li i!iiiiiHlliiiiliiiinni.minni.iit"i)Mii-ii- CORNELL UNIVERSITY LIBRARY FINE ARTS LIBRARY Cornell University Library The original of tliis book is in tlie Cornell University Library. There are no known copyright restrictions in the United States on the use of the text. http://www.archive.org/details/cu31924064903036 The Citizen's Library of Economics, Politics and Sociology ■ New Series : Edited by RICHARD T. ELY, Ph.D., LL.D. Professor of Political Economy in the University of Wisconsin. CITY MANAGER IN DAYTON THE CITIZEN'S LIBRARY OF ECONOMICS, POLITICS AND SOCIOLOGY EDITED BY Richard T. Ely, Ph.D., LL.D. Professor of Political Economy in the University of Wisconsin NEW SERIES The Progressive Movement. By Benjamin P. DeWitt, M.A., LL.B. The Social Problem. By Charles A. EUwood. Ph.D. The Wealth and Income of the People of the United States. By Willford I. King, Ph.D. The Foundations of National Prosperity. By Richard T. Ely, Ph.D., LL.D. ; Ralph H. Hess, Ph.D. ; Charles K. Leith, Ph.D. ; Thomas Nixon Carver, Ph.D., LL.D. The World War and Leadership in a De- mocracy. By Richard T. Ely, Ph.D., LL.D. Budget Making in a Democracy. By Major Edward A. Fitzpatrick. The Vision for which We Fought. By A. M. Simons, B.L. City Manager in Dayton. By Chester E. Rightor, B.A. MR. JOHN H. PATTERSON Who Has Done Most to Insure the Introduction and Success of City-Manager Government in American Cities The Citizen's Library CITY MANAGER IN DAYTON Four Years of Commission-Manager Government, 1914-1917; and Comparisons with Four Preceding Years Under the Mayor- Council Plan, 1910-1913 BYJ / ^FfM^ CHESTER Et'^GHTOR, fi^Cl^H Detroit Bureau of Governmental Research, Formerly pirf cfa^ Q^Xton ^ureau of Research ' /',' /j • IN COLLABORATION ."ViriyH," , -* ';;..• DON; Vj'i ^ciwERS,* -fe J?. V « Director, Akron Bureau of Municipal Jtaes^Kh, * » Formerly, Dayton Bureau of Research « :;%*%]>ijD :/. WALTEk MATSCHECE;-M.A. Secretary, Civics Department. Chamber of Commerce, iCansas Cit/i * FometfIy,**Dayton Bfti%an of Research '* J _ » JI3eto gotk THE MACMILLAN COMPANY 1919 An rights reserved COPYEIGHT, 1919 By THE MACMILLAN COMPANY Setup and electrotj'ped. • P^ljJ^s^^d, IS^tgmber, 1919 TO JOHN H. PATTERSON DISTINGUISHED LEADER IN CIVIC AND INDUSTRIAL WELFARE PREFACE " New times demand new measures and new men : The world advances, and in time outgrows The laws that in our fathers' day were best ; And doubtless, after us, some purer scheme Will be shaped out by wiser men than we. Made wiser by the steady growth of truth.'' Lowell. On August 12, 1913, Dayton, Ohio, adopted a com- mission-manager charter, and on January i, 1914, it went into effect. The Dayton government of to-day is the fulfillment of the application of business principles to the government of a municipality. Ever since the adoption of the charter Dayton has been governmentally in the limelight. It has been the guide and leader to other cities seeking governmental better- ment. Hundreds of cities have copied, in whole or in part, the city-manager idea. Thousands of people inter- ested in municipal affairs have visited Dayton. Maga- zines have printed articles. Newspapers all over the country have printed stories. Cities like Chicago and New York are seriously discussing the possibility of applying the principle in their governments. Managers for counties are being advocated. States have passed city-manager laws, and other States are considering the subject. Usually Dayton is turned to for the story of her experience, until in the eyes of hundreds of thou- sands of people she has come to mean the " best governed city in the United States." This book is about city-manager government in Day- vii VUl PREFACE ton. It is not concerned with city-manager government in other cities, nor with the theories of government which may be contained in this or other forms of municipal management. It is a record — a story, of what has been done — the good and the bad, the accomplishments and the disappointments. It aims to tell of city-manager government in actual practice. For purposes of compar- ison, data for the years 1914-1917, the four years under the new plan, and for 1910-1913, the last four years un- der the old plan, are given where available, and their interpretation is left to the reader. The purposes and objects which the authors had in mind in writing this book are the following : 1. To give to the country the results of a study Dayton is making of herself. Citizens of Dayton are asking " How are we succeeding in this new idea we have adopted ? " 2. To answer hundreds of inquiries from outside. 3. To assemble in permanent form the experience of four years of business management of public affairs in one of the first cities, and the largest, to apply these principles. These data are not and would not be otherwise available. 4. To help other cities, which would improve their govern- ments, to have a correct account of what they may expect of city-manager government. 5. To help present and future city-manager cities copy the good features and avoid the weaknesses of Dayton's plan. 6. To assist soldiers, returning home with new and firm re- solves, to take an active interest in the public affairs of the communities of which they are to become a part — which com- munities they recognize as but miflor divisions of the Nation for which they offered their all. 7. To furnish to college instructors and students, good gov- ernment clubs, libraries, students of government everywhere, who now must content themselves with the theory of commis- sion-manager government and with partial and incomplete re- ports, a story of actual application, with a fact-basis for IfibOratory worl{, PREFACE IX 8. To give a non-'technical, human interest, practical, read- able discussion of " business government " to the " capable citi- zen" — i.e., the man who is interested in his city's problems and their solution, who wishes to know definitely in order that he may act and vote intelligently on public affairs. The value of a book such as this purports to be is con- ditioned almost entirely on the disinterestedness and ability of the authors. An analysis of the situation will disclose the fact that former staff members of the Dayton Bureau of Research are perhaps the logical persons to write such a book since there can be assumed thereby a certainty of disinterestedness. Obviously city officials could not write it. Even if their story were unbiased, many readers would not so believe. The same is true of the members of the Citizens Committee who brought about the adoption of the charter. It applies also to the Socialist party which opposes the charter. To obtain complete confidence it could not even be written as an official document of the Bureau of Research else some would say that the Trustees of the Bureau would not per- mit the publication of a critical statement. There is yet another reason why staff members of the Bureau of Research felt that it devolved on them to do this work. It is a function of Bureaus of Governmental Research, and the profession of Bureau men, to make unbiased, scientific studies of governmental affairs. Our predecessors and we have studied Dayton's government since the adoption of the city-manager plan — and for some time before. We have lived with this government, we are on a basis of official and personal friendship with the city officials. We are familiar with it in all its de- tails — its strengths and its weaknesses. Again, we are interested primarily in the advancement of good govern- rnent everywhere. We are willing, if necessary, to sac- X PREFACE rifice Dayton for the good of the cause. We are happy, however, that Dayton's record is such that the story of the past five years is a matter of pride to the city and people of Dayton. It may be a subject of comment that no works on mu- nicipal government or city manager cities are cited as reference. Our answer is that we have purposely avoided such references, because of the declared pur- pose to make this a book of fact — a record of Dayton's results. It is neither a book of theory nor a record of any other city. The reader who may desire theoretical discussions of the subject will have no difficulty finding numerous bibliographies. Our sources have been the of- ficial records of the city and our contact with these rec- ords and with officials, citizens, boards and committees. While we have not used other works directly in the preparation of this book, we desire to acknowledge our indebtedness for the many excellent suggestions received from our study of them in past years. In preparing the material for this volume the authors have been greatly assisted by Mr. Wayne G. Lee, secretary to both former Manager Henry M. Waite and the present Manager, Mr. James E. Barlow. His interest and aid are cheerfully acknowledged. Dr. Lent D. Upson, Director of the De- troit Bureau of Governmental Research, and Dr. Wil- liam H. Allen, Director of the New York Institute for Public Service, are among those who have generously offered valuable suggestions, for which we are grateful. Only ourselves, however, may be censured for inadvert- ent errors. C. E. RiGHTOR. Detroit, Ma.rch i, 1919. CONTENTS CHAPTEP I PAGE I How Dayton Got Good Government . . . i II Business Principles in Public Business 20 III Determining Public Policies . . . 31 IV The City Manager at Work . 46 V Humanizing City Government 57 VI Protecting Life and Property . 95 VII Municipal Housekeeping . 127 VIII Getting and Spending . . 169 IX Purchasing for a City . 191 X Protecting a City's Rights . . 204 XI Public Opinion 209 XII Organizing Citizen Interest . • 225 LIST OF ILLUSTRATIONS Mr. John H. Patterson Frontispiece Who has done most to insure the introduction and success of City-Manager government in Ameri- can cities. PACING PAGE Commissioner-Manager Organization, Dayton, Ohio . i A chart. Over $2,000,000 was Raised in Dayton in a Week . . 12 A Comparison — The Factory: the City .... 18 A chart. The Community Country Club — 300 Acres for Recrea- tion . 36 Colonel Henry M. Waite 46 City Manager of Dayton, 1914-1918. Awards for Prize Gardens are Made at a Public Dinner, Given at the Close of the Season 52 The Manager's Corner at the Municipal Exhibit . . 56 A " Run " on the City Purchasing Office During the Coal Shortage 56 Hundreds of Young Mothers are Advised in Qinics . 60 Free Milk is Distributed by the City at Several Milk Stations 60 A Lecture and Demonstration in Food Values ... 70 A scene at the Municipal Exhibit. A Clean Dairy Means Pure Milk 70 Teaching the taxpayers to demand the best in milk and its products, yiii .XIV ILLUSTRATIONS FACING PAGE A Scene in the Old Workhouse 80 Designed for neither physical, mental nor moral correction. One of the Correction Gardens 80 Workhouse prisoners are ■ helped physically and morally, as well as lower the cost of their keep, by gardening on waste tracts along the river and on the new farm. " Safe at Home " 84 And equally safe on the city's playgrounds. The Flag Drill 84 At the play festival which closes the recreation year. The Old vs. the New 88 Recreation is only supervised play. Vacant Lots in Dayton Gave Way to Children's Gardens Even Before the War 94 Policemen Attend These Classes Regularly . . . .104 Note the Criminal's Equipment 104 50,000 interested persons studied this display at the Municipal Exhibit. Hundreds of Scales are Condemned Each Year . . .126 Housewives Are Protected Through the Work of Vol- unteer Women Market Inspectors . . . .126 A Scene on the Miami 132 Above the new dam. A City's Finances May be Told so Plainly Every Citizen Can Understand 172 CHARTS PAGE Commission-Manager Organization, Dayton ... i A Comparison — The Factory: The City .... 19 Total and Per Capita Costs, Division of Health ... 63 ILLUSTRATIONS XV PAGE Total Cost, Number and Cost per Inspection of Food Inspection, Division of Health 68 Dairy and Milk Plant Inspections, Division of Health . 69 Number of Abattoir Inspections, Division of Health . 71 Total Cost, Number and Cost per Inspection of Sani- tary Inspections, Division of Health .... 73 Requisitions Received and Orders Issued, Division of Purchasing 193 Cases Tried, Fines Collected and City's Portion of Fines, Department of Law 208 a, © y uufi ll I 5--S g § 8 CITY MANAGER IN DAYTON CHAPTER I HOW DAYTON GOT GOOD GOVERNMENT ^ How did Dayton ^ come to adopt the Commission-Man- ager plan of city government? Let it be stated at the outset that the favorable vote for the Commission-Manager charter was not a consequence of the flood of 1913 — it was merely subsequent to it. The trend of events had long been toward a better gov- ernment, and it was accepted that that form of charter extending home rule would ensure desired improvements. In 1896 — over twenty-three years ago — Mr. John H. Patterson, President of the National Cash Register Company, had talked about the need for governmental reform for Dayton. On the 19th day of March of that year Mr. Patterson delivered an address at the Dayton Centennial which he opened with the following words : " What ought the Dayton of the future be ? Does its great- ness depend upon the matter of its population? If it does, then Peking, with all its squalor and vice, is a great city. To become really great, however, our city must accomplish the largest ^ The contents of this chapter are largely reproduced from " A Charter Primer," by Dr. Lent D. Upson, Director of the Dayton Bureau of Municipal Research 1912-15, and now Director of the Detroit Bureau of Governmental Research. 2 The population of Dayton is estimated as follows for several years : 1910 116,500 igi6 130,000 1912 120,000 1918 140,000 1914 125,000 1919 150,000 I 2 CITY MANAGER IN DAYTON amount of good for the largest number of her citizens, uniting all the best things which exist in other cities into an ideal city. Does she do this now? No; and why not? Because we are not educated sufficiently to realize our most urgent needs. iWe have no definite municipal ideas. Before we can have a great city, we must learn what a truly great city should be. We must first educate the people." The address continued with a masterly discussion of the elements of a great city with their direct applica- tion to Dayton. In conclusion the question was asked: " How shall we get money to accomplish all these changes ? " The answer forecast the commission-man- ager government of to-day — by adopting business meth- ods, business organization, and publicity as the basis of our governmental system. To quote Mr. Patterson's words : " A city is a great business enterprise whose stockholders are the people. . . . Our municipal affairs would be placed upon a strict business basis and directed, not by partisans, either Re- publican or Democratic, but by men who are skilled in business management and social science; who would treat our people's money as a trust fund, to be expended wisely and economically, without waste, and for the benefit of all citizens. Good men would take an interest in municipal government, and we should have more statesmen and fewer politicians." This was perhaps the first suggestion along this line ever made in this country. By means of stereopticon slides, lectures, and the factory newspaper he fostered among his several thousand employees a permanent and active interest in public affairs. The effect of this agita- tion spread throughout the entire city. The Federated Improvement Association was an im- portant factor in advocating improvements in the govern- ment of the city. This Association grew out of a neigh- HOW DAYTON GOT GOOD GOVERNMENT 3 borhood improvement association innovated by Mr. Pat- terson in the district around his factory. The local group met regularly to discuss public questions, and was such a success it soon led to the organization of the neigh- borhood groups throughout the city, until there are to- day 34 such associations. Each local group sends rep- resentatives to the central or federated body, which by reason of its widely representative nature, has much influ- ence in shaping the destiny of civic endeavors. These organized efforts were augmented naturally by existing conditions. Reviewing briefly the history of the city, for some years prior to 19 14, Dayton was considered an outstanding example of bad city government. It was not said that endless graft existed, but rather that the city suffered from incompetence and irresponsibility in ad- ministration. The disconcerting element to the citizen was his inability to obtain desired action in matters affect- ing his welfare, due to a never-ending shifting of respon- sibility to " the other man." All matters had to be re- ferred to the councilman, who in turn passed them over to the department heads, — after taking care to have his " action " reported in the minutes. The department head found himself unable to act because of the proverbial lack of funds, while the citizen's want remained unanswered. Again, the citizen body came gradually to feel despon- dent over hitches in governmental action through fre- quent party strife within the council or between the coun- cil and executive. Too commonly a Democratic mayor found himself curted by a Republican majority in coun- cil, or a Republican faced the necessity of working with a majority of opposite political belief and perhaps also a Democratic solicitor, auditor and treasurer. The results as affecting the governed require no conjecturing. 