force in their respective districts. They are held respon- sible for all conditions existing in the districts, and report each day in writing as to the activities of the patrol force under their command. POLICE DEPARTMENT 125 While the patrol is supervised during the night hours, there is no super- vision during the day, except through the patrol telephone boxes. Efficient police work means efficient patrolling, and efficient patrolling can only be had through efficient supervision of patrol. While four sergeants are* necessary to supervise the night patrol, and it is equally necessary that there be a sergeant on duty at the city during each of the twenty-four hours, it is also absolutely necessary that the patrol force be supervised during the day. Therefore,, the present number of sergeants is not sufficient, and it is recommended that two additional sergeants be appointed. The functions of these two sergeans should be to supervise patrol. The appointment of these two sergeants would greatly improve the day patrol service. SERGEANTvS SHOULD CARRY MEMORANDUM BOOKS. L T nder the present system, neither sergeants nor patrolmen are required to carry memorandum books nor to make a record of the time and place they meet each other on their rounds. It is recommended that the rules of the department be amended so as to remedy these defects. The kind of memor- andum book to be used will be discussed elsewhere in this report. REASONS FOR TRANSFERS NOT RECORDED. When policemen are transferred from beat to beat or from platoon to platoon, no record is made of the reason for such transfer. It is essential to discipline and efficiency that the Mayor or Council or the chief hie with the original order of transfer or assignment, the reason for such acts. This should be made a permanent record in justice to the officer transferred, as well as for other reasons, so that in the future if a member of the force desires a transfer, the succeeding head of the force will be able to determine the advisability of granting his request by referring to the original order of transfer and there learning the reason therefor. f MUTUAL TRANSFERS SHOULD BE ENCOURAGED. Transfers should be made only upon application, with the approval of the sergeant of the district to which the applicant is attached and with the approval of the chief, except when made for disciplinary purposes. The system of mutual transfers should be encouraged. That is, if a patrolman on clay beat desires to be transferred to a night beat and a patrolman on the night beat is willing to exchange places, when such a transfer would not interfere with the service, it should be granted. There should be kept a file of applications for transfers, arranged in order of their receipt, and no transfers should be made upon application except from this list. It would be wise to designate certain periods in the year in winch trans- fers would be made, these periods to be fixed by the chief. OFFICE OF CHIEF SHOULD BE RE-ARRANGED. While the room now occupied as an office by the 1 chief of the depart- ment is wholly inadequate, the room immediately adjoining his office should be re-arranged. 126 POLICE DEPARTMENT. This room is now used by the desk sergeant. The telephone should be removed from this room and placed in the office of the chief, the chief's office now being without any telephone. When the chief desires to telephone on police business it is necessary for him to use the telephone in the adjoin- ing room which is open to the public and affords him no privacy. The desk sergeant and his equipment should be transferred to the room in the basement of the building, now occupied by the turnkey and used as a court room. This change would make available the room adjoining the office of the chief for use as a filing room and a reception office for persons visiting the chief on police business. PRISONERS SHOULD BE ARRAIGNED BEFORE SERGEANT. By equipping the room in the basement as a police station it will be possible to abolish the present system of having prisoners placed in the cell without having first been arraigned before a superior officer. The present procedure is to bring the prisoner in through the basement to the cell house where the turnkey searches him and takes his pedigree. Thus a superior officer does not always come in contact with the prisoners. It must neces- sarily follow that unwarranted arrests are sometimes made and the prisoner is deprived of an opportunity to appeal or state his case to any officer in authority. • PRISONERS SHOULD BE SEARCHED IN FRONT OF SERGEANT. Prisoners are searched by the turnkey, but no record of the property taken from them is made. Such property is put into large match boxes and placed in the safe. No property envelopes are provided. When the prisoner's case is disposed of in court the property is returned to him by the turnkey, but no receipt is required of the prisoner. The present practice is to take from the prisoner only such property as could be used by him in an attempt to do himself bodily harm. The exception to this rule,, however, is in cases of intoxication and larceny when all property is taken from the prisoner. The rules should provide the following procedure for the searching of prisoners : i — All prisoners should be searched in the presence of the desk sergeant. 2— All property, including lead pencils and money, should be taken from the prisoner. This prevents prisoners from being robbed by other prisoners while in the same cell, while asleep, or prisoners from alleging that they were robbed while asleep. 3— The prisoner's property should be placed in an envelope, sealed in his presence and the seal initialed by the prisoner himself, the turn- key and the desk sergeant. When the property is returned to the prisoner, he should be required to sign for same in the arrest blotter where a record of the property taken from him should be made at the time of arraignment. MARKS OF VIOLENCE ON PRISONER SHOULD BE NOTED ON ARREST BLOTTER. If a prisoner, when arraigned before the desk sergeant, shows any marks POLICE DEPARTMENT of violence, these marks should be described in the record of arrests together with the pedigree of the prisoner. The desk sergeants should be held responsible for the condition of all prisoners while in their custody and therefore should personally note the physical condition of prisoners brought into the station so as to protect themselves against the possibility of a prisoner making a charge that he was assaulted while in the custody of the police. NO PROVISION MADE FOR THE RECORDING AND DISPOSAL OF UNCLAIMED PROPERTY. There is at present no regularly organized property clerk's office and no proper method of handling property coming in to the possession of the Police Department. At present there is a large drawer full of miscellaneous unclaimed property of which there is no record in the Department of Police and no law governing the disposition of such property. There is also a large drawer full of revolvers which have been taken from prisoners and of which there is no record maintained. It is therefore recommended that the Council designate the additional clerk suggested elsewhere in this report as property clerk; that he be required to furnish a bond to the city and that all property coming into possession of the Police Department be placed in his charge.. He should maintain a vault or safe for the care of such property, and a record book with proper headings under which to record the date of receipt of property, the facts as to how same came into possession o*f the police, by whom turned over to him and an appraisal of the value of the property, the date property was disposed of, the manner deposed of and the amount received for same if property was disposed of by sale. There should also be a column in this book to provide for the signature of the person to whom property is turned over. The property clerk should be provided with a printed receipt form, the same to be bound in a book and numbered. Each lot of property stored should be given the same lot number as the number appearing upon the receipt. The rules should provide that no property shall be turned over by the property clerk except upon the written order of the department chief. The ordinance should provide that all property, except such property as is being held for evidence in a pending case, shall be sold at public auction after one year, unless claimed by the owner within that time. The ordinance should also provide that articles found upon the streets and in public places and turned over to the police, shall be advertised in one or more daily papers immediately upon their receipt by the police. SCAVENGER SHOULD NOT BE PART OF POLICE ORGANIZATION. The City Scavenger, whose functions are to gather up unlicensed dogs and to remove from the streets all dead animals, should not be a part of the Police Organization. He should be transferred by the Council to the Bureau of Sanitation in the Department of Public Safety proposed in this report, and should report to the persons responsible for the supervision of the work of this bureau. 128 POLICE DEPARTMENT DESK SERGEANT REQUIRED TO ACCOMPANY PATROL WAGON. According to the present practice the desk sergeant serves as conductor of the patrol wagon. When a call comes in for the patrol wagon, the desk sergeant is required to leave his desk, go to the patrol wagon stable and accompany the wagon on the call. Thus the City Hall is frequently without a desk sergeant during the night. It is wholly unnecessary for the desk sergeant to serve as conductor on the patrol wagon. This practice should be abandoned and the rules should provide that immediately upon receipt of a call, the patrol wagon should drive to the side entrance of the City Hall, and the turnkey should be required to accompany the wagon. CHANGES RECOMMENDED IN TELEPHONE SERVICE. Under the present conditions, if a policeman desires to talk to the desk sergeant, he must use an outside telephone, or, if he uses the patrol box telephone it is necessary for the sergeant to leave his desk and go into the telegraph room in order to receive the call. When the sergeant's office is removed to the basement this will .make it impossible for him to answer box calls without interfering with his other duties. It is, therefore, recommended that the sergeant's office in the basement be equipped with a telephone con- nected with the switchboard by an additional exchange so as to make it possible to connect patrol box calls with the desk sergeant. This would also relieve the telegraph operator of considerable book-keeping since messages concerning police work would be given directly to the sergeants who should be required to keep their own records. » ABSOLUTE QUIET NECESSARY IN OPERATOR'S ROOM. The fire alarm telegraph board and the police board are located in the same room. It is very important that absolute quiet be maintained in this room and that the operators be afforded the necessary privacy. Therefore, it is recommended that the rules prohibit any person, even members of the force, from entering this room except upon business which would make their presence necessary. In order to enforce this rule it will be necessary to traijsfer the key to the gasoline tank to some person other than the telegraph operator, the present practice being for the chauffeurs desiring gasoline to procure the key of the tank from the operator and deposit with him a receipt for gasoline taken. This is in no sense a function of the operator and his attention is necessarily diverted from his board because of his duty. RULES AND REGULATIONS The rules and regulations governing the Police Department, now in force, were adopted in 1906. The manual is incomplete in that it does not provide sufficient specific rules governing the discipline of the force, the records to be maintained and the manner of maintaining them, and general directions to the force. POLICE DEPARTMENT 129 It is recommended that the Council promulgate a new set of rules and regulations, and that the suggested rules contained in this report be made a part of the new rules and regulations. PRESENT METHOD OF ISSUING RULES INSUFFICIENT. The present method of issuing new rules, general orders and alarms for missing persons,, is to read them to the patrol force at each outgoing roll call. The patrolmen are not required to make notes either of the orders or the descriptions of missing and wanted persons. If policemen are to be expected to comply with the rules of the Department, nothing is more important than that they know the rules. They cannot be expected to know the rules under the present system, nor can they be expected to remember descriptions of persons wanted. Thus, it serves no purpose to read the rules or general alarms to the force. A practical test of the ability of the force to remember descriptions from simply hearing them read, was made. Within one minute after the description of a man wanted had been read to the night platoon,, the police- men were asked to repeat a single item of description contained in the alarm read and not one policeman present was able to repeat any of the descriptive marks concerning the missing man. This is not at all unusual. Similar tests have been conducted in many cities and in almost every instance results have been the same. It is, therefore, suggested that all orders, special and general, and general alarms for missing and wanted persons be mimeo- graphed on a heavy coated paper in the form of a daily bulletin, and a copy furnished each member of the force. When persons called for on previous alarms are arrested,, notice should be given to all members of the force, so that they may remove the name from their list. These daily bulletins should also include a notice of commendation of particular officers for making good arrests, and punishment meted out to delinquent policemen. POLICEMEN SHOULD BE REQUIRED TO CARRY MEMORANDUM BOOKS. While the present rules of the Department require that policemen shall report sidewalk obstructions, streets and gutters in need of cleaning, etc., they are not required to carry memorandum books in which to note such conditions. The practice has been for the patrolmen to report orally to the district sergeant. This system has been proved to be inefficient. As suggested previously in this report, the Department should supply the patrolmen with a standard memorandum book with perforated sheets, the sheets to be in pad form so arranged as to be easily placed in the leather cover. The rules should provide a regular form, so that each patrol- man will have a model to guide him in making his report. All matters coming to the attention of the patrol force which should be called to the attention of the chief,, or any city department, should be entered in the memorandum book, on separate sheets, signed by the patrolman and delivered to the sergeant on patrol. Failure to carry a memorandum book should constitute a violation of the rules. i 3 o POLICE DEPARTMENT EFFICIENT PATROL MEANS EFFICIENT INSPECTION. The failure of the Department to require policemen to carry memoran- dum books has undoubtedly resulted in other city bureaus losing the valuable services of the patrol force as inspectors. A patrolman is required to patrol his beat continuously for more than ten hours. It is the experience of police experts that much of the trouble into which policemen get in cities, is due to the leisure time while on patrol. The patrol force should be made to understand, and the rules should be very clear upon the subject, that their duty is not only to walk back and forth on their posts and make arrests for violations of the laws, but that they must do more than that — they must cooperate with all the city departments to carefully observing and reporting upon conditions on their posts, requiring the attention of the respective departments having jurisdiction. In some cities in this country and in almost all the cities in Europe, policemen are required to make inspections for the various departments, such as health, fire and buildings. The Mayor should hold each patrolman directly responsible for all the conditions on his post. The efficiency of the patrol force in this direction should not go unrewarded but should be carefully considered in rating their monthly efficiency cards. Much of the inspection work now being performed by other city departments could be reduced if the policemen who have plenty of leisure time while on patrol, were efficient in observing conditions and reporting upon them. POLICEMEN PERMITTED TO BELONG TO POLITICAL ORGANIZATIONS. Rule 22 of the present manual reads as follows: "RIGHT TO ELECTIVE FRANCHISE. "The right of every member of the police force to entertain political or partisan opinions, and to express the same when such ex- pression does not interfere with the discharge of his official duties, and his right to the elective franchise, will be deemed sacred and inviolate." Rules 23 and 24 prohibit members of the Department from serving as delegates to a political convention or attending any such convention, or soliciting votes at any primary or regular election; but no rule of the Department prohibits policemen from belonging to political organizations nor from contributing to campaign funds nor soliciting contributions to campaign funds. An examination of the records reveals the fact that it is a recognized custom for the policemen to contribute as a body to the political campaign fund of the dominant party. One list observed showed the receipt by a campaign committee of a contribution from each member of the force, in- cluding the Chief of the Department. It is recommended that all members of the Police Department be prohibited from membership in any political organization, from soliciting contributions for political campaign funds and from giving campaign con- tributions. It is now conceded by all experts that, in the interest of efficiency POLICE DEPARTMENT 131 the police force must be kept out of politics. To do this the policeman must remain beyond even the environment of the political organization. He must be kept free of obligation to politicians and he must be prevented from serving politicians. PERSONAL BRAVERY NOT REWARDED. Members of the force performing distinguished acts of bravery receive no departmental recognition. Moral and physical courage may be said to be the chief qualifications of an efficient policeman. Each is equally im- portant. Moral cowardice, however, is more dangerous than physical cowardice. Yet it is all important in developing efficiency in police work that policemen possess physical courage in the highest degree. There are times in the life of every policeman when he is called upon to protect the lives of others. No meritorius act of bravery involving the risk of life in its performance should go unrewarded. MEDALS FOR BRAVERY SHOULD BE AWARDED. Distinguished acts for bravery should receive special departmental recognition and for purposes of making annual awards the sergeants and the chief should constitute a Board of Honor. This Board should meet once a year and consider all heroic acts referred to it during the year. To the policeman who, in the opinion of the members of the Board, performed the most distinguished act of bravery should be awarded a gold medal to be officially known as the department medal. Other members of the force who have performed acts of bravery should be awarded honorable mention. The members of the force performing especially distinguished duty in which they exhibited extraordinary intelligence and efficiency, but in which no risk of life was incurred, should receive departmental recognition under the heading of commendation. The presentation of the departmental gold medal should be made with appropriate ceremonies by the Mayor on the day of the general inspection. The officer to whom the department gold medal is awarded should be authorized to wear a small gold star on his uniform sleeve immediately above his service stripes, while policemen receiving honorable mention should be authori ed to wear a silver star, and those receiving commendation a bronze star. MAGISTRATE'S COURT NO COURT HELD ON SUNDAY. Two aldermen are assigned by the Mayor to sit as magistrates in police cases. Court is held each morning except Sunday, and remains in session until all the prisoners have been given a hearing. The Mayor sits as magistrate in all cases where the arrests have been made upon warrants issued by him. He occasionally sits as magistrate on Sunday. According to the records, it appears that there are more arrests made on Saturday afternoon and night than on any other day of the week. Because 132 POLICE DEPARTMENT there are no regular sessions of the Court on Sunday, it is necessary to hold all the prisoners arrested on Saturday in cells until Monday morning, except those who are able to procure bail or produce a forfeit. Section 21 of article 5 of the act providing for the incorporation, regula- tion and government of cities of the third class,, reads as follows: "To pro- vide for the erection or purchase of lock-ups or watch-houses in some con- venient part of the city, for the detention and confinement of vagrants and persons arrested by the police officers, until the persons so arrested can be taken before the proper magistrate for hearing, and committed to prison or discharged: But no person shall be detained therm for a longer time than twenty-four hours, except upon the order of a magistrate legally authorized who may commit such person for further hearing." This section of the law prohibits the detention of a prisoner for more than twenty-four hours except upon the order of the magistrate. Therefore, the necessity for the holding of Court on Sunday in order to comply with the above section, seems obvious. But aside from the law upon the subject, the fact that the city does not provide food for prisoners (except bread and water),, and that the cells in the City Hall are insanitary and filthy dungeons, makes the holding of Sunday Court absolutely necessary. Sunday sessions of Magistrate's Court are held in all the large cities in Pennsylvania. The law presumes the defendant innocent until proved guilty. Under this theory of law it becomes the duty of the State to provide, as far as possible,, an im- mediate hearing before a magistrate, of a person accused of crime. Other- wise innocent persons may well be made to suffer unjustly by prolonged detention in prison, pending a magistrate's hearing. MAGISTRATES SHOULD BE AVAILABLE DURING THE DAY. Upon this theory of law, it should be possible in this city for a defendant to receive a hearing if arrested before sundown. The magistrate could arrange with the chief of police to be on hand to hold Court in the afternoons in the event of there being any prisoners to be arraigned. This would serve as a great convenience to the Police Department in that it would not be necessary to detain prisoners for any length of time in the City Hall, and would thus afford the citizen' immediate relief. The need for disposing of Police Court cases in the city is especially pressing because of the unsanitary condition of the cells, which will be discussed elsewhere in this report. For the same reason it is recommended that magistrates abandon the present practice of causing prisoners to be detained in the cells of the City Hall for forty-eight hours under commitment. This recommendation is made particularly because of the inability of the Department to supply prisoners with food, so detained. RECORD OF MAGISTRATE PROCEEDINGS INADEQUATE. The present practice is to arraign the prisoners before the magistrate and have the arresting officer make his charge orally. Except that the charge against the prisoner appears in the docket maintained by the Police Depart- ment, there is no record so far as the magistrate is concerned, of the com- plained against the prisoner. Even the complaint against the prisoner as POLICE DEPARTMENT 133 it appears in the docket is inadequate, in that it does not contain a statement of facts in connection with the arrest and complaint. When the magistrate disposes of the case he makes no written memoran- dum over his signature, either of his finding of guilt or innocence, of the punishment administered or other disposition of the case. The only time the magistrate does any writing is when a defendant is sent to jail, in which case he signs a commitment.* The following procedure with regard to the arraignment of prisoners is recommended : a. When the prisoner is arraigned before the magistrate, the arresting officer should be required to hand to the magistrate a formal com- plaint, written upon a specially provided form which should contain a complete statement of facts in connection with the arrest. The officer should sign the same in affidavit form. A space should be provided for a jurat for the magistrate to sign when he swears the policeman. On the reverse side of the complaint there should be provided a form for the magistrate to sign and fill in when he disposes of the case. The statement contained in the affidavit of complaint should be precisely the same as the statement contained in the arrest blotter which will be referred to elsewhere in this report. The arresting officer should have his complaint all prepared and ready for presentation to the magistrate before court opens. Thus it will be seen that by this method not only will the records with regard to the disposition of cases in the magistrate's court be complete, but the police officer will be required to reduce his com- plaint to writing over his signature and under oath, both as a protection to the police officer himself and to the magistrate. The importance of this document can be understood when it is realized that no stenographic minutes are taken in the magistrate's court except when the Mayor sits as magistrate, and no detailed state- ment of facts in connection with any case is made a part of the record. b. A special form of receipt to be delivered to defendants when they are required to pay a fine,, should be provided. SANITARY CONDITION OF CELLS CELLS INSANITARY. The prisoners are taken to the city hall where the}' are placed in cells located in the basement of the building. There are seven cells, four located on the side of the building facing Franklin street, each having one window out into the street, and three cells on the opposite side of the building. The toilets in these cells are of the oldest type of plumbing, filthy, dirty and posi- * A card record which will partly correct this condition is in course of installation. 134 POLICE DEPARTMENT tively insanitary. None of the cells is equipped with lights. Sunlight never enters them. They are of the ancient torture dungeon type. There is no running drinking water in them, so that when a prisoner desires a drink, it is necessary for him to summon the turnkey, who is usually not within easy call of the prisoners. The condition existing in this cell house is such that, if privately owned, would not be tolerated for a moment by the health officials of the city. When the cells were inspected, the officials advised the investigator not to enter them because of their filthy condition, warning him that they were "alive" with vermin. As constructed at present, it would be physically impossible to keep these cells clean and sanitary, but pending the erection of a new cell house or police station, the present cell house could be made considerably more comfortable and sanitary by the expenditure of a small sum of money. Therefore, it is recommended that the stone walls on the front of these cells be removed and ordinary steel bars be substituted, thus affording ade- quate ventilation. An electric light should be installed in each, sunk in the ceiling in such a manner as to be beyond reach of the prisoner. These lights should be on separate switches so that it would not be necessary to light the entire cell house to furnish light for any one cell. All the plumbing should be removed and up-to-date plumbing installed, with an automatic flushing system to be controlled from one end of the cell house. In violation of even common decency, and the laws of almost every State in the United States, women prisoners are detained in the same cell house as male prisoners,, although in a separate cell. The only difference in the women's cell being that it is larger and has a wooden door. Though the city employs a matron who receives $25 a month, and whose only function is to search, care for and guard women prisoners, she is only summoned when it is desired to. search a woman prisoner. So infrequent are her offi- cial visits to the Police Department, that she performs practically no service for the city. She files a monthly report with the Mayor, concerning woman prisoners, but compiles this report not upon personal observation of the prisoners, but from the records of the department furnished her by the chief. It is recommended that the Council immediately provide an entirely separate place of detention for woman prisoners. The room located imme- diately opposite the present court room, and now used as a sitting room for the policemen, could be arranged as a cell house for woman prisoners. In this room there should be provided a place for the matron to remain when there are woman prisoners. The cells should be so arranged as to provide at least one cell equipped with a clean and comfortable bed. If it is found impracticable to arrange for a place of detention in the city hall for women prisoners, it is then recommended that the Council endeavor to make arrangements with the county officials so that women prisoners may be temporarily detained at the expense of the city in the county jail where there is a matron. If this plan were followed,, the services of the present matron could be dispensed with. At any rate, other arrangements rhould be made for the services of a matron. The ordinance should require that no female prisoner would ever be detained in the same place of detention as male prisoners, and at no time should a female prisoner be detained unless she is in the custody of the matron. , POLICE DEPARTMENT 135 DISTRIBUTION OF FORCE ANTIQUATED METHOD OF PATROL. The present system of patrol has been in operation for many years. It is wholly inadequate and manifestly unfair both to the policeman and to the private citizen. Except that additional men have been added and addi- tional patrol boxes installed, notwithstanding that the city has increased in population, area and importance, no effort has been made to install an equitable platoon system which would raise the efficiency of the force and add to the comfort of the policeman. NO RESERVE FORCE. The patrol force is divided into two platoons or sections, with tours of duty as follows: 7 A. M. to 5:50 P. M. and 6:15 P. M. to 5:30 A. M. The city is divided into twenty day posts and fifty-four night posts. Thus, between the hours of 7 A. M. and 5:50 P. M. there are twenty policemen on patrol, and between 6:15 P. M. and 5:30 A. M. there are fifty-four policemen on patrol. At no time during the night or day are there any policemen on reserve. Because of the present system of "turning out" the patrol force, the city is without a patrolman on the streets between 5:20 P. M. and 7 P. M., and again the city is without a patrol force on duty between 5 A. M. and 7:30 A. M. This is because the patrolmen do not relieve each other on posts,, but leave their posts in some instances thirty minutes before the time for the "return call." It is said by the officials that during these hours when the policemen are changing from night to day shift, the patrolmen are avail- able because some are coming to the city hall and others are leaving. This is not a fact, because the patrolmen coming in leave their posts almost an hour before the relieving patrolmen leave headquarters. PATROL SYSTEM UNFAIR TO POLICEMEN. The force is thus divided into day and night policemen, and the day and night platoons never alternate. The result is that Reading has many police- men who have never performed day duty and many others who have never patrolled in the night. If, when a patrolman enters the service, he is ap- pointed to fill a vacancy in the night platoon, he may continue his whole career as policeman without having ever served upon a day tour, while his more fortunate friend, who, upon appointment is assigned to day tour, may never be required to perform night duty. Only one day off in each month is provided for the members of the force,, unless they desire to be excused without salary. This may be in part responsible for the very large percentage of absences from duty on sick leave. TOURS OF PATROL TOO LONG. Both tours of patrol are entirely too long to result in efficient patrolling. In considering the creation of an efficient patrol system, efforts should be confined exclusively to getting the work of patrolling done in the most effective manner. The following guiding points should be considered: 136 POLICE DEPARTMENT i — Soldiers on post are two hours on and four hours off during twenty- four hours, and then have at least one day off entirely. 2 — The rule on ships is four hours on duty and four hours off while at sea and that may be for months. As a matter of fact, walking along the pavement with the arms hanging free is not as easy as it looks. It is more fatiguing physically than almost any kind of work. Carpenters, masons, blacksmiths — in fact nearly all trades- men — change their positions frequently and are all day using different muscles for short periods and not one set of muscles all the time. A brisk walk is less tiring than a slow walk. Add to this, foot soreness from the pavements, the monotony of the same post, day after day, the passing of novelty as the post becomes more familiar, the merely occasional need for quick action, the restriction of speech, and then on the other hand, the numerous con- venient resting places, warm and dry in winter and cool and shady in summer — all tempting a man from alertness and duty to inattention and neglect of duty — and it can be seen that police patrol work, properly done, is not as easy as it might seem. The city's demand on its men should be reasonable and in devising patrol systems consideration should not only be given to securing proper and ade- quate patrol, but likewise to protecting the physical condition of the police- men. No tour of patrol should ever exceed eight continuous hours. The ideal course is four hours but the system most popular in large cities, both with the policemen and those responsible for the administration of affairs of the police, is the five platoon system which calls for six-hour tour of patrol. PATROL SYSTEM UNFAIR TO CITIZENS. For many years the city has been without any patrol service for almost four hours a day, as pointed out above; from 5:20 P. M. to 7 P. M. and from 5 A. M. to 7:30 A. M. While it is essential that the streets be properly patrolled,, it is equally important that an adequate reserve force be available for use in emergencies. So important is this that it is the practice in most cities for police chiefs to keep constantly in front of them upon their desk a chart showing the location and number of men in reserve. No platoon system is efficient unless it pro- vides for an adequate reserve force at all hours of the day, the size of the reserve force depending entirely upon the size of the city and local condi- tions. Reading does not need a large reserve force because of the availa- bility of the men on patrol through the "red light" system, but it can scarcely be said that the city should be without any reserve force. RE-APPORTIONMENT OF PATROL POSTS NECESSARY. The present system of circular posts is antiquated and obsolete. Its principal objection is that it is difficult for a citizen to find a policeman when needed and it is equally difficult for the sergeants on patrol to readily locate the patrol force. The posts as laid out at present do not provide as equitable distribution of the men and they have been created without due regard for local conditions, with the result that the business section of the city is over- policed at the expense of the residential section. It is recommended that POLICE DEPARTMENT 137 a study of the posts be made with a view to re-apportioning the entire city and to installing the avenue and side street patrol system to take the place of the circular patrol. By a careful re-^pportionment of the posts and a re- distribution of the men based upon the local conditions, more efficient ser- vice can be rendered and the policemen made more valuable without the addition of many policemen. A NEW PLATOON SYSTEM SHOULD BE PUT INTO EFFECT. A new platoon system should be provided at once. In arranging the tours of duty provision should be made for the following: 1 — The least number of men on patrol from 6 A. M. to 8 P. M. 2 — The greatest number of men on patrol from 10 P. M. to 6 A. M. 3 — A reserve at all hours of the day sufficient to meet the demands of the city. 4 — Twenty-fours consecutive hours off duty at least once in each week for each patrolman. 5 — Tours of duty not to exceed eight continuous hours of patrol. 6 — A five-day cycle so that the platoons will alternate every five days. In working out a' platoon system for the city, consideration should, however, be given to the following well known systems: The two platoon; The three platoon; The four platoon; The five-platoon; The six section. In determining the number of hours each patrolman should work in the week, reserve duty should be considered as half working time, inasmuch as all policemen should be required to sleep during their tour of reserve. PROVISION SHOULD BE MADE TO COVER BEATS DURING HOURS NOW UNCOVERED. Pending the installation of a new platoon system, arrangement should be made at once to cover the beats during the hours which they are at present left unpatrolled. This can be done by requiring the men to remain on their posts until they meet their reliefs. Relieving points should be estab- lished at once,, where the rules should require the patrolman on post to wait until his relief reports to him. PLAN FOR THE STUDY OF THE APPORTIONMENT OF BEATS. The sergeants should be instructed to make a careful study of the layout of the beats in their districts, and to report upon the conditions existing on each post. These reports should form the basis of an analysis of the present distribution of the force and a re-apportionment of the beats. In order to make this study, sergeants should be required to furnish in writing the follow- ing information concerning their districts: 1 — Number of miles of streets. 2 — Area in square miles. 138 POLICE DEPARTMENT 3 — Approximate population. 4 — Approximate area of portion of unimproved property in blocks. 5 — Character of population in%listrict in respect of proportion repre- sented by the following classes: a — Foreign; b — Residential; c — Factory; d — Business; e— Hotel. 6 — Peculiarity or distinctiveness in character of inhabitants or fre- quenters of the district. 7 — Number of day posts. 8 — Number of night posts. 9 — Number of mounted posts, day and night, io — Number of special details. ii — Number of private watchmen or special patrolmen. 12 — Total number of arrests, year by year for last two years, classified as to crime by sex. 13 — Number of persons aided. 14 — Number of fires. 15 — Number of robberies reported for last two years. 16 — Total number of felonies reported. When all these facts are collected and studied the posts should be re- arranged and the force re-distributed in accordance with the needs, as sug- gested by this study. ADDITIONAL MOTORCYCLE POLICEMAN NEEDED. The department has at present one motorcycle man who performs ser- vice during the night. It is recommended that provision be made by the Council for the appointment of an additional motorcycle policeman to per- form duty during the day. INSUFFICIENT PATROLMEN. Because of the absence of detailed crime records and records of com- plaint, it is difficult to determine the adequacy or inadequacy of the present number of patrolmen. Based upon the population and area, it would appear that the present number of patrolmen is too few. The long hours of patrol, the lack of reserve force and the absence of a regular platoon system are, according to the chief,, due to the small number of policemen. The study of conditions recommended above should form the basis of determining the number of patrolmen needed. Without this information it will be almost impossible to recommend the appointment of additional police- men, except that as compared with other cities, on a population and area basis, the police force of this city should be made up of at least one hundred members. To increase the force to this number would require the immediate appointment of two patrolmen in addition to the two sergeants and the two detectives whose appointment is already recommended in this report. Because of the limited time in which this survey was made, it was not possible to make any field study of local conditions. POLICE DEPARTMENT 139 NEED FOR MORE RED SIGNAL LIGHTS. There are at present 47 red signal lamps distributed throughout the city. These lights are used to summon the policemen to the signal boxes in emer- gencies. Two separate tests of these lights were made during the survey. Both of the tests were satisfactory in that the majority of the policemen responded to the signal within a reasonable time after the lights were flashed. Some of these signal lights are located too close to arc lights, thus reducing their efficiency as a signal. There is need for the installation of additional signal lights and a re- arrangement of a number of those at present in use. It is recommended that the Superintendent of Electricity make a study of the location of the present signal lights and report to Council, with a view to re-arranging many of those at present in use and erecting additional lights. TRAFFIC There are at present three crossings on Penn street established as traffic posts and covered daily. These posts are located at Penn and Fourth, Penn and Sixth and Penn and Ninth streets. The corner of Penn and Second streets has been established as a temporary traffic post and is covered be- tween five and six-thirty P. M. In addition to these posts there are two mounted policemen whose duties include traffic regulation on Penn street and adjacent streets north and south of Penn street. While it is necessary to maintain the four traffic foot posts, it is unneces- sary to have mounted men regulating traffic or performing duty on Penn street. The topography of Penn street and the arrangement of the street car tracks makes the regulation of traffic thereon specially easy so far as vehicular traffic is concerned. There are nine policemen regularly assigned to cover the three regular foot posts, relieving each other at three hour intervals. Thus each of the nine performs three hours traffic duty. This plan is an effective one and should be continued. SAFETY AISLES NEEDED. The extreme width of Penn Square makes the handling of pedestrians at crossings difficult because of the absence of safety aisles. Persons desirous of boarding the street cars' are required to stand in the middle of the street adjacent to the car track without any protection against traffic. If persons desiring to board street cars wait upon the sidewalk until the arrival of their car, they must, mingle with the vehicular traffic in order to reach the street car,, thus endangering their lives. Much confusion at the crossings would be avoided and added protection furnished to pedestrians if safety aisles were provided. The creation of safety zones or aisles is comparatively inexpensive. In order to make Penn street very much safer, therefore, it is recommended that for persons desiring to board street cars going east, two safety aisles be provided on Penn street — one near the corner of Sixth street, immediately in front of the First National Bank, and the other near the southwest corner 140 POLICE DEPARTM ENT of Fifth street, immediately in front of the National Union Bank; and for persons desiring to board cars going west that two safety aisles be pro- vided on Penn street — one near the northeast corner of Fifth street, imme- diately in front of Stichter's hardware store and the other near the northeast corner of Fourth street, immediately in front of the Hoff Bros, hardware store. HOW TQ ESTABLISH SAFETY AISLES. There are two very inexpensive methods of establishing safety zones or aisles: i — By roping off a section of the street parallel with the car track, with with a rope supported on iron stanchions. These stanchions should have red lights on them during the night. 2 — By erecting a platform of wood or concrete, parallel with the car track. Such platform should not be raised more than six inches, and should have a runway on each end instead of steps. There should be a post at either end of the platform upon which to place red lanterns or electric lights during the night. The advantage of using a platform,, of course, is that it makes it easier fpr persons to board the cars and provides a dry spot on stormy days. If a platform is used, however, it is recommended that a portable platform be erected in order that at any time the entire street might be needed for parades, etc., the platform could be removed. Thus, persons desiring to board street cars on Penn Square would have a place set aside for them in the centre of the street where they could wait for the arrival of the car without being inconvenienced by vehicular traffic. These safety zones should be created - by ordinance, and vehicular traffic should be prohibited from driving over the car tracks within the zones. TRAFFIC MEN SHOW LACK OF TRAINING. The policemen at present assigned to traffic duty are untrained for their work. Their lack of uniformity of regulating traffic and their apparent lack of knowledge of proper methods of regulating traffic makes imperative the placing of trained men on the three corners already established as traffic posts. As a result of careful study, the regulation of traffic upon public streets has been standardized as to methods. In New York, Philadelphia and Chic- ago, all traffic men are specially trained for their work. It is, therefore,, recommended that the Council send one member of the department to Philadelphia to observe and study the system of regulating traffic in use in that city, in order that he .may be able to instruct the police- men assigned to traffic duty. Patrolmen assigned to traffic duty' should wear upon their coat sleeve a traffic "wheel." It was noted that some of the patrolmen now performing traffic duty are too old and not physically equipped for this work. Therefore, it is recom- mended that the tallest, most intelligent and best groomed policemen be as- signed to traffic dutv. POLICE DEPARTMENT 141 APPROPRIATIONS It is almost impossible without a careful analysis of all the vouchers in the Controller's office to determine the exact cost of the operation of the Police Department. It has been the practice to charge as an expense against the Police Department the salary of the Mayor and a number of items con- cerning the maintenance of the city hall. The matter of budget appropriations will be found discussed in a report of the Finance Department, and, therefore, will not be made a part of this report. APPOINTMENTS APPOINTMENTS CONTROLLED BY POLITICIANS. If Reading is to have an efficient police force it must have a permanent force. The policeman must be the representative of all the citizens and not an agent of political parties or factions. A policeman's appointment must depend entirely upon his special fitness for the position of policeman and this fitness must be determined by a fair and intelligent competitive examination. It is needless to state the importance of having an efficient police force and should be needless to point out that a police force which changes its entire membership with each change of administration can never be an efficient force. The efficient policeman must be an impartial, unbiased, unprejudiced officer of the law, controlled only by his own conscience and a desire to pro- tect the entire citizenship by an honest enforcement of the law. If a police- man is to remain in office only while the political party with which he is affiliated is successful, it is only natural to assume that he will use the power of his office to secure, if possible, the re-election of the political party through whom he secured his appointment and upon whose success his re- tention in office depends. Therefore, under such a system as is in operation today it is unnatural to assume that a police officer can remain impartial, unbiased and unprejudiced in the performance of his duties. His livelihood is dependent upon the success of his political master and it is scarcely possible for him to be efficient as a police officer if he must serve this political master. To understand the present condition in Reading it is only necessary to recall that since 1890 the personnel of the Police Department has been completely changed seven times. ONLY WARD WORKERS APPOINTED POLICEMEN. An examination of' the records, verified by statements from the chief of the department as well as the Mayor himself, proves that only faithful political ward workers are appointed policemen in this city. The chief quali- fication for appointment to the police force is faithful service at the polls at election time. The applications of the present members of the force showed a peculiar frankness on the part of the candidates; practically each one of tli em offered as their chief qualification for the office of policeman their diligence and faithfulness as political workers at .the polls. While in soine 142 POLICE DEPARTMENT instances the recommendations which accompanied some of the applications, contained passing reference to the ability of the candidate suggested,' in almost all cases they laid stress upon the capability of the candidate as a political worker. The policeman who is made to understand that his success in securing an appointment was entirely due to his capability as a political worker, has little difficulty in realizing that his retention in the service and his success as a policeman must necessarily depend upon his continued political influence. The viciousness of this system was recognized many years ago in the large cities throughout the country. Civic agencies and students of civic government are striving to remove the police of America from politics and free that function of government from political influence. Indeed,, in practically all the large cities, so far as appoint- ments and promotions are concerned, civil service tests have partially suc- ceeded in destroying political interference. MEN SELECTED WITHOUT REGARD TO AGE, EDUCATION OR PHYSICAL CONDITION. There is no rule of the department nor ordinance establishing special qualifications for police service. Policemen have been appointed without regard to age. there being no minimum nor maximum age requirement. They are appointed without regard to their previous training, or education, there being no educational tests nor examination. They are appointed without regard to their physical condition, there being no physical examination and no physician's certificate of examination required. Not even is the applicant required to furnish any definite information concerning his previous history. The previous occupations of the present members of the force, so far as the records of the department are concerned, are unknown to the officials in charge. No regular printed form of applica- tion is provided for applicants; therefore, there is little or no information concerning the present members of the force on file in the city hall. The results of the failure of the city to provide specific rules and regulations governing appointment to the force are that many of the policemen, after serving only three or four years, are now at an age when it is impossible for them to perform efficient active patrol, and the percentage of sickness among members of the force is considerably higher than in New York, Philadelphia, Chicago and Pittsburgh. MEN ADVANCED IN YEARS ADMITTED TO POLICE FORCE. While in most cities the minimum age for appointment to the police force is 21 years, the maximum age 30 years and the average age for appoint- ment 25, policemen have been appointed to Reading's police force who have already celebrated their fifty-ninth birthday. Some idea of the ages of police- men appointed in this city can be had from the following table. This table shows the ages of members of the present force (who were more than thirty years of age) at the time of their appointment: POLICE DEPARTMENT 143 Age at Time of Appointment Number Appointed. 3 3 4 , 3 5 3 5 5 6 1 4 3 3 4 1 6 1 2 2 1 1 1 1 1 1 3 Of the total force of ninety-two, ten members are more than fifty-live years of age. Two of them, although only in the service five years, are now sixty-four years of age. It is recommended that Council adopt an ordinance specifying the mini- mum and maximum age at which appointments may be made to the Police Department. The experience of other cities,, and especially those having pension- fund systems, is that the policemen who come into the service be- tween 21 and 30 years of age, make the most efficient officers, and as a result have fixed the minimum age for appointment at 21 and the maximum age at which a man may enter the service at 30. They have also provided by law that policemen having reached the age of 60 may be forced to retire. UNUSUALLY HIGH PERCENTAGE OF SICKNESS AMONG MEMBERS OF THE FORCE. During the year 1912, there were 877 days of sick leave. Of the total force of 92, 67 were absent from duty upon sick leave, varying from 1 to 67V 2 days. Of the 877 days of sick leave, only 71^2 were due to sickness resulting from injury in the performance of duty. These figures show that during the year 1912, the average time off„ due to sickness, was gV> days per man. This, of course, was in addition to the regular monthly leave of absence and vacation period. The average will be even higher than this during 1913. 31 years 32 a 33 a 34 it 35 a 36 tt 37 tt 38 tt 39 it 40 ft 4i it 42 it 43 tt 45 (t 46 n 47 it 48 tt 50 tt 52 a 53 tt 54 it 55 a 56 it 57 ft 58 a 59 " 144 POLICE DEPARTMENT An analysis of these figures indicates that the great number of absences from duty, and the unusually high percentage of sickness among members of the force, are probably due to the following causes: i — That the city pays full time to policemen when off duty on sick leave, regardless of whether their illness is due to their own carelessness, to natural causes, or to injury received in the performance of duty. 2 — That there is no fixed rule requiring policemen when sick to be ex- amined by a physician representing the city, and that private physi- cians' certificates are only requested in cases of prolonged illness. 3 — That members of the force are not given a physical examination to determine their physical fitness for service as policemen at the time of their appointment. 4 — That policemen of advanced years are appointed regardless of their general physical condition. LACK OF RECORDS CONCERNING HEALTH OF THE FORCE. There are no records available which would be of assistance in tabulating causes of illness. Even the doctors' certificates do not always state the nature of the illness. The following cases taken from the records showing the number of days leave of absence due to illness, for which the city paid full salary, may serve to emphasize the need for a physical examination of applicants for the force: Number of N umber of Days Excused Case Date Appointed Years ' Service Because of Illness a 1908 5 207 b 1908 5 198 <* 1908 5 318% d 1911 iVa io7V 2 e 1908 5 254% f 1908 5 233V2 g 1912 1 3SV2 h 1911 1% 72 PHYSICAL EXAMINATION FOR APPLICANTS. It is recommended that the Council adopt an ordinance requiring all applicants for appointment to the police force to be given a thorough physical examination in accordance with the civil service rules now in force in New York, Chicago, Philadelphia and Pittsburg. The health officer of the city, if a doctor, should also serve as surgeon to the Police Department. He should be required to conduct the civil service physical examination of appli- cants for appointment, and examine all members of the force reported sick. The rule of the department should require that policemen reporting ill, shall visit, if possible, the medical officer of the city, be examined by him and secure a certificate stating: 1 — Name 2 — Shield number 3 — Beat number 4 — Nature of illness POLICE DEPARTMENT 145 5 — Probable cause of illness 6 — Probable duration of illness 7 — Date of examination This certificate should be a card record and should be filed alphabetically in the office of the chief. Ample space should be provided on the card upon which to enter progress reports in cases of prolonged illness. If the condition of the policeman is such as to make it impossible for him to visit the health officer, it should be the duty of the surgeon to attend the policeman at his home. No policeman should be excused from duty because of illness, except upon the certificate of the surgeon, and his return to duty should likewise be upon the written order of the physician. If the city does not have a medical officer in charge of the Health De- partment, it is suggested that the Council establish the position of police surgeon, that his compensation be based upon part time service, and that he receive a fixed amount for each visit made by him and each visit made by a policeman to his office. POLICEMEN SHOULD RECEIVE HALF PAY WHILE ON SICK LEAVE. It is recommended tha*t the Council adopt an ordinance providing that policemen be paid full salary when on sick leave only where the sickness is a direct result of an injury received in the performance of duty. For all other leaves of absence due to illness, the ordinance should provide that policemen be paid at the rate of half their regular salary. MINIMUM HEIGHT OF POLICEMEN SHOULD BE FIXED BY ORDINANCE. Based on the experience and practices in large cities, it is recommended that the Council adopt an ordinance making the minimum height for mem- bers of the uniformed force, five feet eight inches. The medical officer should create a weight schedule to correspond with the various heights, and the same should be incorporated in the ordinance regulating the appointment of policemen. CIVIL SERVICE EDUCATIONAL TESTS RECOMMENDED. It is recommended that all appointments to the Police Department be made as a result of a competitive civil service examination pursuant to the following procedure: 1 — That each applicant be required to file an application in writing upon the regularly provided printed form. The application blank should call for definite and complete information concerning the applicant's history and former employment. He should also be required to state definitely whether he has ever been arrested, and if so, detailed facts concerning the arrest and the disposition of his case. The application should provide forms to be filled in by four reputable citizens as vouchers for the character of the. applicant. His present employer should be required to certify to the character of the work 146 POLICE DEPARTMENT performed by applicant, the length of service and his habits while in his emplo}r. This application should be in the form of an affida- vit and the statement contained therein should be sworn to by the applicant. 2— The application when filed, should be presented by the applicant him- self and receive a number. On one side of the application should be a printed form to be filled in by the medical officer who conducts the physical examination of the applicant. 3— All applicants should be given a physical examination before they are given the mental test. 4 — When vacancies in the Police Department occur and an examination is about to be held, an advertisement should be inserted in the local papers making announcement of the number of places to be filled, the date of examination, and the qualifications required for the position of policeman. 5 — Examinations should be held at least once a year, if vacancies exist, and no eligible list should remain in force for more than one year. 6 — Each applicant, having passed his physical examination, should be required to take an educational test. This should be a test in reading, writing and simple arithmetic. It should be a test of the applicant's knowledge of the city, location of streets, street car lines, public institutions, fire houses, laws and ordinances, civics, the ability of the applicant to write reports and an intelligent understanding of a policeman's duties. 7 — The .applicant should be required to file a recent photograph of him- self, the size to be fixed by the civil service commission, and this photograph should be attached to his original application. 8 — Examination papers should not have the name of the candidate upon them, but should be known by his number. 9 — As a result of the ratings received by the candidates in the physical and mental, examination an eligible list should be prepared, the names to appear thereon in the numerical order of the percentages received by the candidates, io — The Mayor and Council should make appointments from this list in the order in which they appear thereon, and no man's name should be skipped except when he shall have declined the appointment or does not accept within three days after notification, or when by resolution of Council appointment shall be denied,' in which case the ordinance shall state fully the reason for such action. ii — Before appointment is made, the Chief of Police should be required to investigate carefully the character of the applicant and to report the results of his investigation in writing, to the Council. PROBATIONARY PERIOD SHOULD BE ESTABLISHED. At present there is no probationary period. A policeman, when appointed, is assigned to duty immediately and no one is required to report upon his fitness or his efficiency. It is recommended that the Council in the ordinance providing for the appointment of policemen, require that each new appointee shall serve a probationary period of six months. During this time the Chief POL ICE DEPARTMENT 147 of Police shall observe or cause to be observed the conduct of the proba- tionary policeman and shall report in writing to Council at the end of the probationary period his opinion,, together with his reasons therefor, as to whether or not the policeman should be continued in the service. In the event the chief should report that the policeman is unfit for police duty, or that he has been inefficient, or derelict, the Council shall drop him from the rolls. POLICEMEN RECEIVE NO TRAINING. Policemen receive no training whatever for their work. The moment a policeman has been appointed he is assigned to duty and little or no instruc- tion is given him. He is required to learn the duties of his office as well as he can. Because of the insecurity of tenure, and the consequent frequent changing of the personnel of the force, no inducement is offered the patrol- man of Reading to become adapted to the police work, to especially train himself, by careful study of the ordinances and by carefully observing effi- cient methods and practices in use in other cities. He is not even placed under the charge of an older patrolman or required to perform duties with him for a definite number of days so as to become familiar with the simplest routine. Nothing is more productive of police inefficiency than lack of training. Certainly the policeman who has not been given an opportunity to acquire even a superficial knowledge of the duties required of him cannot be held strictly to account for his shortcomings. TRAINING OF POLICEMEN ESSENTIAL. It is unreasonable to expect a policeman to enforce the laws and ordi- nances unless he has at least some idea of what those laws and ordinances are. The policeman who has received no training in court procedure and no instruction as to how to conduct himself in court can hardly be expected to present evidence properly to a court of law, and in a manner which will be intelligent and convincing to a jury. Another instance of the present lack of training is that policemen are given revolvers to use without a single lesson in target practice. URGENT NEED FOR POLICE TRAINING SCHOOL. It is recommended that a training school for police service be established at once. Because of the small force in this city, such a school could be estab- lished and maintained without any large expense. This school should be not only for the instruction and training of new members of the force,, but the present members of the force should be required to attend as well. Special courses should be provided for the preparation of patrolmen for promotion examinations. EQUIPMENT AND COURSE OF STUDY. This school should be equipped with seats and desks or lecture chairs so arranged that the windows would be to the left of the students when seated. i 4 8 POLICE DEPARTMENT Council should communicate with the school authorities with a view to securing adequate space for such a school in one of the school buildings of the city. This should be used by the Police Department at hours when the childrens' classes are not in session. This school should be under charge of an experienced police officer, and records should be kept of punctuality, general appearance, attention, discipline, as well as each individual's rating in each study included in the course. The course of study should include field work, first aid to the injured. English report writing, ethics in conduct, practical civics, sharpening powers of observation,, the powers and duties of a policeman, the rules and regula- tions of the department, the penal laws of the State of Pennsylvania, as well as the code of criminal procedure, the ordinances of the City of Reading, pistol practice and the humane handling of prisoners. SCHOOL SHOULD BE USED TO DETERMINE FITNESS FOR POLICE DUTY. The school should be used to determine the student's fitness for police duty as well as for instructing him in his duty. Students should be required to attend the full time for a period of from thirty to ninety days. A carefully planned scheme of instruction should be established, and a competent in- structor employed. PROBATIONARY PATROLMEN SHOULD BE GIVEN FIELD WORK. The field work should consist of sending the recruits for duty to different sections of the city and subjecting them to as large a variety of police ex- perience as possible during their probationary period. The recruits should accompany an experienced policeman. He should be required to report fully upon his experiences and observations in the field. The older patrolman selected to instruct the probationary policeman in the field should be a man of excellent record and should be specially qualified for this work. At the end of the periods of instruction the head of the school should hold written and practical tests and the ratings received by the students in these tests should be certified to the Council. The report upon the effi- ciency of the student should contain a recommendation from the chief of the department as to whether or/ not he should be appointed. PROVISION SHOULD BE MADE FOR THE APPOINTMENT OF SUB-PATROLMEN. Provision should be made by ordinance for the appointment of sub- patrolmen. The first ten names on the eligible list awaiting appointment should be designated as sub-patrolmen and assigned to the school of recruits for instruction. At the end of their period of instruction they should be eligible to perform temporary services as substitutes for policemen off duty, on leave of absence or on vacation. By this means it would be possible always to have on duty the full quota of policemen. POLICE DEPARTMENT 149 UNIFORMS AND EQUIPMENT GENERAL NEATNESS OF FORCE COMMENDED. The uniform now in use is both neat and serviceable. The policemen observed appeared tidy and well clad. The patrol force was observed at various times while engaged in the performance of duty, and on being ■"turned out" at roll calls, and in no instance was any member of the force noticed appearing untidy or slovenly. EQUIPMENT SHOULD INCLUDE BELT. The present equipment does not include a belt, and thus the policeman is required to carry his mace in his hand. Many policemen were observed who carried their maces suspended from their shield, while others were noticed carrying the mace in their coat pocket; such a practice should be discontinued. The preesnt form of mace does not comply with the standard mace in use in most of the large cities. It is recommended that the rules provide that the policeman's equipment shall include a belt to be worn, except in the sum- mer months,, and that the commonly known "night stick" be substituted for the present mace. The rules should provide that the "night stick" should be carried on the night tour, while the policemen on day tour should be equipped with a dress baton, having a, silk cord and tassel suspended from the handle of the baton. This baton should be nothing more than an ornament and should be made of imitation rosewood. The tassel should be of blue silk. The policemen on day tour should be required to carry in their hip pocket a policemen's billet. The wearing of a belt,, aside from being service- able in providing a place for the policeman to carry his club, will add much to the appearance of the present uniform. POLICEMEN NOT REQUIRED TO WEAR GLOVES. The regulations do not require that patrolmen wear gloves. The result is that each policeman selects a glove according to his own choice and thus many different kinds of gloves were observed. The regulations should provide for a uniform glove and it is recommended that a grey lined buckskin glove be adopted for the use in winter and a white cotton glove be part of the summer uniform. RULES DO NOT REQUIRE POLICEMEN TO CARRY REVOLVERS. There is no rule or regulation of the department which requires police- men to carry revolvers while on duty. An inspection of the night men re- vealed the fact that of 50 men turning out for duty, 15 were not equipped with revolvers. The revolvers carried by those who were equipped represented a great variety of sizes, shapes and makes. Some of the policemen who were not equipped with revolvers gave as the reason that a court in this county had recently convicted a policeman for a malicious use of his revolver. They, however, did not regard the use 150 POLICE DEPARTMENT to which the policeman had put his revolver as malicious, and refused to carry their revolvers for fear of criminal prosecution, should they be re- quired to use same. It is recommended that the rules of the department require all police- men, while on duty, to carry revolvers. The revolvers should be a part of the equipment supplied by the city and should always remain the property of the city. The chief should select a standard make and no other revolver should be permitted to be carried. On the handle of each gun should be en- graved the shield number of the policeman. REVOLVER SHOULD BE CARRIED IN BLOUSE. The present practice of carrying the pistol in the right hip pocket should be abandoned, and the regulations should require that the revolver be carried in a holster in the blouse or coat, on the left side, so as to be available in emergencies. NO UNIFORM RUBBER COAT. All members of the force should be required to have a uniform rubber coat and hood. It was noticed that some of the policemen wore different colored mackintoshes. For convenience, the patrolmen can in many cases leave their rubber coats in some place on their respective posts. The im- portance of the rule requiring a uniform rubber coat, at least with reference to night duty, can be better understood when it is realized that patrolmen not equipped with a rubber outfit on a very rainy night will not patrol effi- ciently, but will stand in doorways or any place to keep from getting wet. PATROLMEN'S EQUIPMENT NOT PROPERLY INSPECTED AT ROLL CALL. The equipment of patrolmen is not adequately inspected at outgoing roll calls. The usual method of inspection is for the sergeant to call for "keys,," by which is meant fire alarm and patrol box keys. At this command the patrolmen raise their keys and police whistle, but the sergeant does not make any inspection. It would be quite possible for patrolmen to be without their fire alarm and patrol box keys, and yet not be detected by the sergeant. It has been the practice to assemble the night policemen for duty and roll call in the council chamber, but since this chamber is to be re-arranged into private offices it will be no longer possible to use it for assembly. It is recommended that the policemen be assembled in the room now used as a court room, and suggested for use as a police station. While this room would not permit of assembling the entire 54 patrolmen at one time, it would, however, be possible, and indeed practical, to divide the night force into two sections, at least for the present, until a platoon system is worked out. Thus there would be two separate roll calls. The following procedure for roll calls should be adopted: 1 — At the time set for roll call, the sergeant or chief should give the command "fall in." At this order the policemen should take their places in line in military fashion. 