4 CITY MANAGER IN DAYTON In 1909, with a division of " honors," it transpired that the city annexed four miles of territory, thus increas- ing its size by one-third. The current tax levy for the city could not be assessed against this new section, due to the lateness in the year, thus failing to provide the city with sufficient revenue to finance the additional services. A rise in the tax rate for the former sec- tions was, therefore, threatened. The executive who can report to the people a reduced tax rate defies un- popularity. In this instance the Democratic mayor made a successful campaign for reelection, on a platform of no tax rate increase. However, added services and extensions soon began to pour in on the council, and the members supported these pleas. To fulfill campaign pledges it became necessary to refund bonds coming due that year, and this unsound practice was resorted to. Just at this time the State legislature passed the now famous Smith One Per Cent, law, limiting future tax rates to the 1910 basis, with a small per cent, increase for each of the next three years. The efifect on Dayton was to guarantee a permanently inadequate revenue from tax- ation of property, because the makeshift of refunding bonds had caused the city to make a tax levy request about $200,000 below actual requirements. It then became necessary for the city to avail itself of the provision of a state law permitting the borrowing of money in anticipa- tion of taxes, and this course was followed to the maxi- mum. When this expedient proved inadequate, it be- came necessary to resort to the transfer of money between funds, which practice was followed until the departments were handicapped in their work. The final recourse was to reduce services by laying off policemen and firemen. Under these conditions, it may be concluded that, re- HOW DAYTON GOT GOOD GOVERNMENT 5 gardless of the wild rush of the Miami and Mad Rivers in March, 1913, a home-rule charter would have been adopted in Dayton. To quote one who was active in se- curing the adoption of the new charter: " It cannot be fairly assumed that the Dayton charter was a distinct product of the disastrous flood of March, 1913. Activ- ity for a new government had been inaugurated fully six months prior to this disaster, and, by January i, 1913, the project had acquired considerable momentum. " The aftermath of the flood only accentuated an already ap- parent need for honest, efficient and responsible city manage- ment. ' Government by deficit ' embodies the actual reasons for the change in administration, and typifies conditions prevailing in the municipality, — annual expenditures in excess of rev- enues, inadequate control over the service of employees, ex- cessive cost of city supplies and operations, failure of con- tracts for services to conform with specifications, and unreadi- ness of city officers to undertake active leadership for the wel- fare of the community. The city had had for many years a government sterile of all but the most commonplace benefits — due in some measure to official incompetence, but in a larger way an accrual from citizen neglect." HOME RULE AMENDMENT The adoption of a charter was made possible through the passage of a home rule amendment to the Ohio Con- stitution. The statement has been made that American municipal government has not been a proven failure, but rather it has never been tried. What has been re- proached as inefifective local government, has been really a reluctant local administration of state regulation of city business. After several decades of such legislative ex- perimentation in uniform styles of government for cities of diversified needs, a constitutional amendment was adopted September 3, 1912, extending to Ohio munici- 6 CITY MANAGER IN DAYTON palities a large measure of home rule. This authority privileged such cities as desired " to exercise all powers of local self-government, and to adopt and enforce within their limits such local police, sanitary and other similar regulations, as are not in conflict with general laws," and provided the procedure by which such local self-govern- ment might be secured. The act does not privilege the combination of school administration with the other functions of government, and the state still retains con- trol of the local courts and finances. The " Home Rule " .amendment provided that munici- palities might upon initiation of the city council or upon petition have a special election to decide whether a char- ter should be drafted, the members of such drafting body being selected at the same time; might accept one of the three " model " charters prepared by the legislature ; or otherwise continue under the municipal code of the state. Such code made mandatory a partisan legislative body chosen by wards ; a mayor, city solicitor, city auditor and city treasurer elected at large; a board of sinking fund trustees and a board of health, appointed by the mayor. The more important departmental heads were also chosen by the chief city executive. Keen interest was evidenced in Dayton in this proposed amendment, and an active campaign made by Governor Cox and other prominent citizens to enlist general support in behalf of the movement, with the result that a large majority vote in Dayton and Montgomery county helped toward its passage. CHAMBER OF COMMERCE COMMITTEE Desirous of availing themselves of the provisions of this amendment, the Chamber of Commerce at once — in HOW DAYTON GOT GOOD GOVERNMENT 7 the Autumn of 1912 — appointed a committee of five citizens to consider initiating a charter for the city. The committee consisted of John H. Patterson, Chairman, E. A. Deeds, F. H. Rike, E. C. Harley and Leopold Rauh. This committee at once set to work, and gave extended time and study to the three fundamental types of city government the outlines of which were presented in the charters prepared by the state. ^ After deliberate consideration of these three proposals the Dayton Chamber of Commerce decided that a type of administration similar to that existing in their own private businesses had the greatest personal appeal and was thought best fitted to secure the most desirable re- sults in the conduct of public business. Believing also that the movement for a charter should not be forwarded entirely by a commercial organization, the committee sev- ered its connection with the Chamber of Commerce and formed itself into a distinct body committed to the secur- ing of a new charter. BUREAU OF MUNICIPAL RESEARCH Of invaluable assistance in the work of securing a ''■ The three general types of municipal government are : 1. Federal, — consisting of a legislative branch of two houses, the members of which are elected by direct popular vote ; and a popularly elected mayor as chief executive, who appoints the administrative department heads. 2. Straight commission, — consisting of a small legislative body, elected at large ; the commissioners severally act as heads of the administrative departments. 3. Commission-manager, — consisting of a small legislative body elected at large, and which legislates only; the administrative departments are under the supervision of the city manager appointed by and responsible to the commission; the manager in turn delegates the execution of activities to subordinates selected by him. There are, of course, numerous jnodificfitions of each gf these gen- eral type?. 8 CITY MANAGER IN DAYTON charter was the Bureau of Municipal Research, which was estabhshed in October, 19 12, by Mr. John H. Patter- son. This organization conducted a running fire of pub- licity on current as well as past failures of the local gov- ernment ; and in cooperation with one of the local news- papers sent an investigator to report publicly on the re- sults of commission government in the West and South. During the ensuing ten months the Bureau director and staff devoted their chief energies, except as interrupted during flood relief work, in conferring with various civic bodies to secure a modern, practical and complete charter. " COMMITTEE OF ICO " That the movement might be thoroughly democratic the " committee of five " chose, to cooperate with it, fif- teen others representing all phases of community interest. This enlarged group invited four others each, constituting the usual " committee of one hundred " which has appar- ently become an established institution in public reform. An open meeting of these one hundred men was held, to which a public invitation was extended to all others who might be earnestly interested. Over two hundred at- tended and the merits of particularly the commission and city-manager plans were thoroughly considered. Modified types of the Federal scheme were advanced, but received scant consideration from the public, although supported by the political organization in control of the city and by the Socialist party. Even without partisan and ward representation, the idea of an elective mayor appointing the departmental heads and acting somewhat in the capacity of a city manager was not a particularly convincing one. It was known that such a proposal as- gumed an elective head changing every two or four years HOW DAYTON GOT GOOD GOVERNMENT 9 with a corresponding removal of subordinates, efficient or otherwise. It assumed also the continuance of the chief departmental offices as sinecures distributed in pay- ment of political obligations, the actual duties being per- formed by subordinates doubtful of the permanency of their positions at the conclusion of each administration. Such a scheme was deemed an advance over the election of a number of miscellaneous and uncorrelated officers; yet it was thought also to fail in securing a maximum of efficiency and social-mindedness in municipal administra- tion. In the meantime, between meetings of the " committee of one hundred," the adherents of the manager plan were laboring enthusiastically for it. Meetings were held of small groups of the two hundred interested persons. The advantages of the manager plan over the commission plan were rehearsed and possible delegates were pledged to support the former program. As a result, at the con- clusion of the last meeting of the larger body, the vote was made unanimous to support candidates for a charter commission pledged to the city-manager plan of govern- ment. ELECTING A CHARTER COMMISSION By a primary election, conducted through the mails, the two hundred members selected fifteen of their number to become candidates for the charter commission. These men signed a written pledge which stated that they would if elected write a commission-manager charter with cer- tain fundamental provisions, notably : A commission of five elected at large on a non-partisan ticket and subject to recall. A city manager selected by the Qotrjmission, on whom would lO CITY MANAGER IN DAYTON repose all administrative duties relating to the government of the city. A referendum and protest on all legislation. And what is more important — a charter which would secure the greatest welfare of the citizen body and not conserve the interests of any faction, political party, or individuals. The pledging of candidates to a definite scheme of gov- ernment was the most notable contribution to charter planning, and was a marked departure from the methods usually employed in similar agitations for new govern- ment. It meant that in the preference of these candi- dates over thirty others pledged to some form of the fed- eral plan, the public would have expressed in no undecided terms its desire for a definite program — that of the man- ager plan. Opposed to the citizens' non-partisan candidates, tick- ets were placed in the field by the Democratic and by the Socialist parties, their representatives being pledged to a species of Federal government. As in most similar in- stances every advantage was with the organized political parties, particularly the one in immediate control of the city government. The " ins " were supported by the pat- ronage of the city and county administrations, as well as by many intimates of the other political parties who were opposed to the elimination of party politics from local government; and even more strongly by the indirect pat- ronage attendant upon the expenditure of public dollars. This opposition with its well organized machinery had to be met and overcome by an unorganized citizens' move- ment, with a nucleus of two hundred active, enthusiastic and willing initiators. Temporary enthusiasm, spectacular campaigning, mass meetings, and speeches could not win such a political HOW DAYTON GOT GOOD GOVERNMENT II fight. The " man in the street " must be made to want city-manager government ; and to interest all of the peo- ple an organization had to be created. Here again is a distinction between the struggle for a new charter in Dayton and that frequent in many munici- palities — the campaign was essentially a practical one. To further the educational and organization plans, a defi- nite program was inaugurated for reaching every citizen with the story and need of this new government. An earnest, silent, but effective campaign was commenced. Mass meetings were eliminated, but in their place hun- dreds of speakers talked informally to little groups of voters, — sometimes in churches and factories, occasion- ally at improvement associations, but more frequently in the home of some citizen who would call in his neigh- bors to hear the plan explained. The usual campaign oratory was conspicuously absent ; newspaper display ad- vertising — another innovation — was used extensively, exhibiting not only the merits of the new scheme, but re- hearsing the evils which had grown up under the old political influences. Under capable direction a citizens' organization was created whose adherence came not from hope of political preferment, but from sincere desire for more efficient city administration. An energetic elector was selected as cap- tain in each of the twelve wards of the city; he appointed a lieutenant in each precinct, who in turn selected a sub- ordinate in every city block. And the block captain en- deavored to enlist a man on each side of the street to interest the neighbors. Each voter talked with was asked to. sign a card pledging him not only to vote for but work for the commissioners who would write a city-manager charter. The number of pledges signed assured an over- 12 CITY MANAGER IN DAYTON whelming majority at the polls. Organization and par- ticularly education succeeded. On the day of election, each precinct captain was given a list of the voters in his district and of those favorable to the program. Hourly reports were received and tabu- lated and every effort made to get the favorable votes to the polls. Such a movement as this meant endless labor and effort, but the result justified the expenditure of time and money. Watchers were placed in the polling booths, and what was more essential, after considerable pressure had been exerted upon the election authorities, an official of the committee was present at the counting of the ballots. Another committee of the citizens was present when the total vote was received at the board of elections. The resulting vote authorizing the drafting of a char- ter for the city was approximately two to one, the fifteen candidates for the charter commission representing the non-partisan element being elected over the combined op- position. The personnel of this commission shows its widely representative character : John H. Patterson, manufac- Wm. A. Sparks, laboring man, turer, Lee Warren James, lawyer, E. C. Harley, wholesale grocer, E. E. Burkhart, lawyer, F. H. Rike, merchant, Chas. W. Folkerth, lawyer, John F. McGee, merchant, C. E. Bice, lumber merchant, J. B. Zehnder, furniture super- E. T. Banks, colored represen- intendent, tative, O. B. Kneisly, dentist, A. I. Mendenhall, union printer, Fred Cappel, furniture mer- Leopold Rauh, representative of chant, business organizations. THE LESSON OF THE FLOOD Two months before the election, which was held on May 20, the flood interrupted the campaign for the char- HOW DAYTON GOT GOOD GOVERNMENT I3 ter. The breakdown of the political regime of the city was brought home forcefully at this crucial time, when the administrative head of the city proved quite incompe- tent to deal with the situation. Learning of conditions, Governor Cox declared martial law within the city and named Mr. John H. Patterson as Colonel in charge of citizen relief work. Within twenty-four hours after the rise of the waters Mr. Patterson had ordered vast supplies of food, clothing and equipment from the outside world. The Citizens Relief Committee cooperated with the city council in ob- taining finances to rehabilitate the devastated sections of the city, the state legislature then in session having passed an emergency act permitting the issuance of flood relief bonds. The action enabled the city to reimburse some extensive advances of private citizens' funds. THE CHARTER COMMISSION AT WORK Fifteen men had now been selected to write a charter. Not an hour or a dollar was wasted in sending junketing parties to other cities, securing advice, and in internal bickering as to the type of government to be presented to the public. The charter commission immediately upon organizing passed a resolution that the proposed charter would be of the commission-manager form, and that it would embody certain fundamentals to which the commissioners had previously pledged themselves. Time and attention from the first moment could be and was devoted to the actual preparation of the document. The type of government decided, the charter commis- sion was confronted by the problem of what should be done next, — of how they should go about writing a charter. Experience indicated that the details of this 14 CITY MANAGER IN DAYTON problem keep many charter commissions engaged until the last possible date, resulting in a document very hur- riedly and sometimes carelessly drawn, or assembled with the aid of scissors and paste. Careful analysis was made as to the scope of powers of the city government, its nature, elections, organization, provision for civil service and a code of administrative procedure. It was found feasible to name committees within the commission to find a solution to these and other questions and present them to the commission. These committees did not present a completed draft of their recommendations ready for incorporation in the charter, as this procedure would have meant delay, con- troversy and overlapping. Instead, only fundamental outlines were submitted, which brought out the salient features for brief discus- sion and early decision and adoption. They were then turned over to the secretary of the Committee on Final Preparation, which assured a complete and coordinated charter. This procedure was so effective in Dayton that on June 23, 191 3 — five weeks after their election — the commissioners completed for the approval of the public a city-manager charter. THE CHARTER CAMPAIGN The tremendous efforts made to interest and inform the citizen body and secure enthusiastic support for the charter, are tersely