1 POLICE DEPARTMENT 151 2 — The second command should be "attention," at which command the force should stand at attention in perfect alignment. 3 — The third command should be "salute," at which command the patrol- men should present arms with their batons, and hold them in this position until the sergeant gives the command "return baton." 4 — The commanding officer should then call the roll. 5 — The next command should be "open ranks," when the second and each succeeding line should take six steps to the rear. 6 — This should be followed by the command "inspection," which should require each patrolman to present his revolver, fire alarm and patrol box keys, whistle and nippers. The commanding officer should then pass through the lines and inspect same. Returning to the desk, the commanding officer should give the command "attention." The patrolmen should then return their revolvers and other equipment. 7 — The next command should be "close ranks." The second and each succeeding line should then take six steps forward. The command- ing officer should then give the command "parade rest" or "stand at ease." Then special instructions and the orders of the day should be distributed to the men, on mimegraphed sheets as has been previously recommended in this report. After the patrol force has been properly inspected and are ready to be sent to their posts, the command should be as follows: 1 — Attention 2 — Right Face 3 — Forward 4 — March The policemen should march in columns of two to the corner where they should disband and go speedily to their respective beats. During the roll calls the "desk officer should insist upon the enforcement of strict military discipline. The men should be required to give strict attention to the orders of the day. The procedure at return roll calls at the end of each tour should be exactly the same as the procedure for the out- going roll calls, except that the inspection of equipment should be dispensed with. PROMOTIONS ENTHUSIASM AND AMBITION SPELL EFFICIENCY. Police efficiency depends almost entirely upon the enthusiasm and ambi- tion of the members of the force. Members of a police force who are afforded no opportunity for promotion, increase in salary, pension, nor hope of reward other than the monthly salary check, cannot be expected to be ambitious and enthusiastic in the performance of their duty. The contented force is an efficient force, but no force is contented where the members know that their superior officers are selected not because of their experince as police officers, nor because of any special merit or ability as commanding officer, but purely for political reasons. If a police force is to be efficient, it must be free of politics. If the policemen are to be stim- t^2 POLICE DEPARTMENT ulated in their desire to perform faithful service, faithful service must carry -with it promotion for merit, and merit alone. The politician who succeeds in securing preferment for a policeman, insists upon preferment at the hands of the policemen so favored. Therefore, when the opportunity arises for the policeman to help the politician who helped him secure his promotion or ap- pointment, efficiency and fair play, and sometimes even justice, must suffer. Reading is without any promotion system in the police force. The patrolman in this city not only cannot hope for promotion based on merit,, but because of the present system of changing the police force with each incoming administration, he cannot even hope for continued service. The department lias no plan of promotion and its officers are selected on the basis of political patronage, without regard to their previous experience or training. Of the six sergeants now in the service, three never performed any police duty prior to their appointment as police sergeant. Nothing could be more destructive of discipline and productive of inefficiency, than appoint- ment of superior officers who have not come from the ranks. CIVIL SERVICE TESTS FOR PROMOTION RECOMMENDED. It is, therefore, recommended that promotion to the ranks of sergeant and chief be made as the result of a competitive civil service examination open only to members of the force, or to former policemen who have had not less than five years' actual police service in this or some other city. NO REAL EFFICIENCY RECORDS. In rating members of the force in promotion examination, specific weights should be given to seniority, efficiency, based upon efficiency records, physical condition and mental ability. For purposes of giving a rating upon efficiency, it is recommended that efficiency records be established at once. The present so-called efficiency record which is maintained, is in no sense a record of efficiency of service, but merely a record of absences. Sergeants should be provided with special printed forms upon which to report daily the efficiency of the members of their command. These records should be maintained by the sergeants and filed each month with the chief. In giving an efficiency rating to the members of their command, sergeants should consider carefully the following: i — General neatness and appearance. 2 — Intelligence in making of reports. 3 — Intelligence and success in presenting cases in court. 4 — General carriage of men while on patrol — whether they are alert and active or careless and slovenly. 5 — Condition of the policeman's memorandum book and intelligence of notations made therein. 6 — Proficiency of patrolman in observing and reporting matters of import- ance to other city departments, such as broken pavements, encum- bered fire escapes, encumbrances on sidewalks, street lamp outages,, etc. 7 — Punctuality. POLICE DEPARTMENT 153 8 — Discipline. 9 — Reporting of suspected ^gambling and disorderly houses and other suspicious places on patrolman's post. 10 — Willingness to perform extra duty. These monthly efficiency reports, after having been reviewed by the chief, should be filed with the Mayor and Council. The chief should keep a set of similar efficiency records for the sergeants, the same to form the basis of furnishing efficiency ratings in examinations for promotion to the rank of chief. No policeman should be eligible to take the promotion examination for sergeant who has not been in the service for at least three years, and no sergeant should be eligible for promotion to the rank of chief who has not performed service as sergeant at least two years. MENTAL TESTS. The mental examination should consist of a written test and a drill. The written test should consist of an examination in the general duties of a sergeant or chief, the laws and ordinances, report writing, a composition on efficient patrol and a general knowledge of police methods in other large cities. The drill examination should consist of a military drill covering the ordinary manual as to formations and commands. PROMOTIONS SHOULD BE MADE FROM ELIGIBLE LIST. Promotion should only be made from the eligible list,, and the procedure should be as follows: When a vacancy exists, the civil service commission should be requested to certify the first three names on the list and Council should be required to appoint one out of the first three; but Council should be careful, in order to encourage fair play in promotions, to avoid political interference, and not skip any name on the list except for a good and sufficient reason, which should be stipulated and made a part of the records in any case where a name is passed. TRIALS OF DELINQUENT POLICEMEN PLAN OF PROCEDURE RECOMMENDED. As already suggested, no policeman should be removed from the force except for cause, and to avoid an abuse of power and the use of political interference, it is recommended that the Council, by resolution, adopt a regular plan of procedure governing the trial of delinquent policemen upon charges : The resolution should require that, in each case: i— Every sergeant shall report to the chief each delinquency or derelict, or violation of rules and regulations, or conduct or disorder or neg- lect to the prejudice of good order, efficiency or discipline, which comes to his notice. 154 POLICE DEPARTMENT 2 — Charges shall be prepared under the supervision of the chief of the department, upon specially printed forms. 3 — The chief shall be required to conduct a preliminary investigation and to certify in writing upon the charges, his opinion as to whether the accused policeman should stand trial or whether the charges should be dismissed. 4 — The charges so endorsed* shall be forwarded to the Mayor, and in the event that the chief has recommended that the accused policeman stand trial, the Mayor shall endorse the charges to that effect. 5 — Each member of the department to be tried upon charges shall be served with a copy of the charges and specifications at least forty- eight hours before trial, exclusive of Sundays and holidays. 6 — Service of charges is effected by: a — Personal delivery of charges and specifications to the accused, b — Or, if personal delivery cannot be made, then by leaving them at his place of residence with some person of an age of discretion, and notifying such person of the nature of the papers, c — Or, if personal delivery cannot be made and residence cannot be located, then by posting them conspicuously in the office of the sergeant at the city hall. 7 — Each member of the department served with charges shall promptly acknowledge service by his signature on the copy to be returned. 8 — The person serving charges shall certify service and the time and date of service above his signature on copy to be returned. g— A trial shall be conducted before the Mayor,, or Council with the Mayor presiding, without unnecessary technicality, without unnecessary or unreasonable delay and without offensive speech or action on the part of any one. The Mayor or any member of Council may, without prejudice to the accused, forthwith exclude 'from further attendance at such hearing a person who offends against any of these provisions. The following is suggested as a plan of trial procedure: i — The accused should be arraigned. 2 — The accused should be given the right to introduce or be represented by counsel, to move for dismissal of charges upon pertinent grounds, or similarly for an adjournment. 3 — The accused should plead to the charges in the following manner: To the first specification first charge "Guilty" or "Not Guilty;" to the second specification first charge, etc., to the number of specifi- cations in the first charge; then "Guilty" or "Not Guilty" to the first charge, and similarly for each charge in order. 4 — The witnesses for the department should next be introduced in the order directed by the Mayor. Before testifying a witness should be sworn. The Mayor should conduct the direct examination; at the conclusion of the direct examination the witness should be at the disposition of the accused for cross-examination; at the conclusion of the cross-examination,, the witness should be subject to re-direct examination to be followed by a recross-examination, etc. After the witnesses for the department have testified, the accused should then be instructed to produce his witnesses. POLICE DEPARTMENT ' 155 5 — Each witness for the accused as introduced should be sworn and his identity established by the Mayor, after which the witness should be at the disposition of the accused; following the direct-examination by the accused, a witness should be subject to cross-examination by the department, 'pie subsequent examination should proceed as with the witnesses for the department. 6 — The accused should have ample opportunity to subpoena witnesses in his defence and to introduce any and all testimony as may be availa- ble and necessary. 7 — The accused policeman should then be given an opportunity to testify under oath in his own behalf, or if he does not desire to testify under oath he should be permitted to make any statement in his own behalf not under oath. Following such statement or testimony he should be subject to cross-examination by the Mayor. 8 — The accused should then be given a brief opportunity to sum up or to make pertinent motions. FORMS OF PUNISHMENT. Council should provide by ordinance that the punishments which may be inflicted be: Dismissal or forfeiture of pay, or reprimand or extra duty, or forfeiture of "days off on vacation." The ordinance should also provide for punishment for minor infractions of the rules by a demerit system. In cases where fines are imposed, provision should be made so that not more than one-third of any policeman's salary would be deducted in any one month. A finding of guilty for intoxication while on duty should result in the dis- missal of a policeman. TRIALS SHOULD BE PUBLIC. All trials of delinquent policemen should be conducted in public, and so far as possible the rules of evidence should prevail. DETECTIVES NO DETECTIVES AT PRESENT. Although two members of the patrol force are assigned to "plain clothes" duty, which is in fact detective duty, there are no regularly designated detec- tives. While one of the two men performing detective duty was formerly attached to the State Constabulary, the second detective had had no police experience nor detective training whatever prior to his appointment two years ago. Neither of these two men has any knowledge whatever of methods of criminal identification, nor have they had any training in the preparation of cases for court or in any criminal investigations. In addition to detective services they are required to secure evidence against disorderly and gambling houses, to enforce the provisions of the excise law, and to perform numerous duties which are not and should not be a part of the duty of a detective. 156 POLICE DEPARTMENT Much of their time which should be given to the investigation of crime and the apprehension of thieves, burglars and other criminals, is given to^ the merest routine police work. An examination of the complaint records shows that there is a sufficient number of robberies and larcenies committed in this city to require the entire time of two md|i to conduct ^he necessary investigations and hunt the criminals operating in the city. No detective atten- tion whatever is given the railroad depots and thus it is possible for thieves to enter the city and depart without the slightest interference by the police. These two "plain clothes" men receive the same salary as the other members of the force. While they report each day, in writing, upon the arrests which they make, they do not make any reports covering their entire day's services,, nor do they make any reports in the form of progress reports in connection with the cases upon which they are working. While they operate under the direction of the Chief of Police and the Mayor, they are more or less ''free lances." Their operations receive no specific directions. SPECIALLY TRAINED DETECTIVES NEEDED. The need for scientific training of detectives is now recognized the world over. As criminals specialize in their work and become more scientific in their methods of operation, it becomes more imperative. The progress in detective efficiency in the larger cities of the United States makes it .more essential that the smaller cities be well equipped with efficient detectives,, since the criminals when routed out of the large cities, take refuge in the smaller cities. Reading needs at least four detectives, not detectives merely because they perform duty in plain clothes, but detectives trained in criminal investiga- tion and identification. Both New York and Philadelphia now maintain, excellent detective schools and have made considerable progress in the in- struction of their members in criminal identification and criminal investiga- tion and research. It is, therefore, recommended that the Council select and appoint four detectives, with an increased salary more than that received by the regular patrol force, to be not less than $1,200 per year. Following their selection,, the Council should provide sufficient funds for them to visit New York and Philadelphia and attend the courses now being conducted in those cities for detectives. The New York police department provides for the instruction of detectives from other cities without any fee. DETECTIVES SHOULD VISIT PRISONS. When selected, the Chief of Police should require that at stated intervals the detectives visit the State prisons and penitentiaries from time to time to observe criminal faces and to study criminal characters. One of the four should be designated chief detective and should be in charge of the operations of the other three in addition to his regular work. During the probating period, these detectives should be required to attend the school of recruits suggested elsewhere in this report, in order to become familiar with ordinary police routine and proceedings, report writing and the laws and ordinances of the State and city. The members of the detective bureau should be required to confine their operations to in- POLICE DEPARTMENT 157 vestigations of crime and the apprehension of criminals, and should have no duties with relation to the enforcing of the laws against gambling, the social evil and excise. These laws should be enforced by the regular patrol force and when patrol work is necessary, patrolmen should be detailed by the chief to operate in plain clothes for specified periods. They should be changed from time to time, and not permitted to remain in plain clothes for any •extended period. The shield of the detective should be different from that of the patrol officer. It should be large and gold-plated. DETECTIVE RECORDS. A separate set of records should be maintained by the detectives. The following system of records in connection with detective work is recom- mended: 1. A detective complaint book: In this should be kept the record of every complaint made which required detective attention. The headings in this book should call for complete information concerning the complaint. 2. A record of arrests: This book should correspond to the regular record of arrests recommended for use in connection with arrests by the uniformed force, and every arrest made by the detectives should be entered therein. 3. Detectives' assignment book: In this book should be kept a record of assignments of all detective cases. It should contain the name of the detective assigned, the time assigned and the time when assign- ment is finished, with a brief statement of results. 4. Record of property stolen and recovered: This book should have printed headings calling for information concerning each robbery complaint. It should show an itemized list of the alleged stolen property, with the proper heading calling for information concern- ing the property recovered. In this book and under the heading "property recovered", should be written not only a list of property actually recovered, but a state- ment as to how it was recovered; that is, whether in a pawnshop, a store of a second-hand dealer or in the custody of the thief. It should also state the value of each piece of property stolen and the value of the part recovered. In addition,, it should show name of the officer in the case and whether or not there has been an arrest in connection with it. There should be a column in this book, with the heading "receipt for delivery of stolen property." Under this heading each owner of property recovered should be required to sign his or her name upon the delivery of the property. Each month the entries in this book should be recapitulated showing the number of larcenies re- ported, the approximate total value of the property stolen and the approximate total value of the property recovered during the month. 5- Complaint card record system: The chief should cause to be printed forthwith, a set of detective complaint record cards. This card should have printed headings calling for detailed information con- 158 POLICE DEPARTMENT cerning the nature of the complaint, time received, descnption of persons suspected of having committed the crime, careful descip- tion of stolen property, and a record of the investigation, with adequate information concerning the arrest and final disposition of the case. The procedure should be as follows: Upon the receipt of a complaint requiring detective attention, a detective should be assigned at once. The detective should fill out the complaint card at the time he interviews the complainant. Each complaint should be given a serial number to correspond with the number of the complaint in the c etective's complaint book, a^d all subsequent reference to the comoiaint should be by the complaint number originally given. When an arrest is made, the information concerning it, called for under the heading "arrests and disposition," should be filled in by the detective. Pending the arrest, each day the detective works on the case he should enter upon a card of the same size but of a different color and called the "progress" card, in detailed form what duties he performed during the day in connection with the case. This card should be filed with the original complaint card. 6. "Case closed" card: No case should be closed, nor investigation stopped, without an order from the chief detective or the chief of police. This order should be in writing and upon a card which should provide a heading calling for definite reasons for the closing of the case. The card should be signed by the officer, acting as an order. The procedure should be for the detective working on the case to write upon this card his recommendation for closing the case and his reasons therefor, and present it to the officer in charge, for his approval. This card should be filed with he original complaint and progress cards. 7. Detective's daily report: Each detective should be required to file a detailed report stating the time he reported for duty, and the amount of time he spent on each specific assignment. This card record should be filed with the chief of the department and reviewed by the Mayor each day. They should be filed under the name of the detec- tives and not merely chronologically. 8. File consolidated report: The chief detective should furnish the chief of the department with a detailed consolidated report showing the activities of all four detectives for each twenty-four hours. This report should show, by comparison with the same day of the preced- ing week and of the preceding month and of the preceding year, the number of complaints, classified as to crimes; record of dispositions and all other information concerning the crime conditions in the city. This consolidated daily report should be forwarded to the Mayor for his inspection and review. 9. Telephone records: A telephone record should be kept of all messages, incoming and outgoing, and each entry when made, should be signed by the detective making the entry. 10. Case records: A vertical correspondence filing cabinet should be provided, with large folders. Each detective case reported should POLICE DEPARTMENT 159 receive a special folder indexed under the name of the complainant, and when an arrest is made, under the name of the person arrested as well. In this folder should be kept the original complaint card, the progress card, the closing card, and each and every document, letter, telegram and any other paper in connection with the case. Thus, it will be possible to maintain the entire case record under one folder. No person should have access to this filing cabinet except the chief detective, the chief of police and the Mayor and Council. BUREAU OF CRIMINAL IDENTIFICATION SHOULD BE ESTABLISHED. Although the Department is equipped with the Bertillon measurement system and a partial finger print outfit, no one connected with the Department has been given adequate instructions either in classifying finger prints or in taking Bertillon measurements of criminals. The Department does not own a camera, and pictures for its rogues gallery are taken by a local photographer at a charge of fifty cents per picture. The filing cabinet in which are kept the Bertillon records, is located in the private office of the Mayor. By .an arrangement with the jail, the Department is able to secure photographs of criminals after conviction, but these photographs are not of the proper kind for use in a rogues gallery, because the pictures of the prisoners are taken in their prison garb. No records in police work are of greater importance than records of criminals — finger prints, Bertillon measurements and photographs. So im- portant are these records in ferreting out crimes and criminals that large cities have gone to the expense of gathering photographs and records of criminals from all parts of the world for their criminal bureaus. Realizing the benefit to be derived from the co-operation of all the cities in the country in establishing a complete "rogues gallery," a national bureau of criminal identification was formed in the capital of Washington, as a clearing house for records, photographs and general information concerning criminals. This organization distributes these records to the various police departments throughout the country, and in order to cover the expenses involved in the collection of these pictures, charges a nominal membership fee. It is recom- mended that Reading's chief of police be authorized to secure these services for Reading, and that money be appropriated to pay the annual fee. It is suggested that Council authorize the chief to get into immediate communica- tion with the national bureau of criminal identification and ascertain the rate they would charge Reading for such service. It is recommended that the clerk whose appointment is recommended elsewhere in this report, be appointed to take charge of the criminal identifica- tion records. Council should provide the necessary funds to send him to New York to study the methods of criminal identification in use by the Police Department of that city, and the method of classifying finger prints. He should also receive instructions in photography, learning how to take pictures and. develop the plates and make prints. Council should privide the police with a camera.. While the fee charged by the local photographer for photographing the criminals arrested in this city may be said to be nominal,, it is not desirable, however, that the criminals should be taken through the i6o POLICE DEPARTMENT streets and into the studio of a local photographer. The Reading Police Department has no greater need at present than the establishment of a properly conducted bureau of criminal identification. Outside of the initial cost of the purchase of a camera and the membership fee in the national bcreau of identification, no additional money would be needed for the establishment of such a bureau. The clerk whose appointment is recommended elsewhere, could have the combined functions of property clerk, photographer and record clerk in the office of the chief of police. DEPARTMENT HAS NO CONTROL OVER PAWNBROKERS AND SECOND-HAND DEALERS. There is no ordinance or law providing for police control over pawn- brokers and second-hand dealers. A proper control over both these industries is essential to efficiency in the management of the detective bureau. At present the Department forwards a list of reported stolen property to the pawnbrokers; but neither the pawnbrokers nor the second-hand dealers furnish the police with a daily list of property pledged with them.* It is recommended that the Council adopt an ordinance requiring each pawnbroker and second-hand dealer in the city to furnish the chief of police, each morning before ten o'clock, with a list of articles pledged with them during the preceding 24 hours. This information should be furnished upon specially printed forms, provided by the Police Department. These forms should be provided with sufficient headings to call for full information con- cerning articles pledged. The ordinance should provide for the installation of a "buzzer" in the telegraph bureau of the Police Department, with a button in each of the four pawnbrokers' establishments. Whenever any person at- tempts to redeem property which the pawnbroker has already been notified by the Police Department was stolen, or whenever any person attempts to pledge an article which the pawnbroker would have reason to suspect was stolen, the latter should be required by law to press the button, notifying the police. The button should be concealed under the counter or in some part of the store handy to the clerk. The chief of police should immediately dispatch an officer to investigate. The "buzzer" system has already been proved to be an efficient means of apprehending persons pledging stolen articles. Pittsburgh has been particularly successful in making arrests due to this system. It should be the duty of the property clerk, upon receiving the pawn lists,, to compare the articles listed thereon with the daily list of reported stolen property and to notify the pawnbrokers or seond-hand dealers if any stolen property is discovered on their lists. This notice should be in writing. The ordinance should authorize the Police Department to serve a "stop" notice, in writing, on a specially provided form, upon pawnbrokers. A "stop" notice is a notification to a pawnbroker that an article appearing on his list of pledged articles is believed to be stolen property. This notice contains a direction to the pawnbroker to notify the police immediately upon a demand being made for the article and it likewise restrains the pawnbroker from allowing the stolen property to be redeemed by ticket. Failure to comply * An ordinance requiring a daily report from all pawnbrokers became effective in January, 1914. POLICE DEPARTMENT i6r with the order contained upon such "stop" notice should be cause for revoca- tion of the pawnbroker's license. RECORDS AND REPORTS PRESENT SYSTEM OF RECORDS INADEQUATE. A study of the records and reports maintained at the office of the chief shows that the present system of records is wholly inadequate. However, the present system is an improvement over the system in operation prior to the present administration. The records, as at present maintained, represent at least an effort to record the activities of the members of the force and the operations of the Department. PAYROLLS SHOULD BE PREPARED BY BUREAU OF ACCOUNTS. The payroll at present in use, and made up semi-monthly by the Police Department, is of an antiquated type. It is recommended that the practice of having the Police Department prepare its own payroll be abandoned, and that the Department be required only to certify to the bureau of accounts, upon a specially printed form,, the service time of the members of the force. SERGEANT'S DAILY REPORT SHOULD BE ABANDONED. The sergeant's daily report now in use should be abandoned. It has resulted in preventing the proper filing of complaints and other information recorded thereon. It has likewise prevented the automatic compilation of statistics. It is recommended that the sergeant's daily report be abandoned and that the rules prescribe that each patrolman shall be required to make a separate written report upon accidents, fires, light outage, nuisances, conditions of streets and sidewalks and all such matters as are observed by him while on patrol. These reports should be collected by the sergeant while on patrol,, or turned in by the patrolmen to the desk sergeant at the return roll call. The desk sergeant should be required to copy into the desk blotter, which will be referred to elsewhere, the reports handed in. The original reports should be forwarded to the respective departments having jurisdiction, while those which concern the Police Department should be filed with the chief. That part of the sergeant's report under the head "Department," which provides for the report of policemen on vacation, leave of absence,, excused, late, etc., should be recorded upon regular time sheets maintained at the office of the chief. Complaints against policemen should be submitted upon specially printed forms. CONSOLIDATED DAILY RETURN. Instead of the sergeant's daily reports, the Mayor should receive a "con- solidated return" which should be prepared upon a printed form, with proper headings. This report should contain sufficient headings to provide for 162 POLICE DEPARTMENT entering thereon, in concise, consolidated form, a report of the activities of the force for each 24 hours. The report should show the presence or absence of the members of the force at both roll calls, the number of day and night beats in the city, the number of beats actually patrolled on each tour of duty, the names of members of the force absent, and the reasons for their absence. It should also contain a table of arrests showing the number of male and female prisoners arrested during the preceding 24 hours. This table should be classified by crimes, showing total number arrested for misdemeanors, drunkenness, juvenile delinquencies, and felonies. All aided cases should be reported thereon. The return should show the number of policemen assigned to mounted, motorcycle and traffic duty. Special details such as policemen assigned to "plain clothes" duty, special posts or any other form of special duty, should be noted, showing their names and shield numbers and character of duty to which they are assigned. REPORT SHOULD CONTAIN COMPARATIVE TABLES. Under the heading "arrests" should appear,, in tabular form, not only the arrests classified as to crimes for the preceding 24 hours, but likewise the arrests for the same day of the preceding year, and the total number of arrests for each of the crimes classified in detail for the current year. Under the heading "complaints received", the number of complaints received during the preceding 24 hours, classified as to subjects complained of, should be entered. The record o£ complaints should be in the same tabular form as the record of arrests. It should be understood that this report is merely a summary of the activities and not a detailed report, and should not interfere with the regular detailed reports suggested elsewhere. REPORTS WHICH MAYOR SHOULD RECEIVE. The reports at present sent to the Mayor do not enable him to judge of the efficiency or inefficiency of the force, and in a large sense contain nothing more than time reports and such current information as *s contained upon the sergeants' daily reports. The rules of the Department should provide that the chief forward to the Mayor detailed written reports upon all cases occuring during regular hours as soon as they are brought to his attention. Each morning the chief should forward to the Mayor, detailed reports upon all occurances happening during the night, which are of greater importance than the ordinary routine mat- ters. On the first day of each month the chief should file with the Mayor and Council, a monthly report containing a summary of all the facts contained in the daily consolidated returns. All these reports should be made out in duplicate,, and a copy filed in the office of the chief. It should be remembered that to be of any real value, statistical reports upon police activities should be comparable. They should show by comparison with the same period of the preceding year, the crime conditions of the city, and the success or failure of the Police Department in apprehending the persons responsible for the crimes. To this end, wherever complaints received are tabulated, immediately alongside of them should appear the number of POLICE DEPARTMENT 163 arrests or specific action taken upon them, the object being to show, first, the action taken by the police upon the complaint, and secondly, the result of such action. RECORD OF ARRESTS SHOULD BE ESTABLISHED. One of the most important records of a police department is the record of prisoners' pedigrees. The present method can be greatly improved upon by the establishment of an "arrest blotter." At present the pedigree of prisoners is entered in the magistrate's docket, but no statement of the facts concerning such record is noted in this book. It is recommended that the title of this record be changed to "record of arrests" and the printed headings also be changed so as to call for additional information concerning the prisoner and the reasons for his arrest. A complete statement of the charge against the prisoner and the facts of the arrest should be entered in this record at the time the prisoner is arraigned. Information as to bail or forfeit should also be included. This book should be in charge of the desk sergeant in the station house. The pedigree of the prisoner should be entered in the presence of the prisoner when arrested. The disposition of the case should be entered im- mediately upon the disposition of the case by the magistrate. When prop- erty is returned to the prisoner, he should be required to sign his name in the record of arrests. A DESK BLOTTER SHOULD BE USED. Instead of the present book, in which is kept complaints, etc., a desk blotter should be established. This book should be a complete chronological record of the business conducted at the station house. The complaint book now in use was apparently intended to be a chronological history of the Department,, but the object has been defeated because of lack of rules govern- ing the method or manner of entry in this book. It is,, therefore, recom- mended that the title of this book be changed to "desk blotter" and that specific rules be promulgated governing not only the manner of entry, but defining just what shall be entered in the blotter. The desk blotter should be very much larger than the present complaint book. The rules should require that the blotter contain the following: 1. Pasted on the inside of the front cover, a list of the patrolmen and sergeants, their shield numbers and the number of the posts to which they are assigned. 2. A record of all police business affecting the Department or any part of it. 3. A record of service performed by each member of the command, with the time and location of the service. 4. In the sergeant's handwriting, the time at which he arrived at the station, the time he left and the purpose of leaving. 5. Delinquencies of members of the command. 6. Itemized list of property, coming into the temporary possession of the Department or any number of it, a record of the circumstances under which it was found,, the name and address of the person who found 164 . POLICE DEPARTMENT it and the name and address of the owner, if known, and the disposi- tion of it. 7. The visit to the station of any city official, the time of his arrival and departure, and the business transacted. 8. A record of complaints other than letters of complaint which would otherwise be entered in the citizens' complaint book or detectives'" complaint book, matters requiring police action and action taken. 9. A record of subpoenas received and served upon members of the Department. 10. All matters reported by members of the Department affecting any duty performed by any of them. The blotter should be in the handwriting of the commanding officer or desk officer. Unnecessary repetition should be avoided. When a matter is fully covered in one record, such as the telephone record, arrest record or complaint book, and it is necessary that entries concerning it should appear in the desk blotter, reference should be made to the other detailed entries. Every member of the command should be accounted for in the roll call of the platoon or section to which he is attached, and his presence or absence noted in the desk blotter. The desk officer, on taking command, should enter in his own handwriting his signature and the hour of arrival. The desk officer, on being relieved, should enter his signature, the hour of his departure and the purpose of leaving. In entering the names of the members of the force in the desk blotter,,, the surname should be used except when there are two members of the same name, when the initials or full name should be entered. Abbreviations should be used in making entries in the desk blotter, in accordance with an established code. Across the entire top line of the page should be written the day of the week, the month and the year, as for example: Thursday, January 1, 1914. Each day should begin at the top of a page. A red marginal line should be drawn the length of the page, allowing two inches . of margin on the left hand side. The entries should be made chronologically as they occur and in the margin should appear the time. Not only the time should be written in red ink, but also a marginal notation as to the subject of the entry. For example, if the entry be that a citizen is complaining of a robbery, the words "Compt. of Robbery" should be written in red ink in the margin, under the time; or, if the entry be one relating to a fire, the word "fire" should appear in red ink, the same being true of entries such as roll call, accidents, etc. When an error is made a red line should be drawn through the erroneous entry and the correction written alongside with the initials of the officer making the correction. The rules should prohibit erasures not only in tin's, but in every record of the department. If the entries for a day extend only to the middle of the page, immediately beneath the last line of the entry, a horizontal line across the entire page, and an oblique line running from the left hand of the horizontal line to the lower right hand corner of the page should be drawn in red ink. One line- should be left between each entry. POLICE DEPARTMENT i6= RECORD OF AIDED CASES. No special book is provided for keeping a record of accidents, injured persons attended at the police ^tation, dead bodies found and such other cases in which the police render aid*. The present method is to enter data concern- ing aided cases upon the sergeant's daily report, along with other routine business of the department. There is no complete police record of ambulance. If the ambulance is called through the police telephone, the department noti- fies the driver of the ambulance, and the only record of such cases is the record of the time the call was received and the location to which the ambu- lance was sent. If the ambulance is called by telephone, or otherwise, not through the police wires, the department would have no record whatever of such a call. Thus it is impossible to secure any definite information from the records concerning the ambulance cases. This is true,, notwithstanding that the Council, in 1909, adopted a resolution which required that the ambu- lance should be under the supervision of the police and that all calls should come through the Police Department. Because of litigation arising out of street accidents, constant demands are made upon the Police Department for certified copies of police records. More frequent queries are made concerning aided cases than perhaps any other police business. Therefore, the records of aided casss should be compiled in such a manner as to facilitate ready access to them. The depart- ment should have a separate record book known as a "record of aided cases." In this book should be entered a complete and detailed accound of all per- sons receiving aid through the Department of Police. The record in each case should include the name, age, address, color, nationality, occupation, social condition of the person aided and a detailed statement of the facts in connection with the case, including the names and addresses of witnesses, and in brief any statement made by them. The pedigree of persons lodging at the station house should also be carried in the record of aided cases. This record should have printed head- ings, and each case entered should be numbered consecutively. This book, as well as the arrest blotter,, should be indexed to the name of the person aided or arrested. PRESENT SIGNAL BOX TIME SHEET ADEQUATE. The time sheet now in use, upon which is recorded the time at which a member of the force signals from his post, is adequate and should be con- tinued in use, except that the practice of entering the names of prisoners on the back thereof should be abandoned. Inasmuch as the chief will receive a card record of arrests each morning from the desk sergeant, the entering of these names upon the time sheet should no longer be necessary. SLATE RECORD SHOULD BE ABANDONED. The use of the slate for recording prisoners' pedigrees should be aban- doned at once as provision has been made in this report for adequate records upon which to enter the pedigree of prisoners. 166 POLICE DEPARTMEN T TELEPHONE RECORD. Although much of the business of police work is carried on over the telephone, no record of telephone messages is kept at the city hall. No message, incoming or outgoing, should be left unrecorded, and a special record should be established to be officially known as the "telephone record." This book should contain a record of all police business conducted by telephone and received or transmitted by the command or any member of it. The rank, surname and command of persons • receiving and trans- mitting, and the surname and official designation of the person under whose direction the message was sent, should be recorded, and the time of com- pleting the conversation should be considered the time of the message. The rules should provide that all prisoners should have the right to send a telephone message notifying their friends, in order to secure bail. A record telephone message totifying their friends, in order to secure bail. A record of the message containing the time, the number called and the name of the person telephoned, should be kept in this book. The regular signals from patrol boxes, however, should be carried upon the patrol box time sheet as at present. CITIZENS' COMPLAINT BOOK. The present method of recording citizens' complaints is most inefficient, particularly, because all complaints are not recorded and those which are recorded are not properly entered. It is recommended that the present complaint book,, kept by the desk sergeant, be abandoned, and a regular citizens' complaint book be estab- lished. There is at present a regular printed complaint book which should be put into use immediately. At present it is used only to enter complaints which result in an arrest. In this book should be kept a record of all com- plaints received, except complaints requiring the attention of detectives, which should be kept in the detectives' complaint book referred to elsewhere in this report. As soon as the present printed complaint book is filled, a new complaint book should be provided, which should allow more space for entering complaints and the disposition of them, than is allowed in the one now in use. The book should be indexed to the name of the person making the complaint and to the subject complained of as well. The rules should provide that in each case the name or names of the officers assigned to inves- tigate the complaints and the result of their investigation, be entered promptly. Complaints sent by letter should be copied in this book before being sent out for investigation. At the end of each month the complaint book should be tabulated and a recapitulated table furnished, showing the following: i — Complaint received, classified as to subject and action taken upon them. 2 — Results of investigations,, classified as to complaints unfounded, ar- rests made, nuisances abated, etc. No complaints received by the police, whether orally or in writing, should be left unrecorded. Thus every complaint received, the names of the officers assigned and the official disposition as a result of an investigation should appear either in the detectives' complaint book or the citizens' com- POLICE DEPARTMENT 167 plaint book. The method of handling complaints and correspondence will be referred to elsewhere in this report. CARD RECORDS SHOULD BE ESTABLISHED. The office of the chief should be equipped with a complete card record of all persons arrested and aided. For this purpose the department should be supplied with a quantity of printed cards, each series of a different color, to be officially known as "arrest," "aided," "intoxication" and "lodger" cards. The intoxication and lodger cards are suggested in order that a complete separate record of arrests for intoxication and persons given lodging may be maintained. Both of these records are valuable as separate records for the use of the magistrate in disposing of intoxication cases and vagrancy cases. ARREST CARD. The arrest card should have printed upon it the same headings which appear in the arrest blotter. The information concerning each arrest should be copied from the arrest blotter upon the arrest card. These cards should be retained by the desk sergeant until after the magistrate's hearing, and the disposition of each case should be posted upon them. They should then be sent to the office of the chief and there filed alphabetically according to name of prisoner. Thus the Department of Police would have at its dis- posal a card record of all arrests made in the city, with detailed information concerning them alphabefically arranged. In cases where the defendant is held over for court the final disposition of the case should be forwarded to the office of the chief, upon a supplemental card and there entered upon the original arrest card.* AIDED CARD. A card containing the same printed headings as appear in the aided blot- ter should be filled out for each aided case (except lodgers) and filed daily with the chief. INTOXICATION CARD. A special card should be prepared upon which should be recorded the pedigree of each person arrested for intoxication or intoxication and disorderly conduct. This card should be in addition to the . regular arrest card and should contain headings to provide for detailed information concerning the habits of the prisoner. If the prisoner is so intoxicated at the time of arrest as to be unable to answer questions intelligently, he or she should be required to answer them before being arraigned in the magistrate's court in the morning. Before the prisoner is arraigned, an examination of the previous arrest cards should be made to determine whether there is any card on file showing a previous * A system of arrest cards to remedy these conditions will be installed in February, 1914. i68 POLICE DEPARTMENT ' arrest of the defendant for intoxication. Each month the facts contained upon these cards should be listed and tabulated and a report containing a summary of the facts submitted to the Council. This record is suggested in order that the Council may have before it official facts and figures con- cerning the inebriety cases. Such data should form the basis of a careful study with a view to providing treatment of persons addicted to the use of liquor, other than criminal prosecution and incarceration in prison. LODGER CARD. It is recommended that a special card history of lodgers be established, and a study made of the facts and figures assembled upon the cards. For this purpose it is suggested that a special card be prepared calling for de- tailed information concerning the history of the applicant for free lodging. The card should contain an accurate description of the lodger. This card should be forwarded to the office of the chief and there filed alphabetically. The information on these cards should furnish the basis of a study of the unemployed. RECORD OF REPAIRS AND SUPPLIES. No adequate record of repairs and supplies is at present maintained. Not even are copies of the requisitions upon the City Clerk kept at the office of the chief. Requests should be made in duplicate on forms furnished in bound books. The original copy should be perforated and the duplicate permanently bound and retained at the office of the chief. Separate forms should be provided for repairs and supplies. All officers should be instructed to note carefully upon the requisition forms supplies requested but not furnished, and repairs requisitioned but not made. INDIVIDUAL RECORDS OF MEMBERS OF THE FORCE. The only records concerning members of the force at present main- tained by the chief are time records and a card record with the assignments of the members. A complete and separate record should be kept concerning each member of the force. Each of the present members should be required to fill out a specially prepared form, stating thereon complete and detailed information concerning his history. These statements should form the basis of individual records. Each member of the force should have a separate folder in which should be kept these statements and every other document concerning the member during his services as a policeman. DEPARTMENT SHOULD HAVE PHOTOGRAPHS OF ALL MEMBERS OF THE FORCE. The department should have a photograph of every member of the force and should cause each member to furnish a new photograph at least every three years. This practice provides for an adequate method of identification. P OLICE DEPARTMENT 16? POLICEMAN'S CARD RECORD. * Each policeman should have a separate card upon which should be re- corded the record of his delinquencies. Upon the opposite side of the card should appear the record of any extraordinary service performed by the policeman,, such as an heroic act of bravery, an arrest involving special intelligence, etc. HEALTH RECORD SHOULD BE MAINTAINED. As referred to elsewhere in this report, a separate health record of the members of the force should be maintained. This should be in the form of a card record and should show every absence due to illness, cause of illness and duration of illness. SERGEANTS SHOULD MAKE MONTHLY LICENSE REPORTS. Sergeants should be required to render a monthly report to the chief showing that they have inspected or caused to be inspected during the month all licensed premises in the district. This report should also contain a record of arrests and all violations of the law discovered, and all other necessary information concerning licensed premises. SERGEANTS SHOULD MAKE MONTHLY REPORT OF SUSPECTED PLACES. Sergeants should be required to render a monthly report to the chief containing lists of all places suspected of being gambling houses, disorderly houses, houses of prostitution or "fences" within their districts. This report should be in addition to the specific detailed report filed by the sergeant when such place is discovered. FILING SYSTEM NO SYSTEM AT PRESENT. The Department of Police has at present but one filing cabinet for its records. This is a vertical correspondence cabinet and is located in the office of the chief. There is no regular system of filing in operation, and, consequently, the files are inefficiently maintained. It is recommended that the additional clerk, whose appointment is suggested, be in charge of the records and files of the department, and that for this purpose the room now used by the desk sergeant be equipped and maintained as a filing bureau. IMPOSSIBLE TO TRACE LOST DOCUMENTS. Under the present system, documents and records receive no serial number when filed, and papers may be removed from the cabinet and de- stroyed without their loss being discovered. When papers are removed from the files no receipt is signed by the person securing them and no record i/o POLICE DEPARTMENT is kept which would indicate to whom the papers were delivered. Thus there is no method of tracing documents once they have left the file. METHOD OF HANDLING MAIL. There is no regular procedure for the handling of mail. It is suggested that all mail addressed to the Police Department should remain in the post office until called for by an authorized agent of the Chief of Police. The department should have its own mail bag, equipped with a lock and two keys, one key to be kept at the post office and the other at the office of the chief. At various times during the day the patrol wagon driver should be dispatched to the post office for the mail bag. The bag should be delivered either to the chief or to his clerk. The mail should be assorted and distributed to the officers to whom it is addressed. The mail addressed to the depart- ment or to the chief, concerning Police Department business, should have the date and time of receipt stamped upon it as soon as opened. METHOD OF HANDLING COMPLAINTS. Communications from all sources, whether official or not, received by mail, messenger,, personal call or telephone, if not already in written form, should be reduced to writing immediately upon receipt, and the time and date of receipt should be stamped thereon. Each complaint should be given a serial number, the number to corre- spond with the number given the complaint in the complaint book. The clerk should write a brief synopsis of the facts contained in the letter of complaint upon a "brief sheet," without giving the name or address of the complainant except in cases where the complainant asks to be interviewed. The original letter of complaint should never fall into the hands of the investigating officers. Each brief sheet should contain a direction to inves- tigate and report. The report of the officers' investigation should be written on the brief sheet, except when it is so long as to require an additional sheet, in which case the officer should report upon a sheet of paper of the same size as the brief sheet. The report, when filed, should be reviewed by the chief. Care should be taken to note in the report any action taken as a result of investigation. The brief sheet and report should then be attached to the original complaint and filed. FILING SYSTEM. The files should be divided into three sections: I — Complaints — vice and general. 2 — Personnel files, to include all papers relating to members of the uni- formed force or employees of the department, to be filed alpha- betically by the name of the individual. 3 — General correspondence — in which should be kept copies of originals of all correspondence relating to police matters except matters referring to members of the force and the complaints. POLICE DEPARTMENT 171 METHOD OF SECURING PAPERS FROM THE FILES. The rules should require that all papers and documents be sent to be filed as promptly as possible, and no papers should be removed from the files except upon a written request signed by the chief or the Mayor. The requisition should state specifically the papers desired and the name of the person desiring their use. The requisition should contain a form of receipt thereon, to be signed by the person to whom the papers are delivered. A red card to be known as an "out" card should be provided. When papers are removed from the files the title of the documents so removed should be placed on this, which should then be placed in the files from which the papers have been taken. The requisition should be filed in a separate file and not removed until the papers are returned and placed back in their position in the files. Then the original requisition should be filed permanently. ANNUAL REPORT PRESENT FORM OF NO ADMINISTRATIVE VALUE. The annual report of the Police Department as at present prepared is of no administrative value. All the tables of arrest in the annual report show only the conditions for the year reported upon. Thus a comparison of the work performed by the Department of Police cannot be made. The report fails to point out whether crime is on the increase or decrease, and a study of the figures does not disclose any information upon the subject of crime in the city. The police report should be more than a mere statement of activities of the department for the period reported upon. In fact, it should be a complete record of criminal conditions, a guide to the legislature and Council in framing penal laws and ordinances, and a guide to judgment as to the efficiency of the police service. NO COMPARATIVE TABLES FURNISHED. All tables should be on a basis of comparison with former years. It is of no value to state that there were five arrests for burglaries during the year 1912, unless in comparison there appears the number of arrests for burglaries during the years 191 1, 1910, etc. NO MENTION OF CRIMES FOR WHICH NO ARRESTS WERE MADE. The report as at present prepared is of absolutely no value in judging the efficiency or inefficiency of the Department of Police nor in judging crime conditions of the city, because nowhere in the report is there any reference to the number of crimes reported for which no arrests were made. NO MENTION MADE OF COMPLAINTS RECEIVED. Notwithstanding the fact that the most important information as a guide 172 POLICE DEPARTMENT to efficiency and general conditions in the city is the number of complaints received, classified as to the subject complained of, action taken and arrests resulting therefrom, compared with the complaints for the same subjects in prior years, not a single line in the report is devoted to this subject. COMPLETE DETAILED REPORT RECOMMENDED. It is, therefore, recommended that the Department of Police issue an annual report containing adequate statistics of police activity arranged in tables which would be of real value in — i — Determining the efficiency of the force; 2 — Determining the crime conditions of the city; 3 — Furnishing a guide to the Council in the matter of enacting ordinances affecting the department and the suppression of crime. 4 — Presenting a true picture of the activities of the Police Department, not only by a statement of facts for the year reported upon, but by comparison with former years. The report should be divided into sections as follows: i — A section devoted to the welfare of the force. In this section should appear tables showing: Number of appointments Transfers Promotions Deaths Dismissals Trials upon charges and dispositions Reinstatements . Number of days of absence of policemen due to illness Prevailing causes of illness Sanitary condition of station house 2 — A section showing the financial condition of the department. In this section there shou.ld be tables showing: Total amount of money appropriated for the Police Department,. year by year for the past five years; Disbursements tabulated as to salaries, repairs and supplies, new equipment, feeding of prisoners,, printing, procuring of evidence, maintenance of horses and automobiles and other expenditures; Receipts of money for license fees, sale of condemned equipment and policemen's fines. 3 — A section giving statistics as to repairs and supplies prepared in tabular form as to — Character, amount and value of new equipment purchased Repairs Supplies 4— A section showing the activiy of the force. This section should be divided into two parts, namely, detective division and uniformed force — a — Under the heading "detective division" the fullest detailed sta- tistics possible should be furnished in tabular form as to the following: POLICE DEPARTMENT 173 (i) Complaints received requiring detective attention, show- ing the number investigated, the number unfounded, the number upon which arrests were made, those upon which no action at all was taken and the number upon which no results were obtained after action had been taken. (2) Arrests for felonies made by members of the detective division classified as to crime, showing the number of males and females, and the disposition of the cases under the headings "convicted," "acquitted" and "pend- ing." (3) Arrests for misdemeanors — the same classifications as for felonies should be used. (4) Separate" tables showing arrests upon warrants, pick-ups and those brought back from other cities. (5) Number of murders committed and reported each year for the five preceding years with the number of arrests and dispositions stated in the same table. (6) Cases of burglary and house-breaking reported. This table should show how the burglary was effected under a form heading such as false keys, breaking doors in- securely fastened, etc., and the hours between which the burglary was believed to have been committed, the total value of the property stolen, the total value of the property recovered, the number of cases in which no ultimate loss occurred, the number of cases in unoc- cupied houses and the number in which personal vio- lence was used. (7) Number of arrests and investigations made by each mem- ber of the detective division, classified as to crime and place under proper headings, b — Under the heading "uniformed force" the fullest detailed statis- tics should be furnished in tabular form as to the following: (1) Complaints received and investigated by the uniformed force,, showing the number investigated, the number unfounded, the number upon which arrests were made, those upon which no action at all was taken and the number upon which no results were obtained. (2) Arrests for felonies made by the members of the uni- formed force, classified as to crime, showing the number of males and females, and the disposition of the cases under the headings "convicted," "acquitted" and "pend- ing." (3) Arrests for misdemeanors — the same classifications and headings as for felonies should be used. The report should contain a separate table of arrests classified by crimes in which should be noted all arrests made by motorcycle men together with the disposition of same. All these tables should show the total number of arrests under the same heading for each of the preceding five years. 174 POLICE DEPARTMENT 5 — A section showing in tabular form persons aided by the Department of Police. This table should show the number of male and female persons to whom assistance has been given. By persons aided is meant injured persons sent to the hospital, missing persons found, dead bodies sent to the morgue or home, children found by police, foundlings taken care of, etc. The headings for this table should include — Assault Accidental injury Attempted suicide Found dead Found drowned Insane Rescued from drowning Sick Suicide Persons missing Number reported missing Number located by police Number otherwise found Number still missing Lost children Number reported lost Number found by police Number reported found Number still missing Foundlings Number found by police Number brought to the station house Lodgers The side columns should contain the following headings: Male Female Total Claimed Taken home Taken to hospital Attended at station house Prisoner Taken to morgue Restored to parents 6 — A section showing general crime statistics. This section should con- tain in tabular form the fullest statistics as to the following: a — Arrests for intoxication: Headings for this table should be so arranged as to show in separate columns the number of ar- rests between i A. M. and 6 A. M., and 6 A. M. and I P. M.; i P. M. and 7 P. M.; 7 P. M. and 10 P. M.; 10 P. M, and 1 A. M. on each day of the week. Additional headings based on the information contained on the intoxication arrest cards should be incorporated as a table. A distinction should POLICE DEPARTMENT 175 be made between arrest for intoxication and arrest for in- toxication and disorderly conduct involving a breach of the peace. Because of a lack of statistics, concerning arrests, it will be impossible in the next annual report to show arrests for more than one offense by the same person. Columns, how- ever, under the headings first, second, third and fourth ar- rests should be incorporated in the table and the information under these headings based upon the statements of the pris- oners as to their former number of arrests. In subsequent years, however, the information under these headings should be based upon the department's own statistics. b — Arrests for disorderly conduct and prostitution: These tables should show the nationality and sex of all prisoners, classified as to crime. The information of this table should be in ac- cordance with the forms already suggested. The present table of crimes in the annual report shows neither the color nor the sex of the prisoners, c — Arrests for juvenile delinquency: This table should show the number of children arrested for juvenile delinquency at vari- ous ages classified as to the nature of offense. It should show the disposition of each case under the following head- ings: Tried Convicted Acquitted Discharged No complaints taken Paroled On bail Detained in charitable institution Sent to reformatory school Forfeiture Death of defendant d — Sentences of persons imprisoned and fined: This table should show the amount of fines tabulated in amounts from $5.00 to $i f ooo with side columns for terms of imprisonment from five days to over ten years, e — Terms of imprisonment tabulated to show prison sentences imposed from five days to life, classified as to crime. f — Arrests for intoxication, disorderly conduct and prostitution on holidays, g — Disposition of all arrests, classified as to offense, showing total number of arrests made for each crime, records of con- victions and acquittals with sub-classifications as to convic- tions by plea of guilty or by trial and acquittals by direction, by verdict, or discharged (sub-classified as to discharges by magistrates or grand jury, by dismissal of indictment or on own recognizance); cases pending, sub-divided as follows: In jail 176 POLICE DEPARTMENT On bail Under parole and forfeiture h — Persons convicted of offenses, classified according to age and sex. i — Record of weapons confiscated, classified as to — Revolvers Shot guns 'Stilettos Swords 7 — Signal service: Under this heading should be given statistics as to the number of incoming and outgoing telephone calls over depart- ment wires as well as through the municipal board, and all recom- mendations as to improving the telephone service. 8 — Recommendations: Under this heading should be noted all recom- mendations concerning the force and its management. Weiler's Printing House ^S^^^ 440 Court St., Reading, Pa. PAMPHLET NUMBER SIX READING, PENNSYLVANIA Report on a Survey of the Department of Parks Prepared for The Chamber of Commerce of Reading by the New York Bureau of Municipal Research DECEMBER, 1913 10 CENTS C ONTENTS Page Summary of Criticisms and Constructive Suggestions Which May be Easily Adopted by Council 183-184 Administration 185 Personnel 185 Appropriations 186 Revenue 187 Purchase and Provision of Supplies and Equipment 187 Provision of Buildings 188 Maintenance of Park Properties 188 Publicity 190 PARK DEPARTMENT— SUMMARY DEPARTMENT OF PARKS SUMMARY OF CRITICISMS AND CONSTRUCTIVE SUGGESTIONS WHICH MAY BE EASILY ADOPTED BY COUNCIL ADMINISTRATION. The Park Board is not in close enough touch with the Department's work to know its problems and needs. The Board should be abolished and its powers and duties should be taken over by the Council. PERSONNEL. The Superintendent of Parks is hampered by lack of clerical assistance. A clerk should be employed to keep the detailed records which are recom- mended. APPROPRIATIONS. Lump sum appropriations for "general" purposes should not be allowed. Each appropriation should show in detail exactly the use to which the money is to be put. The yearly transfer of $2,500 from the funds of the Water Board for the maintenance of Mineral Springs Park should be discontinued and an ap- propriation made directly through the Park Department for this service. The cost of the park concerts should be included in the appropriation instead of being met, as at present, by voluntary subscriptions. PURCHASE AND PROVISION OF SUPPLIES AND EQUIPMENT. The Superintendent is obliged to use a horse and buggy on his tours of inspection and supervision. He should be provided with a small automobile. PROVISION OF BUILDINGS. The toilets in Penn's Common and Mineral Springs Park are unsanitary. Toilets should be properly connected with the sewer wherever that is possible. They should be made and kept models of sanitation. MAINTENANCE OF PARK PROPERTIES. The city should develop the properties it now owns, before buying any more. Baer Park is of no service in its present uncultivated state. It should be equipped as a city playground and athletic field. 