related in the pamphlet before men- tioned. On August 12, 1913, the proposed charter was made law by a vote of two to one. This, as in the first election, was the result of a vigorous educational campaign carried HOW DAYTON GOT GOOD GOVERNMENT 1 5 on by the non-partisan organization. The wisdom of having the pubHc decide upon the form of government in the first election was especially apparent at this time. The city was presented with a charter providing for a form of government already asked for by the people. It was necessary in this second campaign to explain the provisions of the document, indicating how they con- formed to the expressed wish of the electorate. Facts are essential to a campaign which hopes to win, and to a reform which having won, expects to succeed. The campaign as conducted by the citizens in Dayton was exceptional for its " muckraking with facts, rather than muckraking with muck." The local Bureau of Municipal Research in its investigations of a year col- lected extensive and convincing data showing the waste and inefficiency of the then existing form of government ; and its failure to meet new and urgent needs. Data sup- plied by this Bureau emphasizing poor financial manage- ment were published on cards and pamphlets ; appeared in the daily papers; and were projected nightly on screens in all parts of the city. They were told the voter at noon meetings in the shops, and were repeated again at night in his home. The annual deficit in conducting the busi- ness of the city; the long term bonds outstanding for temporary and short-lived improvements and for current operation; waste and favoritism in the purchase of sup- plies, materials and equipment and contractual services — all these were supported by facts. And facts combined with the bitterest campaigning against a now united opposition won. The vote was 13,318 favorable and 6,010 against. Over 60 per cent, of the entire voting strength of the city was represented in this election. l6 CITY MANAGER IN DAYTON INSTALLATION OF THE FIRST COMMISSION At the regular November election five commissioners, — George W. Shroyer, Mayor ; A. I. Mendenhall, John McGee, John R. Flotron, and J. M. Switzer, non-partisan candidates — were elected without opposition. The administrative sections of the charter became effective January i, 1914, and on that date after consideration of an extended list of those of prominent experience in municipal administration, public engineering, accounting, and health, Henry M. Waite was appointed city-manager. Mr. Waite is an engineer of exceptional experience, and recently had been city engineer of Cincinnati, under the Hunt administration. The Commission, in the spirit of the charter, exercised no infliience whatsoever in the selection of the immediate subordinates of the manager, which included a local attorney of prominence as director of law ; a minister, for many years active in social work, as director of welfare; an expert accountant as director of finance; and an engineer of large public training as director of service (public works). No director of safety was appointed until May, 1915. The Bureau of Municipal Research has received the commendations of the City Manager for its assistance in enabling the new administrators to assume their duties with a minimum of inconvenience. A complete study had been made of the existing organization, and this was adjusted to meet conditions under the new plan, so the work proceeded with virtually no interruption. THE LARGER QUESTION In summary it may be said that the charter movement owes a large measure of its success to the practical man- HOW DAYTON GOT GOOD GOVERNMENT \^ agement of the campaign. Of particular significance was the decision to urge a single issue at a time — the choosing of a form of government by the people in the first election — leaving the single question of the merits of the charter itself as the issue in the election to adopt the document. The second and perhaps the most im- portant feature of the movement was the intensive as well as extensive educational campaign by a well directed organization; the intimate, earnest, informal talks in place of mass meetings, oratory and torchlight parades. Is this success, and are these gains permanent ? Can the citizens of Dayton retire satisfied that reform is a hardy perennial which will make its appearance at each election time whether the voter cares or not ? Or will the partisan politician, who works three hun- dred and sixty-five days in the year, come back, bringing with him the patriots who have no other profession than serving their city for pay ; the old administrative code of " jobs and profits " ; and a comatose appreciation of com- munity ideals and community needs ? These questions are significant, not only to the citizens of Dayton, but to the many municipalities which are awaiting an adequate solution for their city problems. The Dayton plan is dependent for its final success upon a public, independent of partisanship, and thinking plainly, honestly and directly upon the tests of adequate government. From the continued interest and coopera- tion of that public it will be known whether the Dayton plan is to be only a little experiment in local government, or a distinct and permanent contribution to the science of politics. It has been necessary at each election since the adop- tion of the charter to form a Citizens' Organization along 1 8 CITY MANAGER IN DAYTON non-partisan lines to combat the political parties. This organization has by the usual political party methods and at a great expense been successful in maintaining the non-partisan principle of the charter. The end is not yet. For five years this document has proved its worth in actual practice, and no substantial shortcomings have been found to require its amendment. Only minor sections or interpretations have been assailed as imperfections. With the prospect of its continued integrity for another four years after the reelection in November, 191 7, of three of the five first commissioners, other cities will await hopefully the success of this experi- ment in municipal democracy. A COMPARISON TMB FACTOHY THE CITY Vmm bji Dehmt 6u>«nf «f Qwaamvial iutiidt &» CHAPTER II BUSINESS PRINCIPLES IN PUBLIC BUSINESS The analogy is frequently made of the city as a public corporation, of which the citizens are the stockholders, the city commission the board of directors, and the city manager the business manager. This picture in Dayton is not exaggerated. The organization of the Dayton government is similar to that found in modern business corporations. In pri- vate business the ownership rests with the stockholders, who delegate their powers to a board of directors, which in turn select a general manager to have direct charge of the work. In the city of Dayton, ownership is vested with the citizens, who delegate their powers to the com- mission, which in turn select a city manager to execute their policies. The duties of the board of directors in either case are to decide questions of policy as to what shall be done, and to provide the funds. In private business, the operating units consist of the men who carry out the orders of the general manager. For purposes of efficient management, the work is divided into departments under the direction of the manager, for example, the financial, sales, production, and the account- ing departments. The financial department collects and disburses the money ; the sales department obtains orders and sells the product; the production department pro- duces the goods, and the accounting department keeps records of all that happens in the other departments. In BUSINESS PRINCIPLES IN PUBLIC BUSINESS 21 the Dayton government, the work is also divided into departments, upon hnes natural to municipal activities, and each department is in charge of a director. The five departments are law, finance, safety, service and welfare. Certain other activities — the courts, board of elections and schools — do not come within the domain of the city charter, but are operated independently. THE CITY COMMISSION The city commission in Dayton consists of five mem- bers elected at large by the voters. There is nothing sacred about the method of electing these commissioners or the number. Just as various methods have been em- ployed to elect members of boards of directors and as boards have been composed of various numbers of men in business, so they may be in city government. A com- mission of seven or nine might prove as desirable as, or more acceptable than, five members. Too small a commission may not be sufficiently representative and too large a commission will prove unwieldy. The small commission has resulted in all work being done by a committee of the whole and each project has received the attention of all the commissioners. From the stand- point of organization, the number of commissioners is vital only in so far as it affects the transaction of busi- ness. Other considerations which have to do with securing real representation are really the controlling ones in deciding upon the number of commissioners and the manner of their election. These factors are dis- cussed subsequently. DEPARTMENTAL ORGANIZATION The plan of government made it possible for an effective organization to be created for carrying out the 22 CITY MANAGER IN DAYTON decisions and policies of the legislative body. The charter gives the Manager power of appointment over all administrative departments and it was therefore pos- sible to build up a competent, well disciplined organiza- tion for executing his orders. Decisions once reached and orders issued, the work proceeds in routine fashion. All the important positions were filled by trained and experienced men, after deliberation. An effective civil service procedure made possible the selection of capable employees for the minor positions. Thus the complete organization was built up of competent, trained and qualified men to carry out the orders of the chief executive. In this fact lies the great advantage of the City Manager plan of government over the Federal plan or variations of it and over the Commission plan. Under the Federal plan, where various heads of departments are elected by the people, an effective organization is never assured. There is no provision for enforcing discipline or compelling obedience to human authority. Each official is a law unto himself and cooperation is not generally found. It is also a rarity to find trained and properly qualified men in office through the elective system. Under the Commission form of organization, if each commissioner were equally able and efficient as an executive, the activities of the city would be performed by five or seven distinct and different organizations. This situation would be analogous to that of a private corporation where the financial, sales, production and accounting departments were separately organized with no central control over their activities, but each one re- porting directly to the stockholders who selected them. BUSINESS PRINCIPLES IN PUBLIC BUSINESS 23 Under such circumstances the production department might continue to make types and styles which the sales department were no longer able to sell, and all depart- ments might transact business on a scale in excess of the financial ability of the company. The chief weakness of the straight commission- governed cities has been that the commissioners do not work in harmony; each commissioner in his desire to make a showing for economy and efficiency may go to greater length than the city's finances can afford, or may act contrary to the best financial policy of the city. This is the actual experience of some of the commission- managed cities. Another weakness lies in the fact that the plan does not insure qualified men for the administra- tive positions. The City Manager plan provides for an executive whose duties are to bring about cooperation between the various departments, to prescribe and enforce discipline throughout the entire organization and to direct its activities along the lines desired. The plan therefore possesses the elements of a strong, workable and effective organization. SECURING EXPERT COUNSEL When a private business organization is to undertake any new or large project, out of the ordinary line of its activity, it avails itself of the best advice and information bearing on the various problems involved. It does not rely upon its regular departmental organization and employees for extraordinary expert services. In its experimental work it may have, and usually does main- tain nowadays, a permanently employed research staflf. In addition, it may engage permanently or temporarily as occasion requires various types of specialists in par- 24 CITY MANAGER IN DAYTON ticular lines, as labor, legal, organization, financial, statistical, mechanical, architectural and chemical experts. It is the function of these specialists to assist the manage- ment in reaching conclusions and passing judgment on many technical matters. The same pohcy should exist in city business. The regular departments are established and maintained on a basis only large enough to conduct the ordinary routine of business demanded of them. When an extensive new program is decided upon, it is essential that the best practice and experience elsewhere be availed of, and that special assistance be obtained. Only in this wise are the interests of the taxpayers best conserved. Dayton has made so many extensions to former ser- vices since 1914, and embarked upon so many additional municipal activities, that a number of special advisers have been called in. The employment of such specialists is one of the reasons for the success of the government in Dayton, and credit for this belongs chiefly with former Manager Waite, whose experience as an executive had taught him the value of expert advice on technical matters. The Commission must also be given credit, however, for their willingness to follow the lead of the Manager in this respect and to provide the funds for such special counsel. In planning comprehensive water works improvements, the city at first employed Pollard and Ellms of Cincinnati, who made an historical study and physical valuation of the system and outlined improvements which would care for the needs of the city up to the year 1930. Later, the firm of Metcalf and Eddy of Boston have served in the capacity of water works advisers. In planning the sani- tary and storm sewer systems, a topographical survey was BUSINESS PRINCIPLES IN PUBLIC BUSINESS 25 made. A sewer survey was made and advice obtained from Metcalf and Eddy, so that the system is based upon the needs of the city up to the year 1950. When the old gas franchise came up for renewal, instead of accepting the proposal of the gas company, the city called in the firm of Hagenah and Erickson of Chicago to make a physical valuation of the plant and determine upon a scientific and reasonable rate. As a result, a rate of 34 cents per thousand feet was agreed upon, and the minimum bill was reduced from 80 cents to 34 cents, with a consequent saving to the consumers during the ten-year term of the franchise of over $240,000. More- over, the artificial gas plant was abandoned, and uni- versal natural gas service, at the lower rate, secured for the entire city. A traffic expert, Mr. Harris of Madison, Wis., was employed to study and report upon the best methods of relieving street car congestion and of securing better ser- vice. War conditions have complicated the traffic situa- tion and it has not been finally and satisfactorily settled. A continuous audit of the financial records of all city departments is made by an outside firm of certified public accountants, in accordance with a provision of the charter. An expert municipal accountant, Mr. Frederick Leach, of Cincinnati, was employed and financed pri- vately to outline a modern accounting system and super- vise its installation, though its use was never fully followed up. An engineer and architect, Mr. Fred W. Elliott of Columbus, was employed by the same means to assist in drafting the modern and complete building code of the city. He was employed because of his inti- mate study of the problem and his acquaintance with the Ohio State code requirements. In determining upon a 26 CITY MANAGER IN DAYTON solution of the long-standing problem of garbage dis- posal, and the final decision to erect its own disposal plant, the city availed itself temporarily of the services of Mr. Stephen E. Wilson of Toledo. That the solution was a provident one, as well as economically sound, is attested to by the three-year report of that utility. Olmsted Brothers of Brookline, Mass., were earlier employed, through private funds, to make a study of the park situation in Dayton, and their report was printed and distributed widely and has been the basis for subse- quent development in that field. A specialist in forestry investigated the shade tree problems, which served as a basis for the work of the city forester. Notwithstanding all the results accomplished for the good of the city and its residents, it is one of the comments of the average citizen that public funds have been wasted in such " outside expert advice." It con- stitutes to-day one of the chief stock arguments against the form of government, whereas the form is not at fault whatsoever, — it is merely the program. The populace read in the daily newspaper that an " outside expert " has been engaged by the city, and is to receive $50 per day, which seems out of reason. They ignore the short term of such expert employment, the special training required, the size of the task undertaken by the city, and the risk. No comparison is made with the cost of similar services when they are employed by private business firms, — because in the latter case the facts do not reach the newspapers and the public. A democratic government requires that its acts become known to the public, and the irony of it all is that in the one case a knowledge of the facts — although the propor- tionate cost to the individual is neghgible — should BUSINESS PRINCIPLES IN PUBLIC BUSINESS 27 jeopardize a progressive government. This is especially true if the results prove that the government made prac- tical, tangible and actual improvements, as the Dayton government did. IS THE PLAN DEMOCRATIC? In a democracy, one thing further is necessary, and that is that effective control must reside in the hands of the people and their representatives to force the executive to use his powers and the energies of the high-powered human organization to carry out the collective desires of the people in the city. It would be a grave danger indeed to make it possible to build up such an effective machine and then because of lack of well-balanced control, let it be used to the dis- advantage of the public. This control is secured in Dayton in two ways, — first, by making the executive subject to dismissal by a vote of the Commission, and second, by recall by the electorate. By a majority vote of the Commission, the scepter of power can be taken away from one City Manager and placed in the hands of another. This can be done without loss of efficiency and thus the city can change engineers at any time without stopping or slowing down the engine. This happened recently when City Manager Waite left for war duties in France, and his place was taken by former Service Director Barlow, who had been in training for the higher position for four years. It is pertinent to inquire whether the Dayton Com- mission has truly represented the citizens of Dayton in their collective desires. It is admitted by all who have knowledge of the facts that the Commission has always been alert to learn and anxious to comply with the desires 28 CITY MANAGER IN DAYTON of citizens. The sincerity, faithfulness and earnestness of purpose of the Commissioners cannot be questioned. It must also be said to their credit that they have been forward-looking and far-sighted in their plans and policies. Many new functions have been undertaken by the city, while at the same time public improvements of all kinds have been extended to meet the growing de- mands of the city. There are some indications that the Commission is not as truly representative as it might be. At the 19 17 elec- tion, the three Commissioners up for reelection were returned to office by a bare majority. The Socialists cast 43 per cent, of the votes at this election and yet they did not succeed in securing a representative. The con- test was a bitter one and the Socialists feel disgruntled at the result and are simply biding the time for another test of strength. Signs point to their early success in naming at least one commissioner. Where such conditions exist, it cannot truthfully be said that the Commission truly represents all groups in the population. There is no doubt that some form of election should be adopted which would secure a more representative legislative body. One possible reform which would afford this end is Preferential voting, which is used in the neighboring city of Cleveland. Another and more popular alternative would be Proportional Representation. Indeed, the merits of some system of proportional representation as permitting the widest expression of the entire citizenship are being recognized in a growing degree throughout the country. Several city charters drafted since Dayton's have provided it, notably the City Manager charters of Klalamazoo, Michigan, and Ashtabula, Ohio. Elections BUSINESS PRINCIPLES IN PUBLIC BUSINESS 29 were successfully held under the plan in both cities. At first thought, it seems inconsistent to recommend proportional representation — the fair representation of groups of voters — for a city having a charter which provides for only non-partisan elections. However, be- cause the system of elections recognizes no groups or fac- tions, political, geographical, or other, it is not to be assumed that such groups will deny themselves their existence and at election time endeavor to make their votes felt. Permanent success in determining policies can be assured only when interested groups of substantial numbers have a vote in deciding them. The successful operation of a business depends upon at least three things, — organization, method, and men. This holds true of a city government; and no form of government alone can ensure that capable men will always be in charge of its activities, and that adequate methods will invariably be followed. The City Manager plan makes it more easily possible to secure qualified officials for administrative positions than does any other plan yet devised, and it provides a ready method for getting rid of incompetents. Furthermore, it provides a plan of organization for getting results when the proper class of public official is secured ; and the proper method or procedure is inherent to such organization. It might be asserted that the services performed in Dayton under the City Manager plan could be performed under any other form. It will be evident from the pages which follow that they were not performed under the Mayor-Council plan. The City Manager plan did actually accomplish results. Whatever results in administration in Dayton the reader may conclude were obtained, and are being 30 CITY MANAGER IN DAYTON secured even now, under the City Manager plan, may be stated, summarily, to be due to : 1. Delegation by the electorate to a small committee, the Com- mission of five, of authority to represent them in community affairs; 2. Determination of policies by this Commission, in open meet- ing of the whole and with full publicity as to their acts; and employment of a full time, capable, chief administrator to execute their policies and orders ; 3. Delegation of full authority to this executive to build up his own administrative organization to do the work of the city departments under his direction ; and of responsibility upon this executive for results ; 4. Performance of these services in accord with a complete, unified and cooperative program, secured through constant supervision by the executive and staff conferences ; and 5. Complete and prompt reports by the chief executive to the Commission, of performance; and report by the Commis- sion to the body politic of results achieved. CHAPTER III DETERMINING PUBLIC POLICIES Mayor-Council Plan. Council of IS' members, — elected I each from 12 wards and 3 at large; ward lines recognized; numerous other elected offi- cials. Partisan elections. Term of office, 2 years; all terms expired same year. Presided over by President, elected at large, for 2 year term, who voted only in case of tie. Salary — council member, $450; president, $500. Meetings — ■ bi-weekly ; evening ; open to public. Calendar, pre- pared by committees. Com- mittee meetings not open to the public. Work done through committees of 3 ; at least 20 committees, as finance, streets, water, elec- tions, sewers, health, law, etc., etc. Committee of the whole on important matters. No provision for initiative, re- call or referendum. Appointed city clerk. Approved all appointments of mayor. Governed by Ohio municipal code and city ordinances. City Manager Plan. Commission of S members, — all elected at large; ward lines abolished; short ballot princi- ple followed. Non-partisan elections, and di- rect primaries. Term of office 4 years ; terms of 3 commissioners expire one year, terms of other 2, 2 years later. Presided over by Mayor, who is commissioner receiving high- est number of votes at election of 3 commissioners, and who votes regularly. Salary — 4 commissioners $1200 per yr. ; mayor, $1800 per yr. Meetings — Weekly ; daytime ; open, public invited to attend and be heard; calendar pre- pared in advance. One eve- ning meeting each month was started in igi8. Work as committee of the whole. Provide for initiative and refer- endum; commissioners subject to recall. Appoint Clerk of Commission. Appoint City Manager. Governed by city charter and State statutes not delegated by home rule amendment. 31 32 CITY MANAGER IN DAYTON Mayor-Council Plan. No meetings with mayor as ad- ministrative head of city. Published no annual report. Appointed civil service board. No citizen advisory boards. No regular inspection trips,— interested councilmen kept in touch with conditions. No audit of financial transac- tions, except by the State Bu- reau of Auditing. Enacted all legislation. Prepared annual budget ; no pub- lic hearings on budget. City Manager Plan. Weekly conferences with City Manager to prepare calendar. Publish annual report of city. 30,000 copies distributed to residences. Appoint civil service commission. Take every opportunity to name advisory citizen boards, — as city planning, markets, recre- ation, etc. Visit all public improvements on inspection trips at least twice a month. Provide a continuous audit of fi- nancial records. Enact all legislation. Consider budget prepared by City Manager and pass appro- priation ordinance ; provide public hearings before its pass- age. The above parallel indicates in outline the chief differ- ences in organization and procedure of the legislative bodies prior to 19 14 and since 19 14. It points out definitely and conclusively the basic principles underlying the commission-manager type, which have permitted the successful conduct of the city's alifairs since 1914. It needs no discussion to show that with partisan elec- tions and the ward system of representation in council, politics would play its part. With politics influencing both the legislative and administrative officials there was bound to be " log rolling " and dickering. With ward representation and a large council, " log rolling," dissen- sion and procrastination were the order of the day. In the charter lines are clearly drawn between the legis- lative and executive branches. There is an entire absence of political influence, with its give and take. One ward cannot play its demands against other wards because the DETERMINING PUBLIC POLICIES 33 commission considers matters only from the point of view of the city as a whole. A small commission can consider fully and act upon all matters properly requiring its attention, and can delegate to the administrative offi- cials responsible to it those matters not legislative in nature. Prompt action is thus possible. In every way the present organization is an exact duplication of the organization to be found in the successful private cor- poration to-day. Under the old regime the success of the administration was determined in large part by the representation of political parties in council and in the elective offices. If there was a comparative unity in their political composi- tion, the citizen could hope for some results in public service. If neither party had a substantial majority of offices, there was no hope for the individual citizen. But even with a strong party in control of the public offices, the system precluded the substantial results now obtained. This was due to a number of reasons, other than that the party gave first attention to rewarding its supporters. With a possible change in personnel every second year, and often at the same time a change in party domination, it was impossible to carry to a conclusion any program of administration or of public improvement. A comprehensive plan of extending the physical develop- ment of the city, or of using its equipment, could scarcely be prepared during one administration, and if started it would be certain of discard by its successor, — in order that responsibility and credit might not accrue to the initiators. Furthermore, the periodical change of administrative officials made it impossible for them to execute any con- tinuous and intelligent plans. The officials were better 34 CITY MANAGER IN DAYTON politicians than executives, and invariably had to undergo a period of training and experiment before they could carry out with safety or assurance any proposals. New functions of government were not to be thought of, and the scope of the local government did not expand with the times. Any plan of improvement proposed for one section of the city could not be expected to meet with the approval of a jealous council, unless the councilman who sponsored the plan was willing to concede something desired by the other members, each guarding his own limited section of the city. An appropriation here must be compensated by a like one there. The benefit to the city as a whole of any legislation was quite unthought of. The maxim might have been written : " Me for what I can get for my own ward! " The large council of fifteen members found itself un- able to give consideration to every subject requiring its attention and action, due to the difference of opinion to be found in a large representative body elected to protect each his local section. It grew to be the custom from years back to refer all but the most important matters to committees within the body. These committees were usually of three members, and covered every phase of the city's interest. There were committees on streets, water works, parks, buildings, health, street lights, sewers, rivers, levees, condemnations, workhouse, in- firmary, finances, police, fire, elections, etc., etc. Just before the council went out of office there were over twenty committees, and a councilman had an average of five or six memberships on committees. DETERMINING PUBLIC POLICIES 35 A SAMPLE OF POLITICS That so large a body proved unwieldy and considered the interests of the political bosses at the expense of the city's general welfare and future was proved numberless times. At one time a public-spirited possessor of several hundred acres of hills and woodlands at the south edge of the city offered the entire holding to the city gratis, for use as a public park. This offer aroused the jealous ire of the councilmen from the opposite section of the city who could see property values to the south increase and the prestige of their district endangered. Violent opposition was arrayed against the acceptance of the proffered park lands, and, with political influence brought to bear, the offer was refused. To-day, some of these park lands are owned by the city, as the present commission was a unit in voting to accept a deed to 294 acres, again offered as a gift to the community. The remainder of the tract, several hun- dred acres, is open to the people although privately owned. Another matter of tremendous economic and personal import to the city is that of eliminating grade crossings. However, certain sections have no railroads and they are slow to vote the city's portion of the cost unless they can receive some important public improvement as an offset. When this matter came before the old councils, as it frequently did, there was always a storm of protest and a flow of oratory to defeat it. When the present commission came into office, a bond issue of $5,000 was passed to cover the preliminary investigation preparatory to separating the grades. However, with the refusal of the electorate to authorize 36 CITY MANAGER IN DAYTON an issue of bonds for the city's share of the expense, the matter was discontinued. It is now quiescent, pending a return to more nearly normal conditions. The Commis- sion is a unit in desiring to proceed, but must await the development of a popular sentiment to remedy the evil. PLACING RESPONSIBILITY Under the councilmanic rule, every improvement in service desired by a citizen had to be referred to the councilman for the district, who introduced the proposal before the council. The councilman made certain that the record carried the recital of his resolution, as it was necessary he retain or win the friendship of the citizen who would request anything from the council. His record was then clear. The matter was then referred to the head of the department concerned in the request, and with the reference passed the responsibility. The de- partment head ordered an investigation and report of cost. If convenient, the street was repaired or the light placed; if not, the department head found it necessary to report back to council a shortage of money in the par- ticular fund which would bear the expense. Thus responsibility was placed on the " next man," — the only task of the citizen was to find this man, and wait for his want to be acted upon. This practice of " passing the buck " was one of the chief causes which led the citizens to overthrow the large council form for a smaller and more compact representative body. " Bunkum " resolutions have passed into history. THE COMMISSION AT WORK The Commission conducts its affairs in an efifective and businesslike manner according to a calendar prepared The Community Country Club- ,300 Acres for Recreation DETERMINING PUBLIC POLICIES 37 two days in advance. Meetings are called to order promptly, 'the regular order of business is followed, and the necessary action taken on matters coming before it. Meetings are held every Wednesday morning, and beginning in 1918 one evening meeting each week is held. The City Manager attends all meetings, though he has no vote. The meetings are public, and all busi- ness is transacted at these meetings. During 19 16, an average of 25 citizens were in attendance at each regular meeting, with a total attendance during the year of 1,300. Nineteen special meetings were held in 19 15 and 15 in 1916. In addition 28 meetings of the Commission were held in 19 16 to consider the new building code, 11 of which were specially called at night for the purpose of giving all trades and interests ample opportunity to offer suggestions for changes. The Commission, usually in company with the Manager, make on the average one inspection trip each week to obtain a first-hand knowledge of conditions in the city and improvements contemplated. Only general matters of policy need now occupy the attention of the Commission. The public is given a hearing on any subject before them. Every effort is made to learn the public point of view before action is taken. The strict observance of the difference between fixing policies and executing them is one of the chief reasons for the success of the form of government. The improvement in form over that of the straight Commission plan cannot be over-emphasized. With the straight Commission type, the Commission meets and enunciates policies; it then adjourns, and severally the commissioners become administrative officials to execute these ordinances or resolutions; they then convene once more as a reviewing body, to pass judgment