1 84 PARK DEPARTMENT-SUMMARY The parks are not adequately policed during the summer months. Two policemen should be detailed to ' service in Mineral Springs Park during the summer. As there is no policemen on the boulevard, the regulation of fthe Park Board regarding its use cannot be enforced. A mounted policeman should be detailed to this road. The maintenance of the park roads should be looked after by the Bureau of Highways, not by the Park Department. The lighting of the parks by arc lights is inadequate. Gasoline street lamps or low incandescent lights should be installed. Records are not kept of the planting, removal or death of trees, shrubs, etc. Such records should be kept as a basis for determining the cost of maintenance. Trees are not labeled with their botanical and common names, although this would be of considerable educational value. The facilities for watering lawns, trees, plants, etc., are inadequate. The pipe lines should be extended so as to supply water whenever it is needed. The trees in the city streets are not properly cared for, no one, apparently, being responsible for this service. The Park Department should be charged with this work and provided with the necessary funds for doing it properly. At present the space reserved for use of the Zoological Exhibit is much too limited. More room should be provided, if necessary, by partly filling in the waterfowl pond. PUBLICITY. No monthly or annual reports are published. For the information of taxpayer and of Council, monthly reports should be rendered, and the entire twelve months' work should be summarized in an annual report. PARK DEPARTMENT 185 DEPARTMENT OF PARKS CRITICISMS AND CONSTRUCTIVE SUGGESTIONS ON ADMINISTRATION, PERSONNEL, APPRO- PRIATIONS AND MAINTENANCE. ADMINISTRATION PARK BOARD UNNECESSARY. The Park Board is composed of four members elected by Councils for a term of four years. They receive no compensation. They have no stated times for meeting and as a result meet only four or five times a year. The president calls a meeting only in case some important administrative problem is to be considered. A Board that works in this way cannot be very closely in touch with the real work and needs of the Department. Reading's park system has hardly been begun; if it is to be developed adequately, it must have a more active and less conservative administration. The Council should abolish the Park Board and take over all its powers and duties. PERSONNEL EFFICIENT EXECUTIVE HEAD. The Superintendent of Parks is a civil engineer of ability and imagina- tion. He is keenly interested in his work and has drawn up a number of plans for park improvement, some of which are now being put in operation, while others are soon to be begun. The park system is essentially a one man organization. The Superintendent is his own bookkeeper, storehouse keeper, purchasing agent, and foreman of working gangs. He personally supervises the work of the 8 park employees,, all of whom rank as laborers. CLERICAL ASSISTANT NEEDED. The Superintendent, recognizing the need for a better system of ac- counting is trying to keep his records so that they will show the amount spent on each division or function of his service. It is impossible for him to do the clerical work and keep the cost records which he needs, because he has to spend most of his time supervising the field work. ' It is recom- mended that he be provided with a clerk, at a salary of $750 per year. TIME AND SERVICE RECORDS KEPT BY PARK SUPERINTENDENT. The foreman of each gang of laborers is required to keep a time record of each man's service. The time books are printed with headings correspond- 186 PARK DEPARTMENT ing to the functions into which the Superintendent has divided the Depart- ment's work, and the time spent by an employee on each function is noted on each day's record. Employees are paid semi-monthly, according to the number of hours they have worked, at a fixed hourly rate. This is an excellent system which should be continued under the improved methods of record keeping and accounting recommended elsewhere in this report. While the functional headings and form of records may need to be altered the principle worked out by the Park Superintendent is correct, as it in- dicates that he intends to make time and service records the basis for salary payments and records of costs. APPROPRIATIONS APPROPRIATIONS SHOULD SHOW DETAILS OF INTENDED USE. The appropriation for the Park Department for the current year did not not state the items of expenditure with sufficient detail. Only the four following items were used: i. General $14,000.00 2. Operation and maintenance of the Zoo 1,000.00 3. Improvements to the pagoda 2,000.00 4. Transfer from the Water Department for the operation and maintenance of the Mineral Springs property 2,500.00 Total $19,500 . 00 This appropriation was based on statements of previous expenditure by the Superintendent. If his estimates were properly prepared, with the ex- penditure divided into items necessary for each function of the service, the appropriation should have followed the same form. The item of $14,000 for "general" purposes should have shown in detail the uses to which the money was to be put. NEED FOR IMPROVED METHODS. While the Superintendent is to be commended for his efforts to keep detailed accounts of his expenditures, his accounting system still needs im- provement. Accounts should be kept and budget estimates prepared accord- ing to a general budget classification. The expenditures for the improve- ment and maintenance of special park plots should be charged not to those plots, but to the appropriate functions of the service, no matter what particular piece of ground they happen to effect. TRANSFER OF FUNDS FROM WATER DEPARTMENT. The ordinance of March 20, 1893, transferring the Mineral Springs prop- erty from the Water Department to the Park Department contains a clause which states that "the funds necessary for the repairing and maintenance of said property shall be taken from the Department of Water." This is an unnecessarily roundabout method of securing funds for the operation and PARK DEPARTMENT 187 maintenance of park property. So long as the Department of Parks has charge of this property, the funds necessary for it should be appropriated directly through the department responsible for park service and not trans- ferred from other funds. APPROPRIATIONS FOR PUBLIC CONCERTS SHOULD BE MADE. The Department's appropriation has never included any provision for public concerts; those that have been given have been paid for by voluntary subscriptions. .Last year $717.29 was placed at the disposal of the Park Super- intendent for this purpose. As these concerts are properly a part of the park service,, their cost should be included as a regular item in the budget estimate prepared by the Department. REVENUE RENTALS AND CONCESSIONS. The Department receives revenue from three sources only. The hotel at Mineral Springs Park is rented at $25.00 a month, the caretaker's house at Mineral Springs at $1.00 a month, and a small amount ($48.26 in 1913) is received from the sale of timber cut on park property. The Superintendent suggests that additional revenue could be obtained renting the pagoda as an inner refreshment station. If this is done, the rent should include the cost of the water supply and other improvements which the city has installed. In general, park concessions should be granted only after careful consideration of their effect on the cost of park maintenance and of the profit the concessionaires will probably make. No concessions that will permit the sale of intoxicants on park property should be granted. PURCHASE AND PROVISION OF SUPPLIES AND EQUIPMENT SUPPLIES AND EQUIPMENT CONTROLLED BY SUPERINTENDENT The Superintendent purchases all necessary supplies on orders issued by the City Clerk. This forces the Superintendent to make the half mile trip to the City Hall whenever he wants to make a purchase. The Super- intendent states that it is his practice never to make purchases over $50.00, until he has sent personal letters to dealers asking for estimates. When bills are sent to the Superintendent, he certifies them as correct and submits them to the Board for approval. They are then taken to the City Clerk's office and checked against the stubs of the original order. The Superintendent keeps control personally of all supplies and equip- ment, and allows no supplies to be issued except through him. All worn or broken implements are returned to him before new ones are issued. As the methods to be employed in the purchase and provision of supplies and equipment for all city departments are taken up in detail in another section of this report, they are not commented on here. i88 PARK DEPARTMENT AUTOMOBILE NEEDED FOR SUPERINTENDENT. At present the Superintendent uses a horse and buggy in making his tours of supervision and inspection. He states that it takes him half a day to make a tour of the park property in this way. The city would save time and money by furnishing him with a small automobile. PROVISION OF BUILDINGS TOILET FACILITIES LACKING. Lack of proper toilet facilities is the chief defect noted in the park buildings. The only toilet or comfort station on park property within the city limits is situated near the entrance to Penn's Common. It is not con- nected with the sewer. It is a most unsanitary affair. Although the Super- intendent states that it is frequently cleaned, it is always a foul smelling place. This one building is divided into two compartments by a double wooden partition and is used by both men and women. The two toilets at the Mineral Spring Park are in the same condition. In this section, however, no sewer connection could be made. Wherever it is possible the toilets should be connected with city sewers, as the law provides. Separate toilets or comfort stations, one for women and one for men, should be provided in Penn's Common, at places that can be reached easily from the most popular sections of the park. These comfort stations should be models of sanitation; if sewers are not easily accessible, pipe lines for the necessary connections should be laid. In Mineral Spring Park as well, separate toilets for men and women should be provided, which should be kept in as good condition as possible without sewer connections. MAINTENANCE OF PARK PROPERTIES IMPROVEMENT OF PRESENT PARK PROPERTY. The Park Department should, for some time to come, aim at improving the property now owned by the city rather than at acquiring more land. Reading's present park space is ample. The park property within the city limits amounts to 94 acres. Outside the city limits and including the greater part of the Mineral Spring property, the city owns 149 acres, giving a total park area of about 243 acres. BAER PARK SHOULD BE IMPROVED. Much of the land under the control of the Park Department still remains undeveloped. This is as is should be, for the attractiveness of much of the park property lies in its wildness and ruggedness. The land should be left as it is now until the need for formal cultivation arises. The Baer Park plot of nine acres should be treated differently. It is situated near the river bank, and is in an unimproved section of the city that will not be built up PARK DEPARTMENT 189 closely enough for several years to warrant turning this tract into a formal park. It is recommended, therefore, that it be developed as a city play- ground and athletic field. Several plans for the development of Baer Park have been drawn, but apparantly no use has been made of them. BETTER POLICING OF PARKS NEEDED. There are two police officers on regular duty at Penn's Common, and one extra officer is employed during the summer. At Mineral Springs only one officer is employed,, although this park comprises 56 acres, the greater part of which is woodland. Two police officers are needed here during the summer months. BOULEVARD SHOULD BE POLICED. The park rules require that "no person shall ride or drive on Penn's Common at a rate exceeding seven miles an hour." As no way is provided for enforcing this regulation on the boulevard, automobiles are driven along it at a rate far above seven miles. This should be prevented, as the road is only a dirt road, which is very hard to keep in order on account of the heavy rains. The boulevard should be policed by a mounted officer who could see that the legal limit was observed. MAINTENANCE OF ROADS NOT A PARK FUNCTION. Park roads are now repaired and maintained by the Park Department. ' The work of constructing and maintaining roads in all city property, whatever its nature, should be under the direction of the bureau of highways. PARK LIGHTING INADEQUATE. During the summer Penn's Common is inadequately lighted, as the arc lights that are used do not penetrate the thick foliage. To remedy this, the superintendent, at the expense of the Park Department, has put six gasoline street lamps on unusually dark spots. It is recommended that the low incan- descent lamps be used for lighting Penn's Common. RECORDS OF PLANTING AND REMOVAL OF TREES, SHRUBS, ETC., NOT KEPT. No records are available to show how many trees or shrubs are planted, how many die and how many are removed each year. As a basis for esti- mating the cost of maintenance of trees and shrubs, full records of these matters should be kept. TREES SHOULD BE LABELED. Trees in Penn's Common should be labeled with their botanical and com- mon names. This would require but little work and slight expense,, and would interest and instruct almost everyone. 19 PARK DEPARTMENT CARE OF LAWNS, TREES, ETC. At the present time the lawns, trees and shrubs on park property are in excellent condition. The Park Superintendent states, however, that in dry seasons it is difficult to keep things green, because the water is insufficient. Pipe lines should be laid to furnish an adequate water supply wherever it is needed. CARE OF TREES IN CITY STREETS. The care and protection of the trees in city streets are supposed to be part of the Police Department's work. Almost any of Reading's streets affords sufficient evidence that this work is very ineffectively done. Reading should be proud of its shade trees and should make every effort to keep them alive and in good condition. It is recommended that the Park Department be made responsible for this service, and be furnished with sufficient funds and force to do the work properly. MAINTENANCE OF THE ZOOLOGICAL GARDEN. Although there is no question about the educational value of the Zoologi- cal Garden at Mineral Springs Park, no further effort should be made to add to the collection unless different arrangements can be made for quartering the animals. The runways for deer and elk are too limited; in their present location, however, more space cannot conveniently be given. It is suggested that part of the pool now in use for a few waterfowl be filled in and that the garden be placed on this new ground. This would give increased space for the cages and runways. PUBLICITY ANNUAL REPORT NOT PUBLISHED. No annual report of the work of the Park Department has been published. The superintendent states that he submits a report to the Board for its infor- mation; aside from this no information has been required or given. A full report of the service rendered by this department should be published, if only for the sake of the increased co-operation that would follow increased knowl- edge of the department's work. The superintendent should make monthly reports in order that the Council may know what emergency measures should be passed to provide for emergency needs. He should also prepare an annual report, as a summary of work he has done and as a basis for esti- mating the efficiency of the service. Weiler's Printing House 440 CourtlSt., Reading, Pa. PAMPHLET NUMBER SEVEN READING, PENNSYLVANIA Report on a Survey of the Department of Fire Prepared for The Chamber of Commerce of Reading by the New York Bureau of Municipal Research DECEMBER, 1913 10 CENTS C ONTENTS Page Summary of Criticisms and Constructive Suggestions, all of which may be Immediately Adopted by Council 195-203 Organization and Administration 204 Service Conditions and Welfare of the Force 210 The Work of the Department — Prevention and Extinguishing of Fires 217 Fire Alarm and Telegraph System 225 Business Management 229 Records and Reports 229 FIRE DEPARTMENT— SUMMARY. 195 FIRE DEPARTMENT SUMMARY OF CRITICISMS AND CONSTRUCTIVE SUGGESTIONS The following report of a survey of the Fire Department is the result of a careful examination of the records of the Department,, and interviews with officials, supplemented by observations of procedure at fire houses and a held study. The study was greatly facilitated by the Chief and the mem- bers of the Volunteer Fire Department, who co-operated in every way possible. SUMMARY OF RECOMMENDATIONS. 1. Establishment of a fully paid fire service with a total force of in men. 2. Organization of the department with the Superintendent of Public Safety as the administrative head and the chief as its executive head. 3. The selection and promotion of all members of the department through competitive civil service examination. 4. That preference in appointments be given to members of the volun- teer service in accordance with the number of actual fires attended by them. 5. That the department maintain a photograph of each member. 6. The immediate establishment of a training school for firemen. This school to be established and maintained regardless of whether a paid service is organized. 7. Improvement of methods of discipline. 8. Establishment of definite procedure governing trial and punishment of members of the fire department. 9. That firemen be paid $780 during the first year, $840 during the second, and $900 during third and succeeding years. 10. Designation of a department surgeon. 11. Establishing a board of honor. 12. The remodeling of present fire houses so as to provide comfortable dormitories. 13. Establishing an equitable pension system. 14. Inauguration of a fire prevention campaign and the appointment of a fire prevention commission. Plan for a ''clean up*' week. 15. The immediate adoption of a building code. 16. A revision of the ordinances governing the sale, storage and trans- portation of all combustibles, explosives and imflammable materials. 17. The licensing of all places where kerosene and other illuminating oils are sold. 196 FIRE DEPARTMENT— SUMMARY. 18. Establishment of a department repair shop. 19. A revision of the rules and regulations of the department. 20. The scientific testing of all hose. 21. Providing additional minor equipment to ladder trucks and hose wagons. 22. The purchase of a portable searchlight. 23. Providing all firemen with rubber coats, boots, fire helmets and belts. 24. Transferring the ambulance service to the hospitals and making them subject to call of police department. 25. Furnishing fire houses with maps and charts. 26. Daily company drills should be held. 27. Placing of fire alarm wires in congested part of city underground. 28. Placing of fire alarm central switchboards in fire resisting building. 29. Establishing a fire department telephone system with a central switchboard at headquarters. 30. Placing of red lights over all fire boxes. 31. Establishing proper records and reports for the bureau of fire alarm and telegraph service. 32. Furnishing maps and charts of fire alarm system. 33- That the business management of the department be under the super- vision of the Superintendent of Public Safety. 34. Purchase of all supplies through central purchasing agency. 35. Establishing a committee for the selector! of fire apparatus. 36. Installation of a proper system of records and reports for the entire department. 37. Preparation of an efficient annual report. ESTABLISHMENT OF A FULLY PAID FIRE SERVICE IS RECOMMENDED. Reading's volunteer firemen have served the city faithfully and without remuneration for many years. They have been enthusiastic in their endeavor to protect the city against conflagration. They have been unselfish in their devotion to the department of which they are members. The city has been fortunate in the past in having had only one period of bad fires and has not to this time suffered a high percentage of loss. But, Reading has grown and its growth is continuing. It is not only growing in importance as a rail- road and manufacturing center, in population, in number of buildings, in number of homes, etc., but as in other growing cities, the fire risk also is increasing. While the volunteer organization has increased in numbers and the city has purchased modern and up-to-date apparatus, the firemen have not re- ceived scientific training in fire fighting and fire prevention and without such training numbers of men and modern apparatus would be of little avail in event' of a conflagration. Reading through its civic agencies is inviting within its city limits large mercantile industries and new residents, which will mean more factories and more homes, but with all of these increased buildings comes an increased responsibility in the matter of fire protection. Reading cannot hope to fur- nish this protection through a volunteer service. Therefore, it is recom- mended that Council take steps to establish a fully paid fire service for the city. FIRE DEPARTMENT— SUMMARY. 197 COST OF FULLY PAID SERVICE For the operation and maintenance of a fully paid fire depart- ment Council will have to appropriate annually about $120,000.00 During the fiscal year 1913-1914 the city appropriated to the volunteer service for operation and maintenance approximate!}- 63,000.00 or an increase in the annual appropriation of $57,000.00 if the paid department plan is adopted. The above amounts are exclusive of appropriations for new apparatus, etc.. for which the city must pay in any event. With the increased appropriation of $57,000 per annum must necessarily come increased efficiency, a reduction in fire insurance rates, and "he end of the indirect tax upon the community for fire protection through the sale of tickets for bazaars and entertainments and the money paid by employers to their employees for working time lost when responding to alarms of fire. In addition to this, the invitation to prospective mercantile industries desiring to establish their plants in Reading will carry with it the guarantee of efficient protection against loss by fire through the agency of a properly trained, fully paid fire i »rvice. A UNIFORMED FORCE OF 1 1 j MEN RECOMMENDED. The present plan of organization of the volunteer service is productive of inefficiency and a lack of discipline. The plan of organization recom- mended is a uniformed force of 11 1 men with the Superintendent of Public Safety as its administrative head. The force would be under the executive direction of a chief to whom two assistant or district chiefs would report directly. The Fire houses would be in charge of 12 captains with 12 lieuten- ants as second in command. There would be 6 engineers and 77 firemen from whom the drivers, stokers and tillermen would be selected. A chief mechanic and instructor would complete the organization. COMPENSATION OF THE UNIFORMED FORCE. The following is the recommended schedule of salaries to be paid annually to the members of a paid fire department: 1 Chief $2,000.00 j Assistant Chiefs (6 $1,500 3,000.00 1 Chief Mechanic and Instructor 1,200.00 12 Captains @ $1.200 14,400.00 12 Lieutenants (a $1.020 12.240.00 6 Engineers (a, $900 5,400.00 77 Firemen (a 780 60,060.00 in Men $98,300.00 The salaries recommended are based on an analysis of the salaries paid to firemen in 97 cities of the United States. The minimum salary of firemen stated above should be increased at the rate of $60.00 a year until the third year of service is reached when the maximum salary of $900 per annum should be paid. 198 FIRE DEPARTMENT— SUMMARY. SELECTION AND PROMOTION THROUGH COMPETITIVE CIVIL SERVICE EXAMINATION. The members of the voluteer service are selected upon a social basis regardless of their qualifications. The members of a paid service should be selected as a result of competitive civil service physical and mental tests. Their selection should be upon merit alone and political influence of any kind should not be permitted to affect the selection or promotion of members of the department. VOLUNTEERS SHOULD BE GIVEN PREFERENCE IN APPOINTMENTS. Preference in the civil service examination should be shown to members of the present volunteer service in accordance with the number of fires actually attended by them, by giving special weights for experience. EACH MEMBER SHOULD BE PHOTOGRAPHED FOR PURPOSES OF IDENTIFICATION. The department should have on file a photograph of each fireman. TRAINING SCHOOL FOR FIREMEN SHOULD BE ESTABLISHED. New and modern fire lighting apparatus has been purchased and installed and the membership of the volunteer organization increased to more than 5,000, but the efficiency of the force has not increased to a degree commen- surate with the city's needs. Thus the community has not availed itself of the most improved methods of fire extinguishment and no effort has been made at lire prevention. The firemen have not been trained to the best practices either in fire extinguishment or in fire prevention. This lack of training has brought with it a lack of discipline and in these two respects the present volunteer service may be said to be weakened. The need for the scientific training of firemen whether volunteer or paid, is no longer disputed. The most modern methods, employed in the training of fire fighters are outlined and recommended including the im- mediate establishment of a training tower and school for firemen regardless of whether a paid service is established or not. IMPROVEMENT OF METHODS OF DISCIPLINE. The present plan of organization has destroyed any chance of securing the enforcement of discipline at fires. Not alone is the absence of training responsible for this lack of discipline, but because the officers who are to discipline are selected by the membership upon a social basis and their official rank is subject to the will and whim of their subordinates. Whether the plan of organization proposed for a paid service is accepted or not, the present plan of organization of the volunteer service should be changed in the interests of better discipline. FIRE DEPARTMENT— SUMMARY. 199 PROCEDURE GOVERNING TRIALS AND PUNISHMENT OF FIREMEN The adoption of an ordinance outlining and defining the plan of pro- cedure for punishing delinquent firemen is recommended. Such an ordinance should apply to members of a voluteer organization as well as to those of a paid department. THE DESIGNATION OF A DEPARTMENT SURGEON. Provisions should be made in the ordinance creating a new department, either for the designation of a department surgeon who shall be entitled. '"Surgeon of the Department of Public Safety," and serve for the bureau of police as well as fire or the health officer of the city should be required to serve as surgeon to the department. The ordinance should provide also that firemen when on sick leave should only receive half pay, this reduction in pay not to apply to illness resulting from injury received in the per- formance of duty. ESTABLISHMENT OF A BOARD OF HONOR. No meritorious act of bravery should go unrewarded by the depart- ment. The establishment of a board of honor which shall award annually a gold medal for distinguished acts of bravery involving a risk of life is recommended. PROVIDING DORMITORIES IN FIRE HOUSES. Without much additional expense the present fire houses can be re- modeled so as to fit them for service of a paid department. The parlors of these houses can easily be equipped as dormitories. ESTABLISHING AN EQUITABLE PENSION SYSTEM. Council should provide for the establishment of an equitable pension system for both firemen and policemen. Before such a system is inaugurated it is suggested that a study be made so as to provide a system which will protect the interests of the city, provide for a reserve fund and proper con- tributions and provide both service and disability pensions. A FIRE PREVENTION CAMPAIGN SHOULD BE INAUGURATED AND A BUILDING CODE ADOPTED. The need for immediate fire prevention inspections coupled with im- provements in building construction, the adoption of a building code and the erection of additional fire escapes is evident everywhere in the city. The failure of the city to conduct such inspection and to provide a building code has resulted in increasing the fire risk of the city by the erection of many buildings of a hazardous type. An inspection tour of the theatres of the city showed not only a total disregard in some theatres for the most obvious and fundamental fire pre- vention measures, but likewise an absolute failure upon the part of the FIRE DEPARTMENT— SUMMARY. officials responsible to enforce the provisions of law governing the con- struction of theatres and requiring that theatres shall properly safeguard their audiences against injury to life and limb in fires and panics. Conditions found existing in theatres are cited in the report. FIRE PREVENTION COMMISSION SHOULD BE CREATED. The establishment of a fire prevention commission to consist of the Superintendent of Public Safety, the Chief of the Fire Department, the Building Inspector, and two private citizens is recommended. Council is urged to adopt an ordinance empowering this commission to create rules and regulations governing fire prevention and to promulgate and enforce same. In the event of the city failing to establish a paid service, this com- mission should be empowered to appoint at least three inspectors to enforce their regulations. BETTER CONTROL OF PLACES SELLING AND STORING EXPLOSIVES. The present law governing the sale, storage and transportation of ex- plosives, combustibles and inflammables is wholly inadequate and affords no protection to the city. The adoption of an ordinance providing rigid rules and regulations governing the handling of explosives is recommended and the licensing of all cleaning establishments using benzine, naptha, gasoline, etc., and all stores selling kerosene and other illuminating oils is suggested. THE ESTABLISHMENT OF A DEPARTMENT REPAIR SHOP. Tn the interests of efficiency and economy the establishment of a de- partment repair shop is desirable. This shop should be equipped with the necessary machinery to enable the chief mechanic not only to make the necessary repairs to the apparatus and equipment but likewise to manufacture minor equipment. Considerable delay could be avoided and money saved by a properly conducted repair shop. To equip such a shop an expenditure of about $5,000 would be required. REVISION OF THE RULES AND REGULATIONS. The volunteer department is at present governed by a set of regulations or by-laws promulgated by the Firemen's Union. These rules and regula- tions are inadequate. In the event of the establishment of a paid depart- ment the chief should promulgate a complete set of rules and regulations governing the conduct of the force both in firehouses and at fires. The rules should prohibit employees of the department from becoming members of political clubs and subscribing to or collecting money for campaign funds. SCIENTIFIC TESTING OF HOSE RECOMMENDED. The lack of scientific methods of testing the hose purchased and used by the department may be responsible for the condition in which much of the hose was found, as demonstrated by the number of hose bursts at one fire observed. The need for proper testing of hose both from the point of FIRE DEPARTMENT— SUMMARY. 201 view of economy as well as efficiency, is obvious. The equipment suggested for the repair shop would provide the necessary apparatus for the testing of hose. NEED FOR PORTABLE SEARCHLIGHT. Attention is called to the lack of considerable minor equipment on the ladder trucks and hose wagons and particularly to the absence of any search- light, portable or otherwise. The purchase by the city of a portable search- light for use at night fires and the equipment of all ladder trucks with the ordinary acetylene torches is recommended, RUBBER EQUIPMENT FOR FIREMEN. The city should provide the firemen with their rubber coats, boots, fire helmets and belts. The uniforms,, however, should be provided by the members themselves. The initial cost of providing the new paid force with the rubber equipment is estimated at $2,000. AMBULANCE SERVICE SHOULD BE UNDER THE POLICE. The two ambulances now maintained by the city but controlled by the respective fire companies operating them, should be transferred to hospitals and operated under the control of the police department. The management of this ambulance service is in no sense a function of the fire department and the records in connection with them are of no value. It is of importance that a call for an ambulance should bring with it a physician. It is more important that medical aid be furnished promptly than it is that a wagon be furnished to carry the injured person away. While it is true that these two ambulances are practically owned by the fire company, yet it is equally true that they were donated for the public good. They should be placed at the disposal of the public in a manner to insure their maximum usefulness. This would best be accomplished by having them located at the hospitals and subject to call through the police department. Proper records con- cerning the activities of these ambulances should be maintained. FIRE HOUSES SHOULD BE EQUIPPED WITH MAPS AND CHARTS Familiarity with the property to be protected is essential to efficiency in fire fighting. To develop familiarity with property and the interior of the* buildings it is suggested that each fire house should be equipped with maps and charts furnishing detailed information concerning the structures which the firemen may some day have to enter for the purpose of fire extinguish- ment. Each house should have a map showing the location of the water mains, hydrants, water gates, etc., similar to the map now in most houses except that the information contained thereon should be kept up to date. DAILY COMPANY FIRE DRILLS. Because of the nature of the firemen's work it is difficult to provide sufficient exercise to keep the members in good physical condition. Thus it is necessary that the captain of each company conduct a daily drill. When 202 FIRE DEPARTMEN T— SUMMARY. the weather permits this drill should consist of training on the apparatus. In inclement weather it should consist of setting up exercises and gymnastic feats which do not involve the use of apparatus. FIRE ALARM WIRES SHOULD BE PLACED UNDERGROUND. Overhead fire alarm telegraph wires in the congested mercantile district of a city are declared to be a menace and Council is urged to place these wires underground as soon as possible. Attention is called to the fact that there are three miles of ducts which are available for this purpose. FIRE ALARM SWITCHBOARD MUST BE TRANSFERRED TO FIRE RESISTING BUILDING. The central station of the fire alarm system of the city is in danger of destruction by fire, owing to the hazardous conditions of the room in which the fire alarm switchboards are now housed. Council should appropriate funds to the amount of $2,000 for the construction of a concrete fire resisting two story building in which to house the fire alarm system. NEED FOR A CENTRAL TELEPHONE SYSTEM. ^ A central fire department telephone system connecting all of the fire houses should be installed. Many of the telephones now in use in the fire houses are unavailable for use at times because they are on party lines. A delay in the transmission of an alarm because of this system may some day result in a conflagration. The continuance of this S} r stem can only be called false economy. RED LIGHTS SHOULD BE PLACED OVER ALL FIRE BOXES. While the distribution of the fire alarm boxes in the congested value district may be said to be good, and the distribution in the outlying sections fairly good,, it is however essential that red lights be placed over the fire alarm boxes so as to indicate their location at night. FIRE ALARM RECORDS SHOULD BE ESTABLISHED. The establishment of a proper system of records and reports for the bureau of fire alarm and telegraph and the furnishing of that division with maps and charts indicating the location of all fire alarm boxes, conduits, overhead wires, etc., is recommended. SUPERINTENDENT OF PUBLIC SAFETY RESPONSIBLE FOR BUSINESS MANAGEMENT. The business management of the department should be under the super- vision of the Superintendent of Public Safety. All supplies should be pur- chased through the central purchasing agency. A definite procedure should be followed in the purchasing of supplies and the requisitioning of them by the respective fire companies. This provision should apply whether the department is a paid or volunteer force. FIRE DEPARTMENT— SUMMARY. . 203 FIRE APPARATUS SHOULD BE SELECTED CAREFULLY. In order that only the best type of apparatus may be selected for the use of the department it is recommended that the selection of apparatus be placed jointly in the hands of the Superintendent of Public Safety and the chief of the department, subject to the approval of Council. ESTABLISHING A PROPER SYSTEM OF RECORDS AND REPORTS. Except for the records kept by the chief of the department, there are no adequate records maintained by the voluteer department. Each company maintains its records as it chooses and they are not available for statistical purposes. A complete set of records and reports and a plan of reporting should be established immediately. ANNUAL REPORT. The annual report as now prepared is of no administrative value. A form of report is recommended which will be a guide to Council in legislating for the department and will supply information which will determine the efriciencv or inefficiencv of the force. 204 ' FIRE DEPARTMENT FIRE DEPARTMENT CRITICISMS AND CONSTRUCTIVE SUGGESTIONS ON ORGANIZATION, ADMINISTRATION SER- VICE CONDITIONS, PREVENTION AND EXTINGUISHING OF FIRES ORGANIZATION AND ADMINISTRATION DEPARTMENT A VOLUNTEER ORGANIZATION. Reading, with a population of more than 100,000, important as a railroac centre,, with a congested mercantile district, housing many industrial enter-; prises, with conditions in certain sections hazardous in the extreme, is stil depending for fire protection upon a volunteer fire department. Of the 27 cities in the United States having a population between 80,00a and 130,000, only two still have volunteer fire departments and Reading is one of them. It costs less in salaries and wages to run a fire department on a volunteer basis, even when on the average one out of every three families in the cityl has a membership in the organization, as is the case in Reading, but this- does not mean that it is economical. Reading has been fortunate in the* past in having had only one period of bad fires and has not to this time, suffered a high percentage of loss. The only guarantee for the future is a well organized, well trained and effective fire department. Even as a volun-i] teer service,, the form of organization of the fire department in Reading is] such as to make discipline and a high standard of efficiency impossible! It is only m question of time, therefore, when the present organization musB be changed. The organization of the department at present is as follows: 1 Chief 2 Assistant chiefs 11 Foremen 11 Assistant foremen 1 Chief engineer 6 Engineers 1 Superintendent of fire alarm 28 Drivers 5,606 Firemen The chief of the fire department receives a salary of $1,500, while the assistant chiefs each receive $500 a year. The salary paid the drivers varies with the allowance fixed by the companies retaining them. The chief and the assistant chiefs are appointed by the Mayor, and subject to removal by him at will. The company officers are elected by the membership of their respective companies. Such officers are in no way responsible to the chief or the administrative head of the department. FIRE DEPARTMENT 205 Each company selects its own membership on a social basis, rather than for qualifications related to ,the work for which they are to be respon- sible. Thus, the department is organized with the chief responsible to the Mayor, with subordinate officers,, responsible not to the chief, but to the members of their commands, by whom they are elected and upon whom their designation as commanding officers depends. LACK OF DISCIPLINE. The inevitable result of this arrangement is a total lack of discipline. In no department of municipal government is the enforcement of rigid disciplinary measures more important than in the bureaus of police and Ire. It can be said that the efficiency of a fire fighting force depends upon training and discipline. In these two respects, Reading's fire department is very deficient. Not only is the chief without power to discipline his subordinates, and [lis subordinate commanding officers unable to discipline the members of the fire fighting force, but what is even a more serious menace to efficiency, the fire fighting force, by virtue of the plan of organization, is able to destroy the official designation of their own commanding officers in case they should attempt the enforcement of discipline. If the chief has occasion to discipline a member of the department, he is required to prefer charges,, and place the matter in the hands of his own company comrades. SUPERINTENDENT OF PUBLIC SAFETY ADMINISTRATIVE HEAD. Until December of last year the chief was the administrative and execu- tive head of the department. He exercised no administrative functions however, and exercised executive functions only when the department was in actual service at fires. Under the commission form of government, the Superintendent of Public Safety is the administrative head of the department. The organization of the department comprises 13 separate volunteer companies, each independent of the other, in so far as they are affected by administrative or executive control. Thus, notwithstanding the fact that the Superintendent of Public Safety is made responsible for the conduct and management of the fire department, he is not in complete administrative control of the force, since the administration of the affairs of each of these 13 companies is controlled by the membership of the individual companies. Although the city appropriates, under the heading of "Gratuities,," ap- proximately $50,000 a year, each company receiving $3,500 (two companies having an ambulance service receive an additional $1,200 a year each), the administrative head of the department has absolutely no control over the expenditure of this money. NO ADEQUATE REPORTS. With the exception of an annual report to Council and an annual financial statement furnished by each of the 13 companies, neither the chief nor the administrative head receive any current reports which would make possible 206 FIRE DEPARTMENT the exercising- of intelligent control. The matter of reports will be fully- discussed elsewhere in this report. NO EMERGENCY REPATR GREW. The keeping of the apparatus in repair and in good condition for prompt and speedy service, is a most important part of the work of the fire depart- ment. No provision is made in the organization, however,, for the immediate repair of apparatus, by department employees, and considerable delay is caused by reason of the absence of a chief mechanic and proper supervi- sion over the apparatus. VOLUNTEER SERVICE INEFFICIENT. The administration and organization of Reading's fire department may be summed up by stating that there is no administrative or executive con- trol, and that the present plan of organization operates against discipline and prevents efficiency in fire fighting. These conditions will exist as long as Reading continues to maintain' a volunteer fire service. COST OF VOLUNTEER SERVICE. The actual cost of the volunteer service to Reading is" far greater than is shqwn by the city's accounts. The amount appropriated by the city during the year 1913-1914 was $93,282.44. This amount includes salaries, cost of maintenance, new appara- tus, repairs to fire houses, etc., classified as follows: Operation and maintenance, including gratuities and repairs to fire houses and apparatus $59,807.44 Purchase of new apparatus 29,575.00 Salaries of chief, assistant chiefs and superintendent of tele- graph 2,900 . 00 Placing wires underground 1,000.00 $93,282.44 This may be called the "book" cost to the city of a department with a membership given as 5,606. The membership, of course, is largely a book membership on a social club basis, and the cost as given above is in fact far less than the actual cost of operation and maintenance. In estimating the cost of maintenance to the citizens, there is an element of indirect taxation which must be considered, but which it is impossible to determine definitely because of the absence of any statistics upon the subject. Each year most, if not all, of the fire companies have a deficit which they meet by means of public subscriptions, secured by the sale of tickets for bazaars, fairs and entertainments. The citizens thus make up the deficits, and in the end pay the entire cost of an inadequate service. The second element of cost, upon which there are no statistics available, is the salaries of employees, paid by private employers, for the time that their employees are responding to alarms, as members of the volunteer or- ganizations. FIRE DEPARTMENT 207 A third element of cost should be considered. This is the increased cost of fire insurance, due to the city continuing the volunteer fire service. Just how much of a reduction in insurance rates would be secured as the result of the establishment of a paid fire service cannot be ascertained, but it is reasonable, to assume that with the establishment of a trained, paid fire service, there would necessarily be a reduction in fire risks and, conse- quently, in the cost of insurance. FULLY PAID SERVICE RECOMMENDED. The possible cost represented by the loss of life and property in the event of a conflagration due to the inexperience and inefficiency of a poorly organized volunteer department can scarcely be estimated. But, based upon the experience of other cities, the value of a properly organized, scientifically trained, paid fire service, performing adequate fire prevention inspection, can be easily estimated. It is recommended, therefore, that the Council take immediate steps toward organizing a fully paid fire service for the city. To this end, the following plan of organization, showing the probable cost of administration, is submitted. PROPOSED ORGANIZATION BY RANK AND SALARY. The total uniformed force, divided as to rank, should include the follow- ing: 1 Chief (a $2,000 $ 2.000 2 Assistant chiefs @. 1,500 3,000 1 Chief mechanic and instructor @ 1,200 1,200 12 Captains @ 1400 14400 12 Lieutenants @ 1,020 12,240 6 Engineers @ 000 5400 77 Firemen @ 780 60,060 in Men $98,300 While the direct payroll cost would be increased, it is believed that the indirect cost to citizens would be correspondingly reduced and the city would have a specialized organization subject to better discipline and more efficient. The estimated total annual cost of operation and maintenance of a fully paid department is as under: Salaries Uniformed force of 11 1 men $98,300.00 Supplies Fuel, forage, gasoline, lubricants and chemicals; cleaning and office supplies., etc 9.700.00 Equipment Fire hose 2.000.00 Horses 2.000.00 Harness 300.00 208 FIRE DEPARTMENT Contract or open order service General repairs 4,500.00 Lighting 1,100.00 Shoeing and veterinary charges. . . 1,175.00 Miscellaneous '. 1,000.00 Total annual cost $120,075.00 To the above must be added the expenditures incidental to the organiza- tion of the department on a fully paid basis which must be provided for in the first year, but will not recur in every subsequent year, as follows: Rubber coats and boots, belts,, helmets, etc $ 2,000.00 Dormitory equipment 2,220.00 Remodeling of buildings 2,500.00 Repair shop equipment 5,000.00 $11,720.00 Of the total annual cost above stated ($120,075) all will have to be pro- vided for, whether the paid department plan is adopted or not, except sala- ries. The salaries paid to the chief, assistant chiefs, drivers, janitors, etc., on the volunteer basis, amounted last year to approximately $25,000 as against payroll charges of $98,300 for a complete and fully paid organization. An appropriation of $5,000 for the equipment of a repair shop should be granted whether the volunteer service is continued or not. In addition to the above, the sum of $27,870.72 will be required to pay for new apparatus, etc., recently acquired or to be purchased before Decem- ber 31st, 1914. This will have to be provided for whether the organization of the department is changed or not. A comparison of the estimated cost to the city of the volunteer organiza- tion for the year ending April ist„ 1914, and the fully paid service for one year ending April 1st, 1915, is given below. Volunteer Paid Organization Department Salaries $25,000.00 $ 98,300.00 Other expenses 37,707.44 33,495.00 Total cost of operation and maintenance $62,707.44 $131,795.00 Purchase of new apparatus, etc 30,575.00 27,870.72 $93,282.44 $159,665.72 The figures given in both cases are for a complete year. For the fiscal period from April 1st to December 31st, 1914, the cost of operation and maintenance of the paid department, including the expenditures incidental to the change in organization, would amount to $99,175.00. SUPERINTENDENT OF PUBLIC SAFETY ADMINISTRATIVE HEAD. The Superintendent of Public Safety should serve as the administrative head of the department,, and as such he should have absolute control over the activities of the department, being properly advised by current reports, as will be suggested elsewhere. His salary should not be a charge against the fire department, but rather against Council of which he is a member. FIRE DEPARTMENT 209 CHIEF THE EXECUTIVE HEAD. The chief of the department should be the executive head, responsible and reporting directly to the Superintendent of Public Safety. He should be required to give his entire time to the department as the head of its uniformed force. He should have power to assign and transfer his subor dinates, but he should be required to report in writing such assignments and transfers and the reason therefor to the superintendent. He should be in complete control of the uniformed force at all times, subject only to the superintendent. His tenure of office should be during good behavior, and he should be removed only upon charges proven at a public hearing before Council. He should be held strictly responsible not only for the activities of the department in the matter of fire extinguishment, but like- wise for proper fire prevention inspection. ASSISTANT CHIEFS. There should be two assistant fire chiefs, who should be required to give their entire time to the service. The assistants should be directly responsible and report to the chief of the department. One of whom should serve as first assistant, being executive officer to the chief and assum- ing command of the uniformed force during the absence of the chief. The city should be divided into two fire districts,, with an assistant chief in charge of each. The chief should hold them responsible for the enforce- ment of fire prevention regulations and the discipline and efficiency of the members of their commands. 12 CAPTAINS. In accordance with the suggestions contained in the report of the National Board of Fire Underwriters' Committee on Fire Prevention, dated February, 1914, relating to its survey of the City of Reading, there should be 12 fire stations, each under the command of a captain, who should be directly responsible and report to the assistant chief to whose district they are assigned. Captains should be held responsible for the enforcement of fire prevention regulations within their districts, the sanitary condition of their fire stations and the discipline and efficiency of the firemen under their command. 12 LIEUTENANTS. As assistants to the captains there should be appointed 12 lieutenants to act as commanding officers, to assist the captains in their work and to take command of the station and the company in the absence of the captain. INSTRUCTOR AND CHIEF MECHANIC. There should be a chief mechanic, who would have charge of the appara- tus, and of a suitable repair shop. He should serve also as the instructor in charge of the training tower. He should likewise have charge of and supervision over all of the horses in the department. He should be directly FIRE DEPARTMENT responsible for the condition of all apparatus and the repair of defective apparatus,, the care of the horses, and the drilling of the men. He should be required to attend all two alarm fires, and to supervise the apparatus in the field, noting- carefully the efficiency or inefficiency of the members of the force at such fires. He should perform at the workshop all repairs to apparatus of a character not requiring extended overhauling. The organi- zation of this shop will be referred to and described in another section of this report. 6 ENGINEERS. Each of the six engines should be in charge of a licensed engineer, who should be under the immediate supervision of the chief mechanic. 77 FIREMEN. In addition to the officers described above, provision should be made for the appointment of yy firemen. From these men should be selected the drivers, tillermen, hosemen, assistant engineers and laddermen; but all of these ranks should be of equal grade. The training of the firemen should be such as would enable any of the firemen to serve in any one of these various capacities. SERVICE CONDITIONS AND WELFARE OF THE FORCE One of the principal subjects for consideration in the development of an efficient organization in any branch of municipal service is that of personnel — the conditions affecting the appointment, discipline, promotion and welfare of employees. APPOINTMENTS AND PROMOTIONS ^SHOULD BE THROUGH COMPETITIVE CIVIL SERVICE EXAMINATION. All original appointments and promotions should be made as the result of competitive civil service examinations, comprising both physical and mental tests. Such examinations should be conducted in accordance with the procedure described in the report on the survey of the police department. SPECIAL WEIGHTS FOR EXPERIENCE. In conducting the civil service examinations for the appointment oi members of the force at the time of organization,, special weights should be given for previous experience, so that members of the present volunteer service will receive preference in accordance with the number of fires actually attended by them. DEPARTMENTS SHOULD HAVE PHOTOGRAPHS OF ALL MEN APPOINTED. For purposes of identification, in the event of deaths at fires, each man appointed should be required to provide the department with a recent photo- FIRE-DEPARTMENT graph of himself. The photograph tiles should be kept up-to-date by requir- ing all members of the department to furnish a new photograph at the end of each three years* Upon the back of each photograph should be kept an accurate description of the fireman, being careful to note any marks upon the body which would serve to identify him. TRAINING AXD DISCIPLINE OF EMPLOYEES. While general educational and physical tests are sufficient for original appointment, the questions of retention, permanent employment and promo- tion should be considered in relation to experience or special fitness. To this end a period of probation should be provided. The rules of the department should prescribe that the probationary period for firemen should be not less than six months, during which time the firemen will be required to attend the school for recruits, where they should receive careful efficiency ratings upon which should be determined whether or not they should be permanently appointed to the force. LACK OF DISCIPLINE INDICATES LACK OF TRAINING. Nothing indicates lack of training more than the absence of discipline at fires, and nothing is more conducive to inefficiency .and increased fire loss than lack of training. No provision is made for the training of members of the force. There is no instructor, no training tower, and the men are permitted to perform active service at fires without instructions even in the elemental methods of hre fighting. Whether Reading decides to organize a fully paid fire-fighting service or not. it must be conceded that something more is required of an efficient fireman than good physique and an ability to '"eat smoke." Even a person most unfamiliar with the art of fire-fighting can easily understand that special training is required at every step in a fireman's work. Ability to extinguish fires promptly and with a minimum loss is. of course, essential, but equally important is training and ability to in-- properties for fire prevention, arid familiarity with the modern requirements for adequate fire protection. VOLUNTEER MEMBERS ENTHUSIASTIC While it is admitted that the members of Reading's volunteer fire department are enthusiastic in the performance of voluntary service, that in the past, due to their enthusiasm, they have rendered Reading a valuable service, and while it is likewise admitted that the per capita fire loss as well as the total fire loss is less comparatively than many cities of about the same population, it is. nevertheless, a fact that the firemen are untrained for their work and that the department is improperly organized. The result of these conditions is lack of discipline. Enthusiasm is, indeed, essential to efficiency in all branches of municipal government, but enthusiasm without adequate training and the enforcement of rigid discipline would be of little avail in the event of a conflagration. Although members of a volunteer organization will respond to an alarm FIRE DEPARTMENT of lire, they can give only part of their time to such work. Naturally, they cannot afford to devote all their time to preparing themselves for efficient fire service, nor can they afford to make fire-fighting a life study. Consequently, even a well regulated volunteer organization cannot be a wholly efficient fire-fighting force; the number of men who will respond to the call of fire can never be definitely depended upon. Seasons of the year and weather conditions have a great deal to do with the number of men available for fire-fighting. Even the time of day that an alarm rings affects the number of men responding to the call. In the absence of any legal method of compelling members of a volunteer organization to devote the necessary time to training, and because of the lack of any intelligent system of scientific instruction, it is only logical that the volunteer service should be less efficient than a paid department. This is the fact in Reading. The department was observed in operation at a number of fires, and the total lack of discipline,, plus the obvious lack of training, was convincing evidence of the need for the re-organization of the department, and the scientific train- ing of its members, if not the establishment of a paid service. DEPARTMENT OBSERVED AT FIRES. Several incidents observed while the department was in service at fires serve to illustrate the lack of training of the present force. At one fire, which was located in the upper portion of a building to which access was possible by way of a good staircase and an outside fire balcony fire escape, and at a time when the fire was wholly under control, an attempt was made to place a portable extension ladder alongside of the building. The ladder was raised after great difficulty and a fireman ascended. When he was half way up the ladder, it was discovered that the top of the ladder was resting on telegraph wires. The fireman descended, and after another delay, the ladder was finally placed against the wall, but never used. When it was time to "take up," a number of the firemen attempted to remove the ladder. They did so by standing in front of the ladder and taking the base away from the ground, which left the top of the ladder leaning against the wall. As they drew the ladder away the top smashed all of the win- clows with which it came in contact. The 'firemen at this fire demonstrated a total lack of discipline. A commanding officer was heard to order a fire- man to take a line of hose into the building. The fireman at the time was putting on his boots. He became abusive to his commanding officer, whom he grossly insulted, and refused to take the line into the building. In the meantime the line was lying on the ground. Orders were being given by firemen to such an extent that the commands of the superior officers could not be interpreted by the men on the street. One fireman was observed turning the crank of a chemical tank for several minutes before he dis- covered that the tank was empty. He and others then attempted to recharge the tank. The confusion that followed and the lack of energy of the fire- men handling the apparatus resulted in this particular tank not being in service at this fire. At a larger fire the efficiency of the service was demonstrated to even a greater degree. Much valuable time was lost at the fire, because of the inability of the firemen to connect properly the engine with the hydrant. One hydrant connection observed was made in such manner as to be FIRE DEPARTMENT 213 positively dangerous. Lines of hose were observed located under the wheels of fire apparatus, with the full weight of the apparatus upon them. The engineers of the steamers lost considerable time in supplying the streams because of arguments with other members of the company as to how the engine should be connected to the hydrant and who should stoke the fires. At this particular fire five lengths of hose burst. In no instance were jackets used, but in each case the engine was stopped, thus cutting off the stream until a new length of hose was obtained. At one steamer there was consider- able delay because of an argument between the engineer and two members of the company as to whether it was proper to shut down the engine com- pletely jvhen the hose burst. During the argument the engine was shut down and the stream of water stopped. Much of the apparatus at this fire was poorly located — both water and energy was being wasted because of the absence of direction and control of the location of streams. Firemen picked up hose indiscriminately and took their own position without direction from a superior officer. The result was that during the entire fire streams were observed which frequently failed to reach the section of the building on fire. Other streams were partially wasted because they were being played upon a part of the building where they were least effective. .Many other similar incidents in connection with the handling of the apparatus and equipment were observed, but the conditions noticed were no worse than should be expected, in view of the fact that the members receive no adequate training. Since methods of lire control and extinguishment have practically been standarized,. the training of men to put out fires is no longer a difficult matter, and its need is no longer questioned. The records of the police department show that "in many cases it has been necessary for the police to interfere to preserve order among the members of the fire companies when in service at fires. It has not been at all uncommon for two steamers to attempt to connect at one hydrant which usually has resulted in an argument, making necessarr the interference of the police to settle the dispute. So great is the membership of the department that it is impossible at times for the police to distinguish between the firemen and citizens observing the fire, since many of the firemen do not wear badges when responding to an alarm. The confusion at fires, at least during the working hours, is neces- sarily increased because of the number of men who respond to an alarm. Such confusion, lack of discipline, unintelligent handling of equipment and apparatus as has been pointed out, would be sufficient to result in a con- flagration, in the event of a stubborn fire in certain sections of the city. TRAINING SCHOOL RECOMMENDED. Whether or not the City Council decides to establish a paid service, a training school for firemen should be established. In the event of the city's continuing the volunteer service, provisions should be made for training a representative number of firemen from each company. One of the conditions imposed upon new members should be attendence at the school. Should the city establish a paid department, the school would serve two purposes: ( 1 ) To insure the fitness or recruits for fire duty through a probationary period, during which time they should be required to attend the school. (2) To train the recruits for continued service. 2i 4 FIRE DEPARTMENT The school should be in charge of a competent instructor. As recom- mended elsewhere in this report, the chief mechanic should also serve as in- structor. One of the two houses which the underwriters recommend should be abandoned, could be equipped as a school for recruits. The courses of study should include: i. Practical instruction in the following: a) Connecting lines of hose. b) The use of different sizes of hose. c) The use of different nozzles. d) Stretching of different lines of hose through buildings and up the interiors to the roof. ' e) Skillful handling of hose to secure the maximum efficiency of the stream and to reduce loss from bursting hose. f) The use of different couplings and connections, g) The handling of ladders, including placing, climbing and scaling ladders, h) Handling and use of hooks, picks, door openers, wire cutters and oxygen and acetylene torches for melting steel bars. i) Emergency repairs to hose (use of jackets), j) Tying of knots used in the handling of ladders, lines of hose and other equipment, k) Laws and ordinances concerning fires. 1) Building laws. m) Taking out broken links of hose already stretched on the out- side of buildings, n) The use of chemical tanks, recharging and handling of hand ex- tinguishers. 0) Use of fire helmets, life belts and life nets. 2. Administration: a) Discipline (respect for authority.) b) Reports and records. c) Responsibility for city property. d) Rules and regulations. 3. Physical Drill. a) Setting-up exercises. b) Physical appearance. 4. Lectures on the following: a) Building code. b) Dangerous fires in general. c) Precautions to be taken in emptying burning buildings. d) General fire righting. e) Care of apparatus and equipment. f) Combustibles and explosives, g) Sprinklers and stand pipes. h) Conservation of property in burning buildings. • i) Auxiliary appliances, including Special additional appliances. j) Water pressures (hre hydrants). k) Mains. 1) Different building constructions. m) Duties of firemen in theatres and places of public assemblage. n) Fire prevention in theatres and moving picture shows. FIRE DEPARTMENT o) Fire prevention in general. p) Fire prevention laws and by-laws. q) Records and reports. r) Hygiene and first aid to the injured. s) General discipline. The period of instruction in the school for recruits should be not less than three continuous weeks for members of the paid department, or, in the event of the school being for the volunteer service, and the training being a night course, an equal number of hours. When not in attendance at school, recruits of the paid department should perform duties with the respective companies to which they are assigned. Before organizing the training school for recruits,, the officers of the department should be thorougly schooled in their duties so as to be able not only to assist in the work of training recruits, but also to conduct drills in their respective company quarters. The person selected to serve as instructor, before planning his courses of study and periods of instruction, should be permitted to attend the New York Fire College, or the training school for firemen attached to the Phila- delphia Bureau of Fire. TRIALS OF DELINQUENT FIREMEN. No fireman, whether volunteer or member of paid department, should be removed from the force except for cause. Therefore, the recommendations contained in the report on the survey of the bureau of police, should be in- corporated in an ordinance and made applicable to the bureau of fire. The plan of procedure outlined therein should be made effective for the bureau of fire, whether a paid department is established or the volunteer organizations are continued. If the voluteer organizations are continued, the discipline of the force can be greatly improved by placing the entire matter of discipline and the punishment of delinquent members in the hands of the Superintendent of Public Safety, the Chief and the Council. PROVISIONS FOR THE WELFARE OF EMPLOYEES. Among the things which make for efficiency of service are the pro- visions made for the health, comfort and welfare of employees, including recognition of merit and proper compensation for work. SALARIES. The schedule of salaries recommended is based upon an analysis of the salaries paid to firemen in 97 cities of the United States. Upon entering the service the firemen should receive an annual salary of $780. This salary should be increased $60 a year until a maximum of $900 is' reached. Thus, the firemen will be grouped into grades in accordance with their length of service during the first three years as follows: Third grade — during the first year of service, $780. Second grade — during the second year of service, $840. First grade — during the third year of service, $900. !i6 FIRE DEPARTMENT SURGEON. As recommended in the report of the bureau of police, the surgeon selected should be designated surgeon for the bureau of fire, and in the event that Council does not provide such an appointee, the health officer of the city should serve in this capacity. The members of the fire department, whether paid or volunteer, are en- titled to medical aid when injured in the performance of their duty without cost to them. Members of a paid department are entitled to free medical aid regardless of whether they are injured in the performance of their duty or not. The rules should provide that members of the paid service receive half their regular salary when on sick leave except when their sickness is due directly to injury in the performance of duty, when they should be given full pay. Printed report forms should be provided for the health officer or the department surgeon and he should be required to make a written report upon each case examined, stating the probable cause of illness, the diagnosis, and the prognosis. When the fireman is sufficiently well to return to duty, the physician should make a written report to the department. Both of these reports should become permanent records. REWARDS FOR HEROIC SERVICE. Physical courage is one of the chief qualifications of a fireman. There are times in the service of every fireman when he is called upon to risk his own life in an endeavor to rescue others. No fireman who meets such a test with honor should go unrewarded whether a member of the volunteer service or a paid department. Distinguished acts of bravery should receive special departmental re- cognition. For purposes of making proper and fitting rewards and determin- ing to whom these rewards should be given, there should be established a board qf honor. This board should consist of the Superintendent of Public Safety, the Chief of the Department and the Mayor or President of the Civil Service Commission. Each year the board should meet to consider all cases of heroic acts referred to it within the year. The fireman, who. in the opinion of the mem- bers of the board, has performed the most distinguished act of bravery during the year, should receive a gold medal, officially known as "The De- partment Medal." Other firemen, performing less conspicuous acts of bravery, should be awarded "Honorable Mention." The presentation of the Department Gold Medal should be made with fitting ceremonies by the Mayor. The fireman to whom the Department Gold Medal has been awarded should be authorized to wear a small gold star on the sleeve of his uniform coat, while the firemen receiving honorable men- tion should be authorized to wear a silver star. PENSIONS. If the department is organized upon a paid basis, an equitable pension system should be inaugurated. Such a system should provide for service and disability pensions, and should be created upon a sound financial basis, but no such system should be put into effect until a careful study has been FIRE DEPARTMENT 217 made in order that the city's interests may be properly safeguarded. If the city is to continue the volunteer service it is recommended that in view of the very large membership of the present organization that the plan of relief fund now being operated be continued. FIRE HOUSES. An examination of the fire houses showed them to be clean, orderly and well maintained. Most of them could be arranged for use by the paid de- partment, without much additional expense. All of the houses are equipped with large parlors which would furnish in almost every case, ample room for a dormitory. A number of the houses already have dormitories. Practically all of the houses are equipped with modern, improved fire house equipment. THE WORK OF THE DEPARTMENT- PREVENTION AND EXTINGUISHING OF FIRES The primary purposes for which fire departments exist are the prevention and extinguishing of fires. FIRE PREVENTION. Although the volunteer fire service, as stated elsewhere in this report, has performed patriotic and enthusiastic service in the extinguishment of fires, no attention has been paid by this organization to the matter of fire prevention. It is indeed important that a department attain the highest efficiency in the methods of fire extinguishment, but it is equally vital, if not of more importance, that efficiency in lire prevention be developed to the highest degree. Such a condition, of course, would scarcely be possible with the volunteer service. While efficiency in methods of fire extinguishment may be obtained by the careful training of the members of the organization, even though it be a volunteer one, efficiency in fire prevention can never be attained except by the adoption of rigid laws governing fire prevention, by constant inspection by trained men with a view to the enforcement of these laws, and by the co-operation of the public. Not only does the department in Reading fail to perform even the ordinary duties of a fire department in connection with fire prevention work, but,, what is even more serious, the laws and ordinances of the city with relation to fire prevention are prac- tically valueless. The city has neglected to adopt a proper building code, or to privide proper ordinances with relations to the sale, transportation and storing of explosives and inflammables. It may be said that, with the exception of the activity of the State Fire Marshal upon specific complaints, and of the in- spection of the State Factory Department of certain kinds of buildings, no attempt is being made to reduce the possibility of fire through inspections. INSPECTIONS BY PAID DEPARTMENT. With the establishment of a properly organized paid department an active fire prevention campaign could be inaugurated at once. House-to-house in- 2i8 FIRE DEPARTMENT spections could be made which would result unquestionably in greatly reducing the possibility of fires. Such a campaign as this, of which Reading is greatly in need, could not be conducted by volunteer service. The efficiency of the department as a fire fighting force has, of course, been greatly reduced and must continue to be handicapped by the absence of fire prevention inspection since if such inspections were properly made the department would be in possession of accurate, detailed descriptions of the interiors of all of the buildings in Reading. Thus, the department would liave an important guide to its members in the work of fire extinguishment. It is now conceded by the majority of fire experts that house to house inspections by members of the uniformed fire force are not only desirable but extremely important, even in a city which maintains a civilian corps of fire prevention inspectors. The logic of this is that uniformed firemen can thus have an opportunity to familiarize themselves with the interiors of the build- ings which they may be called upon to enter for purposes of fire extinguish- ment. It is quite essential to efficiency in fire extinguishment that firemen should study and know the interiors of the buildings which they are required to protect. A properly trained and experienced fireman, because of his ex- perience and training, is better fitted than any one else to make fire prevention inspections. In addition to his own capability, because of his uniform and "his rank, he inspires added confidence in the householder, and this leads to a more prompt compliance with the suggestions in the matter of fire pre- vention. PROVISIONS OF LAWS TOTALLY IGNORED. With the permission of the Mayor and the chief of the department an inspection of the theatres in Reading was made. This inspection revealed not only many technical violations of the law, but in at least two of the theatres an absolute disregard for the most commonplace fire prevention measures. Notwithstanding that each theatre is required to employ a member of the fire department who is to remain on duty during every performance no •effort is made to enforce the regulations governing first-aid equipment. This fact is not surprising, however, since an examination of a number of the firemen assigned to these theatres revealed the fact that they had absolutely no knowledge concerning the equipment required in theatres. One fireman •showed a total ignorance of his duties in the event of panic. Although in the employ of the theatre for a number of weeks, he could not answer the most ordinary questions concerning the exits, fire extinguishers and stage •equipment. His lack of training was emphasized by the fact that he was unable to tell the contents of a hand chemical extinguisher, although he alleged that he frequently recharged them. Another of these firement was unable to direct the investigator through the house. In one theatre the fireman was also employed as the house electrician, which required his entire time during the performance at the stage switchboard. These firemen make no written reports. LAW GOVERNING THEATRES INADEQUATE. The theatres are subject to inspection by the department or State factory inspection, pursuant to the State law. There being no building code in operation and no ordinances governing the construction and equipment of FIRE DEPARTMENT 219 theatres, the local authorities are practically powerless to enforce proper regulations tending to safeguard the audiences. The State law, under which the State department of factory inspection operates, is wholly inadequate in its provisions, and does not require sufficient protection against fire and loss of life due to panic. While this law requires a curtain of "tioncombustible'' substance, which is intended to keep within the limits of the stage fire, smoke and gas, one theatre was found to be equipped with such a curtain hung from a wooden proscenium wall, and a poorly constructed wall at that. While the law demands a noncombustible curtain, it does not prescribe the manner in which the curtain shall be hung, nor does it demand that such curtain shall be set into metal grooves on either side of the stage ih order to prevent smoke and gas from reaching the audience as the result of a back draught when the curtain is down. Thus, no protection whatever is afforded by a non-com- bustible curtain. It effect, the provisions of this law do not empower the officials, local or state, to require ample provisions for the safety of the theatre-going public. As a result of the absence of proper ordinances upon the subject, Reading has two theatres which may be regarded as unsafe for use,, one of which should be closed until the necessary changes in con- struction are made to protect audiences against injury due to fire and panic. One of these theatres, although compelled by the State authorities to install, at a great expense, fire towers to afford means of exit from the body of the house, was permitted to have a stage which is a veritable invitation to destruction by fire. Not alone is this stage, with its wooden superstructure, wooden proscenium wall and flimsy wooden rear wall, constantly in danger of destruction by lire, but the danger is even increased because of the sur- rounding hazards, the theatres itself being merely a part of a large non- I ire-resisting biulding. Notwithstanding the extraordinary hazardous condi- tion of this stage, and notwithstanding the peculiarity of construction of the building itself, not a single fire bucket was found upon the stage; no sprink- ling system has been installed; the asbestos curtain was improperly hung, and no hook, axes, or other tire first aid equipment were found upon the stage. The dressing rooms had ordinary thin wooden partitions. Im- mediately back of tjie stage and separated from it only by a poorly constricted wooden wall, is a carpenter shop and property room, both without spriklers. Because of the absence of a fire wall separating this theatre from the remainder of the building, there is a powerful back draft which blows from the other section of the building through the stage proper to the auditorium. So severe is this draft that when the curtain is raised,, it can readily be de- tected by the audience. This condition would make impossible the con- fining of a fire to the limits of the stage for sufficient time to permit of emptying the house of the audience. Another theatre is in equally bad condition so far as the stage proper is concerned, because of liimsy wooden superstructure. All of the dressing rooms, which are constructed of thin wooden partitioning, are located upon the stage in tiers. This stage is equipped with an asbestos curtain, improperly hung and not set into grooves, thus destroying its usefulness as a protection against tire. Notwithstanding the hazardous condition of this stage, the State law was violated in that there was not a single bucket of water, or water- cask upon the stage. None of the ordinary means of fighting tires were found upon the stage except two small hand extinguishers. The dressing 220 FIRE DEPARTMENT rooms, eight in number, were crowded with rubbish, but had no sprinkling system. These conditions existing with official sanction are only pointed out to emphasize the need of fire prevention inspection by special trained firemen, and the adoption of proper ordinances regulating the construction and equipment of theatres, moving picture shows,, and places of amusement. As a further illustration of the need for the rigid enforcement of fire preven- tion rules and regulations the following incident should be noted: A large hall visited had at the time of the inspection three exits locked — these exits being the means of escape. When requested to open the exits,, the manage- ment refused, alleging that by leaving these exits open, people could gain entrance to the hall without paying an admission fee. At the very time the inspection was made, the affair being held in the hall was under the auspices of one of the volunteer fire companies. A fire drill should be conducted in all theatres, and employees should receive instructions as to their duties in case of panic. NEED FOR A BUILDING CODE. An inspection of a number of buildings in the congested mercantile district emphasized the need for the immediate adoption of a building code. While the manufacturing plants are for the most part fairly well equipped with fire lighting apparatus, sprinkler systems, etc., there are groups of buildings with unprotected windows and roofs which result in a conflagration hazard. Steps should be taken at once to provide the municipal authorities with adequate power to enforce proper fire prevention regulations. In adopting these regulations and a building code, the Council should provide specifically for buildings at present in use as theatres, moving picture shows and places of amusement,, and the requirements regarding such places should be of such a character that they could be met by the management of the houses. FIRE PREVENTION CAMPAIGN SHOULD BE BEGUN AT ONCE. With the establishment of a fully paid lire service, a vigorous fire pre- vention compaign should be begun immediately. To conduct such a cam- paign efficiently, citizen co-operation is necessary,, and a campaign of educa- tion essential. For this purpose Council should create a fire prevention commission, to consist of the superintendent of public safety, the chief of the bureau of fire, the inspector of buildings and at least two private citizens to serve without salary. The ordinance establishing this commission should empower its membership to create and promulgate rules and regulations upon the subject of fire prevention. The Mayor should insist that all city departments co-operate with the commission for the enforcement of these rules. The campaign should be begun by a general "clean-up" week. All civic agencies should be invited to co-operate in the clean-up. ' Householders should be circularized and their attention called to common practices which increase the danger of fire. The aim of the "clean-up" week should be to rid the city immediately of large accumulations of rubbish which tend to increase the probability of fire. The fire department and the fire prevention commission should be given FIRE DEPARTMENT 221 broad power in the ordinance to enforce preventative measures. They should include the power to 1. Inspect any building, structure,, place or premises. 2. Remedy any condition found in violation of any law, rule or regula- tion in respect to fires, or the prevention of fires. 3. Require the installation of automatic fire alarm equipment, and adequate and s?.fe means of exit. 4. Require to be vacated any building or structure which is inadequately protected against fire. 5. Require regular and periodic fire drills in factories, stores, schools, theatres, moving picture shows, hospitals and asylums. 6. Declare a building which is deficient in fire extinguishing equipment. or which by reason of contents or overcrowding is perilous to life and property to be a nuisance. 7. Abate such nuisance by compelling the owner to place the building in a condition of safety. SPECIAL INSPECTORS As already suggested, this inspection work can be best performed by members of the uniformed force, but if the Council decides not to establish a paid fire service, then Council should provide for the appointment of uniformed inspectors, three in number, to serve under the direction of the fire prevention commission. SYSTEM OF REPORTS A report upon each inspection should be made upon especially provided printed forms. These forms should be upon cards so as to create a card record of all the buildings in the City of Reading. The information called for by these inspection blanks should be sufficiently detailed to furnish a comprehensive story of the building and its interior equipment. Upon the back of each card should be placed a sketch of the building and the floor plans showing the location of fire escapes, hatchways, sprinkler systems, stand pipes, electric switches, sprinkler cut-offs, etc. SALE OF EXPLOSIVES REGULATED. The ordinance should include specific regulations governing the sale, storage and transportation of all combustibles, explosives and inflammable materials. The licensing of all such places should be under the jurisdiction of the fire prevention commission, the executive head of which should be the chief of the fire department. All stores selling kerosene or other illuminating oils should be licensed, as should also, all cleaning establish- ments using naptha, gasoline,, or other combustible liquids. The present restrictions of the State law governing the sale of explosives should be improved upon in this ordinance, and the restrictions surrounding the sale, storage and transportation of combustibles made more stringent. FIRE EXTINGUISHMENT In the matter of fire extinguishment the important factors are the O)) FIRE DEPARTMENT training of the firemen, the distribution of the fire lighting force, the equip- ment and apparatus, and the supervision thereof. The training of firemen is fully discussed in another section of this report, and the recommendations made applying to either a paid service or a volunteer service. Based upon an examination of the city,, an analysis of the National Board of Underwriters, and a conference with the engineers of that organization, the distribution of the force recommended in their report, which is as fol- lows, is concurred in. RECOMMENDED LOCATION AND EQUIPMENT OF COMPANIES ON FULLY PAID BASIS. Company Men Location Equipment Engine 9 Walnut and Reed iSts. Horse-drawn steam fire (Junior) engine and horse-drawn combination wagon Engine 8 Spruce and Maple Sts. Automobile combination (With Ladder 2) pump, chem'ical and hose wagon Engine 8 Greenwich and Eleventh Automobile combination Sts. (Hampden) pump, chemical and hose wagon Engine 9 Marion and Ninth Sts. Tractor-drawn engine and (Marion) automobile combination hose wagon Engine 9 Spring St. and Centre Tractor-drawn engine and Ave. automobile combination hose wagon Engine 8 15th and Muhlenberg Sts. Horse-drawn steam fire (Union) engine and horse-drawn combination wagon Hose and Auxiliary 8th and Court Sts. (Rain- Automobile combination squad 9 bow) hose wagon; also re- serve hose wagon with 1000 feet of 3-inch hose and a turret pipe Hose 7 Penn and Second Sts. Automobile combination (With Ladder 1) hose wagon Hose 6 Chestnut and Fifth Sts. Horse-drawn combination hose wagon Hose 6 Schuylk'll Ave. & Green Horse-drawn combination St. (Schuylkill) hose wagon Hose 6 Exeter and Front Sts. Horse-drawn combination (Riverside) hose wagon Ladder 1 8 Penn and Second Sts. 75' aerial horse-drawn (Keystone) Ladder 2 8 Spruce and Maple Sts. 65' aerial, horse-drawn (Washington) Ladder 3 6 Ninth and Marion Sts. 55' automobile service (Marion) (new) FIRE DEPARTMENT . 223 Especially important in this recommendation is the suggestion of estab- lishing an auxiliary squad at Eighth and Court streets. This auxiliary squad could be a most efficient aid if care is taken to arrange the meal hours so that there will always be a force present to man the apparatus during the meal hours of other companies. » EQUIPMENT AND APPARATUS. Under the plan of distribution of the force suggested above, provision is made for an equitable distribution of the apparatus and equipment. While most of the equipment and apparatus at present in use is in good condition, the lack of supervision and centralized control over the apparatus,, militates against efficiency in maintenance, and in time even the new apparatus will suffer. All repairs to apparatus are now performed under contract by persons not connected with the department. Thus considerable delay is caused and extensive repairs frequently result from simple defects, which, if remedied promptly, would have saved considerable expense. It is, therefore, recom- mended that Council establish a departmental repair shop under the direction of the chief mechanic and instructor. The necessary equipment for such a repair shop is suggested by Chief Demarest, of the New York Fire Depart- ment, in a paper read before the International Association of Fire Engineers. The equipment which he recommends, a list of which follows, was con- sidered by a number of fire experts to be an economical and efficient equip- ment. The estimated cost of the equipment installed is $5,000. A REPAIR SHOP IN A SMALL DEPARTMENT SHOULD BE EQUIPPED WITH 1 Engine Lathe, 18 in. swing, 10 ft. long t Drill press, 22-in. table. 1 Vise 1 Grindstone 1 Blacksmith forge 1 Portable crane, 2,000 lbs. capacity, for lifting out the motor, transmis- sion,, etc. 1 Hydraulic hose expander 1 Hose .testing outfit 2 or more electric drills for holes up to one inch, portable A tire repairing outfit In this shop all repairs to the apparatus should be made and minor equipment, such as hose holders, etc., manufactured. Proper cost records should be kept in connection with the operation of the machine shop so that the cost of each individual repair job may be easily ascertained. In determining the unit cost of repairs, the salary of the chief mechanic should be included. HOSE SHOULD BE TESTED. Hose is purchased by each of the respective companies without specifica- tions and without any definite rules governing the manner of purchase and !24 FIRE DEPARTMENT test. Consequently much of the hose now in use is in poor condition, and will have to be replaced. With the establishment of the departmental repair shop, recommended herein, proper apparatus for the testing of hose will be available,, and all hose purchased may be subjected to a test. MINOR EQUIPMENT. Ladder trucks are deficient in their minor equipment, as are also some of the hose wagons. This is particularly true of lanterns and searchlights for ues in night fires. The department depends entirely upon the ordinary oil lantern, and does not even maintain a sufficient number of these. Every ladder truck should be provided with a reserve supply of acetylene torches, and a large portable searchlight should be kept in one of the houses in the congested mercantile district. An acetylene and oxygen burner for melting steel bars should be carried oh one of the trucks in the congested district. RULES AND REGULATIONS. At present there is set of rules and regulations promulgated by the fire- men's union which is in effect a set of by-laws. Immediately upon the forma- tion of a paid department the chief should promulgate to the force in book form the rules and regulations governing the conduct of the firemen at the fire houses and at fires. These rules should prohibit members of the depart- ment from being members of any political organization or contributing or soliciting contributions or campaign funds. The rules should be definite in their character and indexed. They should be printed upon loose leaf pages, so that as they are amended from time to time, the amendments can be inserted in their proper place in the book without having to reprint the entire rules and regulations. AMBULANCE SERVICE. There are two ambulances maintained by the city at a cost of $1200 a year each. These ambulances are the property of the respective fire com- panies operating them. In the event of the establishment of a paid depart- ment these ambulances should be operated by the hospitals and maintained by the city. Arrangements should be made to have a doctor from the hospi- tal accompany the ambulances when responding to calls. As both of these ambulances were gifts to the fire companies with the understanding, of course, that they be maintained as an ambulance service for the public, there could scarcely be any objection to their transfer so long as the city continues to maintain them for public use. The ambulance service should be under control of the police department. If,, however, it is determined to continue the volunteer service, a proper system of records should be inaugurated for the ambulance service and the supervision of the ambulances should be placed in charge of the police instead of the fire department. UNIFORMS AND EQUIPMENT FOR FIREMEN. As a part of the initial cost in organizing a paid department provision FIRE DEPARTMENT 225 must be made for furnishing the in members of the department with rubber coats, boots, firehelmets, belts and badges. This item will amount to about $2,000. The second item of cost to be provided for is beds and bedding for the members of the force to be placed in the dormitories at the respective fire "houses. This item also represents an expenditure of about $2,000. The uni- form should be provided by the members themselves and it is suggested that the plan of purchasing now in operation in the police department be adopted by the proposed bureau of fire. FIRE ALARM AND TELEGRAPH SYSTEM ALL WIRING OVERHEAD. All of the wiring of the fire alarm telegraph system is overhead, not- withstanding that the use of overhead wires in the congested parts of cities has long since been condemned. The wires are carried on the telephone and telegraph company's poles, and considerable wire troble is experienced because the tire alarm wires come in contact with high tension electric light wires. This is true,, notwithstanding that there are almost three miles of conduit available in which the fire alarm wires could be carried. Council should provide at once for the placing underground and in conduits the wires in the congested mercantile districts. ALARM SYSTEM IN DANGER OF DESTRUCTION BY FIRE. Notwithstanding that no part of the fire department is more important and demands more attention than the fire alarm telegraph division, nothing is conducive to greater fire loss than inefficiency of the telegraph system. The fire alarm system of Reading is constantly in danger of complete destruc- tion from fire because it is located in a non-fire resisting building of joisted, brick construction, surrounded by extremely hazardous conditions. The fire department must depend for notification of fires upon the fire alarm system. All of the apparatus controlling this system is housed in a small room at the city hall. The building is non-fire resisting, and the room itself is in constant danger of destruction by fire, because of the amount of wood trim, the absence of any window protection, poor wiring, and the unnecessarily large amount of wood work on the switchboard and the instru- ment mountings. When it is realized that in the sending and receiving of fire alarms,, time must be measured by fractions of seconds, and that a minute's delay in the sending or receiving of an alarm may mean a conflagration, it should not "be difficult to understand the imperative need for removing the fire alarm telegraph system from this room and placing it in a fire-resisting structure, protected against any chance of fire from ordinary causes. It is recommended, therefore, that a specially-constructed concrete build- ing be provided. Such a building could be constructed on the lot at the rear of city hall or in the yard of almost any of the fire houses at a cost not to exceed $2,000. The building need not exceed 16 x 30 feet and two stories in height. This would provide for a fire resisting room in which to preserve :26 FIRE DEPARTMENT the batteries, a fire-resisting room in which to house the telegraph system, and a workshop in which to make ordinary repairs and store supplies. The room in which the batteries are now kept, in the cellar of the city hall, is equally non-fire resisting, and difficult of maintaining an even tem- perature. The fact that there have already been fires in the present apparatus room should serve to impress upon Council the need for the removal of the fire alarm system from the present location in the city hall, as recommended. This change should be made regardless of whether a paid department is established or not. DEPARTMENT TELEPHONE SYSTEM NEEDED. The majority of alarms of fire are sent in over the telephone. This makes the telephone system a most important part of the alarm system. At present each of the fire companies has a telephone which is on a separate exchange, and over which the department has no more control than any ordinary telephone subscriber. A central system of telephone should be installed so that all of the fire houses may be connected through a central switchboard at fire headquarters. Some of the telephones at the fire houses are on party lines, a condition which should be relieved as speedily as possible regardless of whether a cen- tral exchange is installed or not. NO RED LIGHTS OVER FIRE BOXES. While the distribution of the telegraph fire boxes throughout the city may be said to be good, there are no red lights provided to indicate the location of the boxes during the night. Council should provide for the placing of the boxes upon pedestals with a red light over them for use in the night time. RECORDS. Scarcely any records are maintained by the fire alarm and telegraph bureau. This is perhaps due to the fact that the superintendent, who is also the superintendent of the police signal system,, devotes most of his time to outside work, and there is only one assistant who serves also for both department. Adequate records are necessary for protection of the city as well as for the protection of the fire department itself. Proper records and reports, therefore, should be required by the rules of the department. The superintendent should furnish the chief with a daily report con- taining the following information: i_The time of receipt and box number of each alarm. 2 _The time of receipt of each telephone or still alarm and the name of the person sending such alarm. 3__Time each fire was "struck out." _j. — Number of the alarm. 5— Number of alarms received up to the same date of the preceding year. 6— Number of telephone messages received and sent out. 7 _Number of complaints received over the telephone. FIRE DEPARTMENT 227 8 — Numbr and character of complaints received concerning the telegraph system. 9 — Number and character of complaints of wire trouble. 10 — Time tests which were made and the results of the tests, n — Number of boxes inspected during the day. 12 — Number found perfect. 13 — Number found defective. 14— Number repaired. 15 — Amount of new wire in feet used during the 24 hours. 16 — Amount of wire in feet condemned. 17 — Amount of wire repaired. 18 — Amount and description of new supplies received. 19 — Amount and description of supplies used. 20 — Remarks. * Under the heading "remarks," the superintendent should report to the chief any unusual occurrences in connection with his bureau during the day, and any recommendations concerning improvements in the system which he may desire to make or suggest. WATER REPORT. A printed form, to be known as the water report,, should be provided. This form should be used for the operators to report the shutting off of water in various sections of the city. The report should contain, among others, the following printed headings: Date, day of week month year. Time of receipt. By whom telephoned. Time and location of shut-oft" of water. Territory affected by shut-off. Engine companies and commanding officers notified. Time notified. Name of fireman or district officer receiving the message. Signature of operator. After being telephoned to the lire houses affected by the shut-off, this report should be forwarded to the chitf of the department and filed in his office. LINEMAN'S TIME SHEET. The assistant superintendent and the lineman should be required to keep a daily time sheet upon printed forms provided by the department. These time sheets should be filed daily and should show: 1 — Time reported for work 2 — Time consumed upon each repair job or assignment 3 — Time of quitting work at the end of each day 4 — Number of hours consumed upon assignments 5 — Total number of hours' service for the day ASSIGNMENT AND REPAIR BLANKS. In connection with the operation of the fire alarm telegraph bureau. 22 8 FIRE DEPARTMENT accurate cost accounts should be maintained, and for this purpose repair blanks should be provided. Upon the blank the lineman or superintendent should be required to report the location of the job, the material used upon the job, character of the repairs made, and the time consumed in completing the assignment. Space should be provided to enter the actual cost of the job, the salaries of the lineman or the superintendent to be included in the establishment of a unit cost. WIRE TROUBLE RECORD. An accurate record of all wire trouble should be maintained in a book to be known as a wire trouble record. This book should show the time, date of opening and closing circuits, and the time of all "grounds." All matters affecting wiring should be recorded in this book. » RECORD OF SUPPLIES. An accurate record of all supplies received and the disposition of same should be maintained. This record should show the date and time received, -quantity and the detailed description of the supplies. It should show like- wise the supplies used, the time, date, and purpose for which used. Records should also give information concerning the inspection and testing of supplies, showing when and by whom they were inspected and tested, and the process used in making the test. A recapitulation should "be made at the end of each week so as to afford a continuous inventory of the stock. LOG BOOK FOR TELEGRAPH OPERATORS. A log book should be maintained in the office of the superintendent, in which should be entered chronologically all operations and matters affect- ing the fire alarm system. The rules governing the maintenance of the log "books at fire stations should apply to the log book of the fire alarm telegraph system. MAPS AND CHARTS. Ttye superintendent should be supplied with a map showing the location •of all the wires,, poles, conduits, signal boxes and fire stations in the city. This map should be kept up to date at all times. The different types of box and the number of circuits should be clearly indicated thereon. Each fire station should be furnished with a map showing the location of all water mains, the size and age of the mains, the location and size of gates, and the location of hydrants. Some of the fire stations are already equipped with such maps but they have not been kept up to date. Each station should also have charts describing the properties within the fire dis- trict and indicating the location in each of the buildings, of elevator shafts, hatchways, electric wiring, switchboards, sprinklers and sprinkler cut-offs, water tanks and their capacity, stand pipes and their connection and the respective permanent weights upon each of the floors. The firemen should be required to study these charts and to become familiar with the properties in their respective districts. They should like- FIRE DEPARTMENT 229 wise be familiar with the location of the fire hydrants, the water mains, and the information contained on the maps. The captains should examine the members of their commands from time to time in order to learn whether the firemen are making proper use of their spare time. FIRE HOUSE DRILLS. Captains should be required to drill the members of their command each day at the fire houses. The drill should consist, in clear weather, of an apparatus drill outdoors. In stormy weather the drill should consist of setting-up exercises and ordinary gymnastics which do riot require the use of apparatus. Company commanders should arrange so that the hour for drills would be scheduled at different times for different companies in order that no two companies in the one vicinity would be drilling at the same hour. BUSINESS MANAGEMENT The business management of the department should be under the super- vision of the superintendent of public safety. All supplies for the department should be purchased through the central purchasing agency for the city and under contract and standard specifications. All hose should be purchased by competitive bidding upon definite specifications. The storeroom for supplies should be under the control of the central purchasing agency and supplies should be furnished to the respective fire companies only upon written requisitions and with the approval of the chief of the department. The form of requisition for supplies should correspond to that recommended for the general use of the city departments. All apparatus for the department should be selected jointly by the superintendent of public safety and the chief of the department. RECORDS AND REPORTS In the supervision of the fire department, records play a most important part. From proper records the efficiency or inefficiency of the force can be determined. Proper detailed records are necessary as a guide to the Council in the adoption of ordinances relating to fire prevention, and to the State in compiling statistical data relating to fire waste. The records of Reading's fire department are inadequate in that they lack specific information properly compiled. There are no rules governing the keeping of records, and in consequence no two companies maintain similar records. The records of an individual company, such as they are, are the property of the respective volunteer organizations, and in no sense are they official records. The only record kept by the chief of the depart- ment is a large book with printed headings in which is kept a record of fires. The fact that the department is a volunteer organization should not: deprive the city of adequate records concerning its fire waste and the opera- tion of the fire department. 23Q FIRE DEPARTMENT PROPER RECORD SYSTEM SHOULD BE ESTABLISHED AT ONCE. The records of a volunteer organization should in no wise differ from those maintained by a properly-organized, paid department. Council should provide, irrespective of whether a paid department is established, a proper system of records and reports. This system should be planned by the admin- istrative head, the superintendent of public safety, and should provide for the accurate and concise recording of all activities of the force. The system of records should include the following: i — Proper fire service reports 2 — Individual company fire reports 3 — A properly-planned fire service record book 4 — Reports upon bursting hose 5 — Daily time sheets for each fire company 6 — A log book for each fire company 7 — Complete description of all buildings in the district (this to be a card r|:cord system maintained at each fire company's headquarters) 8 — Card records of individual members of the force 9 — Fire prevention inspection reports io — Monthly reports upon condition of apparatus and equipment ii — Health reports of members of the force 12 — Individual efficiency records 13 — Records in connection with the training school for firemen 14 — Proper records of charges and disposition of charges against mem- bers of the force 15 — Record of complaints 16— Record of places licensed to sell, store, or manufacture explosives or combustibles,, and of persons licensed to transport same 17 — A record and description of moving picture shows, theatres and all places where large assemblages are permitted. 18 — Daily reports by the firemen assigned to the theatres 19 — Fire hydrant report 20 — Horse records 21 — Reports on fire drills at stations 22 — Record of assignment and transfers 23 — Record of fire stations 24 — Hose records 25 — Surgical records FIRE SERVICE REPORT. Printed forms to be known as the "Fire Service Report" should be pre- pared and furnished to each fire company. The headings on this form should include the following: Number of alarms sent in to date Location of fire Duration of fire hours minutes Date Day of week Time alarm was received FIRE DEPARTMENT 231 Time of signal "Out" First company to arrive Time of arrival Alarm received by box signal No. Alarm received by telephone from telegraph bureau Alarm received from outside telephone orally any other manner Alarm communicated by Cause of fire Fire Unnecessary False alarm Other cause Description of building Stories high Building constructed of Fire-resisting Semi-fire-resist- ing Non-fire-resisting (Accurate description of building construction such as brick, con- crete, steel, frame, etc.) Character of building Tenement Private dwelling Factory Loft building etc. Size (area) Name of owner Address of owner Name of occupants of part of building affected by fire Name of other occupants and floors occupied Part of building where fire originated Cause of fire Fire extended to Amount of insurance: Buildings Effects Estimated loss : Buildings Effects Apparatus responding to alarm: First alarm: Engine Company No Truck Company No Chemical Fuel Wagon Second alarm: Engine Company No Truck Company No Chemical Fuel Wagon Third alarm: Engine Company No Truck Company No Chemical Fuel Wagon General alarm: Engine Company No Truck Company No Chemical Fuel Wagon Number of men on fire grounds, chief officers Company officers Men (If volunteer service is retained, the names of the members of the company who took part in fighting the fire, or who responded to the alarm, should appear under this heading) Absentees: (If paid service, under this heading should appear the names of the company absent and the cause of their absence) Time second alarm was ordered Time, by whom ordered, by whom sent in. and box number Time of each subsequent alarm, by whom ordered, by whom sent in, and box number. 232 FIRE DEPARTMENT On the reverse side, space should be provided for a record of all officers present at fire, arranged in order of rank. This record should include the time these officers arrived at fire and, the time they left. The lower half of the form should be devoted to a complete and detailed description of the methods used in extinguishing the fire, i. e., by chemical, water line, or other means. Under the heading "remarks" should appear a detailed description of any accidents or rescues in connection with the fire or with the apparatus while en route. This service report should be . made out in duplicate by the first captain to arrive at the fire, or by the assistant chief in whose district the fire occurs. One copy should be furnished tn the chief of the department and the second copy should be forwarded to the superintendent of public safety. The forms should be of a size which would permit of binding in convenient book form. Upon the copy to be filed with the superintendent of public safety there should appear printed at the top the following headings: i. Number of fires to date 'during the present year. 2. Number of false alarms to date. 3. Total number of fires during the preceding year. Total number of fires up to the same date of the preceding year. 4. Total number of false alarms during the preceding year. Total num- ber of false alarms up to the same date during the preceding year. The information called for should be filled in by the chief of the depart- ment before the report is filed with the superintendent. It should then be entered in the fire service record book, which should have printed headings corresponding to the headings upon this form. INDIVIDUAL COMPANY FIRE REPORTS. Each company should be provided with printed fire report cards. A separate report, from each company attending a fire, upon the activities of the company at the fire, should be filed with the chief of the department. This report form should be upon a card not to exceed 5x8 inches. it should have among other headings the following: Report of fire No .During the year 19 (The number of the fire should be written in at fire headquarters, and not by the fire company) Engine company No ...Truck company No Fire No Attended by this company during 19 Month Day Report of fire at No Street Alarm received by telegraph Telephone.. Local Time alarm was received Time (if engine company) consumed in reaching and coupling to hydrant Location of hydrant coupled to Time delayed Cause of delay The hydrant was found in condition, and was used with pounds for hours minutes, and with pounds water pressure for. . hours i minutes. FIRE DEPARTMENT 233 Number of gallons of water used Reported to and were ordered D3 r Number of minutes consumed in getting a stream on the fire Amount of delay, if any, and reason The pipe was taken to and inch stream kept there and minutes then taken to for hours minutes then taken to for hours minutes. The supply of water was The company was out of quarters hours. minutes The company was at the fire hours minutes The average pressure on line was lbs and the hose pressure was pounds feet of in. hose used in. nozzle Number of feet of ladders used (if truck company) On the reverse side of this report should appear headings calling for remarks concerning the property lost, found or destroyed, accidents, etc. There should also appear the list of officers and men who attended the fire (if paid department) and the names of those who did not attend, with the reason for their absence. This report should be signed by the commanding officer of the company. Companies using chemicals should be required to state in detail on the back of this report, under the heading of "remarks," the amount of chemicals used at the fire, the time the stream was first turned on, and any difficulty experienced with the apparatus. This individual fire company report is a most important record, and should be filled out with as much detail as possible and, of course, with the greatest accuracy. To the practical fireman this report will seem difficult to prepare, and the argument will be made that it is impossible to record with accuracy the information called for, because of the speed with which the firemen must work. It is not to be expected that in the beginning this record will be absolutely accurate, but it is maintained that such a record can be made with the necessary accuracy without interfering with the effi- ciency of the routine fire- lighter. It is especially important as a protection t<> the department, and a guide to the chief in the administration of the force. TIME RECORDS FOR EACH FIRE HOUSE. Specially printed forms, to be known as the Daily Time Sheet, should be provided at each fire station. This record should be maintained by the Captain or foreman, and should show the following concerning the activities of the force under his command for each 24 hours: t. Each roll call 2. Names of absentees 4. Cause of absence 5. Time consumed by the foremen for meals 6. Time consumed at fires 7. Time on watch & Number of times horses hitched This report should be filled out each morning before nine o'clock, and forwarded to the office ^'\ the chief of the department. From these reports 234 FIRE DEPARTMENT of the various companies the chief should prepare a consolidated report which should be known as the Consolidated Morning Return. This should "be filed with the superintendent of public safety. In addition to the information called for by the above headings, the •daily time sheet should also show any injury to the property of the depart- ment. Thus by ten o'clock each morning the chief of the department and the superintendent of public safety would have before them a detailed report of the force for the preceding 24 hours. After having been reviewed,, these time sheets should be properly filed and used as the basis of the monthly time service report, from which the pay rolls should be prepared. The form of the time sheets and the headings suggested above woiyld need to be modified in case the volunteer service should be continued. In that event the records should show the time spent by the members of the company at the fire house each day. In the case of paid employees, such as drivers, janitors and others, detailed information of the services performed by them each day should be embodied in this report. COMPANY LOG BOOK. Each fire company should be required to maintain a log book, giving a -chronological history of the activities of each fire company, arranged accord- ing to a specified form. This book should be uniform throughout the service, and entries therein should be made in a uniform manner, so as to show roll calls, record of meal time, absences, fires and all other activities in which each company or its members may be engaged from time to time. Across the top line of each page should be written the day of the week, the month and the year; each day should begin at the top of a page. A marginal red line should be drawn the length of the page, allowing two inches on the left. All entries should be made in chronological order as they occur, and the time should appear in the margin. There should also be a ■marginal note on the subject of entries; for example, if the entry be roll call the words "roll call" should be written in red ink in the margin under time, as should all marginal notes. The entry should be referred to in as "brief manner as possible, as "Alarm," "Accident," "Absence," "Meal time," etc. If the entries of the day extend only to the middle of the page, imme- diately beneath the last line of the last entry, a horizontal line shoufd be ■drawn across the entire page and an oblique line running from the left end ■of the horizontal line to the right hand corner of the page should be drawn in red ink. A space of one line should be left blank after each entry. RECORD OF CONSTRUCTION OF BUILDINGS. No record could be more valuable and of greater assistance to a fire ■company in the work of fire extinguishment than a card record of all build- ings in the fire district. Each fire company commander should have available for his use a complete card record of every building in the district. The •description contained upon these cards should be sufficiently detailed to show the location of stand pipes, sprinkler shut-offs, tanks, hatchways,, elevators, "boiler rooms, electric light and other switches, gas connections with main; also the weight and character of material and equipment stored upon each floor. There should also appear upon these cards an accurate sketch of the FIRE DEPARTMENT 231 building, with its floors and exits adequately shown. With such a record a captain or district chief would have available for his use, in directing the operations of his subordinates at a fire, an accurate and detailed description of the interior of the building. This record is not only important for the sake of reducing fire losses., but also to guard against the loss of human life (especially the lives of the firemen who must enter burning buildings). It would be practically impossible for a volunteer department to maintain such a record. CAR!) RECORD OF INDIVIDUAL MEMBERS OF THE DEPART- MENT. An individual record of each member of the force should be maintained, ■not only at headquarters, but in each fire station as well. This card should contain a complete history of each member from the date of appointment, until he shall cease to be a member of the department. The information on the card should include: 1. Full name 2. Age Date of birth 3. Residence 4. Telephone number, if any 5. Date of appointment 6. First assignment to duty 7. Various assignments and transfers 8. Records of delinquencies . 9. Record of any meritorious acts performed 10. Promotion 11. Complaints received against him 12. Efficiency ratings month by month At the time of appointment, two of such cards should be made out, one filed at headquarters, and the other delivered by the fireman himself to the Commanding officer of the company to which he is assigned. This latter card should travel with the fireman to each station where he performs duty. Such a practice would make it possible for commanding officers to keep an absolute check upon the records of the members of the department who come under their command. There is no reason why such a card system could not be maintained for a volunteer service, but in such case, provision should be made to record chronologically upon the card the member's attendance at fires. REPORTS ON FIRE PREVENTION INSPECTIONS. All fire prevention inspection reports of members of the uniformed force should be made upon specially printed forms. These forms should have proper headings calling for detailed information concerning each building inspected. The report should be filed by streets. APPARATUS AND EQUIPMENT REPORTS. The chief mechanic should be required to file with the chief a monthly report showing the condition of the apparatus and equipment of the depart- ment. The report should be based upon a monthly inspection of the appara- 2 36 FIRE DEPARTMENT tus, and should include a record of all new apparatus purchased or installed during the current month, repairs made to apparatus, and the cost thereof. The captain of each company should also file a monthly report, showing the sanitary condition of the station house. HEALTH RECORDS OF THE MEMBERS OF THE FORCE. A card record of the physical condition of all members of the force should be maintained at headquarters. This record, of course, applies only to a paid service, but a similar card record should be maintained for mem- bers of the department of a volunteer service injured in the performance, of their duty. The record should show: i. Time lost as result of sickness 2. Character of illness . 3. Date of beginning of leave of absence 4. Date T)f return to duty 5. Probable cause of illness 6. Name of physician attending INDIVIDUAL EFFICIENCY RECORD. There should be individual efficiency records based partly on work records and in part on tests. Monthly ratings of working efficiency should be sent by the commanding officers of each fire company to headquaners. Efficiency records for volunteer firemen should be based upon the number of fires attended during the month, with particular reference to the time of day or night at which fires occurred, the number of hours of attendance at training school, and the amount of work performed at fire house. RECORD OF DELINQUENCIES OF MEMBERS OF THE FORCE. All documents and records pertaining to members of the force should be filed at the office of the chief. The file should contain a separate folder or envelope for the complete history of each member of the force. As each new man is appointed, his application blank, the report of the surgeon, and the record of his appointment, should be filed alphabetically in an indi- vidual folder. In this folder should be placed every letter of complaint or commendation, every request made b} r the fireman, and in fact every commu- nication concerning him while on the force, including a record of charges for delinquencies. Each fireman's efficiency cards and card record of assign- ments should be filed so as to facilitate access for postings, and reference thereon should be made to the folder containing the documentary data men- tioned. It will thus be possible for the superintendent of public safety or the chief at a moment's notice,, to obtain not only the record, but also the complete history of any fireman in the city. The city is without any information of statistical value concerning the membership of the department, as organized at present. Regardless of whether the Council establishes a paid department, the city should have for statistical purposes, a complete history of the membership of its volunteer organization, and for this purpose a proper blank should be prepared at once, with headings calling for detailed information concerning each member FIRE DEPARTMENT 237 of the department. These blanks should be distributed among the mem- bers, and when filled in, they should be filed and made a part of the records for the city. Should Council decjde to establish a paid service, which would mean the dissolution of the volunteer organization,, these records would be of great statistical and historical value to the city. RECORD OF COMPLAINTS. A record to be known as a ''Citizens' Complaint Book" should be estab- lished, for recording every complaint received by the department (whether written or oral). It should likewise contain a report of the investigation of the complaint and the action taken upon it. The records should be indexed alphabetically and in accordance with the subjects of complaint. RECORD OF THEATRES AND MOVING PICTURE SHOWS. In the office of the chief of the department there should be on file a blue-print or tracing showing the floor plans of every theatre and moving picture show house in the city. An ordinance should be adopted making it mandatory for the owners to supply the fire department' with such drawings, showing in detail the description, number and type of exits, location of stand- pipes, tire escapes, sprinklers, sprinkler shut-off valves, gas connection, elec- tric switches,, floor plan, position of stairways, lobby, corridors passage- ways and exit doors, the open court or courts and exits therefrom, the position of all electric wiring and all matters which would be of interest to the fire department. These plans should be drawn to a scale of not less than eight feet to the inch; they should be filed flat and in such a manner as to make possible ready reference. A card record should be maintained of every theatre and moving picture show, dance hall and of every other place where people congregate and where panic may be expected in the event of fire or other emergency. The information for these cards should be taken from the plans filed. RECORD OF PLACES HAVING LICENSE TO SELL, STORE OR TRANSPORT EXPLOSIVES, COMBUSTIBLES, ETC. A card record of all persons or premises licensed to sell, store,, handle, transfer or manufacture explosives or combustibles, should be maintained. Upon this card should appear information, in detail, concerning the licensed premises. There should appear a sketch of the part of the building in which such combustibles or explosives are stored, and the amount permitted to be stored there should be indicated thereon. This record would furnish the chief with a ready reference for the purpose of inspecting such premises. Suffi- cient room should be left' blank upon the cards to provide for noting future inspections. * HYDRANT REPORTS. Each captain should be required to report upon the condition of fire hydrants as observed by him or his men during the month. Copies of any reports which contain information of irregularities or defects of the hydrants lid be furnished to the bureau of water. 238 FIRE DEPARTMENT REPORT OF DRILLS AT FIRE HOUSES. The rules should require company captains to file weekly reports showing; i. Number of drills conducted by them at the fire house 2. Length of time devoted to each drill 3. Class of drills conducted (in detail) 4. Number of men absent during the drills HORSE RECORDS. It is important that the department maintain a complete record concern- ing the health of the horses. This record should be a card record, and shoul contain, among other things, the following information: 1. Date the horse entered the service 2. Name or number 3. Distinguishing marks 4. Pedigree as far back as possible 5. Age Weight and Height 6. Physical condition when purchased 7. From whom purchased 8. Station assigned to 9. Transfers and future assignments 10. Record of illness, showing day and date of each sickness, the duration! time lost, name of surgeon attending RECORD OF PROPERTY OWNED OR RENTED BY THE DE- PARTMENT. The department should have compiled a complete history of the building owned, rented or used in connection with the fire service. This should hi a card record and should contain, concerning each of the buildings in addfl lion to other information,, the following: Date the fire house was constructed, bought or rented, original purchase cost of the ground, cost of construction! the cost of equipment, accurate description of the building, floor by flooi with a record of all repairs made to the building, showing the cost, and all such other available historical data which may be of value to the depaql ment. Attached to this card should be a photograph of the building, to bfl made a permanent record of the department. FILING SYvSTEM SHOULD BE ESTABLISHED. Because of the absence of a system of reporting and a centralized con-*.) trol over trie records of the department, the office of the chief is without any filing cabinets. If a proper system of reports, such as is recommended is adopted, the office of the chief should be equipped with fire-resisting filing cabinets of the vertical correspondence type. ANNUAL REPORT. The annual report of the bureau of lire should be a complete histon I its operations during the year. It should contain in tabular form informal tion which would not only furnish a means for determining the efficiency! FIRE DEPARTMENT 239 or inefficiency of the force, but would act as a guide to the Council in the matter of enacting ordinances affecting the department and in regulating its appropriation. The report should contain a financial statement which would show in tabular form the per capita cost of furnishing lire protection to the city; the money appropriated for the department, year by year for the past \\\e years; disbursements on account of salaries, repairs, supplies, new equipment, maintenance of horses and apparatus, etc. A section of the report should be devoted to the force, and should include tables showing the number of Appointments Transfers Promotions Retirements Deaths Dismissals Trials upon charges and dispositions Reinstatements Days of absence of firemen due to illness Lost time of firemen without salary Firemen injured at fires Sanitary condition of fire houses Statistics of fires should be given in tabular form as to the number of fires, confined to the points of starting, confined to buildings, extending to other buildings,, extinguished without engine streams, extinguished with one engine stream, etc., extinguished with chemical, water buckets, hand extin- guishers, etc. Such a table should show the number of fires month by month between the hours of 6 A. M. and 6 P. M. and complete information con- cerning the probable causes of the fires. In the text of the report special mention should be made of members of the force who have displayed extraordinary skill or bravery during the year. \ Weiler's Printing House °%. 440 Couit St., Reading, Pa. PAMPHLET NUMBER EIGHT READING, PENNSYLVANIA Report on a Survey of the Department of Streets and Public Improvements Prepared for The Chamber of Commerce of Reading by the New York Bureau of Municipal Research APRIL, 1914 10 CENTS CONTENTS Pase Introductory Statement 243 ,§>ummary of Criticisms and Constructive Suggestions 244-246 Criticisms and Constructive Suggestions on Organization and Personnel, also on Pavements., Sidewalks, Inspection Methods, Street Cleaning and Accounting and Reporting Methods 247 Organization and Personnel . 247 Pavements 248 Special Assessments 253 Sidewalks , 257 Permits 260 Inspection 261 Street Cleaning and Garbage Collection 262 Accounting and Office Methods 266 General Considerations 268 DEPARTMENT OF STREETS— SUMMARY. 243 INTRODUCTORY STATEMENT The survey of the public works activities of Reading's city government was undertaken at a time when the entire city government was in the process of complete reorganization and by this time the general government machinery has been put in good working order. From the results of the investigation of the public works functions we are convinced that there is need for as complete a readjustment of methods. In this report many of the deficiencies in law and method are pointed out. Certain of these fail- ings are fundamental barriers to economical and efficient administration, but there is not one operation criticized which, by correction, would not aid materially in stimulating community interest in public works. Inadequate equipment, lack of vigor in compelling street railway com- panies to repair areas without delay and in a proper manner; many unpaved alleys in a filthy or insanitary condition; incomplete cost records; lack of service records, etc., are indicative of the problems which the city must face. The elimination of the present defects is a big task, which needs the attention and support of every citizen. 244 DEPARTMENT OF STREETS— SUMMARY. DEPARTMENT OF STREETS and PUBLIC IMPROVEMENTS SUMMARY OF CRITICISMS AND CONSTRUCTIVE SUGGESTIONS ORGANIZATION AND PERSONNEL. The department of streets and public improvements should be reor- ganized with four bureaus: (i) highways and bridges; (2) sewer; (3) street cleaning and garbage removal; (4) building inspection — each under the supervision of a competent engineer responsible to the Superintendent of Streets and Public Improvements. Under the immediate direction of the City Engineer or the superinten- dent three central divisions should be established: (1) cost accounting; (2) surveying and draughting; (3) inspection — for the performance of the general internal functions of the department, each under a competent chief, responsible to the superintendent or to the ranking engineer accord- ing to the nature of the function. Steps should be taken to increase the working force of the department by the addition of m£n trained for the work they are to perform. These men should receive such compensation as will attract first-class men to the department. The present clerical staff is inadequate to maintain the necessary administrative records. PAVEMENTS. Reading's streets are inadequately paved, and pavements are in poor condition. Most of the improved streets and roads are surfaced with water- bound macadam in place of which a bituminous-bound macadam is recom- mended. Street railway area pavements have not been properly maintained by the company, nor have the city authorities made good this deficiency at the expense of the company as is provided in the franchise. A working fund should be established to make it possible for the city to enforce its rights, this fund to be reimbursed by charges against the company. Specifications for street railway area pavements, as prescribed by ordi- nance, are inadequate; but even these requirements have not been enforced in all cases. The type of pavement to be laid in any street should be determined by council upon recommendation of its technical expert, the city engineer,. not upon petition of citizens. Volunteer fire companies are permitted to sprinkle the streets and to collect payment for this service from the owners or tenants of abutting property. As a result, the streets are over-flushed. This is a service which DEPARTMENT OF STREETS— SUMMARY. 245 should be under the control of the department of streets and public im- provements. A comprehensive paving program should be adopted outlining plans for work to be undertaken for a number of years. To this end a special study by a representative commission is recommended. SPECIAL ASSESSMENTS FOR LOCAL IMPROVEMENTS. The state law governing local improvement assessments is antiquated thus making it impossible for the city to assess against the owners of abut- ting property the cost of paving (legally "'repaying") any street which has ever been macadamized. There is need for an official classification of varieties of pavement to conform to modern engineering standards. ALLEYS. The bureau of health should be relieved of responsibility for the con- struction and maintenance of alley roadways' and pavements, and the work transferred to the department of streets and public improvements. It is recommended that a special study be made of the condition of all alleys with a view to preparing a program for betterment work. SIDEWALKS. Sidewalk conditions are generally below accepted standards due partly to neglect of property owners and to the use of surface gutter drains. An annual inspection should be established, and reports should be required -on all sidewalks in the city. The fee (one dollar) for a repair permit is too low to provide for adequate inspection service. A charge proportionate to area is suggested. A general inspection of sidewalk conditions throughout the city should be made and a report thereon presented to council for action. Standard specifications for sidewalks and curbing should be established by ordinance. Sidewalk surface gutters should be eliminated under authority already granted. PERMITS. Steps should be taken to increase the revenue of the city through rental charges for sidewalk vaults. This is a task for council upon advice of the city solicitor and of the city engineer. Fees should be required for permits for storage of building material upon streets and sidewalks, so as to provide for the cost of proper inspec- tion service. INSPECTION. The inspection staff of the department is inadequate and poorly trained and inspection procedure does not provide sufficient information for cen- tral control. 246 DEPARTMENT OF STREETS— SUMMARY. Proper inspection includes (i) determining the necessity for work proposed to be done and (2) ascertaining whether work done has been performed in a workmanlike manner and with proper materials. The city should be divided into five or six inspection districts and a competent inspector assigned to each. It is suggested that report forms be provided for use of police officers for reporting defective public works. The adoption of a postal card report form for use of citizens and police is also suggested. Inspectors should be appointed solely for reasons of technical ability, and they should receive sufficient compensation to attract and keep high- grade men. With the large amount of work which must be undertaken in the near future this matter is particularly important. STREET CLEANING AND GARBAGE COLLECTION. A single inspector without transportation facilities cannot enforce the terms of the street cleaning contract to the extent that is desirable. The city should abandon the contract system and clean its own streets at the expiration of the present contract. Members of the street cleaning force, whether employed by a contractor or by the city, should be required to wear uniforms. The responsibility for street cleaning and for minor repairs to streets should be centralized. Economy may be effected through co-operation of the forces assigned to these related services. The city should abandon the present practice of collection and reduction of household waste by private contractors. The collection and incineration should be done by its own forces and with its own plant and equipment. ACCOUNTING AND REPORTING METHODS. Practically no cost records are now available for use in administering the department. Provision should be made for obtaining the basis of cost records through the introduction of standard forms for field reports and a systematic method of handling such reports. The filing system in the office of the city engineer should be revised to facilitate the obtaining of cost data. Fireproof vaults and proper filing cases should be provided for the registered plans. GENERAL CONSIDERATIONS. Overhead wires should be placed underground, at least in the central part of the city. One building inspector cannot perform properly the .work required even under the existing building laws and ordinances. An adequate building code should be adopted by council. Plans should be made for extending and improving the sewage purifica- tion plant. DEPARTMENT OF STREETS. 247 DEPARTMENT OF STREETS and PUBLIC IMPROVEMENTS CRITICISMS AND CONSTRUCTIVE SUGGESTIONS ON ORGANIZATION AND PERSONNEL, ALSO ON PAVEMENTS, SIDEWALKS, INSPEC- TION METHODS, STREET CLEAN- ING AND ACCOUNTING AND REPORTING METHODS. ORGANIZATION AND PERSONNEL The organization of the department of streets and public improvements under the new form of government makes it unnecessary to criticize in detail the defects of the former organization. That it was defective is admitted. What is important now is the formulation of a new department which will be properly organized and equipped to design well and spend economically. SUGGESTED ORGANIZATION. The following recommendations as to organization are premised on the acceptance of the proposed changes in methods suggested in the body of this report. Functionally, the department's duties should consist of: 1. General engineering service for the entire city government and supervision of the construction and maintenance of all public works, including park roads, alleys and public buildings. 2. The collection and disposal of garbage, rubbish and ashes. 3. The construction and care of highways, sewers, sidewalks and bridges. 4. Street cleaning. 5. Control of the construction and reconstruction of private buildings. 6. Municipal surveying. For organization the following is suggested: Bureau of highways and bridges Bureau of sewers Bureau of street cleaning and garbage removal Bureau of building inspection Each bureau should be under the supervision of a competent engineer responsible to the superintendent or city engineer. In addition three over- head divisions should be established to report directly to the ranking engineer or the superintendent — 1. Division of records under supervision of the chief clerk and reporting to the superintendent. The duties of this division comprise: the 248 DEPARTMENT OF STREETS. issuance of permits; the registering of plans; cost and expense accounting, and general office work. 2. Surveying and draughting division under the supervision of the head surveyor and reporting to the city engineer. 3. Inspection division under the supervision of the chief inspector and reporting directly to the superintendent or city engineer. PERSONNEL. With an increase in the duties of the department, it will be necessary to secure trained men for the positions, and to increase the force. The need for civil service regulations, service records and salary standardization is referred to in another section of the report. There is no department where these would be of more service tnan in the department of streets and public improvements. Before any extension is made in the scope of the department's duties, and before any possible increase in expenditure authorized, it is essential that the force be trained and organized to handle it. Inspectors at $3 per day mean inefficient service or underpaid em- ployees; and a clerical force of one clerk and an assistant means inadequate and possibly inaccurate accounts. £ PAVEMENTS PRESENT CONDITION. A detailed survey of conditions is certainly not necessary to bring to the attention of the citizens of Reading that the streets and roads of the city are inadequately paved and the pavements generally are in a very poor condition. More than half of the permanent pavements of the city are of brick; unsightly, rough, and in their present condition a menace to the health of the community. The asphalt pavements are perhaps the best, but the total amount of such pavement is less than six linear miles. The granite block pavements, of which there is approximately one linear mile, were improperly constructed; they are expensive to maintain and evidently in a state of disrepair most of the time. The present mileage of the various classes of pavement is as follows: Water-bound macadam '. 