upon their 38 CITY MANAGER IN DAYTON work as administrators. Thus, the vital distinction be- tween legislative and administrative functions is confused or lost. In watching the work of the Dayton Commission dur- ing the first few months of operation there appeared the danger of its being merely a rubber-stamping body, to put the mark of approval upon every official act of the Manager it had appointed. There was the expressed tendency upon the part of a commissioner to pass legis- lative prerogatives to the Manager. In even so im- portant a matter as consideration of the annual budget a commissioner was once heard to remark : " Let the Manager worry about that; that's his job." However, the Commission in due course came to its senses, and now carefully guards its rights and powers. It realizes its direct responsibility to the people, and is assuming its proper function. There is still a disposition on the part of some citizens to take every complaint, criticism or suggestion to the Manager, and while his office is open for all community problems, the general tendency is coming more and more to be to refer matters to the Commission, the authorized representatives of the people. During the past four years many important matters have required the attention of the Commission. These include the passage annually of the operating budget, resolutions ordering numerous public improvements, the fixing of a price for gas and electric services, passage of ordinances regulating traffic, adoption of the building code, regulation of street car service, and many other sub- jects specifically discussed in other chapters. These matters have been looked at from the point of view of the greatest good to the greatest number, — the DETERMINING PUBLIC POLICIES 39 safest rule for insuring democratic government. Never has there been a suspicion of graft connected with any of the official acts of any commissioner or with any public official aiding in a determination of the action taken by the Commission. Opposition has voiced itself, of course, to certain policies agreed upon, but never has the majority of the electorate failed to appreciate the spirit behind the action. It remains true that even this cumulative feeling of discontent may some day be suffi- cient to overthrow the Commission, if not the plan, in the face of its honest endeavors. CIVIL SERVICE COMMISSION The first citizen board appointed by the Commission was the Civil Service Commission, named at once in 1914. Since 1902 there had been provided by the statutes a commission to establish and maintain the merit system in the holding of public office, and in promotion and de- motion. Under strong partisan influence, however, the personnel of this commission underwent a change with each fluctuation in political control. Accordingly, the membership of the commission was dominated by the party in power and which appointed it, and in turn through the secretary every public employee was carefully listed as to his choice of ballot. Examination of the old files of the civil service com- mission reveals a variety of papers which told, in code, each employee's political tendencies. Applications, ex- amination papers, results of tests index cards, — all bore mystic characters to mark the brand of the supposedly non-partisan commission on every office holder, and it reached into every branch of city service. 40 CITY MANAGER IN DAYTON The code of the partisan civil service commission, which made a travesty of real merit service, is reproduced herewith : * Does not vote C Colored ° Democrat W White — Republican dbt Doubtful -H Socialist ng- No good w.p. Ward and precinct lu Look up / Doubtful See — D Democrat Orendorf R Republican Weaver S Socialist Hodapp P Prohibition Nipgen That is the story of the merit service in the days of politics. When the Commission took office they im- mediately named a non-political civil service board of three members. The old commission contested the action throwing it out of office, but the court held that the home rule charter applied to the civil service activities. The charter specifically provides that all officers and employees shall be appointed on the basis of merit and fitness alone, and that a record of their efficiency in the service be kept. These obligations have been carried out, by the appointment of a secretary who prepares writ- ten examinations and who interviews each applicant. Advice of disinterested persons outside the service is liberally availed of in preparing questions. The city physicians conduct the necessary physical examinations. A system of efficiency ratings has been introduced into each department, but it is not well kept up. A standardi- zation schedule for all positions and salaries was adopted by the city commission in 19 16, but it is in need of revi- DETERMINING PUBLIC POLICIES 4I sion, due to the substantial change in economic conditions since its preparation. This commission is the only advisory board receiving salaries. By the action of two members, who have since withdrawn from the board, a salary of $250 per year is paid each member. As the position is largely honorary and advisory, no salary should be voted for the service given. The most extensive time ever devoted to the work by the board was in 191 5, when a hearing was con- ducted for one week on the appeal of the chief engineer of the water works pumping station, who was dismissed from the city service. After a thorough trial, the deci- sion in the case upheld the City Manager in his action. This is the only appeal which has come before the board, and the test proved it could not be swerved by political or other outside influence. Records of the civil service commission for years prior to 1914 were not available. Following is the statement of its work since then : EXAMINATIONS GIVEN BY CIVIL SERVICE COMMISSION Number of Number of Persons Number Number Peir cent. Year Examinations Examined Passed Failed Passed 1914 52 ?63 170 93 65 191S 59 704 466 238 66 1916 57 5S6 383 173 69 1917 S8 404 270 134 67 There is perhaps more criticism directed against the operations of this branch of the city government than against any other. There seem to exist in some depart- ments well founded charges of favoritism. These charges are a criticism against the City Manager gov- ernment insofar as they have not been investigated and the defects remedied, 42 CITY MANAGER IN DAYTON CITIZEN ADVISORY COMMISSIONS As has been stated earlier, the Commission makes every effort to obtain the sentiment of the people upon all matters. This policy is based upon the theory that only by having the confidence of the public can a continuous program be successfully consummated. Every effort is made to secure an expression of opinion on important matters from neighborhood improvement associations, the labor unions and the central labor council, private (non-political) clubs and the commercial organization known as the Greater Dayton Association. Publicity in the daily newspapers is courted, and the editorial and correspondence columns have more than once thrown the balance for or against action on proposed legislation. Particularly has the Commission been willing to give audience to the opposition, and, consistent with its policy, either modified its action or adhered rigidly to its standard of performance. In yet another manner the Commission has carried out a plan giving a widely representative or popular govern- ment. Recognizing that in a composite population there are always to be found citizens who are specially equipped to render a service to the entire community, men who have special qualifications not to be found within their own number, the Commission has been liberal in appoint- ing advisory citizen boards. The accruing benefits are many. The city is given expert advice on special problems, often beyond the scope of the Commission without an extensive amount of technical investigation and advice, and on the other hand the citizens are assured that their representatives in the Commission are too provident to pass judgment on DETERMINING PUBLIC POLICIES 43 all matters as a committee sufficient unto themselves. Through these boards the government has unfolded itself to a perceptibly larger proportion of the populace than it could have had it debated secretly and brought forth de- crees from behind closed doors, blind to the necessity of taking the citizens into its confidence. Special boards have been appointed and given power of investigation; they have made their inquiry and report; their works have brought forth fruit ; their work was done ; the entire city has profited without a cent of cost from the public treasury ; the boards have been excused and the members retired to private life. This is a step forward in obtain- ing government by the people. CITY PLANNING BOARD A board of three citizens was appointed in 1914 to pass on all city planning and prepare comprehensive plans for future growth, both within the present limits and three miles outside the city. This board comprises a manufacturer as chairman, a business man and an archi- tect. It has worked continuously for over three years, and has prepared extensive plans which await the pleasure of the City Commission. A civic center, a boulevard system and park areas have been carefully worked out. Owing to the abnormal times, it has been deemed expedient to hold the plans in abeyance tempo- rarily. Much in immediate results, however, has been accomplished through the board's consideration of and action upon proposed new platting and the designing of approaches to one of the new bridges. The board has worked in cooperation with the en- gineers of the Miami Conservancy District, which has 44 CITY MANAGER IN DAYTON the task of safeguarding the city from the dangers of floods. OTHER ADVISORY BOARDS Among the boards which have rendered service of special value to the city are a recreation committee of fourteen citizens, a board on renaming and renumbering streets, a board to draft a building code, a civic workers' league to promote clean-up work during the year, a com- mittee on amateur baseball, a women's market board, a committee to hold a municipal exhibit, and, more re- cently, citizen committees of large numbers to deal with the problems of street car service, and obtaining and distributing coal to the citizens. Furthermore, the attention of the City Commission has been given the civic music league, the merit boards for the division of fire and police, and the parole board which paroles workhouse prisoners. Close cooperation has been had with civic agencies performing charitable work, maintaining parks and playgrounds, and super- vising garden work. Gradually, as funds permit, these activities are being assumed by the city government, so far as they are community activities. After the declaration of war by the United States, the Commission cooperated to the fullest extent with all recognized local war agencies, and special problems of protection to munitions plants, housing, distribution of fuel and food, and other national problems, have re- ceived its earnest thought and fullest support. SOME EVIDENCES OF SUPPORT While testimony as to the measure of success of the Commission-Manager plan is replete throughout the DETERMINING PUBLIC POLICIES 45 chapters which follow, there are yet other evidences of the high regard in which the operation of the plan is held by the citizens. Among these may be mentioned the outright gift by a prominent and public-spirited citizen, Mr. Adam Schantz, of a 50-acre park, lying some distance outside the city, and more recently of another park strip in the city along the river front; also the opening of a privately owned country club to all citizens, the owner to stand any deficit in its operation during the summer months. These are but instances. The vote to sustain the present form and the present body of commissioners, given in November, 19 17, in view of the very great strain of economic uncertainty and social unrest, coupled with a strong anti-war and pro-German sentiment in the com- munity, established definitely and unquestionably the pre- vailing sentiment of endorsement of the plan, work and results of the Commission. Certain it is Dayton's citizenship gave the sign " Full Speed Ahead " for four more years, and the mass of citi- zens — laborers, merchants, professional men and manu- facturers, — yes, and even the housewives, — will watch and wait and work that the politician may not return to his former lair, but that through obtaining a maximum of service for a minimum of expense, and when and where desired, Da)^on shall prove that business sense and practice may be applied to obtain a successful city government. CHAPTER IV THE CITY MANAGER AT WORK The charter provides that the Commission shall appoint a city manager who shall be the administrative head of the municipal government and shall be respon- sible for the efficient administration of all departments. He is appointed without regard to his political beliefs and may or may not be a resident of the city of Dayton when appointed. The charter does not fix his salary. The first Manager received a salary of $12,500 per year, and the present official receives $7,500. The charter further provides that the Manager may be recalled by a vote of the people. The recall has never been tried in Dayton. The recall provision has been generally conceded to be an error since the Manager is solely an administrative officer engaged to carry out policies agreed upon by the Commission. Responsibility for his work should rest squarely upon the Commission. If the Manager is incompetent, the Commission has selected unwisely and can dismiss him. If measures are unpopular, the Commission which ordered them put into efifect is responsible. At first the public in Dayton only imperfectly understood the line of demarcation between the duties of the Commissioners and those of the Man- ager and as a result they took most of their complaints, criticisms, advice and orders to the Manager regardless of whether questions of policy or of performance of service were involved. All matters of policy should be 46 COLONEL HENRY M. \'\-Arr!-: City Manager of Dayton, 1914-1918 THE CITY MANAGER AT WORK 47 taken up with the Commissioners. All matters of per- formance of service should be taken up first with the Manager. DUTIES OF THE MANAGER The duties of the City Manager are concisely set forth in the charter, which states that his duties and powers shall be: (a) To see that the laws and ordinances are enforced; (b) To appoint and, except as herein provided, remove all directors of departments and all subordinate officers and employees in the departments in both the classified and unclassified service; all appointments to be upon merit and fitness alone, and in the classified service all appoint- ments and removals to be subject to the civil service provisions of this charter; (c) To exercise control over all departments and divisions created herein or that may be hereafter created by the Commission ; (d) To attend all meetings of the Commission with the right to take part in the discussion but having no vote ; (e) To recommend to the Commission for adoption such measures as he may deem necessary or expedient ; (f) To keep the Commission fully advised as to the financial condition and needs of the city; and (g) To perform such other duties as may be prescribed by this charter or be required of him by ordinance or resolution of the Commission. The charter further provides that the City Manager may without notice cause the affairs of any department or the conduct of any officer or employee to be examined. CHOOSING THE MANAGER In selecting a manager, the Commissioners considered first the men in Dayton whom they thought might possess 48 CITY MANAGER IN DAYTON the requisite qualifications and the position was offered to several prominent local business men. None of these men was available. The position was offered to Colonel G. W. Goethals at a salary of $25,000. While this offer was made in good faith, one of the elements involved in the incident was the advertising effect which such an offer would create throughout the United States. It afforded an excellent opportunity to advertise Dayton and her new city government and this was made the most of. Finally, Mr. Henry M. Waite, who was at that time city engineer of Cincinnati under Mayor Henry T. Hunt, was chosen. Mr. Waite frankly took the position that he was enter- ing a new profession concerning which he had many things to learn and he was quick to accept and use sug- gestions and ideas which came to him either from mem- bers of his own organization or from persons outside his own organization. This was one of his elements of strength. He possessed a keen insight into human nature and human problems and was in hearty sympathy and accord with the democratic impulses and desires of the citizens of Dayton. He was as deeply interested in the success of this new experiment in government as he was in his personal record. BUILDING UP AN ORGANIZATION The qualities of an executive are revealed in his ability to choose subordinates wisely. Mr. Waite soon showed his executive ability. For Service Director, he chose Mr. James E. Barlow, an engineer of many years' experience in municipal work for both the city government and the Bureau of Municipal Research, of Cincinnati. He also brought with him as Superintendent of Streets, Mr. THE CITY MANAGER AT WORK 49 Harry P. Martin, who had been associated with him as Superintendent of Streets in Cincinnati. The other di- rectors were all local men, but each one was selected because of his particular fitness for the position to be filled. In making appointments to the civil service positions, the policy was adopted of always choosing the man at the head of the certified list and this plan was rigidly adhered to although the rules permit a selection from the entire list. A working agreement was entered into be- tween the Manager and the Civil Service Commission which assured him practically absolute and final authority over the dismissal of employees from the service. Dur- ing the years a number of men were dismissed, but in each case the action of the Manager was approved and sustained by the Civil Service Commission. The charter makes it unnecessary for the Manager to secure the approval or confirmation of his appointments by the City Commission and the Commission wisely re- frained from interfering with the prerogatives of the Manager in making appointments and dismissals. STIMULATING AND CONTROLLING MEN A successful manager must not only be able to select subordinates wisely but he must also be able to stimulate men to their best endeavors and at the same time keep all this human force and energy directed into the right channels of activity. By reason of his compelling per- sonality which pervaded the organization the Manager was able to get the men in his organization to work with him. He frequently commented on the fact, however, that he was unable to get the same response from his men as he had been accustomed to in private business. 