60 miles Brick 11 miles Asphalt 6 miles Bituminous-bound macadam 2 miles Granite block , 1 mile Wood block (about) J A mile Total 80J4 miles From the above tabulation it appears that more than 75 per cent, of the improved streets of Reading have been paved with a so-called water-bound macadam. Within the last few years, on account of the growth in the use of automobiles for pleasure and business, water-bound macadam construc- tion has been discarded entirely by progressive highway engineers. The DEPARTMENT OF STREET S. 249 fast moving motor vehicles ravel out the surface stones on the water-bound macadam streets as fast as they are rolled in. In searching for a method which would check this rapid disintegration of macadam roads, various bituminous treatments have been tried out, and the results will warrant the use of bituminous surface treatments of macadam roads in any city. Comparatively little of this work had been attempted in Reading. There are approximately two miles of bituminous-bound macad- am, but no city-wide program for an inexpensive bituminous surface treat- ment has ever been carried out. STREET RAILWAY PAVEMENTS IN POOR CONDITION. The railway area pavements — the pavements within the car tracks and the foot and a half on either side — are generally inferior to the pavements in the roadway proper. By the terms of its franchise, the street railway company is bound to reconstruct and maintain in good repair the pave- ments within the railroad area. This treatment has not been fully carried out and the present condition points toward laxity on the part of both the street railway and the city officials. The practice in making these repairs has been for the city to serve a notice upon the railway company requiring certain repairs to be made. By the terms of the franchise, if these repairs are not completed within a period of 20 days, the city is authorized to undertake the work and charge the cost thereof against the company. One of the explanations given for the poor condition of the railroad area pave- ments is that sufficient money had not been provided for carrying on this work. Considering that the ultimate cost must be borne by the street raihvay company and that the money necessary could be provided in a rotary fund, or capital account, the question of finance becomes a very incidental argument in explaining the existing conditions. A fund should be provided for this purpose at once, either through the issuance of refund- able bonds or by direct charges against cash without actual appropriation. SPECIFICATIONS AND METHODS FAULTY. Considering in greater detail the underlying causes of the present con- dition of the railway area pavements, it developed that the city not only has the power to enforce proper maintenance of the railroad area pavements I but also has comprehensive powers for enforcing proper specifications and workmanship. However, many obsolete construction methods have been and are being used for this work. The kind of foundation to be used is specified by ordinance. The specifications are very meagre and are inade- quate for controlling the kind of construction methods necessary to meet the demands of the traffic conditions on the railway streets. But notwith- standing the inadequate specifications of this ordinance, a construction job was being carried on on Tenth street at the time this investigation was in progress where the foundation for the pavement proper did not even meet the requirements of the ordinance. It is not necessary in a survey report of this nature to point out in detail just what kind of construction methods should be followed in carrying on this work. It is sufficient to say, however, by way of example, that in York, Philadelphia and practically every other city where any attention 25o DEPARTMENT OF STREET S. has been given to this work, a supporting foundation of mixed concrete, often 15 to 16 inches in depth, has been required, while in Reading 6 inches of broken stone will satisfy the requirements of the ordinance. CITY'S RIGHTS SHOULD BE ENFORCED. If the street railway company had been given to understand by the city administration that the franchise rights of the city were to be enforced to the letter, it would have been a very short-sighted policy indeed on the part of the railway company to have permitted such work to be done, despite the freedom given by the terms of the ordinance. In any event, the community is due this service from the street railway company and the superintendent should be instructed to enforce the city's rights. SELECTION OF PAVEMENTS. The type of pavements to be laid should be decided by council upon recommendation of the city engineer, and not as at present according to the peculiar desires of petitioners from different wards. Considerations such as climate, volume of traffic, kind of traffic, grade of street, character of district, presence of car tracks, have not been taken into account; nor have qualities of pavements been considered in the light of durability, smoothness, noiselessness, slipperyness, cost of laying, or cost of cleaning. Experience in many cities has proved that the granting to property owners of arbitrary rights to select the kind of pavement to be laid in front of their property, has resulted in a large waste of time and money. Too often the non-technical property owner has found to his sorrow that he should have been protected from his own inclinations. This is the kind of work, which, if properly carried out, must be made a subject for scientific study. UNNECESSARY FLUSHING OF PAVED STREETS. It has been pointed out in reports of the city engineer that excessive sprinkling of asphalt streets is detrimental to the pavement. This is par- ticularly true where pressure flushers are used. The paved streets are now being sprinkled and flushed too often. A number of the volunteer fire companies have sprinkling carts which are used in flushing various •city streets. For this service the fire companies are permitted to collect from property owners and merchants, a practice which tends to increase the amount of sprinkling, as anything collected for this service is practi- cally clear profit. It would be advisable for the department of streets and public improvements to undertake this work, but in any event the depart- ment should have complete control of the kind and amount of sprinkling. GOOD PAVEMENTS A GOOD INVESTMENT FOR TAXPAYERS' MONEY. It would be impossible in the space of this report to point out in detail all of the many advantages of good pavements and good roads to a com- munitv. Some of the conspicuous advantages are: decreased cost in trans- DEPARTMENT OF ST REETS. 251 portation and better health conditions. But more than that, good roads and good pavements will provide a tangible result about which civic pride may be developed. Secondary but no less important social advantages will invariably accrue to any city or any group of citizens which realizes the necessity for good roads. The time is ripe for the development pf a comprehensive program for this work. For success, it needs the undivided support of the thinking public. This means the active co-operation of the chamber of commerce and all civic organizations. There is no single program in any department of the city government, no private business and no property in the City of Reading which will not be materially benefitted by better roads and pavements. A PAVING PROGRAM NEEDED. Constructive planning is one of the fundamental principles which go to bring about good government. Constructive planning in pavement work means the preparation of a paving program. To place the streets of Reading in proper condition is the work of a number of years. If best results are to be obtained, it cannot and must not be considered as the work for one year or one administration. What is needed most is a clear statement of the problem, both from an engineer- ing and financial standpoint, and assurance that the program will be car- ried out. It is only through the preparation of a concise statement of the problem that continuity of policy may be insured. WHY A DETAILED PROGRAM IS NECESSARY. Although the standard specifications have been prepared for wood block, granite block, brick, sheet asphalt and practically every kind of standard pavement, and although general estimates of costs of the various types of pavements could be prepared, a detailed study of the local conditions should be made before an improvement is undertaken; otherwise, it very often happens that a four-dollar pavement will be laid where a two-dollar pave- ment would answer every requirement, or that a comparatively low-priced pavement will be laid where a more expensive pavement would prove most economical in the end. There are undoubtedly many fundamental rules governing the selection of pavements which should be followed independently of the preparation of the definite program. For example, wood block pavement, although adapted to the heaviest traffic and comparatively noiseless, should not be used on any streets where the grade is at all excessive. Sheet asphalt pavements are also more or less objectionable on grades, due to the slippery surface. On the other hand, various kinds of bituminous concrete pavements where the mixture contains a quantity of broken stone, and is covered by a top coat comparatively soft, are very well adapted to streets having a grade of as high as ten to fifteen per cent. The point is that, although it is possible to establish general rules which would prohibit the use of certain types of pavements under certain conditions, a special study must be made in order to determine what one particular pavement of these generally adapted pavements should be used. DEPARTMENT OF STREETS. Special studies are also needed in order to determine whether repaying or entire reconstruction is needed on certain streets where a more or less permanent pavement had at one time been' laid. A large part of the pave- ment problem in Reading centers around this question of whether the existing brick streets can be repaved or resurfaced or must be completely reconstructed. There are many other questions such as the condition of the ground under the foundation of the pavement, and whether the street is used by the street railway company, a condition which affects seriously the selection* of a particular kind of pavement. The kind of rail used by the street railway company, whether a T rail, a flange rail, or the Trilby rail, is also a very important factor in determining whether a bituminous, brick, stone- block or wood-block pavement should be used. The lack of proper consideration of these points in selecting types of pavements for different streets has cost the City of New York millions of dollars, and has proven a very expensive policy for practically every large city in the United States. Faulty railway construction methods and the use of inferior rails by the street railway company have caused a waste of more than a million dollars in a city of half a million population in the last five years. All these questions could be studied, decided upon and planned for in the preparation of a paving program. It is not possible for a street railway company to change its type of rait or to change immediately the methods of supporting the tracks. It is not possible for the water department or the public service corporations to place their mains in proper condition or to make all surface connections at one time. It is not right that property owners should be required to reset a curb or change the grade of sidewalks without considerable advance notice. But if the proposed paving work of the city is outlined for a num- ber of years to come, everyone concerned has an opportunity for constructive planning. COMMISSION TO PREPARE PROGRAM. It is always advisable in the preparation of a program of this nature,, to guard against local prejudice. Personal antagonism and factional inter- ests are the most dangerous factors in the preparation of a paving prog-ram. It would be advisable to establish a commission, to consist of men trained in engineering and finance, to formulate this program, assisted by a committee representing the city council, the chamber of commerce and other local organizations. Such a committee should assist and advise, but have no authority in the determination of the ultimate plan. A commission- of three men would be advisable: one an engineer familiar with paving technique, another a man qualified in public works finance, and the third. the superintendent of the department or the city engineer. PREPARATION AND PUBLICITY. The paving program should not be prepared until detailed , scientific studies of traffic, grades, living conditions, etc., have been investigated on all of the streets of the city. It would be advisable to formulate a plan,. DEPARTMENT OF STREETS. 253 the carrying out of which would be the work of ten years, or at least five. It should include a definite statement of the type of pavements to be laid by the city within the next three years. It should provide for the continua- tion annually of the study of traffic, living conditions, etc., on the streets included within the plan. It should provide in detail a funding scheme for financing improvements. The plan should be printed and distributed among citizens interested in municipal affairs, in order that its carrying out may be forced, if neces- sary, over the objections of a changed administration. Too much publicity is impossible. The more citizen interest is aroused a better chance there is for the continuation of citizen interest to insure the actual carrying out of what has been planned. SPECIAL ASSESSMENTS It has often been suggested in Reading that the financing of pavement work by special assessment on the abutting property would be a solution of the paving problem. This is not entirely true. The local assessing of the cost of permanent pavements would assist materially in controlling the for- mulation and carrying out of a definite program, but local improvement assessments for this work are not essential in getting good pavements. The rapid increase in private transportation facilities, particularly motor- driven vehicles, has served to change the significance of city pavements to the community. Questions of local benefit, therefore, tend to disappear, and the matter of the assessment of the cost of pavement construction against the abutting property owners must be considered in a new light. Since there is need for change in pavement policy in Reading, and for the formulation of a broad, comprehensive program for this work, involv- ing large expenditures, the question demands special consideration. ADVANTAGE OF SPECIAL ASSESSMENTS. As it is unquestionably true that the construction of the first permanent pavement bestows a distinct and peculiar benefit upon the property in its immediate vicinity, local improvement assessments are needed for the pro- tection of the administrator in the case of original paving. In the course •of the preparation and carrying out of paving improvements, pressure from many sources is usually brought to bear upon the city engineer, council and the municipal organization unit having supervision over the work to influence the location of the improvements. In any city, no matter what the size or general community attitude, over-zealous or unscrupulous real estate operators, conscientiously or tin- conscientiously prejudiced in favor of their own property, may seriously interfere with the proper distribution of paving improvements. The question of local or ward influence is one which affects all kinds of public works, but it is specially serious in the pavement problem. There is nothing quite so dangerous as a paving program prepared in response to local influence. It means the use of a four-dollar pavement where a two-dollar pavement would serve every purpose, and the paving of many comparatively unim- portant streets before the main arteries of travel are placed in proper con- 254 DEPARTMENT OF STREETS. dition. For protection against these two very serious influences local assess- ments are particularly effective. THE ALTERNATIVE. As in all probability it will be impossible to make use of the local improvement principle for more than a small percentage of the necessary pavement work, it is necessary to plan for alternative methods. The problem naturally divides itself into two main questions: (i) the formulation of the program; and (2) the enforcement of its provisions. How a paving program must be prepared and what principles kept in mind during its preparation have already been brought to your attention. It is, of course, impossible to expect that a paving program, formulated now, may be completed within the year; more likely in five, and possibly ten years. Having prepared the program, the important problem for the efficient citizen is to support a continuous policy in spite of frequent changes in legislative or administrative personnel. This as the kind of action which can onry be carried out by the community iteslf, through a group of wide- awake citizens, the chamber of commerce or any organization whose purpose is to influence actively the attitude of the community. It is the kind of work that the Bureau of Municipal Research of New York and various local citizen bodies in many cities are doing today. It is simply a problem for the citizen himself, and it can be effected by no one else whether in the city hall or not. DISCUSSION OF THE LEGAL QUESTIONS INVOLVED IN SPE- CIAL ASSESSMENTS. It is unfortunate but true that the Pennsylvania laws governing the question of local improvement assessments are very meagre, unscientific and impracticable for present conditions, particularly on the question of assessments for pavements. Until very recently a general statute passed in 1889 was the controlling law governing pavenient assessments of all cities. It is doubly unfortunate that the ambiguous provisions of this act were not corrected in the recent Clarke act for the incorporation, regulation and gov- ernment of cities of the third-class. In so far as the pavement assessment problem is concerned, the new act is practically no improvement on the old. It would be impossible in the space of this report to enter into a detailed discussion of various provisions of this law. In order that the many difficul- ties may be brought to the attention of the citizens, it was thought sufficient to include a summary discussion of these matters. In the act of 1889 cobblestone and the old-style water-bound macadam pavements are defined specifically as being first-class permanent pavements. It is hardly necessary to state that neither cobblestone nor water-bound macadam pavements are today considered as permanent or of the first grade. Permanency and grade are entirely questions of comparison. In the last ten years, due largely to the increased use of motor vehicles, traffic condi- tions have completely changed. In order to meet the increased requirements of motor traffic, pavement construction had to be improved, so that today, from a comparative standpoint, cobblestone and water-bound macadam roads are considered unimproved roads. DEPARTMENT OF STREETS. The law states that no city has the right to assess the cost of repaying, reconstruction or maintenance against the owners of abutting property, and macadam roads are considered as paved roads. The City of Reading has over 80 miles of this class of streets which, unless some material change in .legislation can be obtained, would be eliminated entirely from the assessable class. There are various court decisions which substantiate this contention — City of Harrisburg vs. Segelbaum and Boyer vs. The City of Reading are typical cases in which the city has been restricted from assessing the cost of permanent pavement on account of the original construction of a macadam road. This would seem to be unjust and inequitable, but it is none the less the law, and until proper revision by legislative enactment has been obtained, very little improvement can be expected. There are a number of detailed supporting questions decided in the cases referred to which only add to the injustice of the present attitude. For example, no matter whether the city or the property owner originally paid for the construction of the macadam road, it is held that the construction itself, independent of the method of financing, will relieve the property owner of any further assessment. Another decision is to the effect that the attitude of the city respecting the macadam road will determine whether the macadam construction was a permanent pavement or a temporary provision for trans- portation. It is interesting to find that the overturning of the assessment rights of the city in the Harrisburg case was based largely on a so-called macadamizing of Market street in 1832 and 1848; and that the decision against the City of Reading in the other case was based largely on the turnpiking of Fifth street in 1805. In the Reading case, also, the question of the duty of the city and the equity of distributing the burden of expense to the taxpayer was so hope- lessly confused that remedial legislation is imperative. These points have been brought to your attention to emphasize the inadequacy of the present law as interpreted by the courts. AN ASSESSMENT POSSIBILITY. The question has also been raised as to whether a petition of a majority of property owners within a local district would permit the assessing of the cost of pavement construction upon the abutting property. This has been answered in the negative by the courts. The right is admitted, however, if the owners of 100 per cent, of the property abutting on the street under improvement petition for the improvement and admit their willingness to pay the assessment. This practice is not recommended, for it is inequitable and an imposition upon the more public-spirited citizen of the community, but in cases of emergency it might be made useful. CLEAR DEFINITION OF PERMANENT PAVEMENTS NEEDED. Considering the fact that the Pennsylvania law, governing assessment rates of cities, is ambiguous in specifying what are permanent pavements, it is essential that a clear definition of this distinction be made. This could be done either by ordinance or departmental regulation. Many cities have found that road work can be divided into three main classes: The first class 2& DEPARTMENT OF STREETS. should comprise those improvements including the so-called permanent pavements— a term meaning all pavements built in a substantial manner but excluding water-bound or oil-bound macadam and gravel pavements. The second class would comprise those semi-permanent pavements or light- traffic pavements, including water-bound and oil-bound crushed rock 'or macadam pavements, also pavements of a more permanent nature but inferior to the first-grade pavements. The third-class would comprise improvements to a roadway such as grading, laying cross-walks and gutter- ing, where no special attention has been devoted to pavement work proper. STANDARD SPECIFICATIONS SHOULD INCLUDE CLASS DEFINITION. When the specifications for various kinds of pavement and roadway im- provement work have been established, care should be taken that a separate section be included in each specification, stating specifically the class of work. The grading of a street is certainly not a permanent improvement, in so far as pavement is concerned, yet unless particular care be taken by the city authorities, many property owners will be exempted from assess- ments for the construction of pavements on account of having graded the street at their own expense. The grading of a street is a proper assessable charge, but payment of the cost of grading any street should not relieve owners of the abutting property from an assessment for the cost of the first permanent pavement. ALLEY PAVEMENTS SHOULD BE UNDER THE JURISDICTION OF THE BUREAU OF HIGHWAYS. According to the present distribution of work, the construction and maintenance of alley roadways and alley pavements is made a duty of the health department. There is no question that the paving of an alley eliminates a health menace, but this is also true of the paving of a street, but health officials are not required to build and maintain the street pave- ments. The City of Reading has on its payroll men ostensibly capable •of doing this particular work. It is only reasonable to assume that such men should be required to supervise all work of that nature. The highway division of the department of streets and public improvements is equipped to do this work and should be given complete jurisdiction over the planning and actual construction. FEW ALLEYS PAVED. According to the statistics available only about one per cent, of the alleys are paved. It is probable that the split jurisdiction between the bureau of highways and the bureau of health in constructing proper alley pave- ments is partly responsible for this condition. It is unquestionably true that good pavements, if only cheap pavements, are a great help in establishing proper sanitary conditions in the alleys. A program for this work should be prepared at once, but first a concise statement of the problem should be made public. In order to do this, we would suggest that an inspection of the conditions of all alleys and private DEPARTMENT OF STREETS. 257 lanes be made, and the results of such inspection shown graphically on a map of the city. If this were done, civic pride alone would force the im- provement of existing conditions in the alleys, which at the present time a reflection on the public works of the city. SIDEWALKS The City of Reading is confronted by a situation in sidewalk condi- tions which, like the pavement situation, has been developing for a number ears through neglect. Maintenance of sidewalks is made the responsi- bility of the property owner, but the responsibility for the enforcement of proper sidewalk conditions is the duty of the city officials. Both city officials and property owners must have been negligent for a number of years to have permitted the sidewalks of the city to get into the condition they are in today. Thousands of dollars will have to be expended to place the side- walks in passable condition. NEED FOR CURRENT INSPECTION. No definite procedure for sidewalk inspection has ever been in force, although it has been the practice to make use of the idle time of the survey parties during the fall of the year for this work. What is needed is the establishment of definite inspection routes to make sure that every side- walk in the city is inspected at least once each year. This should be made the duty of the patrol inspectors and a complete inspection of all sidewalks should be made just prior to the opening of the season for outdoor work. It is essential in a general inspection of sidewalk conditions that the inspectors be required to report something about every sidewalk inspected. In other words, it is not sufficient, for purposes of control, for the inspector to report only defective sidewalks. Moreover, as in the case of reports of other public works conditions, it is equally important that such reports be made on proper loose leaf field forms which may be transmitted without recapitulation directly to the main office for proper action. At the present time the field notes of the district inspector are kept in more or less in- formal note books. ENFORCEMENT OF REPAIR NOTICES ESSENTIAL. Notices to repair sidewalks are made out by the city engineer. The notice is in the form of a coupon and a stub; the original (coupon) is served on the property owner, and the stub retained as reference in the office of the city engineer. The stub record is the only record of this work available for reference in the office. These notices of the city engineer are mere formalities, and are useless except as a possible protection to the city in damage suits. On account of this, when a notice to repair is sent out, no effective procedure is auto- matically initiated which would provide the basis for determining the effect -of the notice. All legal notices, such as the notice to repair sidewalks, should be subject to the strictest control in the main office. Whenever a notice to repair is sent out, particular attention should be given to the ^6 DEP ARTMENT OF STREETS. follow-up in order to enforce the specifications of the order, or to cancel it entirely. Many cities have found that the easiest way to control legal notices is by means of a tickler file. If the notice to repair a sidewalk were made out in duplicate, and the original served on the owner, then the duplicate could be retained in a tickler file, which at the expiration of the legal limit names in the notice would •automatically initiate a re-inspection. Upon re-ins-pection, the inspector should be required to certify as to the exact condition of the sidewalk. If the terms of the notice to repair had not been complied with, the work could then be undertaken by the depart- ment. DEFINITION OF RESPONSIBILITY NEEDED. At present, it is necessary for the council to pass a special resolution before a property owner can be forced to repair a sidewalk, or before the department can undertake the work and charge the cost to the owner.. Either the commissioner in charge of the department of streets and public improvements should be given authority to undertake the repair of a side- walk after a period of 20 days has elapsed from date of the serving of the notice or the commissioner should be required to report once a month the location of all defective sidewalks where the owner has failed to respond to the notice to repair. PERMITS FOR SIDEWALK CONSTRUCTION. Whenever a sidewalk is to be repaired or reconstructed, the contractor is required to take out a permit, for which the fee of one dollar is charged. This permit is issued by the city clerk, but, with .the exception of informal communications between the city clerk and the employees of the city engi- neer's office, no notice of the issuance of this permit is sent to the depart- ment of streets and public improvements. Naturally, there can be no- regular inspection of the workmanship in construction, reconstruction and repairing of sidewalks throughout the city. Whenever a permit for sidewalk repair or reconstruction is granted, an individual notice should be forwarded to the department, and in turn sent to an inspector for report. (This procedure has been corrected). CHARGES TOO LOW. The fee of one dollar charged for a permit to repair or reconstruct a sidewalk is entirely too low if proper inspection of the work is to be en- forced. The permittee should be required to pay the cost of inspection and supervision and the cost of the issuance of the permit. We would suggest that the charge for this permit be made either a flat rate of five dollars, or more preferably, a charge proportionate to the area of the sidewalk under repair or construction. NEED FOR SIDEWALK PROGRAM. In order that this problem may be clearly presented to the council and to the citizens, we suggest that a complete inspection of sidewalk conditions DEPARTMENT OF STREETS. 259 be made at once, and that the results of each inspection be shown graphi- cally on a map of the city. The condition of the various sidewalks could be grouped under four heads — 1. Satisfactory 2. Passable 3. Unsightly 4. Dangerous After such a map has been prepared, council should by ordinance defi- nitely specify the time limits which should be granted to various property owners in order to place the dangerous and unsightly sidewalks in proper condition. NEED FOR STANDARD SPECIFICATIONS. No standard specifications for sidewalk construction, reconstruction or repair have ever, been definitely promulgated by the department or the council. This fact has naturally been a serious obstacle in the way of obtaining proper sidewalk conditions and will continue to be an impediment in the way of improving such conditions in the future. What is needed is an ordinance prescribing standard specifications for sidewalks and curbing in two, three or four classes for various sections of the city. Specifications for sidewalks have been standardized for so many years that it is impossible to excuse the lack of them on the ground of engineering difficulties. The quicker standard specifications for this work are adopted and made a part of the applicant's agreement when applying for a permit to reconstruct or repair a sidewalk, the quicker will good sidewalks in the City of Reading become a reality. (Specifications for sidewalks have been prepared and are now before the council for approval). ANTIQUATED SPECIFICATIONS FOR CURBING. It was noted in the ordinance governing the construction and recon- struction of sidewalks and curbing, that special clauses had been inserted excluding cement curbs. Sandstone curbing only is specified. When this ordinance was passed sandstone curbing may have been cheaper and better than cement curbing. Today there are many types of curb construction, including cement concrete curbs, which are superior to the sandstone curb- ing. An ordinance to correct this condition was prepared by the city engi- neer during 1913. It was passed by Select Council but failed in Common Council. SIDEWALK SURFACE GUTTERS CRITICISED. Probably the most dangerous and unsightly factor in sidewalk con- struction is the sidewalk surface gutters. These gutters are familiar to every citizen of Reading, but the seriousness of the sidewalk conditions, caused partly by the continued use of these surface drains, seems to warrant particular emphasis. In winter the gutters become filled with ice and snow, making the sidewalks dangerous for pedestrians. At all times, dirt, rubbish and filth collect there and create a health menace. This present situation has arisen largely through the lack of definite authority. By 2< fo DEPARTMENT OF STREETS. recent legislation sufficient authority has been granted to eliminate these conditions. What is needed now is the enforcement of the city's rights. Sink water carried on to a bituminous pavement and allowed to stand in the gutters causes rapid deterioration in the pavement. Practically every city in the country where surface drainage is permitted has had difficulty in maintaining the gutters of the asphalt and other bituminous pavements. Concrete or brick gutters are not affected materially by alkalies of the sink water. Where it is impossible to stop the surface drainage onto a bituminous pavement, it would be economical to construct the gutters of concrete or brick. PERMITS In, considering the question of increasing the miscellaneous revenue of the city, a study should be made of the sidewalk vaults. In each of the recent reports of miscellaneous revenue commissions of New York, Phila- delphia and Chicago, suggestions for rental charges on vault space have been included. As a matter of principle, it is certainly right that the city should obtain revenue on account of the use of city-owned property. If the manner of dedicating the streets of Reading gives to the city a suffi- ciently clear title to permit a charge for the use of sidewalk space for vault purposes, an ordinance authorizing such procedure' should be put in force. The determination of this question is largely one of law, and we be- lieve it would be advisable for the council to request the city solicitor to prepare an opinion on this subject, and at the same time to request the city engineer to prepare a list of all existing sidewalk vaults. (This work is already under way). BUILDING MATERIALS PERMITS. During the construction of a building, it is of great advantage to contractors to be permitted to use a part of the stree and sidewalk for the storage of building materials. Permits for this purpose are granted by the city clerk. As in the case of the use of sub-sidewalk space for varied purposes a permit for building materials grants to the .contractor a particular privilege often to the serious inconvenience to the general public. For such a privilege the contractor or owner should be required to pay a substantial fee. This practice has recently been put into operation by many of the large cities, particularly Boston, and the revenue obtained more than pays for the cost of inspection and the restoration of any pavement damaged. The institution of this practice in the City of Reading would increase the revenues, permit more thorough inspection while the permit is being used without additional expense to the general comimunity, and insure the proper restoration of any pavement damaged during the course of the operation. (The ordinance to control building material permits is now before council). DEPARTMENT OF STREETS. 261 INSPECTION The inspection force of the department of streets and public improve- ments consists of two highway inspectors and one street cleaning inspector, not including the inspector of buildings. The force is too small, the men not properly trained and the procedure inadequate. The results obtained are naturally far from what is necessary to provide sufficient information for administration and to control the field work. Public works inspection may be divided into two main problems: (1) inspection to determine work necessary to be done, and (2) inspection of work authorized in order to insure that proper workmanship is obtained and proper materials used. Both kinds of inspection are essential for proper public works administration. PATROL INSPECTION. Patrol inspection is that kind of inspection which should provide infor- mation as to work necessary to be done. This includes the reporting of defective pavements, sidewalks, street signs, clogged sewers and catch basins, and in fact, every kind of public works defect or violation which can be observed from an ordinary patrol of the streets. At the present time but two inspectors are assigned to this work. If the City of Reading were divided into four or five inspection dis- tricts more efficient inspection of work necessary to be done could be obtained, and at the same time part of the services of the inspectors could be devoted to the supervision of the restoration of cuts, the storage of building material, inspection of water and various other incidental inspections. There are approximately 120 miles of streets and roads in the City of Reading. In order to obtain efficient patrol service, it would be neces- sary to district the city. Six sections w r ould be ample. Each of these sections should be assigned to a section patrolman, who should report on all public works defects and any other kind of violation noticeable from a patrol of the streets. In order to obtain the maximum efficiency from patrol inspectors, it is. essential that they be provided with efficient field reporting forms. The kind of forms needed here will be explained in greater detail in the section on costs. POLICE AND CITIZEN CO-OPERATION. Under the present practice, more or less informal, usually oral reports On public works defects are received by the department from the various police officers. There is no reason why the police officer could not be of great value in providing prompt and accurate information on all kinds of public works defects. In order to obtain intelligent reports from police officers it is necessary that they be instructed in their duties and provided with proper report forms. The City of Philadelphia has recently tried out with considerable success the principle of police reports in postal card form. These postal card reports are issued in booklets to all patrolmen and to citizens and 2(j2 DEPARTMENT OF STRE ETS. civic organizations actively interested in the city government. The cards are self addressed to a complaint division of the department of public works, so with the exception of the time taken in delivering the mail, no time is lost in getting the information to the proper officials. Consider- ing the fact that most inefficient public works administration of main- tenance problems is due to the lack of sufficient information in the main office about defective conditions in the field, the value of such police co-operation can hardly be overestimated. If citizens and civic organizations were also provided with these postal card report forms, much valuable information would be received by the department which otherwise might be evidenced only through complaints against the administration. • PERSONNEL. The need for civil service in training men for city employ has been pointed out in detail in the survey reports already submitted. There is no one operation, however, where efficient civil service would be of more effect than in the lower grades of the engineering service, such as the engineering inspection service. The city engineer has requested increases in salary for the sewer and paving inspectors to a minimum of three dollars per day. As a matter of principle, the Bureau of Municipal Research would question a policy which seemed to value inspection service only to the extent of the use of three-dollar-a-day men. The important point is not the salary but the realization that good and adequate inspection on contract work will save or cost the city thousands of dollars every year. The salary to be paid to inspectors is a question for a salary standardization study. There is much doubt, however, whether three dollars a day is sufficient compensa- tion to obtain men with proper training or ability to carry out the func- tions of a public works contract inspector. SPECIAL NEED FOR TRAINED MEN. The investigation of the public works in Reading has disclosed defec- tive conditions which, if corrected in the near future, will involve a great deal of contract work. Better contract inspection must be secured through the appointment of properly qualified men for this work. The department of streets and public improvements in Reading has been inadequately equipped in engineering and inspection service to super- vise the work necessary to be done. STREET CLEANING AND GARBAGE COLLECTION THE PRESENT SITUATION. Cleaning of streets, sewer catch basins and inlets along paved streets is now done under a three-year contract, which expires June 14, 1914. For the cleaning of each square 540 feet long, irrespective of the width of the driveway (from 16 to 48 feet) the contract price is $10.48 per square DEPARTMENT OF STREETS. 263 per month (excepting Penn Square, which is considered as four squares, 48 feet wide). A further sum of eighty cents is paid for cleaning each sewer catch basin or inlet. Extra flushing costs $1.25 a month for each square. The estimated total cost of this work per month is approximately Penalties for non-compliance with terms of contract are imposed and deducted from the monthly payments due the contractor. Day clean- ing must be done between 7 A. M. and 6 P. M.; night cleaning between 9 P. M. and 7 A. M. All cleaning must be done as required, and to the satisfaction of the engineer. The condition of many of the paved streets does not speak highly for the efficiency of the street cleaning contractor or the inspection by the city. The streets might be dirtier but they ought to be cleaner, a matter which should be kept in mind at the expiration of the present contract. INSPECTION METHODS. It is unquestionably true that one street cleaning inspector cannot be expected to report efficiently on the street cleaning operations for the entire city unless proper transportation facilities be provided for him. There is no particular complexity or technique in the problem of street cleaning inspection which requires the service of a specially trained man. Any man trained as a general public works inspector could earn- on the work very easily. As has been pointed out in this report in the section dealing with the general public works inspection problem, the establishment of an efficient patrol inspection and co-operation with the police department would eliminate all necessity for special inspectors. CITY SHOULD CLEAN ITS OWN STREETS. There are so many advantages of a city-operated street cleaning force and so many difficulties in the way of proper administration of a street cleaning contract, that if possible the city should undertake this kind of work with its own forces. Within four months the present street cleaning contract will expire, and something should be done immediately by the department of public works to investigate the problems involved in the continuation of this work. The best course would be for the city to under- take the work, but unless something be done immediately to plan for yards, equipment and general field forces, this will be impossible. It is a large problem, not on account of technical' complications but on account of the great numbc of details which must receive attention before a municipal street cleaning force can be put to work. The city should be mapped. Standard routes should be laid out and detailed investigations made of the various kinds of cleaning necessary. Specifications should be prepared for the purchase of street cleaning equip- ment, yard room provided and the organization perfected. DIFFICULTIES IN ADMINISTRATION OF STREET CLEANING CONTRACTS. Wherever contracts for street cleaning and garbage removal have 264 DEPARTMENT OF STREETS. been used, it has always been found that the difficulty came entirely iti the administration of the contract. There is no definite unit for this work; no definite means for determining how well the work has been done. Administration of a street cleaning or garbage removal contract means administration by imposition of fines. This is the case in Reading. The trouble always has been that inaccurate or over-personal reports of various street cleaning inspectors have not been substantiated by the courts when the city has attempted to use them for imposing fines. Moreover, the imposition of fines and deductions from payment in work of this sort is equally unpleasant for the contractor and the city council. There is a tendency on the part of every official required to administer a contract involving the determination of fines to dodge the issue. Philadelphia is the last large city in the State of Pennsylvania to carry on this street cleaning work by contract, and every effort is being made now in that city to establish a municipal street cleaning service. Reading will soon have an opportunity to install municipal street cleaning. It is an opportunity which should not be overlooked. NEED FOR UNIFORMS. There is nothing more effective in the appearance of the streets of any city than a well disciplined, orderly, efficient, uniformed force for street cleaning. This means white uniforms for the blockmen and some standard serviceable uniform for the cartmen and machine broom handlers. The appearance of a well disciplined uniformed force in cleaning city streets is well worth the slight additional cost. No matter whether the present contract system of street cleaning is to be continued or municipal street cleaning is to be inaugurated, in either case the street cleaning force should be put in uniform. STREET CLEANING AN INTERLOCKING FUNCTION. The greatest advantages of a municipal street cleaning force are not apparent to the average citizen. One of these is typified by the contractual relation between the city and the contractor. According to the present practice, the street cleaning contractor is required to clean sewer catch basins and inlets as well as the streets. This is a commendable practice,, and one which should be continued if the city decides to perform the service itself, but the very beneficial results in economy and efficiency which may be obtained by the intimate association of street cleaning and highway work are not obtained under the present contract, nor can they be obtained until the city undertakes street cleaning with its own forces. The so-called German plan of making light repairs to macadam roads (of which there are 80 miles in Reading) and to streets accomodating light traffic, is to provide the street cleaning force with proper material for carrying on this work. The economy is effected largely through the elimination of duplication in haul, which is invariably the largest factor in repair costs in outlying sections. In recent years many cities have undertaken this kind of co-operative street cleaning and highway work, and the results obtained, for example, in the Borough of Richmond, New York City, are typical of the economies DEPARTMENT OF STREETS. 265 which may be effected through this plan. Neither the street cleaning nor highway problems in Reading offer unique difficulties, which would interfere with the successful operation of the plan: and it is suggested that it be tested thoroughly. GARBAGE AND WASTE. In connection with the establishment of a municipal street cleaning force, the question of the collection and disposal of garbage and waste by the department should also be considered. With a unit cost as low as "$1.94 per ton for collection and disposal of garbage, there could be no objection to the present methods on the cost side at least. The garbage contract will expire on April 5th of this year, and a substantial increase in the cost can be expected. It is a problem which must be taken up at once. The fact that these problems have not already been settled may seriously inconvenience the city unless it is found possible to extend the present contract for a few months. Note: Since this survey was made proposals for collecting and dis- posing of garbage have been advertised and bids received. These bids are not satisfactory either from the standpoint of costs or operation. The collection of ashes and waste has not been included. RECOMMENDATIONS. The collection and disposal of garbage may be considered under three lieads — 1. Collection and incineration by the city 2. Collection and incineration by contract 3. Collection and reduction by contract (present method) There are, of course, other alternatives, but considering the present situation in Reading, we would not advise the consideration of any other plans than the three listed above. COLLECTION AND INCINERATION BY THE CITY. If this plan is to be followed, it means that the city must build an incinerator for burning the garbage and organize a municipal collecting force. The experience of other cities gives preference to this plan, espe- cially if the city is to provide for a municipal street cleaning force. An incinerator which would burn 75 tons per 24 hours of garbage and e could be constructed for approximately $60,000 to $70,000. The operating cost would not exceed $10,000 to $12,000 per year. A unit operat- ing cost per ton of not to exceed fifty cents should be specified in the contract for the construction of the plant. The adoption of this plan would mean that the present inadequate and irregular collection of household waste by private scavengers could be eliminated. Collection by private scavengers is expensive and annoying. They are not subject to any discipline and naturally not dependable. Although these scavengers are not paid out of the city treasury, they are paid by the community. Wherever it has been possible to analyze the prices charged by the - rs, and what municipal collection would cost, it 266 DEPARTMENT OF STREETS. has been found that the private scavenger costs the community more than municipal collection. But aside from the question of cost there can be no- comparison between the service under the two plans. COLLECTION AND DISPOSAL BY CONTRACT. The only advantage this plan would have over the former is that the- contractor would be forced to shoulder the operating difficulties . We do not feel that these difficulties of operation are so serious that the depart- ment of streets and public improvements could not overcome them, if such work were placed under their supervision. If the officials of the department are not competent to administer the kind of problems involved by municipal collection and disposal, it would be well for the city to find it out. This plan necessitates the adoption of an "operating contract" and such contracts are extremely difficult to administer. It is difficult, if at all possible, to center responsibility for failure, and control must be obtained through fines or deductions from payments. COLLECTION AND REDUCTION BY CONTRACT. The only reason this plan has been included in the discussion is that it is the plan now used for carrying on this work. It is not feasible for much further use. It offers the same difficulties as the collection ?|nd incineration by contract. In addition, it would not be possible to dispose of rubbish and ashes at a garbage reduction plant. Due to the fact also that reduction plants have not proved economical in the smaller cities where the garbage is not concentrated or "rich," the cost would be probably higher than under either of the other two methods. ACCOUNTING AND OFFICE METHODS It has often been said that the efficiency of a business organization varies directly with the adequacy of the cost and expense records, and that cost and expense records mean efficient administration. This is largely true, not only of private business corporations but of city depart- ments as well. We would hesitate in this report to judge the department of streets and public improvements in Reading solely by its cost records. What cost records there are — and very little cost data has been obtained — have been improperly prepared and are of questionable accuracy. ADVANTAGES OF COST RECORDS. Accurate statistics of the cost of any kind of work provide a basis for testing the efficiency of administration. Unit costs of contracting and maintaining highways, sewers and sidewalks and a summary of such costs in proper expense groups, would provide a means for determining the efficiency of the department. There is no reason why the wide-awake citizen could not make an intelligent test of the work of the department by investigating the costs of various detailed operations. Such records. DEPARTMENT OF STREETS. -_7 should be printed in quarterly and monthly reports during the construction season and included in the regular annual report. The great advantage of current cost records and proper summaries comes in the administration of field work. If the cost of repairing various macadam roads were currently prepared and summarized in proper form for the commissioner or city engineer, a means would be provided for determining the relative efficiency of various foremen employed on the work, and the relative economy of various types of pavement. If such costs were summarized by blocks and intersections, the city council would have an accurate basis for determining whether it would be of economical advantage to repave instead of repair. If the expense summaries for five years were shown in the annual report the citizen could find out whether the tax rate should be increased or lowered. NEED FOR PROPER FORMS. The chief reason for the lack of adequate cost records is the difficulty in obtaining accurate information from the field. In many city departments where the administrators have realized the real advantages to be derived from cost records, the work has been put off indefinitely on account of difficulties in detail. Particularly in public works departments this has been the most serious obstacle, but the preparation of proper field forms for reporting of work done and material used is largely overcoming the difficulties. All field reports should be drawn to a standard size, convenient for handling in the field. Such forms should be in loose leaf, and prepared in such a manner that by proper filing in the main office, summaries and recapitulations will be automatic. The forms now in use are of all sizes and descriptions. Some of the most important notes are kept in special semi-private note books. The payroll and general time data are not pre- pared in the field in such manner as to assist the determination of costs in the main office. With the present records, the assembling of cost data would mean a very cumbersome and expensive process. If standard form sizes for field reports be adopted and standard re- porting methods be prescribed, and if in the forms designed the effect of such report, after it reaches the main office, be kept continually in mind, this difficulty could be completely avoided. ADVANTAGES OF PROPER FILING METHODS. In a public works department, particularly as it affects highways, sewers, bridges and sidewalks, the fundamental basis for filing must be location. No matter whether the material consists of cost records, citizens' complaints or inspectors' reports, the most important element is location. The whole filing system of tire city engineer's office should be revised with the basic principle of location-indexing in mind. THE BLOCK AND INTERSECTION FILE. It has been found, after experience with various filing systems, that 268 DEPARTMENT OF STREETS. the best and most efficient filing plan is the block and intersection; using one city block and one intersection as a basis. With the exception of correspondence and special reports, all field reports, whether from a patrol inspector, a policeman or a foreman of a gang, could be filed in one block and intersection file in such a way that recapitulation, either to show expense or work necessary to be done, would be greatly facilitated. The principle of a block and intersection file is very simple. The only thing necessary is to secure a standard filing cabinet for field report forms, usually an 8 x 5 drawer file for filing reports on the 8-inch base. By means of guide cards, the drawer space in such a filing cabinet could be separated into street blocks and intersections. By means of immediate guide cards the current reports could be separated from the completed matters. This kind of a filing system, providing for the automatic summarizing of cost data and historical information, is in use in an increasing number of public works departments. It is efficient and simple. In any event, a new filing system for all kinds of data is needed immediately, and the Bureau of Municipal Research knows of no better one than that outlined in the pre- vious paragraphs of this section of the report. FIRE-PROOF PROTECTION NEEDED FOR THE REGISTRATION PLANS. Something should be done at once to protect the plans and other official documents in the files of the department from fire and theft. At the present time the registered plans, most of which could never be duplicated if lost, and other valuable topographical data, are stored in the engineer's office with practically no protection in case of fire. Steel filing cases would reduce the danger somewhat, but fire-proof vaults should be provided either in city hall or in an adjoining building. It would be difficult to estimate the loss to the community if these plans, were destroyed, yet, under present conditions, a fire at city hall would probably destroy them completely. GENERAL CONSIDERATIONS OVERHEAD WIRES SHOULD BE PLACED UNDERGROUND. In recommending that the overhead wires of at least the downtown- districts, or what might be considered the inside fire limits, be placed underground, the Bureau of Municipal Research realizes the difficulties to be overcome in carrying out such a suggestion. It is not the work of one year or two years. It is a work which involves much legal discussion on franchise rights and privileges, and a great deal of engineering study, but many cities have solved the problem, and there is no reason why Reading cannot do the same. An excellent start has already been made in requiring the Metropolitan Electric Company to place certain of its wires underground. An ordinance was passed establishing an "underground district," bounded on the south by Chestnut street, on the north by Elm street, on the east by Eleventh street and on the west by River road and Front street, and under its requirements practically 25 miles of conduits have been laid. Nothing. DEPARTMENT OF STREETS. 269 however, has been done to place the telephone, telegraph or city fire alarm wires underground. A study of this problem should be undertaken at once, and plans for removal of the overhead wiring authorized as a concrete problem by the council. This is another problem where, without the united backing of civic organizations and citizens, it will be practically impossible for the city authorities to carry out the program. POOR CONTROL OVER BUILDING CONSTRUCTION. To expect one building inspector, no matter how able he may be, to supervise, investigate and pass on all plans and specifications for new buildings, and to make sure that building construction and repair are in accordance with the laws and ordinances of the city, is to expect the im- possible. The work of the building inspector during the past year consisted in passing on plans and specifications for 378 buildings of various kinds, esti- mated to cost $1,571,425. It is not possible for one man to do justice to such a task. READING HAS NO REAL BUILDING CODE. The only legal restrictions governing the construction and repair of buildings in the City of Reading today consist of a number of independent ordinances. The specifications of these ordinances are in many cases obsolete according to present day practices, and together are totally inade- quate to control building operations. There are any number of very im- portant requirements completely ignored in these ordinances; for example, no restriction is placed on the owner or contractor limiting the improve- ments in height and area by a fixed percentage of the total lot area, and types of construction which reduce the fire risk have been too loosely defined. This subject is certainly not new to the citizens of Reading, for a code was drafted during 1913 and recommended by the law committee of councils but failed of adoption by councils as a whole. What is needed now is not more reports or more investigations, but prompt action by the council to provide an effective code for controlling this very important municipal problem. SEWAGE PURIFICATION PLANT SHOULD BE ENLARGED. Records of daily laboratory tests indicate that the sewerage purification plant is being operated satisfactorily. The pumping station has been re- cently equipped with two electrically-operated centrifugal pumps, with a total rated capacity of 14,000,000 gallons daily. If kept in good condition, these pumps will be ample for two or three years. An additional pump may be conveniently installed when required. Failure to appropriate sufficient funds to clean settling tanks and filter beds or to repair a machine when out of order, is a mistake which should not be repeated. It is neither a wise nor economical practice to delay 272 DEPARTMENT OF STREETS. necessary repairs, especially in matters where the health of the community may be affected. The quantity of sewage now being treated is more than double the quantity treated four or five years ago. It is recommended, therefore, that plans for extending and improving the plant should be made without delav. Weiler's Printing House '*®X^ 440 Court St., Reading, Pa. PAMPHLET NUMBER NINE READING, PENNSYLVANIA Report on a Survey of the Department of Accounts and Finance Prepared for The Chamber of Commerce of Reading by the New York Bureau of Municipal Research JANUARY AND JUNE, 1914 10 CENTS C ONTENTS Page Foreword 275 Criticisms and Constructive Suggestions on Organization, Personnel and Procedure 276 Assessment of Taxes , 287 Bonded Debt and Sinking Funds 293 Control of Miscellaneous Receipts 298 Budget 299 Collection, Custody and Disbursement of Public Funds 305 Finance, Accounting and Auditing 313 Purchase, Storage and Testing of Supplies and Materials 321 Time and Service Records 327 Salary Standardization 331 Civil Service 332 Miscellaneous 334 DEPARTMENT OF ACCOUNTS AND FINANCE— FOREWORD FOREWORD The survey of the finances and accounts of the City of Reading, of which this report is the result, was made during the mqnths of November and December, 1913. Immediately after the change of. government on December 1st last, Mr. G. F. Eisenbrown, the newly appointed Superintendent of Accounts and Finance, appeared before the Chamber of Commerce Directors and asked that the Bureau of Municipal Research be relieved from the immediate obligation of writing the report on the survey of financial conditions and methods in order that the reorganization of the city government, especially on the financial side, might be undertaken- by .them without delay. It was considered that such an opportunity should not be neglected, it being far more important to get the actual work under way and to correct conditions than to write a report showing how improper conditions could be corrected. The Chamber of Commerce, therefore, agreed to the post- ponement of the writing of the report pending the completion of the reor- ganization and installation work. This enabled the Bureau of Municipal Research to enter into a contract With the city to devise and install a complete centralized accounting system and a segregated functionalized budget. The work was recently brought to a successful conclusion and the majority of the recommendations con- tained in the report have already been carried out. A list of these is sub- mitted herewith, together with a statement of the recommendations which have not yet been fully carried out. A few of the latter have been consid- ered by the City Council and in some cases the recommendations are being carried out, although the work is not yet completed. 276 DEPARTMENT OF ACCOUNTS AND FINANCE— SUMMARY. DEPARTMENT OF ACCOUNTS AND FINANCE SUMMARY OF RECOMMENDATIONS CARRIED OUT ORGANIZATION AND PERSONNEL. That the revenues and expenditures of the city be properly controlled and responsibility therefor clearly defined. That a complete reorganization of the city's finances and accounts be undertaken by the new administration. That all matters relating to finance and accounting be placed under the jurisdiction of the Superintendent of the Department of Accounts and Fin- ance. That the Department of Accounts and Finance be divided into six divi- sion or bureaus, each exercising distinctive functions. That the superintendent be provided with a competent stenographer. That the Bureau of Tax Assessments be provided with a clerk competent to keep all necessary tax records. That a competent draftsman be appointed to prepare proper tax maps. That a Bureau of Revenue Control be organized and placed in charge of an auditor of receipts. That this bureau be divided into two main divisions, one of which should exercise control over water revenues and the other accounting control over taxes and miscellaneous revenues. That a properly qualified clerk be appointed to assisf in the detail work of these divisions, who could prepare bills for taxes and water charges and thus avoid the need for the appointment of temporary billing clerks during rush periods. That, the Bureau of Revenue Control be provided with an adequate inspection force for work in the field. That these field inspectors be placed under the supervision of a chief inspector, reporting directly to the head of the bureau. That a Bureau of the Treasury be created under the City Treasurer, assisted by a cashier, entry clerk and bill clerk. That during tax-collecting periods a temporary bill clerk be appointed for the convenience of the public. That, if found necessary, Still another clerk be appointed during the rush seasons to check coupons and attend to mail remittances. That a competent purchasing agent be appointed. That a Bureau of Accounts be created and that a competent accountant be placed in charge. That a clerk be provided to work exclusively in this bureau. DEPARTMENT OF ACCOUNTS AND FINANCE— SUM A. .XV. 277 ASSESSMENT OF TAXES. That the clerk now attending to transfers and general office work in the Bureau of Tax Assessments be transferred to the Bureau of Revenue Con- trol. That the present '"tax ledgers" be superseded by the installation of a card system and that the necessity be thereby avoided for writing up these records every three years. That, in the event of a continuance of the assessment of poll tax, the existing expensive methods be revised and a card index system adopted. BONDED DEBT AND SINKING FUNDS. That all bonds issued in future be in serial form, payable in equal annual installments to be provided for in the tax levy budget. That greater care be taken in fixing the term of bond issues. That bonds be not issued until cash is actually needed for construction purposes. That bonds issued in future be of lower deiominations than heretofore, so as to encourage citizen investors. That the necessity for the refunding of bonds be eliminated by the estab- lishment and maintenance of proper and adequate sinking funds. That sinking funds be properly invested at the highest rate of interest consistent with sound finance. CONTROL OF MISCELLANEOUS RECEIPTS. That uniform- "financial stationery" be used for all permits, licenses, etc., in order that proper control over such revenues may be obtained. That proper reports of licenses and permits issued be prepared whenever permit or license fees are paid over to the City Treasurer. That standard forms of application blanks be designed to facilitate the granting of licenses and permits. That a license inspector be appointed to enforce in the field the regula- tions governing permits and licenses. That the issuance of licenses and permits be centralized as far as practi- cable. That the necessary records be installed to remedy the non-registration of licenses prevalent in the past. BUDGET. That, as a basis for scientific management and an adequate system of financial control, a form of segregated, functionalized budget be adopted. That budget estimates be prepared on standard forms which provide for the showing in detail of all information necessary, as a basis for judgment, in determining the amounts which should be appropriated for each function or activity. That such estimates be submitted in ample time to allow for proper investigation. That all funds be asked for and appropriated under standard and well- defined budget classifications, uniform and all departments. 2 7 8 DEPARTMENT OF ACCOUNTS AND FINANCE— SUMMARY. That the appropriation accounts be adequately codified. That the tentative budget be published in detail and public hearings held before the budget is finally passed as an ordinance. That the budget be passed as a single ordinance instead of in a dozen or more ordinances as hitherto. That the final budget be printed in pamphlet form and given as wide publicity as possible. COLLECTION, CUSTODY AND DISBURSEMENT OF PUBLIC FUNDS. That the present practice of depositing with bankers only a part of each day's collections be stopped and that all collections be deposited in the bank day by day. That an imprest fund of $5,000 be established in order that the treasurer may have a fund out of which to cash city warrants for payees having no bank accounts. That the multiplicity of records in the treasurer's office be eliminated and that a register of receipts and a register of warrants, together with a daily cash statement and a bank ledger, be substituted therefor. That collection methods be modernized. That taxes and water rates be pre-billed. That an ordinance be passed repealing the present law relating to the deposit of city funds and establishing a new procedure based on competitive bidding. That the general fund of the city and the general fund of the Water Department be carried in two bank accounts only, instead, of 22 as hereto- fore. That the fiscal officer of the city endeavor to obtain a higher rate of interest on the city's funds. FINANCE, ACCOUNTING AND AUDITING. That proper systems of accounting and reporting be adopted in order to provide a fact basis on which the government of the city, and especially its finances, may be administered according to the best business methods. That proper accounting records be arranged and centralized in the Bureau of Accounts. That the issuance of new series of bonds, so greatly needed for high- way construction and other work, be used to provide an interest-paying in- vestment for sinking funds. {That the bond and coupon registers be kept up-to-date at all times. That a new form of appropriation ledger, affording all essential infor- mation, be devised and installed. That proper statements of appropriation balances be adopted. That efficient methods of registering orders be adopted. That standard forms of invoices be adopted and used. That accounts payable be properly registered. That the system of warranting vouchers be revised and an up-to-date form of warrant installed. DEPARTMENT OF ACCOUNTS AND FINANCE— SUMMARY. 279 That a proper general ledger be designed and that present records be analyzed and completed so that the necessary entries may be made on the new general ledger. That the special fund ledger, the claim register and records of improve- ments and assessments against property owners, be revised as necessary and made part of the proposed accounting system of the city. PURCHASE, STORAGE AND TESTING OF SUPPLIES AND . MATERIALS. That the antiquated methods of purchasing, which are neither economi- cal, businesslike, or conducive to proper competition, be revised. That the purchasing of all supplies required by every city department, bureau, board, or office be centralized and placed in charge of a properly qualified purchasing agent. That proper requisitions on the purchasing agent, duly certified as to the necessity for purchase, be adopted. That all supplies and materials required by city departments be purchased, as far as practicable, under annual contracts containing proper provisions permitting installment deliveries. That the exceeding of appropriations be controlled by the purchasing agent obtaining a certificate from the accountant that sufficient unencum- bered funds are available in appropriate amounts before any liability is in- curred. That quotations be sought and bids obtained before purchases are made. That the bulletin board method of publicity be adopted. 'I hat the buying of stationery, supplies, blank books, printed forms, etc., without proper competition be eliminated by standardization and competitive bidding. That standard purchasing forms be devised and installed. That card index files relating to purchases and a catalogue library be established. TIME AND SERVICE RECORDS. That immediate attention be given to payroll methods in order that better financial control may be obtained. That a standard form of payroll be devised and adopted for use in all departments. That mechanical devices be utilized to facilitate the preparation of pay- rolls. That payrolls be properly certified. That a summary of time reports be prepared and transmitted semi- monthly to the person in charge of payrolls, and that such summaries be properly certified. That the system of paying city employees be improved and unnecessary vork eliminated. That all employees be paid semi-monthly and within two or three days of the end of each half- month. DEPARTMENT OF ACCOUNTS AND FINANCE— SUMMARY MISCELLANEOUS. That the excessive and unnecessary cost of advertising receive careful attention. That a reassignment of offices be effected and that proper working facilities be provided by the purchase of up-to-date equipment. SUMMARY OF RECOMMENDATIONS NOT YET COMPLETELY CARRIED OUT ORGANIZATION AND PERSONNEL. That at such times as the triennial assessments are being made one or more deputy assessors be appointed t<> assist the City Assessor, if necessary. That, as soon as proper tax maps arc prepared, the City Assessor be able to obtain the temporary services of a draftsman, whenever required, in order that the tax maps may be kept up-to-date. That the appointment of delinquent tax collectors be stopped. That a properly qualified storekeeper with such laborers as may be necessary, be appointed to operate efficiently the storehouses. That a standard testing laboratory be established and placed under the control of a chemist and the necessary assistants, to perform all chemical, bacteriological and physical examinations now performed at three or more different locations. ASSESSMENT OF TAXES. That scientific methods of assessment be established in determining property valuations. That the methods of assessment be revised, as such procedure would materially add to both the revenue and borrowing capacity of the city and result in a more equitable distribution of city taxes. That property be assessed at its full value. That separate valuations be made of land and of improvements. That the City Assessor possess proper qualifications. That assessors be required to pass a competitive civil service examina- tion before appointment. That assessors be required to give full time to their work and be not allowed to engage in any other business or occupation. That assessors be subject to removal for cause after charges properly preferred against them in writing. That assessors work independently. That the city be divided into assessment districts and an assessor as- signed to each district. That the provision of the law relating to the appointment of City As- sessor for one year only be changed, for the reason that the holder of this office, more than almost any other officeholder in the city, needs time to become familiar with his duties (constant change in personnel would render a permanent policy in regard to the system of assessments very difficult to maintain). DEPARTMENT OF ACCOUNTS AND FINANCE— SUMMARY. 281 That the senior clerk in the Bureau of Tax Assessments devote his entire time to matters relating to assessment of taxes and be not required to render service to the Building Inspector. That the appointment of "book-carriers" be eliminated in future. That the appointment of four extra men to write up by hand the records of each triennial assessment be stopped hereafter. That tax assessment records be prepared in future by mechanical means. That carbon copies of tax assessment records be made for use of asses- sors in the field. That the present system of tax records, which involves much unnecessary work, be completely revised. That a card system of assessment records be adopted. That the advisability of assessing poll tax hereafter be carefully con- sidered. That a law be passed requiring the true consideration to be shown in all deeds transferring property. That the recent tendency to eliminate the taking of an oath when testify- ing property valuations be restrained. That proper block and lot maps and land-value maps of the entire city be prepared by a competent draftsman. That the block and lot system of describing property be adopted through- out the city. That the right of the School Board to demand anything but an exact copy of the assessment list as prepared b}^ the city for its own use, be tested. CONTROL OF MISCELLANEOUS RECEIPTS. That control over the license inspector's work be obtained through co-operation with the Bureau of Police. BUDGET. That the original budget estimates be published in detail. That a period of at least one week be allowed between the publication of the tentative budget and the public hearings. That an ordinance be passed fixing a date on or before which all budget estimates must be received by the Superintendent of Accounts and Finance. That such restrictions as will insure the use of appropriations only for the functions or purposes for which they were requested and which will provide for proper supervision over appropriations and transfers between appropriations be made part of the budget ordinance. That a budget exhibit be conducted in order that citizens may have submitted to them graphically the work which is being accomplished by* the municipal government. COLLECTION, CUSTODY AND DISBURSEMENT OF PUBLIC FUNDS. That the compensation of the City Treasurer be limited to $2,500 a year, which is ample compensation for the services rendered. That in view of the fact that the cash balances in banks and on hand 382 DEPARTMENT OF ACCOUNTS AND FINANCE— SUMMARY. are seldom less than one-half a million dollars, the fidelity bond of the City Treasurer be increased. That the payment of fees or commissions in connection with the col- lection of taxes and miscellaneous revenues be abolished. That all taxes and other revenues be collected by the treasurer or his permanent staff, all of whom should be paid fixed annual salaries only. That prompt measures be adopted to reduce the abnormal amount of taxes now allowed to become delinquent. That the collection of state, county, school and municipal taxes be vested in one central body as soon as the necessary legislation can be passed. That Council pass an ordinance consolidating the collection of city and poll taxes and water rates. That the City Treasurer's imprest fund be audited by the Superin- tendent of Accounts and Finance or his representative at irregular intervals, but with sufficient frequency. That the preparation of delinquent tax-books be eliminated by binding the counterfoil of tax bills unpaid at date when delinquent taxes are collecta- ble. That, for the better protection of the city, banks designated as city depositories be required to deposit with the city, as collateral, securities at least equal in value to the amount of the city's funds entrusted to their care. FINANCE, ACCOUNTING AND AUDITING. That the tendency in some bureaus, especially in the Bureau of High- ways and Sewers, to maintain duplicate accounting records be checked. That methods of financing, which will render possible a constructive program with regard to improvements, be adopted. That the proper maintenance of properties already held by the city be a first charge on its revenues and that no revenues be used for new construc- tion work until ample provision is made for the maintenance of present propei ties. That a well defined plan for financing public improvements be prepared. That a bond budget be prepared and published which would enable the comparative importance of the city's needs to be more clearly appreciated. That interest and sinking fund charges on water bonds be made a first charge against water revenues, with the city revenues merely pledged as collateral in the event of water revenues not being sufficient to meet these bond obligations. That the tax rate as established by ordinance disclose clearly the true state of affairs with regard to the tax levy. That a suitable system of cost records be established with a view to- securing information essential to efficient control over every activity, PURCHASE, STORAGE AND TESTING OF SUPPLIES AND MATERIALS That the need for purchasing supplies be definitely ascertained and an analysis of purchases made as a basis for estimating future requirements. That the preparation of standard specifications be extended. DEPARTMENT OF ACCOUNTS AND FINANCE— SUMMARY. 2-S3 That fuel be purchased on the British thermal unit basis. That a central storehouse be established. That more attention be paid to the inspection of supplies and materials delivered. That proper records covering the receipt and consumption of supplies and materials be devised and installed. TIME AND SERVICE RECORDS That proper time reports standarized for all city departments be main- tained. SALARY STANDARDIZATION That salaries be standarized throughout all departments so that each employee in the city's service is paid according to service rendered. That salaries be adjusted only once each year, viz., at budget-making time. That discrimination in the payment of laborers be eliminated by paying a standard rate to all such employees. CIVIL SERVICE That all city employees be made subject to civil service rules and regula- tions. That the appointment of employees for more than one year be stopped, and that the inclusion of compensation for employees in the annual budget automatically carry them over from one fiscal period to another, subject to good behavior and efficient work. MISCELLANEOUS That annual reports for all departments be revised and standarized and much superfluous matter eliminated. That a bureau of information and complaints be established. 2S4 DEPARTMENT OF ACCOUNTS AND FINANCE DEPARTMENT OF ACCOUNTS AND FINANCE CRITICISMS AND CONSTRUCTIVE SUGGESTIONS ON ORGANIZATION, PERSONNEL, AND PROCEDURE ORGANIZATION AND PERSONNEL ACCOUNTING AND FINANCIAL FUNCTIONS SHOULD BE REORGANIZED The revenues and expenditures of the city are improperly controlled. The accounting control of revenues is practically nonexistent. Such control as does exist is divided between the city treasurer, who incidentally is the collector of taxes and therefor not a proper officer to control revenues for taxation, the water clerk, who is responsible for the water rate books, and at least one clerk in almost every other bureau who collects and controls the miscellaneous revenues of his bureau. A large part of the accounting work connected with the purchasing of supplies, the checking of invoices, and the drawing of warrants has been done in the city clerk's office. In many cases the jurisdiction and responsibility of bureau heads is not clearly defined. There are several cases where employees connected with accounting of financial functions are performing work entirely foreign to such functions and vice versa. Under such conditions, it is not at all surprising that the accounts and finances of the city have become considerably tangled. Most of the trouble is directly due to lack of proper organization. It is of the utmost importance to the future welfare of the community and the efficiency of its government that a complete reorganization of the city's finances and accounts be undertaken immediately by the new administration. This reorganization, if carried to a successful conclusion, will enable every department and bureau head and every taxpayer without effort to inform himself as to the exact facts relating to city business. SUGGESTED ORGANIZATION AND PERSONNEL OF DEPART- MENT OF ACCOUNTS AND FINANCE Under the new form of government all matters relating to finance and accounting are placed under the jurisdiction of the superintendent of the department of accounts and finance. This department should be divided into DEPARTMENT OF ACCOUNTS AND FINANCE 285 six divisions or bureaus which should exercise the distinctive functions enumerated below: OFFICE OF THE SUPERINTENDENT ^ - Supervision of accounts and iinance BUREAU OF TAX ASSESSMENTS Assessment of Taxes BUREAU OF REVENUE CONTROL Revenue accounting control BUREAU OF THE TREASURY Collection, custody and disbursement of public funds BUREAU OF SUPPLIES Purchase, storing and testing of supplies BUREAU OF ACCOUNTS Central accounting The superintendent should be provided with a competent stenographer who would perform also such other clerical duties as might be required in his office.. The bureau of tax assessments should be under the city assessor who should be provided with a clerk competent to keep all necessary tax records. At such times as the triennial assessments are being prepared it will be necessary to appoint one or more deputy assessors to assist the city assessor- In case it is decided to prepare proper tax maps, as is discussed in detail elsewhere in this report, it will be necessary to appoint a draftsman for at least a year for this purpose, and thereafter the city assessor should be able to obtain the temporary services of a draftsman from time to time as may be necessary in order that the tax maps may be kept up to date. "* The bureau of revenue control should be in charge of an auditor of receipts. This bureau should be divided into two main divisions; one of which should exercise control over the water revenues, and the other, accounting control over taxes and miscellaneous revenues. Each division should be in charge of a high grade clerk. It is also essential that a junior clerk should be appointed to assist in the detail work. If a properly qualified clerk should be appointed to this position he could do the billing of taxes and water charges, and the need for the appointment of temporary billing clerks during the rush periods would be avoided. This bureau should also be provided with an inspection force for work in the field, especially for water revenue work. These inspectors should be under the supervision of a chief inspector reporting directly to the auditor of receipts. 286 DEPARTMENT OF ACCOUNTS AND FINANCE The bureau of the treasury should be under the city treasurer. To him should report the cashier, entry clerk and bill clerk. The latter could also act as stenographer, except during the tax collecting periods when it would be necessary, for the convenience of the public, to appoint another bill clerk temporarily, and possibly still another clerk to check the coupons with the register of receipts and to attend to' mail remittances during the rush season. It is suggested that if this force should be maintained the year round it could perform also all the duties of the delinquent tax collectors now appointed annually for each ward. The advantage of having men trained for such work as permanent employees is apparent. Such appointments would be economical, as the collection of delinquent taxes is performed at a time when there is little work to be done in the treasurer's office. These men could also be used in the bureau of revenue control during the period when taxes and water charges are being prebilled (which is also a slack period in the bureau of the treasury) to do all the checking work now done by temporary help. In a short time these men should become efficient in such work, and the difficulties resulting from the temporary employment of inexperienced men would be overcome. Such appointment would also effect a con- siderable money saving as compared with the present costly method of employing inefficient temporary help during the rush periods. This matter should receive the immediate attention of council. The bureau of supplies should be under a competent purchasing agent. This bureau should be divided into three main divisions, namely: (i) pur- chasing, (2) stores, and (3) testing laboratory. The purchasing agent, with the help of the secretary to the superintendent acting as his stenographer, should be able to handle easily all matters connected with the purchasing division. The stores division should be under the control of a storekeeper with such laborers as may be necessary to operate efficiently the storehouses. The testing laboratory should be under the control of a chemist who should have at least one assistant. The bureau of accounts should be under an accountant whose duties should include those of an auditor of expenditures. It may be necessary in the course of time to provide a clerk to work exclusively in this bureau; but for the time being it is considered that a clerk devoting part of his time to the bureau of accounts and part to the bureau of supplies will be all that is necessary. CITY CONTROLLER'S POWERS IMPORTANT IF PROPERLY EXERCISED The city controller, under the commission form of government, is an independent auditor elected by the people. He has been shorn of nearly all the powers he previously possessed, and most of his duties have been delegated to the superintendent of accounts and finance. However, he still has the right to audit all accounts, although his signature is not necessary to enable a warrant to be drawn and payment made. This right to review all financial transactions would be important were the incumbent of the office qualified to exercise the powers conferred upon him. The intent of the law is good, but it can easily be negatived by the election of an incompetent person. DEPARTMENT OF ACCOUNTS AND FINANCE 2S7 ASSESSMENT OF TAXES NO SCIENTIFIC BASIS FOR THE ASSESSMENT OF PROPERTY Over 30 per cent, of the general revenues of the city are derived from the taxation of real estate and personal property. The assessment of taxes, therefore, is worthy of more attention than it has received. No mathematical basis is used in determining valuations. The assessment of property is largely a matter of guess-work in which the judgment of an individual assessor plays an essential part. Everything which tends towards uniformity and accuracy of method in assessing real estate makes more probable the equalization of assessments as betewen the various properties assessed. Equality and fairness of assessments are the essentials in any system of taxation; otherwise a ten mill tax rate may mean a tax rate of 11 mills or more to one taxpayer and nine mills or less to another. Lack of system in assessing taxes is not conducive to equitable assessments. In Reading, the same property frequently is assessed for State and county purposes at one valuation and at another for school and general city purposes. There is no necessity for this duplication of work by two independent groups of assessors. If all property were assessed by one assessing body such condi- tions could not exist, and a considerable saving would be effected by the elimination of one Board of Assessors. The revision of assessment methods would add materially to both the revenue and borrowing capacity of the city and result in a more equitable distribution of the tax burden. A scientific method of assessment is, there- fore, extremely desirable. FULL VALUE ASSESSMENTS WOULD REDUCE DISCRIMINATION. The assessment of real estate and personal property at its full value would tend to reduce the possibility of discrimination which always exists when partial value assessments are made. Separate valuation of land and of improvement would be likewise a step in the right direction. Discrimination in favor of owners of vacant land should not be allowed. All property should be assessed at full market value, but no attempt has been made to do this. The assessors state that they aim as far as possible to assess all property at 75 per cent, of the full value. There seems to be a more or less widespread feeling that property in the business districts is under-assessed, while in the residential districts it is either more nearly correct or even over-assessed. CITY ASSESSORS SHOULD POSSESS PROPER QUALIFICATIONS. Under the new form of commission government, the Council, as a whole, ■constitutes the Board of Revision of Taxes and Appeals, and after January 1, 1916, this Board will appoint the tax assessors. Until that time the assessors last elected continue to hold office. On January 1, 1915, one assessor's term will expire; the two remaining will hold over until December 31, 1915. One of these assessors, a machinist by trade, had no knowledge of real estate matters prior to his election, except such as he had obtained through small purchases of property on his own account. The other assessor is somewhat 288 DEPARTMENT OF ACCOUNTS AND FINANCE better qualified by reason of some years' experience as county assessor before election to the office he now holds under the city government. No special qualifications are required of assessors other than that they must have been residents for five years previous to election and own real estate, to the value of at least $500. Assessors should be required to pass a competitive civil service examina- tion in which the questions should be designed to obtain men having a thorough knowledge of local real estate and a fair amount of judgment in determining property valuations. They should be required to give full time to their work, and they should not be allowed to engage in any other business or profession. Such assessors should be subject to removal for cause after charges have been preferred in writing and an opportunity given to each assessor to defend himself. TAX REVISION BY COUNCIL MORE ECONOMICAL THAN EFFICIENT. Although the power of revising the assessment of taxes and the hearing of appeals is vested in Council as a whole, it would seem that this arrange- ment is more economical than efficient. The function of such a Board calls for a thorough knowledge of real estate values, which a member of Council is not likely to have acquired. ASSESSORS SHOULD WORK INDEPENDENTLY. The present system under which all assessors work together as a unit is open to great question. It should not be necessary for three assessors to work on one piece of property. The assessments could be made in much less time if the city were divided into districts and an assessor assigned to each district. As it is impossible for anyone to become thoroughly familiar with values in more than a comparatively small area, assessors should serve continuously in the same district as far as possible so as to become better acquainted with local conditions and property valuations. In order to avoid collusion, arrangements should be made for testing the assessments made by an assessor from time to time, either through independent outside sources or by temporarily interchanging assessors between districts. PERSONNEL MATTERS IN TAX BUREAU NEED FURTHER CONSIDERATION. The Clark bill provides that Council shall elect one person as City Assessor, to serve from the day of his election until the first Monday of January in the succeeding year. This provision of the law should be changed for the reason that the holder of this office, more than almost any other office holder in the city, needs time to become familiar with his duties. A permanent policy in regard to the system of assessments must be outlined and adhered to if any really constructive work is to be per- formed. Constant change in personnel would make such a policy difficult to maintain. Of course, the argument may be advanced that, providing an assessor renders good service, he may be re-elected for another year. Council, however, is elected for two years onlv, and it is almost certain DEPARTMENT OF ACCOUNTS AND FINANCE 289 that with a change in administration would come a change in the City Assessor. In addition to the two assessors before mentioned, there are two clerks on the payroll of the Bureau of Tax Assessments. The senior of these two is Clerk to the Tax Assessors and also to the Building In- spector, while the other acts as Transfer Clerk and performs general office work. The former should not be required to render services to the Building Inspector, but should devote his entire time to matters relat- ing to the assessment of taxes. The latter should be transferred to the Bureau of Revenue Control, where his services can be used to much better advantage in connection with the financial control of taxes. If the Building Inspector cannot do his own clerical work such work should be performed by the Clerk to the Superintendent of Safety. During the year of triennial assessment a "book carrier" is added to the force. The appointment of such a person is hardly necessary even under present conditions, and the position should be eliminated in the future. Four extra men are engaged to write up, by hand, the records of each triennial assessment. Such records could be prepared on a typewriter in a quarter of the time and at a tenth of the cost. A carbon copy for the use of the assessors in the field could be made at the same operation if mechanical means were adopted. TAX RECORDS INVOLVE UNNECESSARY WORK. The methods employed in the keeping of tax records seem to have been adopted with a view to controlling as much political patronage as possible. Instead of being in card index form so that they could be used from year to year, most of the records have been written up every three years in loose-leaf ledgers. The tax valuation books, although not of the most efficient type, are passably good. The present "tax ledgers," as they are called, consist of 16 volumes (one for each ward), each containing an alphabetical list of all owners of real estate within a ward, together with full particulars of the property of each. Owing to the constant transfer of properties, these books become considerably altered in the course of the three years in which they are in use. As there is a separate volume, it becomes necessary to record the name of a taxpayer owning property in more than one ward of the city in as many volumes as there are wards in which he holds property — a possible maximum of 16 volumes. The installation of a card system, which would make it possible to list on one card all the property owned by. any individual, would greatly facilitate reference and the compilation of tax schedules as well as the collection of taxes. It would also entirely obviate the necessity 'for writing up the 16 volumes every three years, because after the cards were once installed, if kept up to date as transfers are made, they would never have to be rewritten except when transfers are so numerous as to fill up the cards. 290 DEPARTMENT OF ACCOUNTS AND FINANCE A CARD SYSTEM OF ASSESSMENT RECORDS RECOMMENDED. It is suggested that an even more radical change be made in the methods of compiling and maintaining the records of assessments on real estate and personal property. Such data could be much more efficiently recorded by means of a card index system. A separate five by eight card would be kept for each property, the face of the card being ruled to record all essential information while the reverse could be used for a plan showing the location and dimensions of the property assessed. Such a system, with the cards under proper control, would be infinitely more convenient both for use in the held and in the assessors' office than the present loose-leaf books. The writing up of the tax records at each triennial assessment period would be entirely eliminated. A card system, properly devised and installed, would never have to be entirely rewritten. In cases where the property changed in value so frequently as to fill up the cards, it would be necessary to insert continuation cards from time to time. The cards would show also the fluctuation in the assessment over a period of years, informa- tion which the present records do not disclose without reference to the assessment books of the various triennial periods. METHODS OF ASSESSING POLL TAX TOO ELABORATE AND EXPENSIVE. The present methods of assessing the poll tax are far too elaborate and expensive. Each year 51 poll tax assessors are appointed, one for each voting precinct of the city. Their duty is to collect the names and addresses of persons subject to poll tax, for which services they are paid at the rate of $2.50 for every 60 names reported. In addition to the above, six or eight men have been employed for some weeks each year in arranging and transcribing alphabetically the names and addresses re- ported by the poll tax assessors. The 51 assessors are required to send in a list, on forms specially provided for the purpose, containing all names collected each day. Under such a procedure the reports turned in by the poll tax assessors neces- sarily have to be reclassified. If a card system were adopted and each name and address entered on a separate three by five card duly certified by the assessor, all the work of reclassifying and transcribing would be obviated. The certification of these cards would also tend to reduce the number of exonerations for the reason that unless the taxes were properly col- lectible from the persons reported, the assessors would not be likely to report fictitious names when they have to certify such names under their official oath. The amount of the poll tax assessments is approximately $28,000 per annum, but of this amount from $8,000 to $9,000 is usually exonerated, clue to non-collection for one ' cause or another. The cost of compiling and transcribing the poll tax assessment list has been about $2,000 a year, in addition to which there is the commission on collections paid to the; City Treasurer, part of the salaries of the City Treasurer and his clerks, the commissions paid to delinquent tax collectors, the cost of stationery, printing, etc., to be charged. The tax is very unpopular for the reason that a similar tax is also collected at the rate of $1.00 per head by tin- DEPARTMENT OF ACCOUNTS AND FI NANCE 29* School Board and a further tax of 30 ce*nts per head by the county au- thorities. The poll tax receipt which entitles a person to vote is that paid to the county authorities. Taking into consideration the fact that only a few thousand dollars are collected by means of this tax, it would seem as though it were hardly worth the trouble of assessment and collection. A general tax levy of a fifth of a mill more would produce an equal amount and save many thousands of dollars which are now expended unnecessarily. Few persons other than real estate owners are now paying poll tax. PROPERTY TRANSFER DEEDS SHOULD SHOW TRUE CONSIDERATION - Many of the deeds relating to the transfer of property now record the consideration for transfer as one dollar, or some other nominal amount which is far below the value of the property. If a law could be passed requiring that the true consideration be shown in all deeds, it would greatly assist the work of the assessors and enable them to make much more accurate assessments. VALUATION OF PROPERTY UNDER OATH SHOULD BE CONTINUED. The practice of requiring owners of real estate and personal property to testify under oath as to the value of their property is in accordance with the more up-to-date methods in vogue in the larger cities and should be continued. The recent tendency to eliminate the taking of an oath when testifying as to property valuations should be restrained. PROPER TAN MAPS SHOULD BE PREPARED. The present assessors are greatly handicapped owing to the lack of proper tax maps. It is only within the last eighteen months that they have been provided with a copy of an atlas of the city. Prior to that time they had no such facilities. The atlas in question was necessarily incorrect to some extent even when originally received by the assessors, owing to the unavoidable lapse of time between the making of the survey and the printing of the atlas. Since its receipt, no attempt has been made to keep the maps corrected to date. As accurate maps are essential to efficiency in assessment work, immediate steps should be taken to employ a draftsman to prepare first, block and lot maps, and secondly, land value maps of the entire city. BLOCK AND LOT SYSTEM. ADVOCATED. The block and lot system of describing property for purposes of taxa- tion should be adopted throughout the city. This system would facilitate the identification of property, reduce the chance of error in compiling tax and special assessments, and save much time and labor. The tax assessment books are now kept by wards and blocks, but no system of lot numbers has ever been attempted. Each ward has its own separate series of block numbers, commencing at number 1, so that in the city 292 DEPARTMENT OF ACCOUNTS AND FINANCE BS3SB there are now sixteen blocks bearing the same block number. It would probably lead to less confusion if every block were given a separate num- ber (or a combination of ward and block number that would indicate both b} r One number), of which there was no duplicate in the city. The exact boundaries of every separately assessed parcel of real estate in the city should be shown on these block and lot maps. In addition to the blocks being numbered as indicated above, the separate lots or parcels of., land within each block should also be numbered. These lot numbers would run consecutively from one up to as many lots as there are in each block. . When these maps are being prepared they should be drawn on tracing paper from which black line prints could be made, one print being re- tained in the office to form the official block and lot record, and such additional prints as might be necessary being furnished for use in the field. Ii has been found convenient to have these maps in loose-leaf form, bound in strong canvas binders, each ward being bound in separate vol- ume. The first sheet of each volume should be a key map to all the block and lot maps in the volume. These maps should show the length of all property boundary lines and the street or house number, if any, in addition to the lot number. On lots of irregular shape the area may be shown in square feet, while on targe parcels it may be shown in acres. It will be readily seen that such maps facilitate the geographical listing of. real estate for purposes of taxation and also simplify the description of real estate for purposes of identification in tax matters. They would be. used also by the assessors in computing the value of lots on the basis of. unit valuations as shown by the land value maps. The tax records should be arranged consecutively (i) by block numbers and (2) by lot numbers within each block which would enable any lot to be located rapidly and certainly either on the assessment books or on the tax maps. LAND VALUE MAPS WOULD FACILITATE ASSESSMENT WORK. Land value maps are entirely different from block and lot maps. They should be prepared and maintained to facilitate the comparison of land valuations and thus to assist in standardizing and equalizing assessments of land for purposes of taxation. They are generally regarded as the most useful aid toward equalizing assessments that can be placed in the hands of. an assessor. There is no need to dilate on the subject of inequality in assessments. The facts are too well known in Reading to need even enumeration. If proper land value maps were to be prepared they would remedy, to some extent at least, the greatest of the inequalities now existing. THE USE OF LAND VALUE MAPS WOULD BENEFIT THE COMMUNITY. The inimediate benefit to be derived from the use of land value maps would be the opportunity for intelligent comparison of assessments. This is not possible under present conditions and even if all assessments were DEPARTMENT OF ACCOUNTS AND FINANCE 293 published, which they are not, comparisons would be still unreliable. .If land value maps were used, any property owner could pass upon the fairness with which the assessor had performed his work so far as the valuation of land, apart from buildings, was concerned. These maps are practically valueless, however, unless the assessment is split up into its component parts and the value of land, of buildings, and of improvements shown separately. The present assessors are in favor of splitting up the assess- ments. The intelligent comparison of assessments which would be made pos- sible by land value maps would inevitably result in greater uniformity and in the equalization of assessments. They would aid the Board of Tax Revision in considering appeals and in satisfying complaints as to alleged unfair assessments. They would prevent, to a great extent, a.n assessor favoring any particular taxpayer or taxpayers; and they would form an invaluable check on the work of the assessor generally. If all the unit values determined by an assessor were set up on a land value map, it would be possible for him, for the first time, to study intelligently and comprehensively the relation of one assessment to another. In other words, a bird's eye view of an entire assessment district would be ob- tained. If a particular assessment were too high and another too low, such conditions would be apparent. Unit values, of course, may change from time to time, and land value maps to be efficient must be kept con- stantly up to date. ATTITUDE OF SCHOOL BOARD ENTAILS UNNECESSARY EXPENSE. Owing to statutory requirements the city is compelled to furnish the School Board with a list of all assessments of real and personal property and of polls. Further legislation was enacted last year which now gives the School Board the right to specify the style of book (even to the form of ruling and kind of binding) in which such assessments are to be fur- nished. The School Board refuses to accept an exact copy of the tax ass-.s?ment list as used by the city. The lack of co-operation unnecessarily doubles the work connected with the preparation of assessment lists. Steps should be taken to test the right of the School Board to demand anything but an exact copy of the assessment list as prepared by the city for its own use. Such a copy could be made by carbon process at the time the c;1 f prepares its own tax list. BONDED DEBT AND SINKING FUNDS INDEBTEDNESS CONSIDERABLY UNDER DEBT LIMIT. Under the Clark bill, the debt limit of cities of the third class is two per cent, of the assessed valuation of real estate and personal property. The assessed valuation o* Reading is approximately $56,800,000, which would permit of a bonded debt of $1,136,000, excluding bonds issued for water and school purposes. With the assent of the electorate, the debt limit may be increased to seven per cent, of the total assessed valuation, which would permit of a debt of approximately $4,000,000. 294 DEPARTMENT OF ACCOUNTS AND FINANCE Of the $1,136,000 of bonds which can be issued by Council without the consent of the electorate, $830,000 had been issued and was outstanding on December 1, 1913. In addition thereto, $156,000 has been authorized but not yet issued, for the construction of storm water sewers. This leaves a balance of $150,000 which can be issued by Council without the vote of the people. To this amount may be added approximately $70,000, repre- senting sinking funds established to redeem the $830,000 above mentioned. This would limit the' borrowing capacity of Council, without the assent of the electorate, to $220,000. It would be ill advised, however, for Coun- cil to issue the whole of these bonds. The amount which should be issued for the improvement of streets or other construction purposed during 1914 should not exceed $175,000, leaving a margin of $45,000 to meet emer- gencies. Of the bonds issued by the authority of the people, $280,000 were out- standing on December 1, 1913. Against this outstanding bonded indebted- ness there was in sinking funds, established to redeem such bonds, approx- imately $57,000, making a net outstanding indebtedness of $223,000. De- ducting this from the five per cent, of the assessed valuation which can be authorized by the people ($2,840,000 ">, leaves a balance of $2,617,000 available for construction purposes subject to the consent of the electorate. On the bonds outstanding as above, $424,000 was for paving and sewers; $450,000 was to redeem an unprovided for issue of six per cent, "house, sewer improvement bonds," issued July 1, 1912, to meet shortcomings of former years, and the balance of $236,000 represented bonded debt which had been refunded at least once, owing to lack of proper sinking fund provisions. The latter series of bonds will have been outstanding for ap- proximately 60 years by the time the present issues mature. In addition to the bonds included in the general funded debt, the city is also responsible for the water bonds. Of the total bonds outstand- ing on December 1, 1913, $500,000 represented the construction of niters. The balance of $208,000 represents bonds which have been outstanding practically since the purchase of the water works by the city. These bonds had to be refunded in 1889- 1890 owing to the fact that proper sink- ing funds had not been established for their redemption. It is only recently that steps have been taken to provide for the payment of these bonds at maturity. This has been accomplished by setting aside an amount each year which in eight years will provide a sufficient fund to redeem the bonds. To neglect to provide for the bonds until after they had been outstanding approximately 40 years, and then in the last eight years of the term to set aside amounts which should have been spread over at least 30 years, is not consistent with sound finance for the reason that it' imposes too great a burden on the water rate payers of the present day. There were also $44,000 "house sewer district" bonds outstanding at December 1, 1913. As to whether these should be taken into account when arriving at the debt limit is a matter for the legal advisor of the city to settle. The city had no temporary loans or certificates of indebtedness at the time of making this survey. Apparently it has been possible to finance the city without temporarily borrowing to meet current expenditures. DEPARTMENT OF ACCOUNTS AND FINANCE 295 SERIAL BONDS SHOULD BE ISSUED INSTEAD OF SINKING FUND BONDS. The bonds issued by the City of Reading are either wholly of a sinking fund nature or partly sinking fund and partly serial in form. It is sug- gested that the practice, established by Pittsburgh in recent years, of issuing all bonds in serial form, payable in equal annual installments to be provided for in the tax levy budget, be adopted. The increasing study given to questions of public finance and the experience and observation of those charged with the administration of public debts have forced practical comparison of the efficiency of the sinking fund and serial methods until now the latter is generally conceded to be the sounder and more economical means of debt payment. Throughout the country the sinking fund method is in fact being super- seded by the serial method. The marked advantages of the latter lead to its adoption by more States and cities every year. The time seems to have arrived when the serial plan should be accepted as the generally approved method of providing for the payment of bonded debt. The Massachusetts Legislature, which for many years has been most progressive in matters relating to bonded indebtedness, has enacted laws requiring the State and every municipality to provide for the payment of -all funded debt by the serial method. The serial method of redeeming bonds not only obviates the adminis- trative requirements of the sinking fund method, but it has been demon- strated to be cheaper than the latter, and it, therefore, imposes a lighter burden on the taxpayer in the long run. Not the least of its advantages is the fact that its operation is so simple as to be easily understood by the ordinary citizen. The provision for bond redemption is exactly the same un'der either plan except that the uncertainty always existing where sink- ing funds are operated is obviated under the serial method. On the other hand, a sinking fund, however well it may be adminis- tered, is at best a cumbersome means of accomplishing the desired end, since it involves not only the. obligation to keep the fund properly invested, "but also complicated mathematical computations to insure equitable as- sessments upon the taxpayers during the period of the loan in order that the debt may be paid at maturity. GREATER CARE SHOULD BE TAKEN IN FIXING THE TERM OF BOND ISSUES. The policy pursued in the past has been to issue all bonds for a period extending over a term of 25 years. The issuance of bonds of this char- acter for the paving of streets lasting on an average about 12 years is a somewhat short-sighted proceeding, for the streets will become worn out before half the bonds issued therefor are redeemed. Bonds should be issued as far as practicable for a term of years co- ordinate with the life of the property to be acquired with the proceeds of the sale of the bonds issued. In fact it would be well to be conserva- tive and to issue bonds for a period rather less than the life of the prop- erty. Under the new Clark bill, bonds cannot be issued for a period in -excess of 30 years. For the acquisition of lands and the laying of water 296 DEPARTMENT OF ACCOUNTS AND FINANCE mains and similar improvements, it is perfectly justifiable to issue 30-year bonds. For street .construction purposes, bonds should be issued for; terms not exceeding 10 to 15 years, according to the kind of paving to be laid. The construction of buildings would not warrant the issuance of bonds for a longer term than 20 years. Care should also be taken that bonds are not issued until the money is actually required. The premature sale of bonds results in the payment of unnecessary interest charges. MORE CONSIDERATION SHOULD BE SHOWN TO CITIZEN INVESTORS. It might be well in issuing bonds in future to consider the small in- vestor and to issue bonds of lower denominations than heretofore, so as to enable almost any citizen to invest in the city's bonds. This would overcome, to some extent at least, the difficult} 7 recently experienced by Reading in disposing of its securities. This difficulty is not diminished by the inability of the city to produce statements showing its exact finan- cial position to prospective bond buyers. The fact that Reading has had to refund its bonds from time to time owing to insufficient sinking fund appropriations or other causes, makes it harder to dispose of its securities. There is growing inclination on the part of citizens to invest their savings in city bonds. This is an exceedingly hopeful sign and should be encouraged. Reading's citizens came to its rescue last year and subscribed to a bond issue which Council was not able to float through the usual channels. SINKING FUNDS ARE NOT SCIENTIFICALLY ESTABLISHED NOR PROPERLY OPERATED. The establishment of sinking funds is a scientific proposition, and go'od management requires that they be operated on a scientific basis. The sinking funds which Reading has at present have not been subjected to these conditions. Immediate steps should be taken to adjust all present sinking funds, and to establish them on a scientific basis. This should be done by revising, during the year 1914, the amounts to be set aside as sinking fund installments. A table should be prepared showing the proper installments to be set aside year by year in order to provide the necessary sum to meet the bonds at maturity. After this schedule is established it should be strictly adhered to. The amounts to be set aside annually to provide for the redemption of the bonds according to the trust provisions are considerably in excess of the amount which would be required if the sinking funds were properly invested. It is only recently that the sinking funds have earned two per cent. But even this income was not considered when the amount to be set aside annually for the redemption of the bonds was established. On the older issues of bonds the annual sinking fund installments have been in- adequate; and they have never been equitably spread over the life of the bond issue. Under plans recently adopted Reading is only taking care of bonds falling due within the next five years. With respect to bonds maturing after that date, no provision whatever is being made, although it is to be assumed that, after the maturity of the bonds now being taken DEPARTMENT OF ACCOUNTS AND FINANCE 297 care of, attention will be given to issues maturing subsequently. Nothing strikes more at the root of a city's credit or affects the efficiency off its business management more than the provision made for the payment of its bonded debt. To neglect to set aside each year proper sinking fund in- stallments sufficient to provide for the redemption of the bonds at maturity, is not sound finance. The unsatisfactory methods of handling sinking funds in the past show that the sinking fund commissioners have not been wholly free from blame. The necessity for placing such matters on a businesslike basis is beyond controversy. The whole matter seems to resolve itself into three main questions, namely: (1) Is it advisable to issue further sinking fund bonds? (2)If so, should not the amount to be paid into the sinking fund each year to cover the redemption of such bonds, be fixed definitely on an acturial basis and stated on the face of each bond and the sinking fund commis- sioners be compelled to comply strictly with such provisions? (3) Would it not be more desirable to issue bonds in serial form, making it mandatory to redeem out of revenues annually a certain number of bonds and thus avoid all the complications and calculations connected with the establish- ment and operation of sinking funds? SINKING FUNDS SHOULD BE PROPERLY INVESTED The amounts set aside for the redemption of bonds at present out- standing were never properly invested until 1912. Prior to that time these funds were allowed to remain on deposit with the banks at two per cent, interest. In June, 1912, $100,000 of the water sinking funds was invested in four per cent, city bonds. This was the first investment of sinking funds belonging to the water department. At practically every date which may be taken, there were large sums of money uninvested, most of which were on deposit at two per cent, interest, when four per cent, interest might have been obtained if the sinking funds had been invested. It should be noted, however, that the city is limited as to the securities in which it may invest its sinking funds. The investments prescribed are national, state and city bonds. Bonds of the national government have not recently been a very good paying investment while it is understood that the state has no bond issue. The expedient of investing the sinking funds in city bonds does not appear to have received attention until within the last year or two. It should be pointed out that interest at the rate of four per cent, has to be paid on all city bonds j The creation of a sinking fund to retire such bonds and the carrying in such funds- of many thousands of dollars on which only two per cent, interest is paid, is a procedure which probably will not appeal to the average business man. An endeavor should be made to obtain a higher rate of interest from the banks on sinking funds un- invested, while the next issue of bonds, or as many of them as possible, should be purchased by the sinking fund commissioners. Such a procedure would practically double the sinking fund earnings. 298 DEPARTMENT OF ACCOUNTS AND FINANCE CONTROL OF MISCELLANEOUS RECEIPTS MISCELLANEOUS RECEIPTS NOT PROPERLY CONTROLLED There are many forms of permits, licenses, etc., in use in Reading. No two are uniform. For the most part they are ordinary receipt forms with stubs attached and they are usually bound in books. There can be no proper control over such documents. Such loose methods render .possible the falsification of records, for the reason that the receipts and. the stubs are written separately, which permits the issuing of a receipt for one amount, and the entry of a smaller amount on the stub. With no systematic audit of miscellaneous revenues, it would be difficult to dis- cover such practices. All necessary auditing control might be secured by the adoption of what is known as "financial stationery," which consists of standard blank permits, licenses, etc., printed on special safety papery numbered and kept by an auditor of receipts or other officer charged with the control of revenues. This officer would be responsible for the ordering of such stationery and for its safekeeping until it is needed from time to time by the various collecting agencies. It would be charged out to each individual collecting agency by the auditor through the medium of a special ledger account. The collector would be held strictly responsible for each and every blank document delivered to him. These documents should be so designated that an original, duplicate, and triplicate could be made at the same time by carbon process, the original and duplicate being printed on one sheet of paper, with a graduated stub between. In issuing the permit or license the graduated stub would be cut so as to show the exact amount received by the issuing office. The original, with the part of the graduated stub attached showing the amount paid, would be given to the person applying for the document, while the duplicate, with the remaining- part of the graduated stub attached, would be transmitted to the bureau of revenue control where, after checking and entry, it would be audited by the controller . In order to facilitate the control of financial stationery, a report of permits and licenses issued should be prepared (in triplicate) whenever permit or license fees are paid over to the city treasurer. This should be done regularly, either daily, semi-monthly, or monthly, as conditions war- rant. Such report should, in any event, be made up to and including the last day of each calender month. In the case of the license clerk, however, one of these reports should be prepared in duplicate every day, and trans- mitted to the bureau of revenue control, together with the duplicates of permits, licenses, etc. To facilitate the granting of licenses and permits, standard forms of application blanks should be designated, and each applicant should be, required to fill out such a form when making application for a permit or license. The city has a license clerk, but his work is not confined to the issuing of licenses. He performs general clerical duties in the office of the treasurer. This procedure seems to work satisfactorily. It would be ad- visable, however, to appoint a license inspector for general field work, and especially for the purpose of enforcing the regulations governing permits DEPARTMENT OF ACCOUNTS AND FINANCE 299 and licenses. But such duties should not be allowed to remain entirely in the hands of a license inspector. A supervisory control should be obtained over his work through police inspection by the designation of one day each month or each quarter, when every policeman should be required to report each business or person on his beat who should be licensed. If the police were shifted, as they should be, from one beat to another from time to time, the necessary check on the license inspector's report would be readily obtainable. ISSUANCE OF LICENSESS AND PERMITS SHOULD BE CEN- TRALIZED As far as practicable, the collection of fees and the issuance of licenses, etc., should be centralized in the license clerk in the bureau of the treasury. It may be expedient to have such fees collected by officers other than the license clerk in the case of permits issued for the .breaking of street pave- ments and also in the case of boiler inspection certificates for which fees should be collected and certificates issued at the time field inspections are made. In such cases, however, all moneys so collected should be promptly turned over through the license clerk to the city treasurer. Where licenses are issued other than by the license clerk, the convenience of the public should be considered. The present system of requiring a citizen to climb to the third story of City Hall with his application for a meat or milk license in order to get the application approved, then come down to the treasurers office on the first floor to pay the fee, and afterwards made a second trip to the third floor with the receipt to get his license, does not appeal to the average man as being the best possible procedure. LICENSES NOT PROPERLY ACCOUNTED FOR During the year 1913, the city treasurer reported the sum of $2,747 collected on account of city licenses: whereas the licenses issued as per the license register and the stubs remaining in the receipt books, aggregate only $2,607. The difference occurred between March 1 and June 30, 1913, and is probably accounted for by fees which have been collected on account of licenses but for which no licenses were ever issued. A comparison of the license register with the stubs of license* books discloses the fact that 17 licenses were issued for which there was no corresponding entry on the license register. Further analysis of this register discloses the fact that 109 licenses which would have been received, were not so collected. Of these licenses, only 6 were stated to be "uncollectible" and were so marked. The total revenue which should have been derived from these unpaid licenses amounted to $1,350. BUDGET SCIENTIFIC BUDGET MAKING SHOULD BE ADOPTED The present methods of budget making are conducive to waste by reason of the lack of efficient control over the city's finances. Taxpayers 300 DEPARTMENT OF ACCOUN TS AND FINANCE cannot ascertain the purpose for which their taxes are voted and expended. The entire administration of the city is hedged around with, and hindered by, antiquated financial methods. These conditions are not peculiar to Reading; they apply to practically all cities that have not adopted scientific management and an adequate system of financial control, of which a proper budget is the foundation. There are several essentials necessary before effective budget control can be established in Reading. The most important are a central accounting system, proper time and service records, including standard payrolls, adequate methods and records to control the purchase, delivery, storage, issuance, and consumption of supplies and materials, and an effective system of audit or internal check. Ultimately a complete unit cost system should be installed and maintained to control the activities of all bureaus so that at budget making time the council will have available complete information, not only of the quantity and cost of work performed during, the previous year, but also the amount of work to be done during the ensuing year and the probable cost of accomplishing it. At present the accounts are of practically no value in arriving at proper budget appropriations. BUDGET ESTIMATES SHOULD BE STANDARDIZED One. of the most important matters connected with budget making is the preparation of proper budget estimates. Estimates should be prepared on. standard forms which provide for the showing in detail of all informa- tion necessary as a basis for judgment in determining the amounts which should be appropriated for each function or activity. Reading does not provide its heads of departments with any forms of budget estimate blanks, but leaves the method of submission to their discretion. The consequence is an almost total lack of data upon which to base appropriations. The estimates* too, are usually submitted so late that a thorough examination by the responsible authorities is impossible. It is essential that ample time be available, for proper investigation. An ordinance should be passed fixing, a date on or before which all budget estimates must be received by the superintendent of accounts and finance. BUDGET ESTIMATES AND APPROPRIATIONS NOT PROPERLY CLASSIFIED Funds are often requested and appropriated for one purpose and used for another because the present form of budget affords no adequate basis for accounting and auditing control. The combination of two or more entirely different kinds of expenditures by means of "lump sum" appro- priations makes possible the use of the entire fund for one kind of ex- penditure to the possible detriment of another function which the appro- priation was also intended to cover. Such methods, by failing to give proper information relative to the purposes for which the money is to be used, are often misleading. No definite or standard classification of appropriation titles has been established. The budget of every bureau should be functionalized according to the various, kinds of service rendered. All funds should be requested and appropriated under standard and well defined budget classifications, uniform DEPARTMENT OF ACCOUNTS AND FINANCE 301 throughout all departments. This would afford an adequate basis for ac- counting and auditing control. By these means the entire budget could.be standardized and comparisons could be made between periods and also between estimates, appropriations and expenditures. To facilitate the charging of expenditures each appropriation account should be codified, the bureau and function being indicated by letters and the classification by numbers. Owing to the lack of proper estimate blanks, bureau heads are permitted to submit their estimates in any form they desire. The result is confusion. In no one place is the cost of any function or activity clearly shown. All the appropriations connected with a function should be brought together under proper classifications so that the total cost of operation and mainten- ance of each bureau may be ascertained and compared with similar costs in other cities. Loose budget classifications result in subsequent abuse of appropriations. The need for proper classification is evident. Below are a few instances of the inefficiencies of Reading's budget for the year 1913-1914. There are many similar examples. Appropriations such as "For new work, general repairs, etc., $50,000." appearing under Highways should not be permitted. Construction expenditures should never be consolidated with operation and main- tenance expenses. Appropriations for new construction such as "For improved paving $32,500" have no place in a tax levy budget. Appropriations for "Clerical assistance and sundry items" and "For blank books, stationery and miscellaneous^ expenses" cannot be con- trolled under any auditing system. There is no reason for including the appropriation "For lighting streets and City Hall $87,580" under the Police Department. The appro- priation "For bread and matches $200" is a peculiar mixture and so is "For telegram messages, care of City Hall, etc., $2,500." The $400 appropriated '"For sealing weights and measures" is for the salary of a temporary emplo3^ee; it should be so stated. "For miscellaneous expenses (including milk and meat (inspection) $3,500" is another example of how a budget should not be made. The department of health appropriations are all indefinite. The $6,000 appropriated for "permanent improvement to private alleys" should have been given to the highway department, and not to the department of health. It was primarily for paving work. It is not quite clear why the appropriation to the department of finance should have included such provisions as "For necessary expenses of city officials $2,000," which is a very unsatisfactory item; "For a contingent fund $2,000," "For maintaining and conducting Free Public Library $7,700," and "For playgrounds and public baths $2,344.84." These items are appended to and included with appro- priations for. debt service aggregating $110,000. The $10,057.44 appropriated to the department of city property is ^almost entirely for repairs to fire engine houses and would have been more properly placed under fire department. 3Q2 DEPARTMENT OF ACCOUNTS AND FINAN CE The ordinance covering; salaries, also purporting to be classified by departments, is exceedingly mixed. The salaries of the mayor, a janitress and city scavenger all appear under the police department, while the salaries of the city clerk and his assistants, clerks to • councils, librarian, etc., are charged against the department of finance. As a result of several years of earnest study based on practical ex- perience, New York City has established standard budget classifications. With very slight modifications these can be used in Reading. The classifica- tions recommended are as follows: STANDARD BUDGET CLASSIFICATIONS Account No. :"■ • ■ 10 PERSONAL SERVICE ii Salaries, regular employees 12 Salaries, temporary employees 13 Wages, regular employees 14 Wages, temporary employees 15 Fees j6 Commissions 20 SUPPLIES 21 Food supplies 22 Forage and veterinary supplies 23 Fuel supplies 24 Office supplies 25 Medical and surgical supplies 26 Laundry, cleaning and disinfecting supplies 27 Refrigerating supplies 28 Educational and recreational supplies 29 Botanical and agricultural supplies 31 Motor vehicle supplies 32 General plant supplies 40 MATERIALS ' 41 Highway materials 42 Sewer materials 43 Building materials 44 General plant materials • 50 EQUIPMENT 51 Office equipment 52 Household equipment 53' Medical and surgical equipment 54 Live stock 55 Motorless vehicles and equipment. DEPARTMENT OF ACCOUNTS AND FINANCE 3°3 56 Motor vehicles and equipment 57 Wearing apparel. 58 Educational and recreational equipment. 59 General plant equipment. 60 CONTRACT OR OPEN ORDER SERVICE 61 General repairs 62 Motor vehicle repairs 63 Water 64 Light, heat and power a) Lighting streets and parks b) Lighting public buildings c) Power d) Heat. 65 Janitorial service. 66 Transportation. a) Hire of horses and vehicles with drivers. b) Hire of horses and vehicles without drivers. c) Storage of motorless vehicles. e) Shoeing and boarding horses, including veterinary service, f) Hire of automobiles g) Carfare. h) Expressage and deliveries , 67 Communication service a) Telephone. b) Telegraph, cable and messenger service. 68 General plant service 69 Printing (other than forms) and binding. 70 FIXED CHARGES AND CONTRIBUTIONS 71 Debt service a) Interest b) Redemption. c) Sinking fund installment d) State tax on bonded debt. 72 Rent. 73 Pensions. 74 Insurance. 75 Care of dependents in private institutions. 76 State taxes other than on bonded debt. 77 Advertising 78 Contributions 80 MISCELLANEOUS ITEMS NOT OTHERWISE CLASSIFIABLE 81 Contingencies. 82 Rotary funds. 304 DEPARTMENT OF ACCOUNTS AND FINANCE 90 ADDITIONS AND BETTERMENTS. 91. Land. 92 Structures and parts. 