50 CITY MANAGER IN DAYTON He placed some reliance upon reports and records of work performed but more reliance upon his knowledge of affairs gained through personal contact and observation. His ambition was to receive daily, weekly or monthly reports in condensed form from each bureau and depart- ment, preferably in the form of graphic charts, and con- siderable progress was made along this line although the reporting system was not complete for every bureau. Consolidated daily reports covering the activities of the police and fire department are received each morning ; the activities of the service department are presented in the form of graphic charts monthly ; as also the financial statements of the city. THE manager's ROUTINE A mass of details pour into the office of a City Man- ager, even more than those requiring the attention of the ordinary executive. Letters, reports, regular depart- mental procedure, and callers must be taken care of. About 12,000 persons talked with the Manager in 19 15, on a wide range of subjects, and 10,000 in 19 16. Fre- quent requests and invitations come to the Manager to speak before local organizations, and these are scheduled and complied with so far as possible. The Manager averaged three talks a week before various civic and im- provement societies in 191 5. During the first two years many out of town invitations to speak were accepted both by the Manager and his department heads, but later this policy was abandoned and but few such engagements are now made. The charter requires that each purchase order shall be approved and countersigned by the City Manager or his deputy and every warrant shall be countersigned by the THE CITY MANAGER AT WORK 5 1 Manager. It is doubtful whether the Manager should be compelled to approve documents of which he has no personal knowledge and he has little time to investigate the merits of the thousands of business transactions occurring. Such whims, however, invariably creep into a popularly conceived charter. This provision makes it necessary for the Manager to sign about 350 contracts, 7,500 purchase orders, 1,200 payrolls and 10,000 war- rants each year. Much of this work is in actual practice performed by his secretary. The regular meetings of the Commission each week are attended by the Manager, who takes an active part in all the proceedings and discussions, although he has no voting power. The Manager usually accompanies the Commission on a weekly inspection trip, to maintain a first hand knowledge of general conditions in the city and of improvements under way and contemplated. STAFF CONFERENCES Weekly staff conferences are held every Monday after- noon by the Manager and his department heads, for the discussion of matters of interest to the organization. These staff meetings constitute one of the main strengths of the City Manager form of government, and result in a unity of purpose and performance contributing substan- tially to its success in giving the public the services it desires. In addition to these, he holds almost daily ses- sions with department and division heads, and occasion- ally finds time to make departmental inspection trips. Every Monday afternoon, at a later hour, he holds a meeting with the Commission for the purpose of arrang- ing the calendar for the meeting to be held the following Wednesday, 52 CITY MANAGER IN DAYTON PREPARING THE BUDGET A most important task before the City Manager each year is the preparation of the budget, compiling the de- partmental estimates and submitting them to the Com- mission. Days and weeks are spent in conferences with the heads of departments and divisions before the budget is ready for final submission. All departmental requests are made on standard forms which show in parallel columns the expenditures for the year just past, and the requests for the ensuing year, for eacli item. This work is started on November ist, as required by charter, and usually requires until February before satisfactorily settled. Each year it is found necessary by the Manager to reduce the requests of departments in order that the total of estimated expenditures may not exceed the total of anticipated revenue of the city. In 1914, for instance, department requests were reduced $45,000; in. 1915, $70,000, and 1 91 6 about $91,000. Later in the year, about July or August, after the taxes for the first half of the year are remitted by the County Treasurer, a revised estimate of revenue is drawn up, and based upon this figure budget hearings and confer- ences are again had by the Manager and the directors of the departments and such further cuts in appropriations are made as seem necessary in order to live within the revised estimate of revenues for the year. Thus the City Manager gives his primary and continuous attention to operating the city on a pay-as-you-go basis. THE CITY MANAGER AT WORK S3 CIVIC COOPERATION Successful government depends upon the cooperation of the public if social ideals are to be realized, and results of permanent worth are to be attained. It is more neces- sary that a city manager shall possess the power of stimulating, arousing and keeping interested the citizens in the city's problems and of enlisting their active co- operation and support than it is that he shall have a technical training which will enable him to pass judgment upon the intricate problems of construction. City Man- ager Waite realized the necessity of maintaining the con- tinuous interest of the citizenship and actively supported every plan which would afford a point of contact between the citizens and their government. The methods of pro- moting and sustaining this interest are many and varied. Newspaper reporters are made to feel that they are welcome visitors at the Manager's office. Considerable time is spent with them in going over new plans or projects. The current mail in the desk trays in all offices is always open to the newspaper men. The Manager's office acts as a complaint bureau. The complaints of citizens are received there, and referred to the proper department for investigation, and the results are always reported back to the citizen who is interested. A Civic Music League was formed early in 19 14. The organization has the cordial cooperation of all the musi- cians, both amateur and professional, and puts on a course of concerts through the community centers in the schools or public playgrounds. The musicians ofifer their services and give these small concerts, after which the audience are led in chorus singing. In some of these centers the attendance increased from only ten or a dozen 54 CITY MANAGER IN DAYTON at first to 125 or 150 before the close of the season. A series of concerts by artists and singers of the highest national reputation is given each year, during the winter season, in Memorial Hall. Six concerts, and sometimes a post-seasonal one, are offered the public for $3.50 for the entire course. Invariably the Hall is filled to capac- ity. The Manager has devoted considerable time to the promotion of amateur sports. Manager Waite put the government behind the organization of the amateur base- ball league and provided various ball diamonds. A baseball team was organized among city employees and the Manager offered a loving cup to the team winning the city championship. The Manager has taken a great deal of interest in the social welfare work which is being done in the city. The work of the Visiting Nurses Association and the Tuber- culosis Society was early coordinated with the activities of the Division of Health. The activities of the Play- ground and Garden Association were linked with those of the Division of Recreation. Wherever possible, citizen committees are appointed for the purpose of getting the people interested and active in solving the city's problems. In 19 1 5 a bond budget was submitted to the people, and the City Manager and other officials conducted an educational campaign for two months prior to the elec- tion, explaining the necessity for voting for the improve- ments necessitating the bonds. The newspapers and civic organizations approved and worked for the issues. The people manifested their endorsement of the adminis- tration's program by passing all nine bond issues, totaling $1,053,000, by more than the required two-thirds ma- jority. THE CITY MANAGER AT WORK 55 During the winter of 1914-1915 Manager Waite forced through a waterworks extension program and financial provisions for it, and thus gave employment to hundreds of men who were unable to find other work. Married men with families to support reported for work with tears in their eyes, so grateful were they for the opportunity the city afforded them to provide food and fuel for those at home. Preference was given first to married men, and then to Americans, and by alternating days for the men to report over 2,200 men were carried on a part-time payroll, and were paid off daily. During the coal shortage of the following winter, Manager Waite took into his own hands the distribution of what coal the city could obtain through every possible channel, and thousands of orders were placed by citizens, for limited amounts of coal provided they had not more than a three days' supply on hand. All the extra work which this entailed was handled by the purchasing divi- sion and the Manager himself. The success of City Manager Waite in Dayton was due not so much to the fact that he is a trained engi- neer, as he used his engineering knowledge but little, — since he had trained engineers under him, and employed experts whenever occasion necessitated and justified, — but it was due to the fact that he appreciated and under- stood the public and was a master in the art of stimulat- ing and controlling men. It was because he marched out with the baseball boys on opening day and pitched the first ball across ; because he talked to small groups in va- rious sections of the town on their pet hobby ; because in his interviews with citizens who came to his office, he was able to send them away with a smile even though there may have been hqrsh words spoken in the conferences, 56 CITY MANAGER IN DAYTON Colonel Waite left the position, of City Manager at the peak of success. Conditions during the administration of Manager Barlow have been very unsettled; some de- partments are short-handed because of extensive enlist- ments for military service; revenues have proved insuf- ficient for the needs of the city, due to rather complicated conditions arising through the state laws, and approach of prohibition. In the perplexing problem of finances. Manager Barlow has been a vigorous leader, seeking a state-wide solution for the difficulties confronting all Ohio cities. The term of the present Manager's service has been too limited to permit a conclusive appraisal. Indications are that the form of government provides the machinery for a continuance by all departments of the best service possible under the financial handicap. The Manager's Corner at the Municipal Exhibit A " Run " on the City Purchasing Oflice During the Coal Shortoige CHAPTER V HUMANIZING CITY GOVERNMENT All health and welfare work in the city of Dayton is combined in one department — the Department of Pub- lic Welfare. The broad powers and duties given the de- partment by the charter made it at the time of its adoption unique among city departments of this nature. That such powers and duties were given is in large measure due to the influence of a few prominent citizens who had been doing much for general welfare in the city out- side of the government. The charter provides that, subject to the supervision and control of the City Manager in all matters, the Di- rector of Public Welfare shall: (a) Manage all charitable, correctional and reformatory in- stitutions and agencies belonging to the city; (b) Supervise the use of all recreational facilities of the city, including parks and playgrounds ; (c) Have charge of the inspection and supervision of all public amusements and entertainments. (d) Enforce all laws, ordinances, and regulations relative to the preservation and promotion of the public health; the prevention and restriction of disease; the prevention, abatement and suppression of nuisances ; and the sanitary inspection and supervision of the production, transporta- tion, storage, and sale of food and foodstufifs; (e) Cause a complete and accurate system of vital statistics to be kept; (f) In time of epidemic, or threatened epidemic, he may en- force such quarantine and isolation regulations as are appropriate to the emergency ; 57 58 CITY MANAGER IN DAYTON (g) Provide for the study of and research into causes of pov- erty, delinquency, crime and disease and other social problems in the community; and (h) By means of lectures and exhibits promote the education and understanding of the community in those matters which affect the public welfare. A section of the charter is devoted to the duties of the Health Officer under the direction of the Director of Pub- lic Welfare. To perform the duties set forth in the charter the de- partment is organized in five divisions : Office of the Director Contributions to charities Bureau of legal aid State-city free employment exchange Division of Health Division of Correction Division of Recreation Division of Parks Dr. D. Frank Garland, the Director of the Department, states the purpose of the Department in the introduction to his annual report for 1916: " The Department of Public Welfare is a community expres- sion of the new conception of the duty of government to the people who create the government. The city government, being the common agency for securing the common good, is through this department seeking to render to the public such social serv- ices as the public in its individual capacity cannot provide. The government agency is the only agency within the city which represents 100 per cent, of all the souls within its bounds, and is the only organization which has the authority, the power and the means equal to meet the needs which must be met in th? community, such as the promotion gf health in the preven- HUMANIZING CITY GOVERNMENT 59 tion of disease, private employment, free legal aid, public recreation, outdoor relief, hospital service, and similar services." For the past five years the city has been endeavoring to meet all these needs fully. As yet it has not fully ac- complished its purpose. The lack of adequate finances — through no fault of the department or of the city government — prevents the complete carrying out of the program which the department is working on. In spite of its inability to finance all the welfare needs of the city, progress is being made in their coordination within the department. Through cooperation with private welfare agencies the department is securing the direction of ac- tivities even where it is not able to finance them com- pletely. This is instanced in city nursing. All public health nursing is since 1914 under the Division of Health. The Visiting Nurses Association and the Tuberculosis Society, private organizations, have given the direction of their stafifs to the Division. These organizations pay the salaries and the city provides quarters and super- vision. Another instance is the case of the Playgrounds and Gardens Association, which gives a part of its funds to the Department to centralize all recreation work under the Division of Recreation. DIVISION OF HEALTH Of nothing has Dayton been more proud in its new government than of the development of its health work. Yet Dayton spent only 30 cents per capita on health in 1917, and 34 cents in 1916. This is an increase over 191 1 of 13 cents and 17 cents respectively. While this per capita expenditure is growing, yet it is small for a city of the size of Dayton. If Dayton has 6o CITY MANAGER IN DAYTON accomplished health results it has done so with a rela- tively small expenditure of money. The work of the health department of a 'few years ago consisted largely of more or less accurately keeping account of births and deaths, trying to quell epidemics whenever they occurred, fumigating a house after a con- tagious disease, and doing such a minimum of inspection work as the above duties demanded. Gradually this idea of the functions of the health de- partment has given way to the idea that a health depart- ment is a dynamic thing with a program of disease pre- vention as well as a recording agency. This conception has brought with it a vast extension of duties — includ- ing sanitary inspection, inspection of production and dis- tribution of all kinds of foods, free laboratory service, free distribution of milk and ice during the heated sea- son, extensive educational work along health lines, and free and widespread nursing and medical service. Health has become a community ideal. A Program and a Policy The difference between public health work in Dayton under the old regime and under the new is just this dif- ference between the old conception of health work and the new. Inspection work looking toward the preven- tion of disease had been begtm but was not effective or efficient. A large part of the time and effort of the de- partment was spent in trying to overcome epidemics. In 19 1 2 it was necessary to issue bonds three times to fight epidemics. Food inspection, laboratory service, and pre- ventive medical service were of little value as provided. The health officer was on part time ; there were no medical inspectors ; there were no city employed nurses, etc. The Hundredb of "\ oung Mothers are AcUiseil m Clinn Free Milk is Distributed by the Citv at Several Static HUMANIZING CITY GOVERNMENT 6l department as a whole lacked policy and program. In 19 1 3 the Bureau of Municipal Research made a survey of the Department of Health and in conjunction with other bodies interested in public health and with the Board of Health outlined what was accepted as a progres- sive health program. The Division of Health to-day has a program and a policy. Its program looks toward the elimination of un- healthful conditions in the city. Its policy aims to pro- vide thorough inspection of all community conditions which have an effect on the health of the people. There is now better sanitary inspection, efficient though as yet incomplete food inspection, more adequate laboratory service, free nursing service, and free medical inspec- tion. Educational campaigns are carried on, baby clin- ics and milk stations are maintained and general health instruction is given. Already the program prepared in 1913 has been far surpassed in nearly every respect. Organisation and Personnel The personnel of the Department of Health has been largely extended and improved. Taking two representa- tive years — 19 12 and 19 16 — the comparison is as fol- lows: Mayor-Council Plan,— 1912 City Manager Plan, — 1916 Board of Health — 5 members Division of Health — one health — no salary. officer, full time — salary $3600. No medical inspectors. Five district physicians, part time at $Sco, and one epidemi- ologist, part time — $1200. No city nurses. Four city nurses, full time at $900, and two, part time; and supefvision of 8 nurses paid by private charities organiza- tions. 