93 Non-structural improvements to land. BUDGET IS GIVEN INSUFFICIENT PUBLICITY The departmental budget estimates have been given no publicity hitherto, and the citizens know nothing of budget matters until after council has settled the tentative budget and it is printed as a news item in the local papers. No public hearings are held, although much interest might be aroused and valuable assistance obtained if public-spirited citizens and civic associations were given opportunity to participate in the discussion of the budget with the council. The original budget estimates as well as the tentative budget should be published in detail, and public hearings should be held before the budget is finally passed as 'an ordinance. A period of at least one week should be alowed between the publication of the tentative budget and the public hearings. The final budget should be printed in pam- phlet form and given as wide publicity as possible. BUDGET SHOULD BE PASSED AS A SINGLE ORDINANCE The present practice of passing the budget in a dozen or more ordinances and without proper restricting provisions is wrong in principle. It prevents the presentation and examination of the city's financial needs as a whole. The budget, throughout, should be considered as a unit, and it should be adopted in a single ordinance. It should include such restrictions as will insure the use of appropriations only for the functions and purposes for which they were requested and should also provide for proper supervision over subsequent supplemental appropriations and transfers between appro- priations. A BUDGET EXHIBIT WOULD HELP BOTH CITIZENS AND CITY OFFICIALS A failure of the citizens to appreciate the needs of Reading is the principal reason why bond issues have been so consistently opposed and why many desirable improvements have been deferred for lack of funds It is surprising how little the average man knows of the workings of the municip- ality in which he lives. By showing citizens what they are getting for their money and what they might get, budget exhibits have done much to arouse the interest of the citizens of many communities in civic government. Budget exhibits, too, afford an opportunity for city officials and heads of bureaus to show the public graphically the work they are accomplishing with the funds allotted to them, the necessity for increased appropriations, the problems to be solved, and the plans for future development. Citizen support can be obtained by the administration if the facts are properly presented. A budget exhibit thus forms a medium through which the city official may reach the public. Any intelligent taxpayer may learn by this means the DEPARTMENT OF ACCOUNTS AND FINANCE 305 use to which his money is put, and he may obtain information to serve as the basis of judgment as to the necessity for proper appropriations and the danger of misappropriation and waste of public funds. A clearer conception of the methods and cost of government could be obtained by having a budget exhibit in Reading; its educational value could not be overestimated. COLLECTION, CUSTODY AND DISBURSEMENT OF PUBLIC FUNDS PAYMENT OF FEES FOR COLLECTING REVENUES SHOULD BE DISCONTINUED The city treasurer is the highest paid official on the payroll. He receives a salary of $2,000 per annum, and in addition a commission on collections, for which the last appropriation made was $9,500. Out of this total sum of $11,500 the only disbursements he has to make are the delinquent tax col- lectors. The city treasurer states that he pays 10 per cent, commission on delinquent tax collections, although he receives only five per cent, com- mission thereon from the city. Even at the higher rate the amount he paid out on this account was considerably under $2,000, leaving the net compensa- tion of the treasurer at approximately $10,000. The work to be performed by the city treasurer does not warrant any such remuneration. A salary of $2,500 a year would be ample compensation for the servicc^rendered. The responsibility of the office should be covered by a fidelity bond, the premium of which should be paid by the city and not by the treasurer as at present. The treasurer is now bonded for $50,000. As the cash balances at banks and on hand are seldom less than half a million dollars, the inadequacy of the present bond is apparent. The payment of fees, especially for the collection of taxes and miscellan- eous revenues, is fast becoming obsolete in efficiently governed cities. The expenditure of several times the amount necessary for the collection of taxes in Reading should be discontinued as soon as possible. Taxes and other revenues should be collected by the treasurer or his staff, all of whom should be paid fixed annual salaries only. Such work could be performed more economically were the services performed by qualified city employees and an adequate system established for controlling the revenues in question. ABNORMAL AMOUNT OF TANES ALLOWED TO BECOME DELINQUENT The latest figures available with respect to delinquent real estate and personal taxes show that approximately $29,000 had to be turned over to delinquent tax collectors for collection. A further sum of over $18,000, representing uncollected poll taxes, was also handed over to the delinquent tax collectors, making a total of over $47,000, which the city treasurer failed to collect. Such conditions are somewhat alarming when compared with the record established by the treasurer of the neighboring City of Allentown, who collected his entire tax roll with the exception of $56. Tt must be 3o6 DEPARTMENT OF ACCOUNTS AND FINANCE remembered that Reading's taxes aggregate a sum twice that of Allentown's, but even so, a comparison of the two cities indicates the need for drastic action on Reading's part. It is considered that if the temporary offices of delinquent tax collectors were abolished and the whole matter left in the hands of the city treasurer, as suggested elsewhere in this report, much better results could be accomplished. The present difficulty is largely due to the fact that steps have not been taken to issue more promptly notices of sale, and thus induce the payment of rates without the necessity of filing liens. At the end of each fiscal year approximately $30,000 of real estate, per- sonal and poll taxes remain outstanding. Immediate steps should be taken to remedy such conditions. THE COLLECTION OF TAXES SHOULD BE VESTED IN ONE CENTRAL BODY The collection of taxes in the City of Reading is costly, inefficient and unbusinesslike. The state and county taxes are collected by 16 collectors, all having separate offices. In many cases these offices are not even situated within the ward in which the taxes are assessed. The school taxes have to be paid at the school administration building. The general city and poll taxes and the water rates are payable at the office of the city treasurer at City Hall. They become due at different dates, thus necessitating two or more attendances. A citizen holding property in each ward of the city has to pay taxes to 19 different people. Every citizen has to pay taxes to at least three different collectors. It is entirely within the jurisdiction of council to consolidate immediately the collection of city and poll taxes and water rates, as this would need only the passage of an ordinance. The failure of council to make this change is costing the city approximately $5,000 per annum. There is some doubt as to whether school taxes could be collected by the city. The doubt, however, is apparently in favor of the city's doing so. In the event of the city deciding to collect school taxes the due date of such taxes and the date of the imposition of penalties for non-payment should be changed so as to conform with similar regulations relating, to city taxes. The day is probably not far distant when Reading will adopt the methods employed in the more progressive communities where all taxes are collected by one central tax collecting body. This would be a great convenience to the taxpayers. The plan, however, could not be entirely carried out without recourse to legislation. ALL COLLECTIONS SHOULD BE DEPOSITED IN BANKS DAILY The present practice of depositing only a part of each day's collections has been denounced on many occasions in various cities. Au collections should be deposited in the bank day by day. In order that the treasurer may have a fund out of which to cash city warrants for payees having no banking accounts, an imprest fund of say $5,000 should be established. This fund shguld be opened up with one of the banks in the name of the city treasurer. Out of such fund the treasurer could cash all necessary warrants, paying DEPARTMENT OF ACCOUNTS AND FINANCE these warrants into his imprest account and drawing against them as may be necessary. Such a scheme would enable not only the receipts of the treasurer to" be kept under control, but would also enable the imprest fund to be readily checked up at any time. The treasurer would always have to produce on audit either cash or warrants aggregating the total amount of this fund. Taking the cash balances on hand at the end of each of the last 12 months, it has been found that the average cash in the hands of the city treasurer, as per his reports, has been about $15,000 . At the end of some months, however, there has been as much as $60,000 on hand. The sum of $15,000 is probably three times as much as necessary. If the balance of $10,000 had been deposited in one of the banks it would have been earning two per cent, interest. .MULTIPLICITY OF RECORDS IN TREASURER'S OFFICE SHOULD BE ELIMINATED The city treasurer maintains a small library of cash books. A separate water collection book is kept. This is a large bulky volume in which is recorded in sequence of receipt the bill number, name of payor, the location ■of the property in respect to which payment is made, and the amount of charges and penalties paid. This book is totalled daily, the totals being carried forward from the first to the last day of each month. No segregation is made as between flat rates, meter charges, and other miscellaneous ac- counts collected. Another cash book relating to the water department is kept in which receipts as well as payments are shown. The receipts, how- ever, are entered in this book in totals only. Here again, no segregation is made as between the different kinds of receipts and payments. A further cash book is kept to record moneys received on account of the frontage tax levied in respect to water mains. Another cash book is kept in which are recorded the amounts received and payments made on account of city departments other than water. An- other set of cash books is also maintained, one for each house sewer assess- ment ditrict. These books show all particulars of receipts including the amount of interest charges on each quarterly installment. A small cash book is used for recording appropriations, interest, etc., connected with the sinking funds. This record is a combination of cash book and ledger, and contains accounts for all bonds issued. In addition to the above between 40 and 50 ledgers are maintained, one for each of the various general and special funds of the city. Practically all of the above records should be eliminated. In the place of the multiplicity of cash books, two loose-leaf forms are recommended: a register of receipts and a register of warrants and withdrawals from banks. The register of receipts would be used to record all moneys received, irrespective of their nature. This sheet would be ruled to show the book reference to the charge, name of the payor, and the total amount received from each person. The balance of the form would be divided into cash columns bearing headings corresponding to the kinds of receipts which were most numerous; for instance, current taxes would be divided into real estate and personal taxes and poll tax. Taxes of prior years would be shown 308 DEPARTMENT OF ACCOUNTS AND FINANCE in a separate column with a space at the side to show the year in respect to which they were paid. The water receipts would be analyzed into three columns to show flat rates, meter accounts, and permit and miscellaneous receipts respectively. A special column would be provided to show permits, licenses, fines and other miscellaneous revenues other than water. Two columns would be devoted to special and trust accounts, an analysis being made between accounts receivable and deposits. The balance of the columns would be left blank to provide for special receipts of a temporary nature. A space would be left at the extreme right of the sheet in. which to insert the title of the fund to be credited in respect to items not specifically analyzed. A register of warrants and withdrawals from banks should be installed in which to record all warrants signed by the city treasurer. This form should show, in order of the warrant number given by the treasurer, par- ticulars of every warrant; e. g. voucher number, the name of the payee, and the fund distribution according to department code, account number and amount. The other half of the record showing the banks on which such warrants were made payable would be divided into two main sections; namely, general accounts and other accounts. The general accounts would be again sub-divided as between warrants in payment of general city accounts and water accounts. Against each item other than general accounts, the title of the account and the amount warranted would be shown. As many sheets of the two above mentioned forms would be used as might be necessary to record the entire day's business. Some days there would not be sufficient to fill even one sheet, while in the busy season 40 or 50 sheets would be required. These sheets should be used in a holder, some- what similar to a blotter holder, which would be far more convenient than the present bulky cash books. After the cash had been balanced at the end of each day, these sheets could be bound in loose-leaf binders to form a permanent record of receipts and payments. If entries were made on these sheets in the order in which payments were made at the cashier's window, irrespective of the nature of receipt or payment, the present system of having several large books on the desk and making entries in different books according to the various receipts or pay- ments would be eliminated. One loose-leaf ledger should be installed to take the place of the 40 or 50 fund ledgers now maintained in the city treasurer's office. This should be ^posted up daily from the cash statements suggested later. TREASURER'S REPORTS COULD BE GREATLY IMPROVED At the end of each month the city treasurer prepares a typewritten report in detail of all receipts and payments for the month. A balance book, which is written up daily is maintained also. This shows in summary form the receipts and payments and the balances carried from day to day. A copy of this book is submitted to the controller each afternoon at the close of business. A further copy is filed in the office of the city treasurer for the information of the press and the general public. Instead of the monthly reports and the daily balance books and state- ments now maintained or prepared by the city treasurer, one form of daily DEPARTMENT OF ACCOUNTS AND FINANCE 309 cash statement should be prepared. This should be divided into two sections, relating respectively to general city funds and water funds. These state- ments should contain a summary of each day's receipts, arranged under definite classifications. They should show, also, a summary of bank deposits, withdrawals and balances. The bank summary should be grouped to show together all general, reserve and coupon accounts, bond fund accounts, sink- ing fund accounts and special and trust accounts. With such a statement before him, the superintendent of accounts and finance could see at a glance the status of every fund and banking account as well as keep tabs on the nature and amount of each day's receipts. COLLECTION METHODS NEED MODERNIZING The present form of statement of city taxes and the stub tax receipt book do not conform to up-to-date tax collecting methods. The stub receipt book, which is the only office record of taxes collected, necessitates the double writing of every receipt, once on the stub and again on the receipt handed to the taxpayer. This work is all done by hand. The receipts are signed by means of a rubber stamp facsimile of the treasurer's signature. The stubs of the tax receipt book are totalled page by page from the first until the end of the month when they are carried to the cash book. Taxes of all kinds should be prebilled, as suggested elsewhere in this report. Under the proposed system of prebilling taxes and with efficient arrange- ments for handling collection matters during the busiest season, it should be possible to eliminate entirely the long line of patient citizens waiting, in some cases hours, to pay their tax bills. A small expenditure for temporary help and the installation of the methods suggested above would remedy the unsatisfactory conditions which have existed in the past. TAX PREBILLING WOULD ELIMINATE THE PREPARATION OF DELINQUENT TAN ROOKS Sixteen books, one for each ward, have been written up for the use of delinquent tax collectors heretofore. With a tax prebilling system in operation the work of writing up these records would be eliminated. The tax bills could be punched with two small round holes, which could be used for binding receipts in a suitable binder. The city treasurer, at the proper time, would clear his files of unpaid receipts and counterfoils, making an adding machine list, and showing the reference number and the amount of each receipt before turning over the bills to the delinquent tax collectors. Every bill would have to be accounted for sub- sequently by the respective collectors. INTEREST ON BANK DEPOSITS COULD BE INCREASED 50 PER CENT. Under an ordinance passed in 1909 and still in force, council designates the depositories for the city's funds, and it is the duty of the city treasurer to deposit all moneys in such institutions in pro rata proportion to the total sum of the capital and surplus of all such depositories, provided that there shall not be on deposit in any one bank at any time an amount greater DEPARTMENT OF ACCOUNTS* AND FINANCE than 25 per cent, of its capital and surplus and provided further that all such depositories agree to pay two per cent, interest, computed monthly, on average daily balances. The existing ordinance is incorrectly worded, and it could not be carried out to the letter. The banks naturally desire more than the depositing of moneys; they want the average daily balance to be maintained in the proportion indicated, although the ordinance does not require any such condition. Attempts have been made to adhere to the spirit and intent of the ordinance but these have failed in practical applica- tion. Some banks have had on deposit at times only a small fraction of the amount to which they were entitled, while others have had many times their share. The present procedure of depositing the funds of the city with 11 out of the 14 banks doing business in the city is commendable in that it eliminates the selection of depositories through favoritism. The three banks not receiving city funds refused to pay any interest, and they were accordingly excluded from participation in deposits. In the matter of the number of accounts maintained, however, the division of funds seems to have been carried too far. The city is now carrying 54 accounts, as follows : 11 general accounts, with 11 different banks. 12 interest coupon accounts, with 9 different banks. 12 sinking fund accounts, with 9 different banks. 19 miscellaneous accounts, with 8 different banks. It must be admitted that there is no necessity for a city of the size of Reading to carry 54 banking accounts, with a probability that an addition will be made to that number in the near future. It is almost impossible to^ operate any practical banking plan under such conditions. The city has not received in the past nor is it now receiving an adequate return on its deposits, averaging, the year around, about half a million dol- lars. The two per cent, interest now paid on deposits is a comparatively recent "concession". It is only during the last three or four years that the city has received any interest on funds deposited with banks, except in the case of one institution which has paid interest on the city's accounts ever since it has held them. Most of the banks in Reading are paying three per cent, interest on time deposits and savings accounts of private individuals, and there is no reason why they should discriminate against the city. The community has a right to expect the fiscal officer of the city to obtain the best possible rate of interest on the city's funds, and to deposit the funds on such a basis as to preclude any suspicion of sentiment or favoritism to any institution. It is suggested for the better protection of the city that the banks designated as city depositories be required to deposit with the city, as collateral, securities at least equal in value to the amount of the city's funds entrusted to their care. Such collateral should be limited to city bonds or similar first class securities. COMPETITIVE BIDDING FOR DEPOSITS SHOULD BE ADOPTED In order to obtain as high a rate of interest as possible for city moneys on deposit, to avoid the possibility of discrimination which tends to creep in where the depositing of funds is not definitely fixed, and to reduce the 54 banking accounts to a reasonable number, a plan of competitive bidding- DEPARTMENT OF ACCOUNTS AND FINANCE 311 should be adopted. This would place the depositing of funds on a practical, businesslike and equitable basis to large and small institutions alike. The method proposed is accepted as the best practice in all the most progressive cities in the country, and it is daily growing in favor as the only fair means of awarding such privileges. In proof of this contention, attention is called to conditions in other cities. The city of Pittsburgh, under a plan of competitive bidding, is receiving nearly four per cent, on some of its deposits, and four banks in that city pay over three and one-third per cent, on city funds. New York banks, until recently, were paying two per cent, on city 'deposits, but they have already expressed their willingness to pay a minimum rate of two and one-half per cent, on all accounts under competitive bidding. Chicago, St. Louis, Cleveland, Cincinnati, Kansas City, and nearly all progressive cities have adopted competitive bidding, and they are obtaining far higher rates of interest on city funds than Reading. The banks in the neighboring city of Allentown have recently agreed to pay three per cent, on all city deposits. In adopting the plan of competitive bidding, there are certain factors and considerations to which attention should be given. Briefly -they are as follows: A definite maximum should be placed on the amount that may be deposited in any institution. In determining this maximum a basis of ten per cent, of the combined capital and surplus of the bank should be taken. For every additional one-fourth per cent of interest on daily balances over two per cent, an additional two and one-half per cent, of the capital and surplus of the institution should be added up to 20 per cent, of such capital and surplus combined. From the total amount which may be placed in any bank on this basis, a deduction should be made at the rate of one-half per cent, of capital and surplus for every unit of variation above the ratio of one to five between its capital and surplus and the deposits in that particular institution. Correspondingly, an addition should be made of like amount for every unit of variation between its capital and surplus and the deposits below a ratio of one to five. The examples given below show the application of the above principles. BANK A. Capital stock and surplus $1,000,000 Deposits 10,000,000 Minimum basis — 10 per cent, of 1,000,000 $100,000 Rate of interest offered, three per cent., adds 10 per cent of 1,000,000 $100,000 $200,000 Ratio of capital and surplus to deposits I to 10 results in a reduction of five times one-half per cent, or two and one-half per cent 2,500 Maximum limit of deposits ^jp^-^ 312 DEPARTMENT OF ACCOUNTS AND FINANCE BANK B. Capital stock and surplus. ' $1,000,000 Deposits 3,000,000 Minimum basis — ten per cent, of 1,000,000 $100,000 Rate of interest offered, two and one-half per cent., adds five per cent, of 1,000,000 50,000 $150,000 Ratio of capital and surplus to deposits one to three results in an increase of two times one- half per cent, or one per cent 1,000 Maximum limit of deposits $151,000 In adopting this plan no obligation should be assumed to place in any bank the full amount that it is entitled to under the rule, even if funds are available. Moreover, in no case should a maximum deposit of 20 per cent, of capital and surplus be exceeded. A continual watch should be kept on the conditions of the depositories, and adjustments of deposits should be made according to evidence of the stability of the depositories. In order that the city may have the benefit of every safeguard, banks should be given credit for strength and suffer a deduction for weakness. The first deposits should be made in the banks giving the best terms to the city, and the first withdrawals should be from the banks giving less favorable terms. In transferring funds, removal should be made first from the accounts paying the lower rates of interest. Naturally, the city should always endeavor to keep the maximum deposit in the institution offering the highest rate of interest, but safety should not be neglected for the sake of interest earnings. ALTERNATIVE SCHEME OF MAKING DEPOSITS IS SUGGESTED In the event of the banks submitting unsatisfactory bids or imposing restrictions with regard to the payment of interest which would prevent the city awarding the deposits and custody of public funds under a scheme of competitive bidding, it might be necessary to formulate other plans which will be practical in operation and satisfactory to the banks. Such an alter- native plan is suggested below. One bank, to be designated by a majority of the banks in the city of Reading, would handle all the active accounts of the city. It is proposed to limit the active accounts to two in number, namely, general city account and general water account. The bank handling these accounts would be changed at the end of each fiscal period; that is, the first bank designated would handle these accounts until December 21st next. After that date another bank would be designated at the commencement of each calendar year. It is suggested that a list be established, showing the order in which the banks would rotate in the handling of these active accounts, according to their clearing house number. The bank handling these general accounts should not be required to pay any interest on daily balances except when the aggregate balances in the two accounts exceed the sum of $20,000. On all DEPARTMENT OF ACCOUNTS AND FINANCE 3*3 amounts above this sum the bank should pay interest to the city at the rate of two per cent., computed monthly, on such daily balances. The bank handling these active accounts should handle no other city account, nor should daily balances in such institutions be allowed at any time to exceed 20 per cent, of its capital and surplus. All taxes and other revenues collected by the city would be deposited in these active accounts and remain there until the end of each month, when an estimate would be made of requirements of the city for the ensuing month. As soon as the estimate is completed, steps would be taken to transfer the ascertained amount from (to) the active accounts to (from) reserve accounts which would be maintained in all banks in the City of Reading ex- pressing their willingness to pay the city interest thereon at the rate of three per cent., computed monthly, without restrictions of any kind what- soever. These reserve accounts would be inactive in nature. They would be built up as taxes are collected, and they would remain undisturbed until money is required to meet current expenses. This would mean that the accumulation of funds in July of each year would be approximately one-half of the city's annual revenues from all sources; each month thereafter such reserves would be decreased one-sixth, the drafts being made by one check each month. The amount to be deposited, retained or drawn from each bank should be on a percentage basis, according to the capital and surplus of the various institutions in which the city's funds may be deposited. Under 110 circumstances, however, should the balance deposited with an institution exceed 20 per cent, of its capital and 1 , surplus. All other accouits, such as sinking funds and special and trust accounts, should be apportioned between -the banks agreeing to pay the city three per cent, interest on its reserve deposits. FINANCE, ACCOUNTING AND AUDITING NO FACT BASIS FOR FINANCIAL CONTROL It is impossible for council, however good its intention, to administer the government of the city and especially its finances according to the best business methods unless it has a fact basis on which to predicate its actions. The accounts of the city as disclosed by the records in the controller's office contain little information as to financial conditions which would be of use to council. A great part of the difficulty is due to the fact that the persons in charge of the city's accounts and finances are! not men trained in their work. The City Controller is a bricklayer, while the "accountant" does not even under- stand double-entry bookkeeping. Both men are over 60 years of age. Neither possesses proper qualifications for the position he occupies. Their knowledge of finance and accounting is negligible. The books and accounts are kept on a single-entry system under which errors can be made and remain undetected. The information is not so co-ordinated as to render it available for the purposes for which it might be used. The annual report and such other reports as are prepared lack much 3M DEPARTMENT OF ACCOUNTS AND FINANCE of the information they should contain and contain much information which should be eliminated. No proper system of reporting exists. The annual reports contain a mass of data, tables and statements which "have been prepared each year for many years past. No attempt has ever been made to revise the form of statements in order to make them complete or informing. There is no statement which shows correctly and fully the assets and liabilities of the city at any given time or its revenues and expenditures for any specified period. Many of the assets have never been shown on the books. Liabilities amounting to approximately $00,000, incurred prior to December 1, 1913, had not been entered on the books at that date. The principles of accounting and methods outlined in this survey have l>een demonstrated to be sound and practicable by application to other municipal governments and to private corporations. They provide a means of producing information that is needed by administrative officials. NEED FOR CENTRALIZED ACCOUNTING. There is a tendency in some bureaus, especially in the Bureau of High- ways and Sewers, to maintain duplicate accounting records. This is due, to a great extent, to the fact that proper accounts have not been kept in the controllers office. As soon as proper accounting records can be ar- ranged and centralized in the Bureau of Accounts as suggested, steps should be taken to prevent a continuation of the duplication of accounting records in other bureaus. This would eliminate the cost of accounting work now incurred unnecessarilv. METHODS OF FINANCING HAVE RENDERED CONSTRUCTIVE PROGRAM IMPOSSIBLE. Reading's policy with regard to the issuance of bonds has not been wholly sound, and this is the principal reason why the city has fallen behind others of its class. Owing to the failure of the citizens to appreciate the necessity of having a constructive program, there are many things which Reading should have had years ago but which it still lacks. The few improve- ments carried out have been made generally at the expense of proper main- tenance of existing properties. A striking example is afforded by the condi- tion of the streets^ Of the amounts appropriated last year for highway purposes, over $50,000 was spent on new construction work, which left in the appropriation a balance which was only about half the amount neces- sary to maintain the city's streets in fair condition. The endeavor to obtain funds for construction work out of current revenues can never become effective in Reading while the tax assessments are so unequal and the amount required to meet the current cost of administration, operation and mainte- nance, and fixed charges on bonds demands even more than the ten-mill tax levy affords. This state of affairs is not of recent origin, but it has become more acute in the last few years owing to the cumulative effect of such a policy. It is essential that the proper maintenance of properties already held by the city be a first charge on its revenues, and that no revenues be used for DEPARTMENT OF ACCOUNTS AND FINANCE 315 new construction work until ample provision is made for the maintenance of present properties. If the revenues are all required to meet current operation and maintenance charges, it is obvious that construction or devel- opment work can be financed only by means of bond issues, FINANCING OF PUBLIC IMPROVEMENTS NOT WELL DEFINED Reading has no well-defined plan for financing public improvements. It is just as important to prepare a budget covering expenditures relat- ing to the construction or acquisition of city properties as it is to establish an annual tax levy budget to provide for current operating expenses. The preparation of a bond budget would enable the comparative importance of the city's needs to be more clearly appreciated. It would disclose to both Council and citizens the improvements immediately necessary as well as those desirable, the estimated cost thereof, and the funds available for such purposes. The necessity for bond issues could be brought home more forcibly to the electors by this means, and the difficulty of getting their assent to further borrowing would be materially reduced, if not entirely eliminated. The trouble experienced in financing improvements in the past has been due in great measure to lack of confidence in the administration. If such matters were brought before the public in such a manner that they could see for themselves exactly what was contemplated, it is felt that the senti- ment now existing against bond issues would disappear. The issuance of new series of bonds so greatly needed for highway construction and other work would also assist the sinking funds by providing an interest-paying investment which would produce double the income now obtained. BOND AND COUPON REGISTERS WELL KEPT BUT NOT UP-TO-DATE. The City Controller maintains a series of scrap books in which can- celled bonds and paid coupons are pasted. These records are well kept, although at the time of making the survey they were not up-to-date. Many hundreds of coupons which were stated by the controller to relate to a period prior to his incumbency, were found packed away in a cigar box. The controller stated that he did not consider it the duty of himself or his subordinates to complete the records of previous administrations. It was noted, however, that all the coupons and such bonds as had been redeemed had been carefully cancelled. TAX LEVY IMPROPERLY APPORTIONED. The tax rate as established by ordinance does not show properly the apportionment of taxes. Under the Clark bill separate levies should be made (1) for general purposes and (2) for interest and sinking fund install- ments on bonds and for improvements. Owing to the fact that the water bonds were issued on the strength of the city's credit, and a clause inserted in these bonds making it mandatory to levy a tax rate to meet the interest and sinking fund charges thereon, it has been necessary each year to add approximately one mill to the city tax rate for this purpose. This makes 316 DEPARTMENT OF ACCOUNTS AND FINANCE the millage for debt service charges one mill higher than it should be, but a corresponding decrease is made in the millage for general purposes by crediting the amount paid on the water bonds as a miscellaneous revenue of the city. The result is a tax levy that does not reflect the true state of affairs. If the plan adopted by practically every other city had been adopted in Reading, the interest and sinking fund charges on the water bonds would have been made a first charge against water revenues, with the city reve- nues merely pledged as collateral in the event of the water revenues not being sufficient to meet these bond obligations. The interest and sinking fund clauses in future water bond issues should be amended accordingly. APPROPRIATION RECORDS D.O NOT DISCLOSE ESSENTIAL INFORMATION. The appropriation ledger, so called, is merely a summary of receipts and disbursements by months that incidentally shows the total warrants charged against each appropriation. Separate sheets are maintained for each appro- priation account. The appropriation entry books (or ledgers, as they should be called) and the methods of operating them are badly in need of revision. While it is desirable that the appropriation ledgers be balanced at the end of each month, there is no necessity for ruling off the appropriation accounts each month. Such procedure is a waste of time. The form of appropriation ledger is fairly efficient though it could be somewhat improved in- arrange- ment. No appropriation account shows encumbrances in respect to orders issued. Contracts executed, however, are charged against appropriations. Under any proper system of appropriation accounting it would be necessary to record all encumbrances against the respective appropriation or fund account. A new form of appropriation ledger which would take the place of the two records above should be designed and installed as soon as possible. PROPER STATEMENTS OF APPROPRIATION BALANCES SHOULD BE ADOPTED. Loose slips, called "balance sheets," submitted to Council from time to time, show by departments the particulars of expenditures certified against each appropriation and the balance unexpended. The slips are small, very likely to get lost, and do not disclose all significant information. Contracts, certified are treated as expenditures but no reserves are shown for open market orders uncompleted. A special form of statement of appropriation balances should be devised and installed which would show the amount of each appropriation as modified to date, the total vouchers charged against appropriations, the unexpended balance of appropriations, the reserves for contracts and open market orders and the unencumbered balances of appro- priations. The head of each bureau should be furnished with a copy of that part of the statement which relates to his bureau while complete copies should be submitted to Council by 'the Superintendent of Accounts and Finance. DEPARTMENT OF ACCOUNTS AND FINANCE 317 TAXES SHOULD BE PREBILLED. Reading, unlike most cities of its size, issues but few tax bills. These are mostly to real estate agents and to taxpayers who own a considerable number of properties or to non-resident taxpayers who have to remit their taxes by mail and necessarily have to ascertain the amount before this can be done. The prebilling of taxes is strongly recommended, as this would obviate the writing up of the treasurer's tax duplicate by hand and at the same time produce bills and register schedules which would subsequently form tax ledgers. A great saving would be effected by the adoption of these methods. Before the billing can be made really efficient, prebilling cards should he designed and installed. These should contain spaces in which to insert the ward, block and lot numbers, and the street address of the respective premises. They should permit also the insertion of particulars as to the occupancy of the premises and the making of a note where property is exempt from taxation. Plenty of space should be provided in which to show the name of the owner, as this may change from time to time. The body of the card should be ruled to show, say 20 years of tax valuations, columns being provided for the total tax valuation and the amount of the tax each year, the balance of the card being available for any notations which it may be necessary to make from time to time. The tax prebilling cards would form the record from which the prebilling could be done year by year. These cards, however, would not need to be written up every year as are the tax duplicates under present conditions, but could be de- signed to last at least 20 years. It is recommended that the tax bill to be installed be prepared in tripli- cate. The original copy of the tax bill would form the receipt ultimately to be issued to the taxpayer. The duplicate copy of bill would be used for purposes of accounting control in the Bureau of the Treasury and in the proposed Bureau of Revenue Control where it would be posted to the tax register schedules. The triplicate copy of bill could be used as a memoran- dum or advice to taxpayers of taxes payable. The register schedule, which is practically a fourth copy of a bill, but in ledger form, should be so designed that it could be used as the tax ledger. All that would be necessary to accomplish yiis end would be to provide columns on the schedule to show the date of payment and the amount paid, and, in addition any adjustments to or cancellations of the original amount of taxes. CHARGES FOR WATER SUPPLY ON FLAT-RATE BASIS SHOULD ALSO BE PREBILLED. A system of prebilling, almost identical with that outlined above in respect to taxes, should be designed and installed to control the charges for water supplied on a flat-rate basis. If this were done it would eliminate entirely the present water rate ledgers which have to be written up every three years and -over which it is impossible to exercise accounting control. Water-rate prebilling cards, somewhat similar to those to be used for taxes, should be prepared to control water rates. These water-rate cards, in the majority of cases, will last at least 25 years, few, if any, changes being 3i8 DEPARTMENT OF ACCOUNTS AND FINANCE made after the original installation of fixtures. These cards, however,, should be drawn to show every change made in any rate and references indicating where the fullest details of changes and the reasons therefor can be ascertained. Such cards should contain the ward, block and lot number and, in addition to street address of the property supplied, also the name of the owner of the premises and ample space to permit the recording of changes in ownership. Space should be provided in which to indicate the names of persons to whom bills are to be forwarded if not to the owner.. Provision should be made for significant information as to the number of fixtures by means of columns across the card and further columns should be provided to show the charge for the billing period either semi-annually or annually as may be decided. Further provision should be made for the recording of the dates on which the supply is turned on, shut off, etc. From these cards the water bills and register schedules would be prepared in exactly the same manner as described under the prebilling of taxes. PROPER METHODS OF REGISTERING ORDERS SHOULD BE ADOPTED. The only record of orders issued is the stub in the order book written up in the office of the City Clerk. A proper register of orders should be devised and installed immediately. This should show the order number, the date the order was issued, and the number of the requisition as a result of which the order was issued. It should show also the name of the vendor and the nature and amount of the order. The department code and account number should be shown also when the functions and activities of the city and proper classification of accounts are established and coded. Space should be provided for the subsequent insertion of the number of the invoice or bill received so as to show when an order has been filled and to pre- vent duplicate billing and payment. Such a record, if installed and properly operated, would afford the basis for establishing reserve accounts to show the liability of the city on Uncom- pleted contracts and open market orders. STANDARD FORMS OF INVOICES COULD BE MADE MORE EFFECTIVE. % The standard forms of invoices in use are good, but they could be improved. It has been the custom to require these invoices in triplicate. The forms lack proper certification. It is suggested that a new form of standard invoice be devised and installed. This should be required in original and duplicate only. The original copy of the invoice should be forwarded with the goods or to the department for whom the services were rendered while the duplicate copy should be forwarded to the Bureau of Accounts at City Hall, either on the same day as the goods are delivered or immediately after services are rendered. The front of the invoice should be used entirely by the person supplying the goods or performing the services while the reverse side of the sheet should be reserved for use of city departments. The reverse side should contain certificates as to the receipt of goods, the performance of services or the expenditure of money and should be signed by the person having knowledge of the facts and ap- DEPARTMENT OF ACCOUNTS AND FINANCE 3*9 proved by the head of the bureau. A second certificate on every bill should be signed by the superintendent in charge of the respective department. The back of the invoice should also show the department code and account numbers of the various appropriations out of which the claim is payable, the amount chargeable against such fund, as well as the classification of the expenditure for expense accounting records. ACCOUNTS PAYABLE SHOULD BE REGISTERED. There is no proper method of registering accounts for payment. A form of "register of accounts payable" should be devised and installed. This could be made to combine on one loose-leaf sheet a register of in- voices, vouchers and warrants. The essential information to be recorded would be the number of the order, the number of the invoice, the date of the invoice and of its registration, the voucher and warrant number, the name of the claimant and nature of the claim, the department code and account number of the appropriation out of which it is payable, and the total amount of the account payable. This register should also show the distribution of such total amounts by general appropriation funds, capital or bond funds, sinking funds, and special and trust funds, distinguishing between city and water accounts. SYSTEM OF WARRANTING VOUCHERS SHOULD BE REVISED. The drawing of a warrant for every bill followed by the drawing of a separate check to liquidate each warrant is an unbusinesslike and costly wav of handling a simple matter. It is suggested that a form of "voucher warrant check" be devised and installed. This should be so, designed that it can be prepared on the typewriter and thus save much of -the time now wasted in drawing up warrants and checks by hand. Under such a scheme it is not necessary to draw more than one warrant each month for any individual or firm, no matter how many bills they may render to the city. Such a form woufd be prepared in duplicate at one operation and would show the dates of the various bills to be vouchered and paid, the invoice number, particulars of the claim, as well as the amount of each invoice. The form would permit of these particulars being detached by the claimant and retained by him so that he might know exactly which of his bills were being paid by the city. The lower half of the warrant would be perforated so that it might be torn off and thus form a check. It would primarily be a warrant on the City Treasurer signed by the Superintendent of Ac- counts and Finance. This would be made payable at a given bank by the City Treasurer and after signature by that official would be turned over to the payee who would handle, it in exactly the same manner as an ordinary clieck. On the reverse side of the duplicate form proper certificates should be printed. The first certificate, containing all the essential clauses, should be signed and dated by the accountant while a certifiiate as to audit should be signed and dated by the City Controller. The back of the form would also show an endorsement to be used for filing purposes. A summary showing fund distribution, by department code, account number and amount, should be shown on the warrant in order to comply with legal requirements. 32Q DEPARTMENT OF ACCOUNTS AND FINANCE The four different warrant books now maintained in the office of the City Controller are unnecessary and should be discontinued. READING HAS NO PROPER GENERAL LEDGER. The city has a "general ledger," but it is improperly named. It con- tains only accounts relating to the care of highways, repairs to paving of street railroad area, repairs to water meters, and other subordinate records. Proper general and subsidiary ledgers should be designed and steps should be taken immediately to analyze and complete the present records so that the necessary ledgers may be installed as soon as possible. The uses and purposes of a general ledger are (i) to make available, in a single record, all the facts necessary to inform those in administrative control concerning the true financial conditions of the city and the results of operating its various functions and (2) to obtain financial control over the accuracy of all departmental and detail accounting records and reports. In order that business transactions may be summarized and promptly and accurately reported, there should be two groups of accounts maintained in the general ledger — one relating to proprietary transactions and the other to funding operations. The first group should show what the city owns, what it owes, and what the results of its operations have been, expressed in terms of revenue, expense, surplus or deficit. The other group should show resources available and appropriations or authorizations to incur lia- bilities against such resources. Reading's books and accounts do not meet these requirements except in a partial way which renders them useless for all purposes of financial or administrative control. A saving could be effected by standardizing the rulings of the general ledger and the various subsidiary ledgers. It is suggested that a standard form of debit and ( credit ledger sheet as well as an analytical ledger sheet be established. These could be used for the proposed general ledger or any other purpose required. They should be in loose-leaf form so that they could be made up in any manner desired. It is recommended, however, that after the sheets forming the new general ledger are settled and com- pleted, the loose-leaf sheets on which such accounts are written up be bound in permanent form. MISCELLANEOUS RECORDS NEED REVISION. The special fund ledger contains practically all accounts of importance except those relating to appropriations. It is an ordinary double-column ruled ledger and is not particularly well adapted to its purpose. The ma- jority of the accounts kept in this ledger should be in a subsidiary ledger and should be controlled by one account in the general ledger. The claim register contains a record of uncollected taxes, water rents and similar items handed over to the City Solicitor for collection or lien action. Some such record as this will have to be maintained even under the new system. The present form, however, will have to be considerably improved before it can become part of any proper accounting system of the city. DEPARTMENT OF ACCOUNTS AND FINANCE The record of improvements and assessments against property owners is a fairly good record, though it has no footings and is only balanced once each year, namely, at the end of the fiscal period when the unpaid items are extracted. It should be under control at all times. SUITABLE SYSTEM OF COST RECORDS SHOULD BE ESTABLISHED. With a view to securing information essential to the control of efficiency of departmental forces, a suitable system of cost records should be estab- lished. Considerable time would have to be devoted exclusively to the design of such a system and to the writing of a tentative procedure govern- ing the use of forms, etc. The objects of the proposed cost system would be as follows : i. To ascertain the total and unit cost of each class of work performed 2. To show the quantity of each class of work performed. 3. To show separately the three main elements of expense entering into the cost of each class of work, namely (a) labor charges; (b) material charges; (c) plant and equipment charges. 4. To show comparatively the cost of performance for each group of workers. 5. To secure, by interpretation of this data, information as to the efficiency of performance by departmental forces, thus facilitating adminis- trative control. 6. To show, when taken in conjunction with records of current condi- tions, the adequacy of service rendered to the public. 7. To permit a determination of the point beyond "which it will be undesirable, from an economic point of view, to continue maintenance work, or in other words, the time when replacement must be contemplated. 8. To provide data on which departmental budget estimates may be based. PURCHASE, STORAGE AND TESTING OF SUPPLIES AND MATERIALS PURCHASING METHODS ARE ANTIQUATED. The present methods of purchasing are neither economical nor business- like. They are not conducive to proper competition. The Water Department now buys its own supplies, while the majority of the other city departments have their supplies purchased through the City Clerk's office. Employees in the various departments bring in requests, often on rough scraps of paper. Such requisitions are unofficial and are not signed or approved in any way. Instances have been noted of persons walking into the City Clerk's office and orally stating their requirements to the assistant in charge, without leaving any written evidence of their request. The per- son acting as purchasing agent has no means of ascertaining the necessity for such requests. The methods of issuing an order are out of date. The orders* are in book form, a stub being bound in the book. Particulars of the order are 322 DEPARTMENT OF ACCOUNTS AND FINANCE duplicated on the stub. With a loose-leaf form, which could be used in a typewriter, the original and duplicate could be made in one operation and in one-fourth of the time now taken. There is a legal restriction still in existence which prescribes that all purchases necessitating the expenditure of more than $50 shall be made under formal contracts. Compliance with such regulation is not strictly enforced, the law being circumvented frequently by splitting up an order until the component parts are under $50 each. The minimum of $50 is too low for practical purposes and should be materially increased. Proper safe- guards, however, should be provided to compel competitive bidding. CENTRAL PURCHASING AGENCY RECOMMENDED. The plan recommended contemplates the centralization of the purchase of all supplies required by every city department, bureau, board or office under the city government, and the appointment by Council of a properly qualified purchasing agent. A purchasing agent necessarily exercises con- siderable power, and the appointment should be made only after ample deliberation. If he is watched and controlled, he is more likely to be effi- cient and careful than inefficient and wasteful. Unwatched, he may remain efficient, but he is liable to become corrupt. Encouraged to be careless, he has abundant opportunities both for inefficiency and corruption. It is desirable, therefore, that this officer should be independent of all other city departments. He should be, however, closely in touch with the Department of Accounts and Finance. With the City Controller as auditor, exercising an independent check over all city departments, there would seem to be no reason why, for the sake of economy, the purchasing agent should not be located in the office of the Superintendent of Finance and Accounts, and placed under the supervision of that official. The certification of requisitions as to funds available for payment would require the purchasing agent being near the accountant if unnecessary delay is to be obviated. The purchasing agent thus located would be in a position not only to handle requisitions and issue orders but also to keep all necessary records of supplies and materials. He would also be available for keeping all other property records of the city. The' work outlined above could be handled by one capable man. This would be an economical arrangement, as all departmeits united have a very great purchasing power, which individual departments have not. CENTRAL PURCHASING WOULD REMEDY MANY EXISTING DEFECTIVE METHODS. Centralizing the purchasing of supplies for all departments would entail 110 extra expense and would — 1. Accomplish the unification of all purchases so that the city would be able to buy, on an annual contract basis, through a single purchasing agent, at minimum unit prices, the estimated gross quantities of supplies required for a year, instead of purchasing those requirements as it does now, through two or more purchasing agencies on open market orders cov- ering short periods. 2. Correct the present method of purchasing supplies without competi- tion by compelling the purchase of all supplies either by formal contract or DEPARTMENT OF ACCOUNTS AND FINANCE 323 by informal tender upon what is known as the '"bulletin board" method of securing competition. 3. Enable a daily control to be exercised over all orders for supplies m advance of the execution of such orders so that there would be a com- prehensive and efficient administrative supervision over all supplies purchased. 4. Reduce the number of vouchers covering supplies due to the unifica- tion of purchases for all departments with a consequent reduction of work in the Bureau of Accounts. 5. Broaden competition by unification of quantities and the obtaining of bids for gross quantities required in the same trade lines in a single contract, instead of requesting bids for supplies covering a dozen different trade lines in a single contract as at present. NEED FOR PURCHASING SUPPLIES SHOULD BE DEFINITELY ASCERTAINED. No attempt has been made in the past, by analysis or otherwise, to ascertain the requirements of the various departments as a basis for budget appropriations, or in order to obtain estimates for annual supply contracts. It is suggested that immediate steps be taken to analyze the purchases of the city for the past year, both as to kinds of supplies, material and equip- ment purchased and the departments for which the purchases were made. This would furnish a basis for estimating future requirements. SUGGESTION FOR IMPROVING PURCHASING METHODS No requisition on the purchasing agent should be considered until the head of the bureau has certified to the necessity for purchase, and the requisition has been approved and signed by the administrative head" of the department. All supplies and materials required by city departments should be pur- chased as far as practicable, under annual contracts, containing proper pro- visions permitting installment deliveries either monthly, or as may be •desired. Before bids are called for by the purchasing agent, the accountant should certify that sufficient unencumbered funds are available in appropriate ac- counts for the payment of the liability to be incurred By .such procedure the exceeding of appropriations can be controlled. Quotations should be sought and bids obtained from at least three dif- ferent concerns in every case. All quotations should be . filed for future reference. A bulletin board in the bureau of supplies, on which lists could be dis- played of all articles which the city desired to purchase, would soon produce desirable competition. The bulletin board should be used, also, for the publication of lists of bidders and prices bid. Such publicity would soon obtain the confidence of vendors as well as ensure a ''square deal*' by awarding orders to the lowest responsible bidders. The purchasing agent should be provided with a separate telephone, not to enable him to issue oral orders as has been done in the past, but to give him ready access to vendors and to expedite the business of his office. Only in cases of emergencies should orders be given by telephone. 324 DEPARTMENT OF ACCOUNTS AND FINANCE Stationery supplies, blank books, printed forms, etc., are now bought without proper competition. The forms are drawn up without any attempt at standardization, and the binding of books is, in nearly every case, far too expensive. At least half of the present printing bill would probably be saved if proper attention were given to these details. Many of the forms now have to be matle out in duplicate, one being in book form and the other on a separate sheet. This involves double writing. The adoption of loose-leaf forms of two or three standard sizes and the standardization of loose-leaf binders would enable much of the work to be done on typewriters, and in less than a quarter of the time now taken. The printing of the proceedings of council is a matter of some im- portance, as the cost is approximately $2,000 a year, but no control seems to have been exercised over the printing thereof. For instance, nearly all of the budget ordinances have been spread out so that they occupy about one paragraph over a page; as the paragraph is paid for as a full page, such procedure practically doubles the cost of printing. The prices paid for printing seem exorbitant. Standardization and competitive bidding on all such matters would effect immediate economy. STANDARD PURCHASING RECORDS SHOULD BE INSTALLED A loose-leaf form of official orders to vendors should be installed. Orders should be made out on the typewriter so that sufficient copied can be pre- pared for issue to persons interested. The original copy of each order should be furnished to the vendor. Another copy should be prepared for the use of the purchasing agent. A third copy should be made for the use of the department of accounts and finance for bookkeeping and auditing purposes, and a fourth copy should be forwarded to the consignee as his authority to receive the goods. An official form, to be prepared in duplicate, should be provided for the use of all departments in requisitioning supplies through the purchasing agent. This also should be loose-leaf in design. There should* be a standard form of proposal for bids which should in- clude standard instructions for bidders and also a standard form of bid sheet. Requirements should be classified according to the trades concerned, and separate schedules, standard as to form, should be prepared for each different trade. A list of responsible bidders should be prepared, so that the city may be protected from unscrupulous dealers. No bids should be received except from bidders who qualify and are listed. % Official quotation sheets should be provided on which responsible bid- ders could quote their prices for supplies, material, or equipment required or for services to be rendered. CARD INDEX FILES AND CATALOGUE LIBRARY WOULD BE HELPFUL A card index should be kept of all purchases showing the number, date, and nature of the order, the name of the vendor, the point of delivery, and the quantity, price and total cost of purchase. An interesting statement could be DEPARTMENT OF ACCOUNTS AND FINANCE 325 prepared from the orders issued within the last few years if such a record had been maintained. Purchases should be indexed both by description of article and by name of vendor, so that proper control may be obtained over the issuance of orders and the superintendent in charge of the department may readily ascertain from whom the city is buying. The indexing of pur- chases according to kinds of articles purchased will provide the purchasing agent with a source of valuable information; namely, an alphabetical index of supplies purchased, a directory of the lowest bidders, and a complete record of prices. A catalogue library should be established and properly maintained, so that the purchasing agent may be in a position to assist heads of bureaus in the preparation of proper requisitions, and also that he may be provided with ready reference on purchasing matters. THE PREPARATION OF STANDARD SPECIFICATIONS SHOULD BE EXTENDED At the present time a large proportion of the city's purchases are made with little or no regard to the kind, grade, style, etc., of supplies, material or equipment best adapted to particular needs. Most of the persons who requisition material have no idea of standarizing their requirements, with the result, that requisitions are made as fancies dictate without any thought of obtaining the best possible article at the lowest possible price. The specifications already standardized are very few. Standardization of supplies, though a formidable title, merely means selecting the most serviceable supply, and often the least expensive, for every particular need, and then requiring the delivery of that supply under enforce- able specifications. Such procedure would bring about not only economy in price, but also economy in serviceability, for the city would be assured of the delivery of suitable goods of uniform quality. Standards should be established and definite specifications prepared for all supplies regularly required. Standard specifications are essential, not only to efficient buying but to efficient auditing as well. All supplies, materials and equipment which are susceptible of being accurately described should be purchased only on standard specifications, and adequate chemical or physical tests should be made of deliveries to determine whether they conform to such specifications. Standardization of supplies might best be accomplished by a small com- mittee composed of the superintendent of accounts and finance, the pur- chasing agent, and the chemist in charge of the standard testing laboratory, br their representatives. The committee would, of course, advise with all department and bureau heads and with manufacturers and dealers, as might be necessary, and in establishing standards would take into consideration original cost of articles as well as their relative efficiency. COAL SHOULD BE PURCHASED ON THE "B. T. U." BASIS Reading now buys thousands of tons of coal each year, always on poor specifications or, in many cases, without any specifications at all. The most up-to-date method of purchasing coal is on the British Thermal Unit basis. This method has been adopted by the United States government 326 DEPARTMENT OF ACCOUNTS AND FINANCE and by all the leading cities of the country. Coal so purchased has to con- form to certain standard specifications, which require a minimum number of heat units per pound of coal and limit the percentage of moisture and ash.. The amount to be paid for coal delivered is determined by laboratory analyses and heat value tests. The economic value of this method has been proven in New York City, where over $220,000 was saved during the first year after its adoption, The superintendent of the Reading Water Department has been consider- ing the advisability of this method of purchasing coal. It should be adopted by all city departments and especially by the board of education, which is a large consumer of fuel. The necessary analysis and testing of coal samples could be undertaken by the central standard laboratory, recommended elsewhere in this report. A CENTRAL STOREHOUSE SHOULD BE ESTABLISHED The orders now issued to vendors are for small quantities. This is due in some measure to the lack of proper storage facilities. With a central storehouse there is no reason why purchases should not be made in larger quantities for the city as a whole, and wholesale prices secured. A central storehouse would warrant a smaller inventory and hence a smaller investment than would be necessary if stocks of supplies and material were scattered in the storehouses of departments. The purpose of storehouses is to provide a supply of material or articles to meet current demands at short notice, so that activities may be carried on without interruption or privation. The cost of maintaining a supply of stores is a large item, and, therefore, the stores carried should be confined to such articles and such quantities as are necessary to proper operation without in- convenience or loss resulting from delay in securing supplies that are cur- rently required. The inspection of supplies and materials delivered is a matter which apparently has received very little attention. This is probably due to the fact that, under existing conditions, material is delivered to many points throughout the city. The establishment of a central storehouse where all supplies could be delivered and kept until needed would permit of a more thorough inspection. Standard specifications and the best methods of pur- chasing will not insure the city getting what it orders, unless they are followed up by efficient inspection and, whenever necessary, by laboratory tests. CONTROL OF SUPPLIES AND MATERIALS EXTREMELY LAX No department has proper records covering the receipt and consumption of supplies and materials. The water department keeps certain stores records, but these are incomplete. Standard forms and procedure should be established to control this most important matter. No goods should be received except by a consignee duly authorized by an official order to receive. No supplies or materials should be issued from a storehouse except upon a requisition duly signed by some authorized person. The storekeeper in charge of supplies and materials should keep proper stock records. Steps should be taken to obtain immediately DEPARTMENT OF ACCOUNTS AND FINANCE 327 an inventory of all supplies, material and equipment on hand at a given date as a basis for the establishment of a perpetual inventory system. A suitable stores ledger should be maintained either in the bureau of supplies or the bureau of accounts showing the quantity, kind and value of all material received and issued and of the quantity on hand at any time. The store- keeper should be required to furnish a periodical report of all goods received and issued by him, and the persons to whom goods are issued should be required to account therefor through a proper system of consumption records. By such methods only can proper control be obtained over supplies and materials. An efficient system of stores records is invaluable at budget- making time to ensure proper appropriations being made. LABORATORIES SHOULD BE CENTRALIZED The water department already has a testing laboratory at the executive office on Eleventh Street, and there is another at the sewage disposal plant. The city engineer has a laboratory for the physical testing of highway and sewer construction material, and the food inspector also has adequate labor- atory facilities at City Hall. The health authorities are badly in need of proper laboratory facilities. The location of laboratories in various parts of the city is neither economical nor efficient. A standard testing laboratory properly equipped could make all necessary analyses and tests for every department. Such a laboratory might be divided into two main sections, namely (1) chemical and bacteriological and (2) physical. Exception, however, might be made with advantage in the case of the sewage disposal plant, which is situated on the outskirts of the city. Tests have to be made here every two hours, and transportation of samples to a central laboratory would tend to decrease the efficiency of the plant. The central laboratory should be in charge of a director who would be responsible for the testing of all materials used in every kind of con- struction work, including materials used in the laying and re-surfacing of streets; the testing of samples of all kinds of supplies purchased, especially fuel; the chemical, bacteriological and physical tests of the water supply; the analyses required in connection with sewage disposal, and photometric tests of street lighting. Such a laboratory, if well conducted, would save its cost many times over each year by ensuring to the city full value for money expended and in safe- guarding the health of the community. TIME AND SERVICE RECORDS PAYROLL METHODS WRONG IN PRINCIPLE From an administration point of view it should not be possible, under a proper system of financial control, for one individual To originate the record upon which a payroll is based, To certify to the correctness of a payroll, and To handle the cash and pay off the employees whose names appear on a payroll. 328 DEPARTMENT OF ACCOUNTS AND FINANCE Such conditions, however, exist in Reading. They need immediate atten- tion. Such practices are dangerous, and in several cities have led to "Padding"' of payrolls. The superintendent of finance and accounts or his representative should be held responsible for the accuracy of all payrolls, and the city treasurer or one of his assistants should act as city paymaster. A standard form of payroll should be devised and adopted for use in all departments. The addressograph machine, now being used for only a few hours each month in the water revenue office, should be utilized to facilitate the preparation of payrolls. PAYROLLS ARE NOT PROPERLY CERTIFIED The present forms of payrolls are not properly certified. In some cases the head of the department signs a certificate that the payroll is correct, but this is perfunctory and practically A-alueless. Payrolls should be prepared from properly certified time reports. The manner in which payrolls are certified is one of the most, important features in payroll making. Certificates should be signed only by persons having knowledge of the facts. The person under whose direction the payroll is prepared should certify: That the amounts stated on the payroll are properly chargeable against the respective appropriation or bond accounts. That no part of the several amounts charged on the payroll has been included or paid on any previous payroll. That there is on file evidence that each person named on the payroll was duly elected, appointed, or promoted to the position indicated. That there is on file a duly certified report covering the time stated on the payroll. That the payment of such charges will not exceed the unencumbered balances of the respective appropriation or bond fund accounts. That the payroll is correct. The payroll should be audited by the city controller before payment. As auditor he should be- required to sign a certificate containing the following provisions: That the payroll has been examined and found correct as to calculations, and extensions, and that all the certificates necessary for a complete audit were furnished. That the amounts stated on the payroll are properly chargeable against the respective appropriation or bond accounts. That the items of expenditure for the period covered by the payroll are not in excess of the amounts expendable. That the evidence contained in the payroll is sufficient to justify the audit and settlement of the payroll for the sum of $ That the warrant for the payment of the payroll is correctly drawn and the amount thereof is properly chargeable against the accounts in- dicated. DEPARTMENT OF ACCOUNTS AND FINANCE 329 STANDARD TIME AND SFRVICE RECORDS SHOULD BE INSTALLED There are several kinds of time reports used by the various city depart- ments in Reading. None is efficient. They are not consistently used in all departments nor by everyone in any department. In many departments there is no record of work performed. The present method of time reporting does not show adequate information regarding the quantity or the nature of in- dividual service. Consequently the basis for distributing time is inaccurate. It is essential that proper time and service records, standardized for all city departments, should be maintained. The introduction of daily or semi- monthly time reports for individuals when not attached to gangs, and for gangs when so organized, would supply the necessary information for securing adequate expense accounting and unit costs, and for establishing efficiency and service records, upon which recommendations, for promotion, demotion, or dismissal could be made. They would provide also an accurate basis for the preparation and audit of payrolls. A summary of the time reports should be prepared and transmitted to the person in charge of payrolls in the office of the superintendent of accounts and finance. Such summaries should be properly certified by persons having knowledge of the facts. The person directly in charge of employees should certify: That the time credited to each person whose name appears on the sum- mary truly, fully, and correctly represents the time such person in- dividually worked with due diligence for the city under his direction in the performance of duties indicated by the titles of their several positions. That such time is correctly summarized from a time record on file show- ing the kind and exact time of service of said persons. That such persons have not, during the period covered by the summary, been assigned to the duties of any other position except as otherwise specifically stated. v That the services of said persons were necessary during the period covered by the summary for the performance of the work of the department in his charge. That the work for which overtime is credited was ordered by proper authority and actually performed. That said persons are justly entitled to receive the salaries or yvages stated on the summary. The head of the division or supervising official should certify: That the persons whose names appear on the summary were employed under his supervision, and that their services were necessary for the proper conduct of the business of the department. That the overtime credited on the summary was duly authorized and was due to (the reason for such emergency work should be briefly stated.) That the distribution of the charges on the summary under the specific appropriation or fund accounts is correct and in accordance with the authorizations. The head of the bureau or other administrative official should certifv: 3.-Q DEPARTMEN T OF ACCOUNTS A ND FINANCE That the certificates of the person directly in charge of employees and of the head of the division or other supervising official have been verified by him in each and every particular. The head of the department should certify: That upon the foregoing certificates made by persons designated by him to make the same, whose signatures are known to him to be genuine,, and to the best of his knowledge, information and belief, the sum- mary is correct. Tli at each person named on the summary was duly elected, appointed or promoted to the position indicated. That the positions and salaries of such persons have been properly established in accordance with legal requirements. SYSTEM OF PAYING CITY EMPLOYEES COULD BE IMPROVED It has been the practice of the city to draw individual warrants in paying employees on a salary basis and to pay the laboring force by means of cash in pay envelopes. The irregular period covered in the payment of laborers and the delay in paying them is quite unnecessary. All employees should be paid semi-monthly and within two or three days of the end of the half- month. The drawing of individual warrants for the payment of salaries causes much needless work, as each warrant has to be separately entered and registered. It is recommended that only two warrants be drawn, one for all city employees' salaries and wages and one for all water employees', and that pay checks be drawn for each employee. The payment of all city employees by means of pay checks would un- doubtedly reduce the work connected with the payment of salaries and wages, especially if labor-saving devices such as the addressograph and check writing machines are employed. If the pay -check method were adopted it would obviate the handling of cash at City Hall on pay days and would also save the time of the paymaster going around to the headquarters of the various activities in the field. In addition the time of employees now wasted in assembling at headquarters to meet the paymaster would be saved for the reason that the foremen in charge of the various groups of men could have transmitted to him the pay- roll and pay checks of all individuals under his supervision. The foreman could hand the checks to his men and take their receipts on the payroll sheets at the beginning or end of a day's work without loss of time to the city, returning the signed payrolls to the paymaster in due course. The use of pay checks, however, is open to one more or less serious ob- jection; namely, the trouble of cashing them. As many city employees have no banking accounts the argument is advanced frequently that they will resort to a saloon to cash them. This is partly true, though the investigation of actual conditions in other cities has proved that this is not carried on to so great an extent as is alleged. In the course of time the city pay-checks would be looked upon as cash in every business establishment and would be accepted just as readily by the baker or the grocer as by the corner s? 1 oon keeper. DEPARTMENT OF ACCOUNTS AND FINANCE 3^ SALARY STANDARDIZATION NO PROPER BASIS FOR SALARIES PAID There is need for standardization of salary rates throughout the depart- ments so that each employee in the city service will be paid according to service rendered. Salaries once fixed, in the past, have usually remained so fixed until political influences have accomplished a change. The persons having charge of the fixing of salaries have known little or nothing of the services required of employees and were, therefore, not qualified to fix the compensation according to the quality and quantity of work to be performed. Such conditions are largely responsible for the present lack of ordination between salaries paid and services rendered which tends to destroy the incentive of city employees to do efficient work. Notwithstanding the large amount of money involved, the number of employees, and the importance of the work they are assigned to perform, no definite basis has been adopted for determining the rates of salary which should be paid. That the city's employees are not paid according to the value of services rendered is evident. Some are paid too much, and some not enough. The fact that employees receiving a high salary may be per- forming a minimum of work and still continue to receive promotion from year to year is discoujraging to employees who work continuously and well, but receive no promotion for merit shown. Under such conditions ambition is soon lost, Almost any of the city departments may be used for purposes of illustration. Take, for instance, the remuneration of the city treasurer, which is approximately four times that of any other city official, and yet the duties of the city treasurer in Reading, as in most other cities, are probably less arduous than those of any other official. The granting of increases irrespective of individual efficiency is as bad as leaving the position at the present various rates of compensation. In neither case is there standardization of salaries. HOW SALARIES MAY BE STANDARDIZED To standardize salaries and remove existing defects, the following steps should be taken: i. A definite classification should be made of all positions, based on an independent investigation of the duties actually performed by each employee. 