62 CITY MANAGER IN DAYTON Mayor-Council Plan, — 1912 City Manager Plan, — 1916 One food inspector, part time One food inspector, full time, — $1200. $1800. One meat inspector — $1200. Two meat inspectors — $900, $1200. One dairy inspector — $1200. Two dairy inspectors — $900. One bakery inspector — $1260. Five sanitary police — $900. Five sanitary officers — $900. One chemist and bacteriologist One chemist and bacteriologist — $1200. — $2000. One assistant chem- ist — $480. One clerk — $1500. One clerk — $1200. One stenographer — $600. Three stenographers — $600. One record clerk — $600. One telephone clerk — $720. One quarantine hospital superin- tendent — $600 and living ex- penses. Since 1916 there have been some shifts in personnel, and increases in salaries. The organization of the Health Department in 19 12 was headed by a Board of Health of five members serv- ing without pay. Under this Board was the health offi- cer, who was in nominal charge of all the other employees, all of whom were more or less independent of each other. These employees, however, all submitted their reports di- rectly to the Board of Health — when any reports at all were submitted. Plumbing inspection was included un- der the Board of Health, but is not considered here as it was transferred to the Division of Building Inspection in 1915. Under the old organization a total of loi hours of daily service was received. The total yearly salaries were $12,900. The total daily hours of service in 1916 were 220, and the payroll total $28,800, excluding the eight nurses paid by the Visiting Nurses Association and Tuberculosis Society. HUMANIZING CITY GOVERNMENT 63 Comparative Costs The cost of the health division has increased materially within the past three years as compared with the preced- ing three years. TOTAL AND PEG. CAPITA C05T5 DIVISION Of HEALTH DAYTON OHIO I 0\as e\ o^ T^ g\ gv <>\ TOTAL COST PER. CAPITA COST The figure for 19 12 includes $8,986 received from loans and bonds and used to fight the smallpox and diph- theria epidemics; the figure for 1918 includes $4,750 in bonds for smallpox. Summary of the Accomplishments Sirwe January i, ipi^ Lowered the death rate : Year igii 1912 1913 Rate per 1000 population 14.6s 14.80 15.70 (flood year) 64 CITY MANAGER IN DAYTON Year Rate per 1000 population 1914 13-70 1915 13-01 1916 14-30 1917 14-7 These reduced death rate figures mean a saving of over 500 lives in the past four years, and were the first re- ductions in ten years. Lowered the infant death rate : Year Deaths under I year per 1000 births 191 1 124.6 1912 1 14-3 1913 124.0 1914 9S-8 191S 87.6 1916 98.4 1917 97.6 This gradual reduction is due to the large amount of at- tention shown to prevention of unnecessary disease, care, milk, etc. . Increased the per capita expenditure for health work from 17 cents in 1911 to 30 cents in 1917. Effected a centralized organization. Appointed five district physicians and an epidemiolo- gist. Abolished fumigation and substituted adequate disin- fection. Appointed six full time city nurses and coordinated all public health nursing under the supervision of the Di- vision of Health. Secured a more nearly complete reporting of conta- gious and preventable diseases. Established medical inspection of school children for contagious diseases. HUMANIZING CITY GOVERNMENT 65 Made daily examinations of city water. Provided laboratory control over contagious diseases. Increased the food inspection force. Inaugurated scoring of dairies and milk plants. Improved the average dairy score. Extended bacterial examination of milk so that now a weekly bacterial record is secured of all milk delivered in the city. Extended meat inspection. Enforced ordinances and regulations relating to sani- tation in markets. Extended inspection to include groceries, meat mar- kets, candy and confectionery stores, ice cream factories, hotels, restaurants, bakeries, commission houses and yards, etc. In cooperation with the bureau of plumbing inspection eliminated over 7,000 dry vaults and cess pools. Conducted educational health campaigns. Conducted baby clinics and infant welfare exhibits. Established free milk and free ice stations in coopera- tion with private firms. Built a leprosorium. Rebuilt the quarantine hospital. In cooperation with other city departments cleaned up all the alleys in the city. BUREAU OF MEDICAL INSPECTION In the Bureau of Medical Inspection a complete com- parison of old with new cannot be given because of lack of records prior to 19 14. The cost of the Bureau is largely one of salaries. There are now a full time health officer, an epidemiologist, and five district physicians. 66 CITY MANAGER IN DAYTON For 191 1 there is a record of 83 cases examined by the medical inspector. For 19 12 and 191 3 no records exist. Since 1914, 1915 and 1916 the work has been very extensive. In 19 16, as a typical year, the report shows work as follows : House calls 2,759 Office calls 815 Obstetrical cases 4 Police calls 233 Fire calls 21 Policemen attended S40 Firemen attended 661 Station house 87 Workhouse prisoners attended i,739 Station house prisoners attended 67 Clinic Department 153 Patients attended 485 Milk station attendance 351 Patients i,4S9 Vaccinations at Division 789 Dressings 52 Conferences at Division 14 Babies scored 91 Medical inspections 300 School inspections 1.264 School room inspections 99 Pupils inspected 233, 943 Miscellaneous inspections 10 Sanitary inspections 2 Epidemiologist calls 945 Between September i, 1913, and January i, 1914, three city nurses were appointed. Before that time there were no city nurses. Now there are six nurses paid by the city, in addition to the six nurses from the Visiting Nurses Association and two nurses from the Tuberculosis Society. In 19 16 all nurses together made calls for nurs- ing purposes amounting to a total of S7^777- HUMANIZING CITY GOVERNMENT 67 The city is divided into twelve districts for nursing services. All nurses do a general work within their own district, and are gradually increasing their instructional work with patients and mothers. There is one colored nurse and one visiting housekeeper. Below is a state- ment of the work done by the nurses : General nursing calls 8,245 General instructions 2,636 Tuberculosis instruction 1,146 Baby nursing 2,901 Prenatal 575 Baby instruction 3,9S6 Infant welfare 3,236 Quarantine I3,SI2 School absentees 12,490 Miscellaneous 3,738 Nursing investigations 2,674 Tuberculosis 1,061 Miscellaneous quarantine 1,607 Total Calls S7,m BUREAU OF FOOD INSPECTION It is difficult to make an accurate comparison of the work done under the old administration with that of the new, because of the absence or incompleteness of records prior to 1914. The work of the food inspectors is con- sidered in detail, as it is typical of the thorough work now being done and it also illustrates the excellences and weaknesses in the Division of Health. Inspection of Production and Distribution of Milk Prod- ucts Dayton's milk is produced in approximately 750 dairies within a radius of 30 miles of the city. Milk from these dairies is sold to dealers who deliver the milk in the city. 68 CITY MANAGER IN DAYTON TOTAL COST, NUMBER AND COST PER INSPECTION "F FCDD INSPECT1.0N DIVISION or HEALTH —PAYTON OHIO o S S R lil d I B S 8 ♦to lil — £^ n ^ tn ^ ^ C^ C\ &v 0\ OV — rg » 3; in ^ 0\ ON OS OV fl\ S\ TOTAL COST NUMBER "r INSPEaiONS) COST PER IWSPECTIOH These dealers, including every one who delivers milk in the city, number about 6o. The plants of all the retailers are scored by the Bureau of Food Inspection every month. The 750 dairies are scored from two to four times a year, depending upon their accessibility to the city and the amount of work placed upon the inspectors. Before July i, 1913, neither dairies nor milk plants were scored ; they were inspected occasionally and marked excellent, good, fair, poor or condemnable, — but no numerical score was given. The amount of work done was small. For 191 1 no record exists as to work done. In 19 12, 504 dairies were in- spected and 270 re-inspected. One-half of the first in- spections were rated as " good." Beginning July i, 1913, a new chief food inspector took office. During his first half year of work 352 dairies were scored, only seven per cent, of which were considered as " sanitary." These figures are indicative HUMANIZING CITY GOVERNMENT 69 not only of the increased amount of work done, but also of the rigid requirements in rating. It is no wonder that the baby death rate had been constantly over 100. DAIRY AND MILK PLANT INSPECTIONS DIVISION OF HEAUTH — DAYTON OHIO DAIKY INSPECTIONS DAIRIES SCOECD 1914 ■■■■l^'K) ■■■■■ift^O 1^19 ^^■noo ■■■9&0 iji&^iBHHB""' m^iiimmziro i7ir ^^^^^B^|2££0 m^HBUJziso MlLn PLANT INSPECTIONS PLANTS SCORED 1914 ■■■310 BBiiro 1919 ■■■■IsKO BH^BIZTO 19 16 ■■■1H590 ■■■■■■■410: 1917 ^^^^^^^^^ 7TO BBHHH^ 3S<'.' Note iNcKtAse m numkr or inspecTicms and imprwim AVERACE S CORE 61.09 &2.3Z 61. t4 iCORE ■■■1 ^^M ■■■n AVERAGE 4 HI^H ■ 76.Z ■J^H ■ ei.&r ^■■1 ■jss.s II^^B ■ as.o em- m &coBe» Results of these inspections are reflected in cleaner dairies and better milk. Cleanliness of places and em- ployees is given consideration, and although there is no law requiring medical examination of employees, coop- eration between proprietors and the Division of Health has effected material improvement in these things. Milk Tests Not only are production, distribution, inspection and scorings supervised, but the milk itself is inspected. Samples of milk from every milk plant are tested once each week, chemically, bacteriologically, and with a sedi- ment test. This milk is bought from the delivery wag- ons, and selected by the inspectors themselves. Milk from the dairies is tested less often, but as frequently as possible. Milk as sold in the grocery stores, etc., is not 70 CITY MANAGER IN DAYTON often tested since such milk is sold only in the original bottles purchased from the retailers. Previously to 1914 bacteriological tests were infre- quent. Milk was to some extent tested chemically. For 191 1 no record exists, and in 1912 of 42 bacteriological tests for which the records exist only two show a count below the legal maximum of 500,000 bacteria per c.c. 310 samples were tested chemically, — 17 of these were found watered and 6 skimmed. In November and De- cember, 1913, 76 counts were made, with 44, or 58 per cent., under the legal maximum of 500,000. During the first half of 19 17, 75 per cent, of all milk delivered contained less than 500,000 bacteria per c.c. and 25 per cent, contained more. 36 per cent, of all milk delivered contained less than 100,000. The following is a complete record of the milk inspection service : 1912 1913 1914 191S 19J6 Dairies inspected 774 494 i,939 1,100 2,509 Dairies scored 1,638 964 2,166 Average score 61.09 62.32 61.64 Cows inspected '. 15,188 10,232 20,718 Dairies discontinued no 140 183 Dairies excluded 18 16 44 Milk samples collected . . . 1,836 1,626 1,059 Prosecutions 10 16 43 Convictions 7 16 43 Milk plants inspected 444 195 309 518 592 Milk plants scored 172 273 412 Average score 76.21 81.67 83.5 Improvements ordered . . . 543 65 917 390 1,631 Orders complied with 229 32 302 450 842 The work in milk inspection was not nearly so thor- ough as it should have been until 19 18. The bacteriolog- ical count was always too high. The main difficulty had been that there was a lack of proper authority and power A Lecture and Demonstration in Food Values A Scene at the Municipal Exhibit A Clean Dairy Means Pure Mill Teaching the Taxpayers to Demand the Best in Milk and Its Products HUMANIZING CITY GOVERNMENT 7I behind the head of the Division until 1918, when a pas- teurization ordinance was passed by the City Commis- sion, limiting the bacterial count to 60,000 c.c. There was an old ordinance providing that the maximum bacte- rial count should not be over 500,000, but it was declared by the City Attorney to be so faulty as to be unenforce- able, and the administration failed to provide the Division with the necessary authority. Meat Inspection The meat inspection service of the Bureau of Food In- spection is a large improvement over the inspection under the old administration. In 191 1 and 1912 an incomplete record exists of the work done and for 1913 there is a record for only the last four months. There are about 30 slaughter houses in Dayton. Ef- fort is made to inspect all these and all animals killed in them. As yet, however, this is not completely done. In 1916 not over 25 per cent, of the meat supplied by Day- ton slaughter houses was inspected. The chart shows the record of abattoir inspections for the past seven years. NUMBEJi °F ABATTOIR INSPECTIONS DIVISION °r HEALTH — DAYTON OHIO 1911 Its »I3 ■■■ 32S 1914] 1915 I Wi\ 1717 I The Division of Health has been recommending for gome time that a central abattoir (either municipal or ^2, CITY MANAGER IN DAYTON private) be established where all killing may be done. This is recommended to make it reasonably possible to inspect all meat killed in the city. The alternative is to have an inspection force large enough to inspect thor- oughly at the numerous slaughter houses. Not only is it impossible with the limited force to in- spect all meat killed, but the Division has no authority to order butchers to notify them when killing is to be done, or to require it to be done at any time. Much re- mains to be done in regard to meat inspection. All that can be said is that it has been improved very materially over what was done under the old administration. Inspection of Other Food Establishments There was practically no inspection of food other than meat and milk, or of food establishments other than dairies and slaughter houses prior to 19 14. In 191 1, so far as can be determined (no record exists other than minutes of the old Board of Health), there were 1,188 market inspections; 2,674 inspections of hucksters' stands; 80 inspections of fish dealers — these inspections were casual inspections made by passing from one to an- other. For instance, a large proportion of the market in- spections were made within one month. In addition there are recorded 1,409 inspections of meat shops, fruit stores, groceries, bakeries, restaurants, etc. For 1912 no records exist of any such inspections. For the last four months of 1913 there are reported 228 market inspections, 32 inspections of fish dealers' stands, and 823 inspections of meat shops, fruit stores, etc. This work has been very largely extended in the past four years. There are now inspections of bakeries, curb and central markets, private markets, commission yards, HUMANIZING CITY GOVERNMENT 73 commission houses, cold storage cars, poultry and fish markets, eating houses, groceries, meat markets, ice cream factories, confectionery and candy factories, and miscel- laneous food establishments. The total of such inspec- tions in 1915 was 12,300; and 10,900 in 1916. These figures represent work that is all new, and which is in addition to the increased activities in other branches of food inspection. BUREAU OF SANITATION In the Bureau of Sanitation the work done as shown by the records has not increased so noticeably as in the other bureaus. The chart indicates the extent and cost of this service. TOTAL COST, NUMBER and COST PE.R. INSPLCTION op SANITARY INSPECTION DIVISION OF HEALTH —DflU'TON OHIO f^ o\ o\ V% 0\ 0\ TOTAL COST NUMBER °F mSPECnONS COST PER INSPECTION The main difference comes not in the number of inspec- tions made but in the results of the inspections. Rein- spections now made are more numerous and the number 74 CITY MANAGER IN DAYTON of compliances with orders is greater. Alleys and vacant lots are now clean; dry vaults are rapidly being elim- inated, and insanitary conditions in general being done away with. The large number of inspections under the old administration did not seem to accomplish results. CITY LABORATORY The city laboratory has been made into a complete bureau and the amount of work has been enormously in- creased. This increase really began in 19 13 but has since been made more complete and more effective. The rec- ord for the six years is as follows : Number of Year Tests, etc. 1911 1,230 1912 739 1913 6,052 1914 6,800 1915 7,879 1916 10,709 1917 22,600 The laboratory now makes daily tests of city water, and makes thousands of examinations of throat swabs, tests milk, food, wellwater, etc., and acts as a real aid in efficient health work. The increase in number of exami- nations in 19 1 7 was made possible by providing a sec- ond assistant. The record of work for 