2. A definite scale of salary rates should be worked out, based upon the nature of the duties of each position. 3. All titles should be readjusted to conform to actual conditions. 4. The classification of positions, rates of compensation and revised titles thus determined upon should be adopted as standard by council. 5- Certain factors should be decided upon for efficiency ratings in each bureau, adopted as standard, and monthly reports of such ratings should be transmitted by each bureau head to a committee, formally authorized and established to supervise such matters. 6. All promotions or changes in salary rates should be based on efficiency records compiled from such monthly reports and be made in ac- cordance with the standard scale of salarv. 332 DEPARTMENT OF ACCOUNTS AND FINANCE The accomplishment of the above would secure far greater service returns for the many thousands of dollars disbursed as salaries to city employees. By affording an incentive to honest effort, the city would be able to offer a career to those contemplating public service instead of merely offering them a temporary "city job" as at present. Moreover, it would place Reading in the same rank with New York, Chicago, Pittsburgh, Milwaukee, and many other progressive cities which have completed or are now engaged upon salary standardization. SALARIES SHOULD BE ADJUSTED ONLY ONCE A YEAR The best time to consider salary adjustments is when the program of work and expenditure for the ensuing year is under consideration. This is at budget-making time. It is, therefore, recommended that all salary ques- tions be considered but once a year, when the budget is being prepared, in order that department heads may not be under constant pressure from employees seeking opportunities to obtain increases and that council may be in a position to consider the salary of each employee with reference to the salaries of all other employees. A definite plan of compensation should be established. EMPLOYEES' TITLES ARE MISLEADING Not only are no real efficient records maintained, but there is absolutely no standardization of titles. The latter are almost as diverse as the individual employees. Some of the titles held by employees are misleading in that the nature of the service they render does not correspond with their titles. DISCRIMINATION IN THE PAYMENT OF LABORERS IS MARKED Notwithstanding an existing ordinance under which every laborer working for the city is entitled to be paid 25 cents per hour, there are many em- ployees doing laborers' work who do not receive this rate of pay. Most of these are in the water department, where certain of the laborers are paid only \j l / 2 cents per hour, while oilers and firemen attached to the Maiden Creek Station are paid 20 cents per hour. The fact that some of these men are required to work 12 hours a day is no reason why their pay should be reduced so as to keep it about equal to that of men working ia hours a day at a higher rate of pay. The injustice of such methods is further marked by the fact that all the temporary labor hired by the city is paid for at the rate of 25 cents per hour. Surely the men who are rendering suffi- ciently good service to warrant their retention on the city's payroll are worthy of pay equal to that granted to temporary employees. CIVIL SERVICE ALL CITY EMPLOYEES SHOULD BE SUBJECT TO CIVIL SERVICE REGULATIONS. The need for civil service tests for clerical positions is just as great DEPARTMENT OF ACCOUNTS AND FINANCE 333 as it is in respect to positions in the police* fire and other bureaus. It becomes more than ever desirable, it the proposed new system of account- ing is to be adopted and efficiently operated. Men cannot be picked up at any time and placed in charge of technical accounting work requiring considerable training. This training can best be obtained by bringing in new men and placing them in the junior positions from which, as they acquire knowledge and experience, they can be promoted to more responsible work. Such procedure, however, cannot be carried out under any system of political spoils To get the right type of men to fill these positions it is necessary that there be some security in their tenure of office. The lack of training is apparent on every hand. Matty of the men holding positions under city government are untrained for the work they are performing, with the result that few of them are interested in their work and practi- cally all of them lack ambition. Such conditions are only to be expected when it is considered that they never know from day to day when their resignations may be called for and their positions rilled by other encumbents. If all applicants for positions were examined as to their fitness for the office which they sought, many of the misfits now apparent could be obvi- ated and the services rendered to the city would be improved in every way. Once, however, a man is obtained who is fitted for the position, there is no reason why he should not be retained in office during good behavior. Proper civil service regulations would effect this result. Every employee should be subject to removal on charges made in writing and proven. Reading might well follow the plan now in operation in Philadelphia, where the civil service commission, after determining as far as possible, the fitness of candidates by written examinations, sends those who have qualified to a number of business men to be interviewed by them. The latter then report to the commission .their impression as to character, per- sonality and general fitness. Every business man knows that he would never undertake to appoint even a clerk with only a written examination as a basis. APPOINTING EMPLOYEES FOR A TERM OF YEARS NOT ALWAYS GOOD POLICY. The wisdom of Council in creating an office and then appointing an incumbent, often without proper qualifications for the position, for a period of several years, in many cases beyond its own administrative term, does not appear to be fair to the succeeding administration. It is suggested that, after a position is established, the incumbent, for the payment of whose salary provision is made in the annual budget, should be carried on the payroll only for the period covered by such budget, that is, from year to year. Or, in other words, the inclusion of compensation for employees in the annual budget should automatically carry them over from one fiscal period to another subject to good behavior and efficient work. Civil ser- vice reform will protect the civil servant. 334 DEPARTMENT OF ACCOUNTS AND FINANCE MISCELLANEOUS ANNUAL REPORTS NEED STANDARDIZATION. The last published annual reports of the several departments contain much unimportant detail. On the other hand they fail to disclose much information which should be available, if the value and effectiveness of the work and services rendered by the various units of city government are to be properly measured. The statement showing the quantity and kind of work performed and the cost thereof are not accurate nor can they be until such time as proper methods of apportioning the cost of labor, material, supplies and equipment are installed and operated efficiently. It is suggested that the next annual report issued be carefully edited and that much of the minor detail contained in previous reports be elimina- ted. If this pruning process is properly applied, it should be possible to publish a city year book containing the reports of every department and all other valuable data relating to the city and its government in one vol- ume of handy size. The reports of the water and other operating departments especially need pruning. There are sheets and sheets of tables which in many cases could be condensed to one statement and become far more enlightening in the process. However, until the records in each department are revised and proper expense and cost accounting systems installed, the preparation of accurate, effective and informing reports and statistics is impossible. The reports now issued have no underlying basis of fact and proper reports and ac- counts cannot be produced until this information is first established. If these suggestions are adopted it should be possible to reduce the cost of printing the annual reports of the various departments, especially if care is taken to order only sufficient copies to meet actual needs. In the past there has been a considerable surplus of reports which have been wasted. The cost of binding the annual reports should also be given serious consideration. Much money is now wasted on expensive and unnecessary binding. ADVERTISING COSTS EXCESSIVE AND UNNECESSARY. The present method of inserting notices as to the collection of taxes in all newspapers every day for three consecutive months costs between $300 and $400. Similar notices in regard to water rents are inserted in all news- papers every day for one month each half year. This costs at least another $200. It may be advisable to advertise the fact that taxes and water rents are due and payable, but it does not seem necessary to continue this for so lengthy a consecutive period. At least $400 a year might be saved if this matter were intelligently handled. A BUREAU OF INFORMATION AND COMPLAINTS SHOULD BE ESTABLISHED. . A bureau of information and complaints is needed at City Hall for the DEPARTMENT OF ACCOUNTS AND FINANCE 335 convenience of the public and to facilitate the giving out of general informa- tion relating to the cicy's affairs. It could be made also a central point for the receipt and disposition of complaints. Under existing conditions this might logically form part of the City Clerk's office where such matters could be handled fairly easily owing to the not very onerous duties of the City Clerk under the new commission form of government. It is urged that the establishment of such a bureau should be given the fullest possible publicity through the newspapers in order that citizens may be informed of the facilities at their disposal. Similar bureaus in other cities have been the means of smoothing out many difficulties and points of friction between citizens and city officers. OFFICE ARRANGEMENT AND EQUIPMENT COULD BE CON- SIDERABLY IMPROVED. Office arrangement whereby the City Controller and his assistant have to work in the darkest of all the offices in City Hall should be remedied at once. Accounting work involves considerable eye-strain even under the best conditions, and to expect efficient work where the accounting force has to work by artificial light all the time is to seek disappointment. The Bureau of Accounts and the controller's office should be moved over to the south side of the building, and the offices now occupied by them should be used by other officials whose duties keep them away from City Hall most of their time. In nearly all the offices there is a lack of sufficient and efficient equip- ment. In the office of the Water Clerk there is an addressograph and an adding machine, both of which are several years old. If efficient systems of accounting control are to be installed and the water office is to become part of the proposed bureau of revenue control, it will be necessary to improve this equipment. In any event, motors should be installed so that the machines could be run by electricity instead of by hand. If the new systems of revenue control are installed, the purchase of a large number of card and other index files will be necessary. It is suggested that all such equipment to be purchased should be of steel and of uniform pattern so that when the new City Hall materializes this furniture will pre- sent a uniform and up-to-date business appearance and can be used in the proposed new building. Proper facilities for filing papers should be provided instead of the present loose methods of keeping papers in dozens of cupboards and drawers where they can seldom be found when required. If this suggestion is car- ried out and steel files are purchased gradually, Reading ultimately may have a central filing system of which it may be proud. Weiler's Printing House, <» 440 Court St., Reading, Pa. PAMPHLET NUMBER TEN READING, PENNSYLVANIA Report on a Survey of the BOARD OF EDUCATION Prepared for The Chamber of Commerce of Reading by the New York Bureau of Municipal Research APRIL, 1914 REVIEWED. JANUARY 1915 10 CENTS CONTENTS Page Summary of Criticisms and Constructive Suggestions 339-342 Criticisms and Constructive Suggestions on Administration, 'Main- tenance and Records 343-346 Educational Administration and Records 346-358 Care of Buildings 358-359 Financial Records 359-367 BOARD OF EDUCATION— SUMMARY. 339 BOARD OF EDUCATION SUMMARY OF CRITICISMS AND CONSTRUCTIVE SUGGESTIONS GENERAL ADMINISTRATION. The small school board of nine members tends towards prompt dispatch of business, minimized routine and increased activity by individual members. The committee system makes it possible for each director to participate in at least two varieties of school work. The organization of the board makes special provision for enforcing t'he compulsory attendance law and for the medical inspection of school children. The difference in educational needs of boys and girls is recognized in the organization of separate high schools. The provision of separate supervisors for lower and upper grades is an effective means of meeting the peculiar problems presented by the primary and advanced grades of the school course. Special provision is made for the supervision of instruction in music, drawing, manual training, household arts, physical culture and for giving attention to the needs of pupils who are not normal. Small libraries in all grade-rooms and well organized high school libra- ries make it possible for all pupils to extend the range of their reading interest beyond the text-book covers. EDUCATIONAL ADMINISTRATION. There is opportunity for improving the method of handling corre- spondence, office routine, particularly clerical matters, and requests for information which needlessly interrupt the work of office heads and clerks. A more efficient clerical organization is needed to deal with detail matters and relieve higher officials. Provision is made for keeping Reading's school authorities currently informed as to the progress of events and the trend of discussion in educational matters throughout the country in that one of the supervisors is delegated to the task of scanning educational journals and marking articles which are submitted to the superintendent for distribution among the supervisory and teaching staff. The further services of a clipping bureau and the assignment of this work to a clerk would improve this important phase of school administration. The teachers of Reading fail to appreciate by sufficient use the excellent library provided for them in the administration building. There is need of a more systematic organization and more efficient clerical service in performing all functions relating to the gathering of 34o BOARD OF EDUCATION— SUMMARY. statistics from the schools, assembling and presenting statistics to the school board and superintendent and in making it possible for the school authori- ties to study and use statistics to the further advantage of the schools. Information concerning the schools is gathered from time to time as requests are received, thus needlessly interrupting the regular work of teachers. All necessary data should be assembled systematically at the be- ginning or end of the school year or term and filed for use as needed. As an important industrial centre, with many of its citizens employed in knitting and in the iron and steel mills, Reading does not provide, as many cities do, sufficient vocational schools, departments and part-time trade instruction for employees on a scale commensurate with local opportunity. A vocational council has recently been appointed and is working along the lines of studying pupils' vocational aptitudes and encouraging those who have left day-school to attend night-school. EDUCATIONAL RECORDS. For want of sufficient efficiency records there is a lack of definite data to support supervisors' statements of opinion regarding the quality of teach- ing done in the schools. Because of lack of definite records of teachers' work, opportunities are lost of bringing the methods and results of conspicuously successful teachers to the attention of the weaker members of the staff; this now depends upon the personal suggestion of the superintendent. Failure to require detailed reports and records of teachers' visits to other schools prevents the results of observation and experience of visitors from reaching the entire force. Through teachers' councils and a principals' council opportunity is afforded for bringing complaints and suggestions to the attention of the superintendent. - An annual suggestion list is received by the superintendent from each teacher; this list is, for the most part, merely an enumeration of supplies and books wanted with only an occasional suggestion for the betterment of existing conditions; the ratio of the supply and book requests to actual sug- gestions could be reversed in order to make this list correspond to its name. Teachers' class registers, as supplied by the state, require needless re- writing of teachers' names and clerical work; the forms are both incomplete as to information supplied and are unnecessarily cumbersome; the state authorities require certain forms which the local school authorities agree should be simplified. The practice of indicating an attendance item by leaving a blank space in the register, an antiquated .custom suggested by the State Department, leads to confusion and inaccuracy in attendance statistics. At the time of the survey the method of transferring attendance data from school reports to central office record books required unnecessary work; the superintendent discarded the large office record book about November, 1914, substituting for it separate sheets of smaller and more handy size. In the spring of 1914 the superintendent inaugurated a vocational council which includes in its plan the prevention of premature withdrawal from school; this is a step towards a much-needed campaign against losses from school. Reports as to the number of pupils who are too old, too young, or of BOARD OF EDUCATION— SUMMARY. 341 normal age for their respective grades fail to represent actual facts. Over age should not be regarded as synonymous with retardation (as in the case of many cities including Reading), and should not be tabulated without reference to the length of time pupils have been in school, to the previous failures of pupils still in school and to the pupils who have left school. Teachers have no adequate desk room or filing cabinets for keeping record books and cards; the superintendent contemplates arranging for special spaces and drawers in desks to effect this improvement. CARE OF BUILDINGS At the time of the survey: In January, 1915: Dry cloths, instead of oiled or Oiled clothes used in dusting, dampened clothes were used in All have been removed during summer dusting. of 1914. Sweeping mixtures are not used in Installed in all schools during summer most of the elementary schools. of 1914. Antiquated flushing devices were Remedial experiments in progress in used in some toilets. all buildings. Sanitary drinking fountains provi- ded only in newer buildings. Classroom temperatures noted rang- ing from 65 to 80 degrees. FINANCIAL RECORDS. The value of the budget estimates would be increased if tlie estimates for salaries and for general expenses were presented with the same amount of detailed supporting data as are the estimates for repairs and supplies. Estimates should show the nature of the contemplated service, together with the cost of like or similar services in previous years. Payroll procedure could be much facilitated by the introduction of labor- saving mechanical devices and other improvements in the secretary's office. Collection of school taxes with other municipal taxes would result in a considerable reduction of expenses. A record of current prices kept by the secretary would result in econo- mies in the purchase of supplies. The forms of requisitions now in use puts a premium on the purchase and withdrawal of supplies not urgently needed. A purchasing system simi- lar to that in use by the City of Reading is recommended. 342 BOARD OF EDUCATION— SUMMARY. The installation of a proper card record of supplies used in each school would do away with two sets of books now kept by the superintendent of supplies. The accounts kept by the secretary should be classified (i) on a func- tional basis, showing cost of administration, supervision, instruction, opera- tion, maintenance and capital acquisition; and (2) by schools so as to show the cost of running each school. Established classifications should be followed in practice. BOARD OF EDUCATION. 343 BOARD OF EDUCATION CRITICISMS AND CONSTRUCTIVE SUGGESTIONS ON ADMINISTRATION, MAINTENANCE AND RECORDS GENERAL ADMINISTRATION THE BOARD OF SCHOOL DIRECTORS. Reading's public school system is under the control of a board of school directors of nine members, constituting the board of education. There are four standing committees, each of three members, as follows: Teachers and instruction Supplies Property and sanitation Finances and accounts At the head of the work of instruction is a superintendent of schools who is assisted by a general supervisor and a corps of seven supervisors. One oversees the work of teachers in the lower grades, one is responsible for the work of the upper grade teachers, while the others have direct charge of music, drawing and writing, practical arts, cooking and physical education. The two high schools and the new Douglass and Weiser elementary school each have a principal responsible to the superintendent of schools. In the 44 other elementary schools, one teacher designated as "principal" is nominally in charge but without relief from teaching. A normal training school provides for the special training of candidates for teaching positions. The enforcement of the compulsory attendance law is the duty of an attendance officer. A medical inspector, assisted by three assistant inspectors and four nurses, has the task of detecting and treating the physical defects of school children. A clerk directly responsible to the superintendent of schools works in all the offices in the administration building. He prepares regular and special reports for presentation at board meetings; gat'hers information for the superintendent of schools; sends out notices from the superintendent to the schools; assembles special information in answer to written requests; performs stenographic services; receives callers, and attends to the tele- phone. The general supervisor and other supervisors assist in this general clerical work. While the educational affairs are attended to by the superintendent of schools and the officers responsible to him, business matters are handled by officers directly responsible to the board, although the superintendent participates actively in all business matters. 344 BOARD OF EDUCATION. The care of buildings and the purchase of buildings, equipment and fuel is under the direction of a superintendent of buildings, who is responsible for the work of fifty-six janitors. The secretary keeps the accounts, acts as purchasing agent, and serves as clerk to the committee on finance and accounts and the committee on property and sanitation. He is assisted by a stenographer who is also en- gaged in the work of keeping attendance reports. A woman superintendent of supplies is responsible for the care and distribution of supplies. The duties of the treasurer and of the tax receiver are sufficiently indicated by their titles. ADMINISTRATION ORGANIZATION HAS FEATURES MAKING FOR EFFICIENCY. The small board facilitates school administration and lessens the chances for cumbrous routine. It is easier to call a meeting of nine men than to assemble twenty or more. Clerical work is more simple and economical when notices and correspondence can be sent to a smaller number of persons. The assignments to committees are such that each member serves on two of the four committees. This tends to prevent a directors experience and knowledge being limited to a single phase of school work. By means of an attendance officer, aided by a system of card records, special administrative provision is made for the enforcement of the com- pulsory attendance law. By means of a separately organized laboratory and medical staff special administrative provision is made for the medical inspection of school chil- dren. The organization of the high schools provides a system of secondary education distinctly specialized and separate from the grammar school sj'stem. A recognition of the divergent needs of boys and girls is found in the organization of the high schools into entirely separate institutions for boys and girls. Reading's policy of separate high schools is not here advocated as the only means of meeting this problem or even as the best way to solve it. The final solution of 'high school co-education for Reading is clearly beyond the province of this report. Separate supervisors are provided for primary and upper grade work. This enables each supervisor to keep in more intimate touch with her particular problem than is possible in organizations in which the responsi- bilities of one supervisor are distributed over all grades. Special supervisors are provided for music, drawing, manual training, household arts and physical culture. This provision tends to keep teachers up to the mark in subjects easily neglected. Provision has been made for giving special attention to children who are mentally defective or otherwise not normal. The regular teacher is thus relieved of responsibility for such pupils as are a hindrance to the rest of the class, and tliey are placed where their peculiar needs can be served most effectively. BOARD OF EDUCATION. 545 Elementary school rooms are provided with reference books for sup- plementary reading. Eighth grade rooms are equipped with revolving bookcases. Both high schools have well organized libraries, with a modern cataloging system. With respect to the features enumerated above, the organization of the Reading school system as such is adequate. It must be remembered that adequate organization does not necessarily insure adequate results. For -example, while this report comments favorably upon the fact that special classes have been provided, it expresses no opinion as to whether those classes are properly conducted or whether they produce the desired results. To determine t'he efficiency of this work, a survey of the teaching itself would be necessary. The present organization of Reading's school system has its short- comings as well as its commendable features. Attention is invited to con- sideration of certain particulars wherein there is opportunity for improve- ment. Visitors, telephone calls and letters calling for information constantly interrupt office heads and employees. Superintendents of schools throughout the country, interested in their own problems, are in the habit of sending questionaires broadcast over the land in the hope of receiving a sufficient number of replies to enable them to draw valid conclusions. The usual practice of any superintendent receiving such a questionaire is to drop his regular work, look up the information himself and send it away on the original question sheet. When another request for the same information comes in sometime later from some other superintendent, it becomes necessary to repeat the performance. Such is the case in Reading. In addition to written requests, frequent telephoned requests and callers interrupt the regular work of the super- visors and clerks at the administration building. Nothing prevents callers, who come to ask for trivial information, from wandering into offices and wasting the time of comparatively high-salaried officers. The entire method of handling information in the administration building should be put upon a businesslike basis. A simple system of recording and preserving infor- mation collected for one inquirer should be installed, so as to accumulate data from which answers may be obtained for any subsequent requests. An employee should be stationed to receive and direct callers, so as to reduce interruptions and intrusions to a minimum. The spirit in which this recommendation is made gives full consideration to the fact that every school employee should be at the service of any parent, taxpayer, or other citizen who is interested in any matter affecting the public schools. The public should be educated, however, through the press and by circular letters, to an appreciation of the fact that it is to their interest to save the time of the public's high-salaried officers from petty intrusions. A special clerk should be provided in the central office organization to keep the school authorities currently informed as to educational matters throughout the country. The superintendent of schools keeps a scrap book of clippings relating to Reading and clippings relating to board meetings are preserved in envelopes, but there is no adequate clipping file of general educational news. Because of the want of such a file the school authorities are laboring 34g BOARD OF EDUCATION. without the aid of a vast fund of educational information for the dissemina- tion of which several of the country's newspapers are publishing special pages. The superintendent states that teachers subscribe to educational maga- zines on the average of one and one-third periodicals to each teacher; also that it is one of the duties of one of the supervisors to read through edu- cational magazines, mark articles and arrange them for distribution among teachers. It would ,greatly enhance the worth of what is described as the present practice, if the scanning of the periodicals could be done by a trained clerk instead of a supervisor, and if some of the more valuable articles read by the teachers could be filed at the central offices where all might benefit from the observation and reading of the teacher who hap- pened upon something valuable. It is important that this phase of school work by teachers and officers alike receive the greatest possible encour- agement in order that they may have the benefit of the latest word in country-wide educational movements. The great strides taken in modern educational effort, as well as the extent of school experimentation, make it impossible for t'he supervisors and teachers in any city to keep informed without the aid supplied by those various sources of information. The superintendent states that board mem- bers as well subscribe to these educational magazines. With this beginning it would be an easy matter to give Reading the sort of provision for as- sembling out-of-town information which every up-to-date school system should have, and in respect to which Reading is at the present time far from modern, even though marked articles may be found in the offices. It should be noted that the superintendent has made a large number of surveys on special branches of school work, which have been printed from time to time and distributed locally and throughout the country. Reading schools in consequence have received frequent comment in educational journals. TEACHERS' LIBRARY. An excellent teachers' library is maintained at the administration build- ing, but the value of this library would be greatly increased if the organiza- tion provided an attendant at such times as teachers are free to use a library. At present, two employees state that the teachers' use of the library amounts to practically nothing. EDUCATIONAL ADMINISTRATION AND RECORDS The organization of the work of gathering information from schools is inadequate. The central office requires information from teachers for reports to the superintendent of schools, board of education and the state and national bureaus of education. Practically all the information necessary for these reports could be furnished at the beginning of the term by means of a general information card giving the information about a pupil customarily required for school reports. BOARD OF EDUCATION. 347 As now conducted, the work of gathering information from schools not only imposes an unnecessary burden upon teachers, but also makes needless work for supervisors and clerks at the administration building. RESPECTS IN WHICH ADEQUACY OR INADEQUACY OF OR- GANIZATION IS AN OPEN QUESTION. In addition to the instances of positive adequacy and inadequacy men- tioned above, attention is invited to a few phases of Reading's school organization, where a more detailed investigation would be required to determine definitely whether the present organization is adequate. ELEMENTARY SCHOOL PRINCIPALS. Each elementary school is under the direction of a teacher who is nominally the principal. These teachers are not charged with the task of going from room to room throughout the school day to inspect the work of teachers and to give such criticisms, counsel or such other aid as may be required. Except for signing certain school reports and receiving visitors, "principals" are regular teachers who devote practically all of their time to their own classes. For the number of teachers in Reading, most other cities would em- ploy, in addition to the supervisors, about twenty principals as the admin- istrative heads of schools. As a matter of organization alone, Reading might be regarded as having an inadequate staff to look after the efficiency of teachers' work. But this is by no means certain, since in other cities principals commonly spend a large share of their time in clerical work and even the time which they do spend in the classrooms is interrupted so much as to minimize the value of the help the teachers actually receive. An analysis of a typical "principal's" time program shows how little posi- tive help is given to the teaching staff. This state of affairs presents an interesting problem, which may be stated as follows: Are Reading's teachers doing as good teaching zvithoilt principals as teachers elsewhere are doing with principals? This can only be determined by a survey of the actual classroom work of a majority of Reading's teachers — an investigation not undertaken in the survey here reported. CLERICAL WORK AT ADMINISTRATION BUILDING. Still another phase of the organization presents a problem which re- quires further investigation to determine whether it is adequate or inad- equate. This is the question as to whether the present corps of employees is adequate to the work required. During the examiner's stay in the administration building it appears that there was an apparent overburdening of the office staff of the superintendent of schools, so far as time is con- cerned. A complete analysis of all office work should determine whether this is due to the amount of work required or to the manner of performing it. The work of the board of education should also be analyzed to deter- mine whether too much of the time of the directors is being spent on 348 BOARD OF EDUCATION. clerical details instead of on the larger questions of administrative policy. There are indications of inefficiency in the clerical and supervising staff which should deal with many matters that now occupy the time and energy of the superintendent and members of the board. This condition calls for a definite and a more adequate organization for all routine work at the administration building. READING HIGH SCHOOL ALUMNAE ALONE ELIGIBLE FOR APPOINTMENT AS TEACHERS. The system of appointing new teachers presents another interesting problem. All grade teachers must be graduates of the Reading Girls' High School, though they may receive their professional training elsewhere. Whether the results of this system are satisfactory can only be deter- mined by a survey of the actual teaching work done by Reading's teachers in the classroom. Whatever the situation, the board and the superintendent of schools should know it. This is an additional reason for keeping records of teachers' efficiency, which are detailed and complete enough to be of value. The work of upper and lower grade teachers should be studied as two separate groups to determine the effect of selecting upper grade teachers from those who have been successful in the lower grades. MORE COMPLETE AND DEFINITE TEACHERS' EFFICIENCY RECORDS NEEDED. The grade supervisors go about from school to school passing judgment upon the work of teachers, making memoranda, but no adequate permanent records as to the results of their observations. This means that the question of efficiency of the entire teaching force is determined largely upon the basis of the unrecorded opinions of the supervisors. Teachers' records on file show the date of appointment and the different schools in which the teachers have taught. Attention is called to the fact that a definite record of the work of each teacher is necessary, because the entire worth of a public school system hinges upon the character of the teaching. For, if it is excellent, it can accomplish results in spite of many handicaps; but, if it is inefficient, it will undo all that can be done by the best planned organization, the most alert a^id energetic school board and the most complete and up-to-date equipment. The school directors and superintendent of schools are without sufficient information as to what kind of teaching Reading's teachers are doing without principals in the schools and what different results, if any, are accomplished through principals in other cities. Items of information contained in existing records under the heading "remarks," were the exception rather than the rule and even when they appeared were very indefinite. Such as these records are, the superintendent states that he examines them once each month. If a record of teachers' work is worthy of the superintendent's time each month, it is a pity not to have such a record contain a sufficient amount of definite information to be of actual use, which cannot be said of Reading's present records. BOARD OF EDUCATION. 349 Score cards of teachers' efficiency should be used by supervisors and blank forms should be installed to show the results of all supervisory visits by the general and other supervisors. Once assembled, all these criticisms of teachers' work should be made the subject of a half-yearly examination of the entire teaching situation by the superintendent of schools. The teachers would learn from the results of this study exactly what are their short- comings, for the criticisms of the entire term and of the whole school year should be placed in each teacher's hands regularly as a matter of current routine record procedure. One of the supervisors stated that the defects in teaching noted in the course of class-room visitation are recorded in a memorandum book. The supervisor examines these books before a teachers' meeting and discusses the more important forms. Each teacher then takes such admonitions to heart as may apply in her case. In order to secure a definite idea of the value of a teacher's service the following card is recommended as one which has been used in 131 cities in 33 states and in Newfoundland. FAVORABLE COMMENT ON TEACHERS' WORK. An examination of this card will demonstrate that it is a constructive aid to the teacher and supervisor and not a device for recording adverse criticism. In fact, the comments and facts resulting from any systematic record of the quality of teaching would by no means yield only unfavorable comment. It is important that the work of teachers who are conspicuously successful in certain subjects or in use of certain methods, be made a matter of definite record. No such special record is kept; and without it countless opportuni- ties to help struggling teachers by example as well as precept are lost. Reading teachers should be classified into three groups: 1. Conspicuously successful. 2. Generally satisfactory. 3. Unsatisfactory teachers constituting special problems for supervisors. A special, though by no means complicated set of records, should be kept of the work of each class of teachers. It is particularly important that the work of successful teachers be brought to the attention of weaker teachers. RECORDS OF TEACHERS' VISITS SHOULD GIVE TO ALL THE BENEFIT OF THE EXPERIENCE OF ONE.. As is the custom in all progressive city school systems, teachers have the privilege of spending one or more days of the school year in classes taught by their colleagues in the same city or in neighboring cities. The benefits of this practice are self-evident to all alert educators; and the greatest good resulting from such visits is the impression or inspiration unconsciously received by the visitor, and the satisfaction felt by the hostess at having helped a fellow-member of the profession. It is also clear that the results of such visits cannot be fully expressed in the form of any mere tabulation and that the justification of the time spent in visiting cannot be determined by the usual formal report of the visitor. It is equally clear that in the course of such visits observations are made, methods are discovered, books and 35Q BOARD OF EDUCATION. articles of professional interest are mentioned, and numerous facts are ascer- tained, all of which would be as valuable to the other teachers as to the one making the visit. The teachers and principals of any large city always have a considerable number of important facts as a result of their visits, and the assembling of this information, latent in the memory of the many members of the teaching force, into an organized statement suited to administrative purposes will always prove sufficiently valuable to justify the time spent in the procedure. Reading teachers make no detailed reports of visits and thus no one is helped but the parties concerned. Blanks should be devised and installed to preserve this information, the value of which cannot be overestimated. Such records show, for example, in one city that 163 teachers saw 341 effective schemes for doing 45 different sorts of school work as follows: Methods used in teaching arithmetic 38 Text-books used (name of author and title given) 28 Methods used in obtaining good discipline 28 Methods used in teaching reading 27 Group arrangement. 21 Methods used in teaching spelling... 16 Phonics 14 Methods used in helping backward children 12 Methods used to arouse pupils' interest , 12 Good methods of questioning 11 Blackboard work 10 Methods used in teaching geography 10 Means of promoting parents' interest 10 Reviews 8 Methods of presentation 8 Preception cards 8 Foreign classes 8 Methods used in teaching grammar 7 Methods used in teaching history 7 Methods used in teaching music 7 Small chairs for younger children 7 Department teaching. ( 6 Individual work 5 Methods used in teaching drawing 4 Shorter hours . 3 Recitations while children remain seated 3 Trade schools 3 Various observations 20 Appointe< I Before 1880 n% 1880- 1 889 9 1 890- 1 899 26 1900- 1909 29 1910-1913 25 BOARD OF EDUCATION. 35i TEACHERS' TENURE OF OFFICE.. The teachers of the city have served since the time of their appointment, as here noted: No. of Teachers Years of Service 38 Over 33 32 23-33 92 13-23 102 2-12 88 0-3 With all due appreciation of the inestimable value of long years of service, an investigation should be made to determine the number, if any, of teachers who are superannuated and no longer able to give efficient service. The superintendent states that in 1914 he had this situation well in hand by reason of it being made possible to retire such teachers. TEACHERS' SUGGESTIONS FOR THE BETTERMENT OF THE SCHOOLS SHOULD BE RECORDED AND GIVEN CONSIDER- ATION. A questionaire on books and supplies sent by the superintendent of schools to teachers invited suggestions on any matter pertaining to the schools. Questions were asked as to the books needed, preferred, disliked and not used. Aside from twenty requests to have one session in stormy weather, only three teachers out of three hundred had any suggestion to offer about actual teaching or class management. In a system having no school principals it is essential that teachers be on the alert to see needs, and to exercise initiative in making sugggestions. TEACHERS' ERRORS IN ENGLISH SUGGEST NEED OF SUPERVISION These expressions were noted in a cursory reading of the teachers' suggestions referred to above: "I ask for the additional copies of the above so that there are at least one copy for every two pupils." "I only have eight copies of Nature Myths." " and therefore, if allowed to do so, should like the Carolyn Brook as Reader instead next year." This suggests the possibility that additional supervision might safe-guard teachers against the use of faulty English, and that periodical examinations might not be out of place. TEACHERS' CLASS REGISTER SHOULD BE REVISED The present class register, as prescribed by the state, should be sup- planted by a new form designated to overcome the following present defects: Pages are so arranged that the teacher is obliged to re-write the names of all pupils every 30 days No provision is made for: Pupils' Addresses 352 BOARD OF EDUCATION. Parents' names School or town from which new pupils enter Special comment or remarks The book is too large in number of pages as well as in size The superintendent states that, in the schools, he inspects the registers with one of the supervisors once each year. The registers should be called in to the central offices midway in the term and should be examined in detail by clerks for errors, omissions and other defects, and the results of this analysis should be presented to the superintendent. It is this type of inspection which is not done and which is well-nigh impossible, it is true, in Reading's offices as now organized. OPPORTUNITY FOR USE OF MECHANICAL DEVICES TO SAVE CLERICAL LABOR. The present form of class register is prescribed by the state, but the fact that an unwieldy book has been prescribed does not necessarily mean that the state authorities would not consent to the use of a more convenient and practical form of book, provided no attendance facts were omitted. The superintendent has obtained permission from the state education department to simplify this book, and by cutting a portion of the leaves to dispense with the re-writing of the children's names every month. The register should be reduced to an &V 2 by n-inch size so as to lit into an ordinary correspond- ence file. A much more definite record of the circumstances leading up to the withdrawal of pupils from school and of the disposal of pupils leaving a given class as well as of the school's efforts in behalf of the children needing special attention, should be provided in the revised register. In the matter of all recording and accounting work in schools as well as in the administrative offices, there is a wide field for the reduction of clerical labor by means of mechanical devices such as: a. Loose leaf records b. Cards which make possible by different sorting, the assembling of several sorts of information from one original record c. Addressograph machine d. Duplicating machine e. Adding machine f. Special forms of binders g. Several blank forms combined into one record A particular type of class register could only be recommended after a thorough revision of all educational records and after an agreement with the state authorities. ATTENDANCE RECORDS SHOULD BE SIMPLIFIED. The procedure employed in recording the enrollment and attendance of pupils is designed along lines which should convey practically all the informa- tion needed in school administration. In several important details, however, the present practice could be greatly improved. Printed directions from the state department instruct teachers to leave records blank if the pupil is present and to mark all absences with a single stroke. A blank space should BOARD OF EDUCATION. 353 never be considered as a record. Furthermore, all absences should not be indicated by the same kind of a mark, but by symbols showing the causes of legal absences, and distinguishing between those which are excusable and inexcusable. Attendance figures, at the time of the first survey, were tran- scribed monthly to blanks which were sent to the Administration building, where the data was copied by a clerk into a large and unwieldly book. This necessitated the re-writing of the names of all teachers and school buildings each month. The form in use contained 58 separate columns and the chief clerk had added two. Of these 60 columns, only four were needed for the data required by the state authorities. The remaining items on this sheet were in themselves valuable enough, since they partially recorded with- drawals from the elementary grades and other statistical items, such as trans- fers received, cases of sickness, truancy, suspension, and visits by supervisors and parents. This method was changed in November, 1914, to a more convenient form. This information could be assembled and recorded with much less labor by the further use of pupils' permanent record cards. It is questionable whether it is necessary to record separate data for boys and girls each month in all these statistical reports. PUPILS' PERMANENT RECORD CARDS Individual record cards are kept for all pupils, showing the movements of the pupil from school to school. They are kept in duplicate in the class- room. When a pupil withdraws permanently, one card is sent to the central office with the date of withdrawal and cause indicated if the cause is known. WITHDRAWALS FROM SCHOOL SHOULD BE STUDIED FOR POSSIBLE PREVENTION. According to reports there were (1912-13) in the schools of Reading, 13,664 pupils enrolled, of whom 1,514 left during the year for the reasons given below: Moved 555 Parochial 77 Died 29 Poor health 86 At home 87 Indefinite 38 Work 642 Thus it appears that 4.6% leave to enter employment in Reading, as compared with (917 or) 3.1% in Rochester, N. Y. In Rochester there are five trade schools. It is thus pertinent to ask whether more provision could not be made for pupils who have lost interest in the regular course. It is to be noted that Reading school records specify "work" as a cause of withdrawal. Entering employment is a result, so far as the pupil is concerned, not a cause at all and it should not be so recorded. The first step in the campaign is to ascertain the actual underlying causes such as: Poverty Parental coercion 354 BOARD OF EDUCATION. Incapacity for further schooling Discouragement Indifference to the Opportunity offered by the schools Failure of the school system to provide what the pupil or his parents think he needs At the time of the survey, records did not show the efforts made to anticipate, prevent and redeem losses of this character, although a search through the schools would surely reveal much effort and many ways of combating elimination of which the public knows nothing. It should be noted that, as a matter of statistics, it is misleading and inaccurate to combine in the same list losses due to removals from the city, for which the school is not responsible; poor health, for which the, school may be partly responsible; and entering employment, for which the school may be wholly responsible if the pupil leaves merely because the school does not offer him what he needs. VOCATIONAL COUNCIL In the Spring of 1914, a beginning in this direction was made in the establishment of a Vocational Council. This is a ' most excellent move which should receive all possible encouragement and support, both moral and financial. From the superintendent's description of this council and its program of work, it would appear to be proceeding along right lines. There is still need for more thoroughgoing records of causes that lead up to the pupil's decision to" leave school, and for expert vocational advice to pupils and teachers; there is much room for improving the course of study to include in the regular academic work more information about the sort of careers which are opened by various occupations; there is room for extending this work through the entire elementary and high school course. The pos- sibilities of this vocational council would be greatly enhanced if the members had at their disposal the sort of information about pupils and schools which the most up-to-date records would give and which Reading at the present time does not have for its own use. READING HAS A SPECIAL VOCATIONAL EDUCATION PROBLEM. To counteract the tendency to leave school as well as to attempt to prepare children for the responsibilities of life, many cities have established courses designed to fit pupils for actual trade work. A cursory reading of the course of study brings out the fact that Reading schools do not anticipate the needs of its youth by providing instruction specially designated to help boys -and girls in the particular industries which many of them will enter. This does not imply that Reading schools should necessarily teach knitting or foundry practice, but it does imply that because Reading has these special industries, the schools of Reading should teach what is designed to help young people who will some day be engaged in these trades. Since the original survey short unit-courses in a number of vocational subjects have been established. A complete investigation might well be made here, after the manner of the recent survey of the wood industry and clothing industry completed by BOARD OF EDUCATION. 355 the Rochester Chamber of Commerce. The things which the Reading boy and girl will do in their trades should be set up on one side, the things the schools are teaching, on the other; and then the discrepancies between the two should be bridged by the introduction of Reading features into Reading schools. This cannot be done in a day or in a year, but a beginning may be made at once. A few questions to be determined through such an industrial survey are suggested: What do the youths of Reading do when they leave school In their various occupations, what information do they need as to: Sources of raw material Uses made of finished product Geographical considerations involved Properties of raw materials Trade and commercial history How much and what part of this information do they receive in the schools What further knowledge and better preparation can be given in the regular grammar and high schools How can the regular elementary and high schools make apprentices more valuable to their employers and to themselves The various industrial co-operative school systems of the country might be studied by the Reading school board, e. g., the Cincinnati part time plan, the New York evening trade school program, and the vocational work done in Fitchburg, Mass. The progress of many cities in vocational education has been such in the last two or three years, that no city can properly lay claim to be doing any- thing worth}- of the name of vocational training which has not a definitely organized system of shops, of vocationally applied academic instruction in the regular schools, some actual trade courses in the processes of industry and a program of part time instruction actually working in which appren- tices in employment are released by their employers to receive some instruc- tion in the schools, or in which schooling is brought into the shops. In addition to this the true basis for vocational courses offered by a school system is not the usual line of carpentry and metal work installed as a stock feature of the program, but the agreement with employers to hire a definite number of young people at the future date which marks the completion of the course the school intends to give. For example, in Rochester, N. Y., no vocational courses are offered unless the employers have promised to engage a certain number of apprentices and the registration is strictly limited to the number which the employers have agreed to use. Reading's vocational council should be developed into a definitely organ- ized department of vocational education with its own schools, administrative offices and faculty. OVER AGE The report of the superintendent of schools includes tables showing the ages of all pupils; the number of pupils of each age, and the ages of pupils in each grade. These data are obtained by sending mimeographed blanks to 356 BOARD OF EDUCATION. each teacher to be filled out and returned. A set of such blanks was being sent out at the time this study was being made. Over age should not be regarded as synonymous with retardation (as is the case in many cities including Reading), and should not be tabulated without reference to the length of time pupils have been in school, to the previous failures of pupils still in school and to the pupils who have left school. Reading age figures should be put upon a basis which tells the whole truth. In addition to mis-stating actual facts, the present method of assembling age data is cumbrous in itself and places an unnecessary clerical burden upon teachers and central office clerks. Teachers should not be required to fill out blanks and circular letters throughout the year. The entire statistical system at the administration building and in the schools should be re-organ- ized so as to enable teachers to furnish all necessary information about a pupil at the beginning and end of the term, and to do this without extra labor in connection with her regular enrollment reporting. PROGRESS OF PUPILS THROUGH THE GRADES. The progress of pupils through the various grades, considered as a mat- ter of record, constitutes a striking example of the failure to use a vast amount of information in the possession of the school authorities which has been already assembled. Records are kept showing the number of pupils who are promoted and of those who fail of promotion in each term and in one school year. Individual card records show when each pupil entered a given school or class, and how long that pupil remained in one grade or in one school building. These two classes of important information should be related to each other. At the present time the entire point to such records is lost, because the significant relation between these two sets of figures is not brought out. They should be combined so as to show not merely the number of pupils who fail or the number of schools attended by pupils, but also the rate at which each pupil progresses from the first to the eighth grade, and subsequently through the high school. This can be done readily by the prep- aration of simple age-grade progress charts, shown in the accompanying chart. BOARD OF EDUCATION. 357 PROGRESS THROUGH SCHOOL UNO£f? /JGC AfO/fM/IL OVSff *GF Ov£# P~6£ ' OVfR /T6C • • / Y£PR P/tP/O • • 1 '/zYSPP RAPID • * • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • • # \ppog*css • • • • • • • • • • • • 1 ft YCAfi | • i SLOW j • • • • 1 / YCPfi : SLOW 1 On this chart every child in a given class is located according to the two factors which determine whether or not he needs special attention or help: — (i) his age and (2) the number of terms he has been in school. Children normally enter and complete the elementary grades as follows: Grade Enter Finish 1 A 6 to 6V 2 6V2 to 7 1 B 6V2 to 7 7 to 7V2 2 A 7 to 7V2 7V2 to 8 2 B 7V0 to 8 8 to SV 2 etc. 1 The chart may represent any grade. The pupils of normal age are represented by dots placed between the heavy vertical lines; those one-half year below normal age are placed in the first vertical column to the LEFT of the normal: those one-half year, one year and one and one-half years over age are placed in the first, second and third columns respectively, to the RIGHT of the normal. In the central horizontal column are plotted all pupils who have been in school the proper number of terms to reach or to complete a given grade. Some pupils reach a given grade in less than the normal time, while others require a much longer time to complete the same portion of the course. In the chart dots ABOVE the horizontal normal indicate pupils who have reached the grade in one-half or one year less than the normal time; dots BELOW the heavy horizontal lines indicate pupils who have taken more than the usual time to reach the grade charted. Thus the nine spaces on the chart show: 35» BOARD OF EDUCATION. i. Upper left corner — Young and rapid 2. Upper center — Normal age, but rapid 3. Upper right corner— Old, but rapid 4. Left center — Young, but normal progress 5. Center — Normal as to both age and progress 6. Right center — Old, but making normal progress 7. Lower left corner — Young, but slow 8. Lower center — Normal age, but slow 9. Lower right corner — Both over age and slow TEACHERS' DESK EQUIPMENTS INADEQUATE. In four grammar schools visited, the teachers' desk equipment was inade- quate in the following respects: No special place provided for class register No facilities for keeping pupils' individual record cards; one teacher had the cards tied with string and kept in a closet Small card cabinets should be provided for card records, and cabinets or drawers suited to the size of the various record books, and blanks in use should be supplied. This, however, does not mean the purchase of expensive office furniture. High school principals have up-to-date office equipment. CARE OF BUILDINGS SANITARY DEFECTS The superintendent of buildings and two janitors interviewed stated that no oil or sweeping compound was used except in the two high schools and in the new 18-room elementary school building. Dusting was done with dry- cloths. (In January, 1915, oiled clothes were used.) Two schools, which were visited by the investigators at the time of the original survey, were found to have antiquated and unsatisfactory toilet facilities. The particular type of flushing apparatus in use has been discon- tinued in modern plants and plumbing regulations generally prohibit its use. New and improved plumbing should be instaled in schools equipped with antiquated apparatus. Although toilets were found to be scrupulously clean and odorless they were so dark it was necessary for the investigators to light matches to find their way about. (Since the survey modern toilets have replaced the old ones in all cases.) The superintendent of buildings states that separate cloak rooms are not provided for boys and girls. At the time of the survey paper towels were' used only in the Girls' High School. (They are now used in all schools.) Sanitary drinking fountains were provided only in the Boys' High School. (They have now been installed in all schools.) Pupils throughout the city had individual aluminum drinking cups. The manner in which these cups were actually used should have been investigated BOARD OF EDUCATION. 359 thoroughly and instructions given by teachers and control exercised to prevent unsanitary practice. (Sanitary drinking fountains making drinking cups unnecessary now installed in all schools.) Steam is used for heating in twelve buildings; elsewhere hot air is used. Thermostats are installed in twenty buildings to regulate the temper- ature. Temperature noted in four rooms in the same building was 60, 70, 71 and 74 degrees while recitations were in progress. The air in two rooms was sultry; in one decidedly pure; and in one neither oppressive nor notice- ably fresh. These conditions existing in the same building at the same time, indicate one or more of the following situations, which a thorough investi- gation should determine: Instructions on heating and ventilating not given Instructions not obeyed Teacher does not know when air is fresh or sultry Teacher does not pay attention to the thermometer In a fifth room in the same building there was no thermometer; and the teacher "guessed it had been broken." Experiments looking to the bettering of these conditions are being conducted. Lighting in all classrooms visited came from the rear and from one* side; in three rooms it was noted that the inner front corner of the room was dark, owing to the position of the side window toward the rear. One teacher stated that the rear lights had seriously affected her eyes since the beginning of the school year. In the normal class the pupils were grouped on the darker side of the room, with plenty of vacant seats near the windows. The superintendent states that this condition was bettered in 1914. SITTINGS In five rooms noted, one was equipped with seats all of the same size; two had two different sizes and two had four sizes of seats. FINANCIAL RECORDS HOW THE RECORDS WERE EXAMINED. The examination of the financial and business methods was based on an inspection of books and forms and interviews with the secretary, the treasurer, the superintendent of buildings and the superintendent of supplies. The examination was made to determine whether sufficient information was available for the guidance of the board of education as to the cost of instruction and supervision and of the administration, operation and main- tenance of the school system. No attempt was made by the surveyors to locate extravagance or waste. The records, however, were examined to ascertain whether they would show waste, if any existed. BUDGET ESTIMATES. In May of each year budget estimates are prepared by four committees: 1. Committee on property and sanitation BOARD OF EDUCATION. 2. Committee on teachers and instruction 3. Committee on supplies 4. Committee on finance The estimates of the first three committees are examined and revised by the committee on finance, which recommends to the full board the appropri- ation of the amounts as revised and approved. The sum thus recommended is appropriated by a separate resolution "for the purpose set forth * * * and subject to the future direction of the board." The minutes of the board do not give evidence of any discussion of budget estimates or recommendations but the clerk stated that full discussion took place in committee meetings. DETAILED ESTIMATES. 1. The property and sanitation committee's estimate shows for each building the nature of the work or repairs to be made, and the amount desired for each item. The estimate is arranged by wards, as shown below: Second Ward. Thomas Severn Building — general repairs $ 50.00 Ninth and Spruce building — general repairs 50.00 Bingaman and Orange building — Window, south side $ 25.00 Painting two rooms and two halls 150.00 $ 175.00 The estimate concludes with the following summary: Total specific repairs $ 8,710.00 Contingent repairs 1,290.00 Janitors' salaries 30,000.00 Medical inspection 3o°0-00 $ 43,500.00 The repair estimate is shown in sufficient detail. The two lump sums for janitors' salaries and for medical inspection would be more valuable to the board if they showed full particulars of the persons, the period during which their services would be required and the compensation therefore. The quality and cost of supplies, if any, included under medical inspection should be separately stated. It is understood that medical inspection relates to the services rendered by doctors and nurses in the inspection and treat- ment of physical defects in school children. The including of this appropriation under the heading of buildings and sanitation suggests the advisability of stricter classification. 2. The teachers and instruction committee's estimate of over $247,000 shows for each general rank of position, a lump sum "estimate," together with certain "increases by committee," e. g. BOARD OF EDUCATION. 36r Increases Items Estimates by Total Committee Teachers, Boys' High School. .$ 22,600.00 $ 400.00 $ 23,000.00 Supervisors 5,150.00 500.00 5,650.00 Grade Teachers 157,002.50 6,630.00 163,632.50 Additional teachers, graded.... 2,300.00 ") Additional teachers, high school 1,200.00 v 4,500.00 Physical Instructor 1,000.00 ) Text books 8,500.95 8,500.95 A "key to increases" gives in detail the names of persons for whom $2,000 is requested "by rule of board" and $1,440 for "increases by commit- tees/' but committee increases alone amount to $8,070. Detailed estimates should be submitted showing the number of principals and teachers in salary grade and the rate of compensation they receive. These estimates should show comparisons of existing conditions with requests for appropriations for the ensuing year, all increases being clearly indicated by name and title. Such a statement would form a basis for intelligently passing upon the needs for additional appropriations. Data as to the increase in the number of pupils, any new responsibilities assumed by the educational authorities and additional opportunities offered by the board to Reading children would be valuable as supporting evidence. The estimate for the retirement fund should be supported by statements showing the present 'condition of the fund and its requirements for the coming year. The estimate (requisition) for text books shows the number, title, unit price and cost of books for which an appropriation is requested. There is no evidence, however, to show that the purchase of such text books is necessary. As a basis for an appropriation, it is essential that the stock of books on hand, the estimated number of books required to replace old copies or additional copies for new pupils, etc., be stated. If this information were available an appropriation for text books could be made with some degree of certainty and consequent economy. 3. The supplies committee's estimate is given in great detail, quantities and unit prices being shown for separate items. The lump sum request of $10,500 for manual-training supplies is unwar- ranted unless supported by details. It should have been divided into smaller sums for specific purposes. It is understood that certain detailed information is submitted to the committee when the estimates are under discussion. Such data should be incorporated in the appropriations in order that expenditures may be properly controlled. The request of $10,500 for the purchase of coal might be considerably reduced if coal were purchased on the basis of heat unit content (the "B. T. U." basis) rather than by weight. The requests for stationery and other supplies could be passed upon with much more accuracy if such items were reduced to cost-per-pupil units. 4. The finance and accounts committee's estimate contains an item of 362 BOARD OF EDUCATION. $41,000 for sinking fund installments and interest, together with $14,000 for officials' and clerks' salaries and $2,500 for general expenses. The salaries and general expenses should be given in detail and related to the past ex- penses and proposed work. PROPOSED FORM OF ESTIMATE. The entire school budget should be rearranged to show expenditures for the previous year and for the first six months of the current year as com- pared with amounts requested for the coming year. These items should be reduced to a per-pupil cost basis and related to the number of pupils partici- pating in past, present and proposed expenditures. The board is now unable to point to the specific reason or circumstance which makes a given request imperative. There is no reason to question the .board's intimate knowledge of the necessity for any budget item, but in the present estimate the board does not give itself credit for having valid reasons for its requests. PAY ROLLS. The payroll is prepared by the secretary, who keeps a payroll book containing the items arranged as shown below: Name of Building (School)