19 16 shows the wide range of its activities : Diphtheria culture examinations 6663 Milk examinations — chemical 948 Milk examinations — bacteriological 879 Food products 27s Gonococci examinations 63 Water analysis , . . , , 880 HUMANIZING CITY GOVERNMENT 75 Tuberculosis 252 Urinalysis examinations 17S Fumigations S3 Malaria 4 Inspections 22 Widal examinations 44 Special examinations 345 Police court 9 Wassermaim tests 11 Autogenous vaccine 3 Animal inoculations 3 Rabies 9 Blood count S Miscellaneous 66 RESIGNATION OF THE HEALTH OFFICER On December 27, 19 17, Dr. A. L. Light, who had been health officer since the organization of the new govern- ment, resigned. He had incurred the enmity of some of the leaders supporting the three non-partisan candidates who were running for reelection, and these leaders had demanded the dethronement of this official on the grounds that he was unpopular and " tactless." The demands of the campaign leaders were carried from their headquarters to the City Hall, where City Manager Waite vigorously opposed the attempted inter- ference in the administration of city affairs by any group of outsiders, even for political expediency. More than one violently stormy session resulted, Manager Waite offering his own resignation first. It was a crisis, for the true power of a city manager was put on severe trial. In this case, the official whose record had been assailed relieved the situation by volunteering his resignation — a political sacrifice. On this subject, there is a wide difference of opinion even to-day. However, the records of the division prove the effectiveness of an honest official's administration, "jd CITY MANAGER IN DAYTON and history records the reasons for individual opposition to the health officer because he dared fearlessly ("tact- lessly " ) enforce the existing ordinances, and refused to waive them in special cases affecting men of wealth and influence. As instances, — the health officer once took the City Manager to inspect an extremely unsanitary tenement managed by a political leader. A clean-up of the prem- ises was ordered by the city officials, — and the clean-up cost money. Before this action was complied with the local improvement association had censured the health official for the delay. Another leader, a large retail grocer, was required to protect his candies, vegetables and meats with sanitary showcases, — and showcases cost money. A woman prominent in welfare work in the city was arrested for failure to comply with an order of the Division to abandon a vault, after repeated requests for three years, and after she had promised to remedy the condition. Another wealthy woman was arrested for a similar cause, refusing to connect with the sanitary sewer about 20 houses in the same section of the city. About this time — just prior to the primary election of 1 91 7, — an outbreak of smallpox occurred in Dayton and surrounding country. A number of cases were wrongly diagnosed by the epidemiologist of the Division as being chickenpox, and upon examination by the health officer were found to be smallpox. The State Board of Health Epidemiologist confirmed the latter's diagnosis. Due to exposures from these cases and on street cars, a conference was held of the heads of several large busi- ness houses and industrial concerns. The meeting was sanctioned by the head of the Department and the City Manager, and the latter presided at the meeting. Fig- HUMANIZING CITV' GOVERNMENT 77 ures from neighboring health officers, stating the numbers of cases of smallpox, were presented, and the consensus of opinion of those present was that vaccination should be ordered. Later, during the primary campaign, the fig- ures given at this meeting were questioned, although most of them were confirmed by telegrams previously received from the health officers of the towns. In one case, the State Epidemiologist had made an error. The enforce- ment of the vaccination order caused much ill feeling among both employers and employed, including non- partisan leaders in the primary and final elections. In another case, a member of the citizens' organization who was attorney for a street railway company, vigor- ously opposed the health officer because the vaccination order was enforced against that company's employees, — as it was for all street railway employees. This attorney also was a representative of the owners of the " Hun- garian Colony," and felt that the health officer was ar- ■ bitrary and unreasonable because he ordered the abate- ment of an extremely unsanitary and dangerous nuisance, in shape of about 20 open vaults, in that colony. As a result of these and other circumstances, many of which happened to occur about election time, 191 7, an influential group in civic affairs concluded that the official would cost the Commission candidates for reelection about " 1,500 votes," and threatened to withdraw their financial support unless his resignation or dismissal was at once demanded. That the arbitrary demands of this group of citizens for the discharge of the official were not popularly sup- ported, was attested by a petition, signed by nearly 80 of the leading physicians of the city, presented to the City Commission, when rumors of the action demanded 78 CITY MANAGER IN DAYTON of the Commission were made public. This petition asked his retention, on the ground that he had raised health work to a higher plane than ever before, was fear- less and impartial, and to remove him would be unjust and lower the standard of future health work in the city. Over forty physicians also appeared before the Commis- sion in protest. The expressed sentiment of that gather- ing of medical men, through their practice conversant with the health conditions throughout the city, was that any health officer who would rigidly enforce the neces- sary health laws and compel needed sanitary improve- ments to be made, uniformly for all classes of citizens, must be fearless, honest, and even " tactless " at times. It was asserted that no physician in Dayton could with honor to the profession take the position of health officer if the incumbent was forced out. But the resignation of the health officer was accepted, though clothed in terms that were never given to the newspapers. The epidemiol- ogist was named to the position. Sometimes the " tact " of a public official is to be measured by the honesty of the administration. However, the fate of this official is not unique in the history of municipalities. The case is given detailed con- sideration here because one of the problems to be solved in the government of our American cities is whether we shall have at times a sham and shadow government, by a wealthy and influential few, or at all times a dependable and daylight government by the great majority. Is gov- ernment by privilege to be preferred to government by politics ? HUMANIZING CITY GOVERNMENT 79 THINGS REMAINING TO BE DONE IN THE HEALTH PROGRAM The program outlined by the health officer in 19 13 has been far surpassed in every respect, but some things re- main yet to be acted upon. Following are some of the things this official desired to accomplish, but for which there was not sufficient money and support : Comparative tabulation month by month of birth, death and morbidity statistics, showing totals. Spot maps showing the location of contagious diseases, current and by years, and their relation to sanitary condi- tions. Organization of infant welfare groups, utilizing volun- teer women. Preparation of quarantine regulations. Continuous publicity on disease prevention, fumiga- tion, etc. Codification of the laws relating to health, sanitation, etc. Pasteurization of milk for general use. Junior sanitary police force organization. General consultation and reference clinics. Preparation of diet lists, clothing lists, etc., for babies. Conferences with dairymen and other food producers and dealers, with lectures by experts. Organization of Bureau of Medical Service into a lec- ture bureau, and opportunities sought for lectures on pre- vention, etc. Relief of Division from work in connection with en- forcement of weed ordinance. Sufficient force to follow up complaints of violations of laws governing sanitation, quarantine, etc. 8o CITY MANAGER IN DAYTON DIVISION OF CORRECTION In line with the development of better methods of han- dling the welfare problems of the city is the advanced practice in the correctional work of the department of welfare and the method of handling the city's prisoners. Correction theory and correction methods have pro- gressed far within the past decade and Dayton is keeping pace with the new ideas. Correction has a larger mean- ing than mere punishment for offenses against the state. Punishment is almost secondary now — correction, men- tally and physically, of the unfortunates consigned to the workhouse is the aim. Before July i, 1914, Dayton had a contract with a Cin- cinnati firm which provided that prisoners to the number of not less than 45 if that many were in the workhouse, and not more than 100, should work on the making of wire brushes, mouse traps, waste baskets, etc. For this service the firm paid the city 30 cents a day (later 35 cents) for each prisoner. The men worked nine and one- half hours a day. No other occupation than this was provided and when the number in the workhouse ex- ceeded 100 the balance were forced to remain idle. In- mates often were not fitted for the factory work, but since nothing else was available they were forced to do the work anyway. A dungeon was kept in which prisoners were put as punishment. Treatment was without con- sideration for the physical care of the inmates. The prisoners were wretchedly clothed in ragged clothes and shoes ; the food was coarse, and poorly prepared in large tin buckets and cans and under very unwholesome sani- tary conditions. All this was changed, and radically, on January i, A Scene in the Old Workhouse Designed for Neither Physical, Mental Nor Moral Correction One of the Correction Gardens Workhouse Prisoners are Helped Physically and Morally, as well as Lower the Cost of their Keep, by Gardening on Waste Tracts along the River and on the New Farm HUMANIZING CITY GOVERNMENT 8 1 1914, and the human element was recognized for the first time. On July i, the contract system was abolished, and prisoners were put at work for which they were more generally fitted and which was more beneficial than the confining work of the factory. They were sent out on various kinds of city work, — work of such nature that it would have otherwise remained undone, — such as cleaning streets and alleys, working in the parks, cutting weeds from the river bottom and levees, making and car- ing for a workhouse garden, the produce of which was used by the workhouse kitchens. The labor performed by the workhouse prisoners in 19 1 6 was equal to 16,900 days for other city departments and city charities, and 8,000 days as janitors, in the work- shop, kitchens, tailor shop and laundry within the work- house. The women prisoners make shirts for the pris- oners, mend clothes and do their own laundry work. The Division is not reimbursed for any labor rendered to outside departments, though such plan would be a reason- able one, to assist in paying the cost of keep. Since 19 14 other improvements in the treatment of prisoners have gone on apace. The use of the dungeon has been abolished, corporal punishment is not allowed, prisoners are allowed to talk at meals, trusties are de- tailed as janitors in city buildings. A merit system is be- ing worked out which is doing away with all forms of punishment. Prisoners may write to or see the superin- tendent at any time to make complaints or to talk with him about their affairs. Parole System Efforts are made to give the prisoners opportunity to rehabilitate themselves while serving their terms in the 82 CITY MANAGER IN DAYTON workhouse. An example of this is the system whereby prisoners with dependents or with obligations are secured positions in outside work. They leave the workhouse each morning and report each night. Their wages are turned over to the superintendent of the division. In 19 1 7. 59 i"^n were at different times allowed this priv- ilege. Of these only five escaped and three of these were caught and returned. Over $3,000 was handled by the superintendent for these men as their earnings; $1,150 of this was given to their families. The remainder was spent for clothing, meals while away from the work- house, debts, or turned over to the prisoners. Prisoners are at times also allowed other minor liberties. Workhouse vs. Correction Farm Dayton has inherited from past generations an old workhouse, owned by the County. This building was erected about 1840, and normally accommodates from sixty to seventy prisoners. It was in this workhouse that prisoners were confined at all times under administrations prior to 1914, except for those who during the day time went to the factory to work. The workhouse was poorly kept, dirty and insanitary. This building is still in use and is much overcrowded. At times as many as 200 or more prisoners are kept in it. On January i, 19 17, there were 172 prisoners; one year later there were 117, and over 1,300 prisoners had come and gone during the year. The Department of Welfare quickly realized the in- adequacy of this building as well as its poor adaptation for methods of modem correction. To remedy the situa- tion a farm was purchased in 1916. This farm consists of 107 acres on the outskirts of the city and was pur- chased at a cost of $15,500. On this farm are being HUMANIZING CITY GOVERNMENT 83 erected modern buildings in which to house all prisoners. In addition there will be all the necessary farm buildings and other buildings for all purposes. Up to January i, 19 18, over $100,000 had been spent in the purchase of the farm, materials for construction, machinery, live stock, and other equipment. All the work of erecting the build- ings, caring for the farm, quarrying rock — from a quarry on the farm, — digging sand — from a pit on the farm, — and hauling materials, is done by the workhouse prisoners. It is hoped to have the buildings completed sometime in 19 19. An adjoining farm of 150 acres is rented for addi- tional agricultural purposes, on a share basis. The esti- mated total cost of the new correctional institution is $150,000, to be paid for by bond issues. The attitude of the prisoners toward the entire project and in working on it is one of enthusiasm. The cost of feeding prisoners at the workhouse is fig- ured without the value of the produce used from the workhouse gardens and farm. In 191 6 this cost was 4.5 cents per prisoner per meal, and 161,000 meals were served. In 1917, 134,300 meals were furnished, and the cost rose to 5.8 cents. This compares with former costs of 14 to 16 cents per meal. Thus, briefly, are told the results of the City Manager administration in the care of its unfortunate and de- linquent class. Municipal Lodging House A municipal lodging house was established in the win- ter of 1914— 1915. In 1916 labor conditions were good and the need fell off. This combined with the fact that the room was needed to house prisoners caused its aban- 84 CITY MANAGER IN DAYTON donment. In order to discourage loiterers from coming to Dayton the plan was adopted of requiring each lodger to take a bath and do half a day's work on the streets in return for bed and breakfast. This plan was found to be very effective in keeping " bums" out of Dayton. Attendance fell off, and the number is smaller than sur- rounding smaller towns. DIVISION OF RECREATION Recreation work in the city of Dayton is dynamic but inadequate. This is perhaps equivalent to saying that funds are lacking to carry out a. program such as the Division has prepared. It means that the Division works hard and effectively but that facilities such as play- grounds, parks, fields and buildings are lacking in suf- ficient numbers and extent to provide adequately for the recreation needs of the city. The Division concerns itself with the organized activi- ties carried on in the parks and playgrounds of the city. Upkeep of these grounds rests with the Division of Parks, but the advisability of combining the two divisions under one head is worthy of consideration. The absence of records of playground work prior to 19 14 makes comparisons difficult. There were a few playgrounds, but practically no organized recreation work. A summary of the work done during the year 1917 will best show the growth in the work since the in- stallation of the present government. Beginning in 1914 with only the operation of 18 play- grounds, the work of the Division of Recreation had ex- tended in 191 7 to six main summer activities ; " Sate at Home — And Equally Safe on the City's Playgrounds The Flag Dril At the Play Festival which Closes the Recreation Year HUMANIZING CITY GOVERNMENT 85 Playgrounds Park Activities Camps Baseball Gardens Country Club Playgrounds Owing to the inability of the city properly to finance playground and garden work there has been organized in Dayton for the past several years a private charitable or- ganization called the " Playgrounds and Gardens Associ- ation." For several years this organization financed and operated playgrounds and directed public garden work. These distinctly public welfare activities are now all un- der the direction of the Division of Recreation but to some extent the playgrounds and gardens are still financed by the Association. In 191 7 the Division operated 21 playgrounds, of which 12 were financed by the Playgrounds and Gardens Association. Preceding the opening of the playgrounds a playground course was conducted in which 61 candi- dates for positions were enrolled. Playground directors were selected from these through civil service examina- tions. Of the 21 playgrounds 14 were located on vacant lots loaned by the owners for the purpose, and seven in public parks. This policy of using vacant lots provides the city with playgrounds which it otherwise could not have, but is unsatisfactory to the extent that it prevents the permanent development of these playgrounds. It has been found that the permanently equipped grounds have a much better attendance than those equipped only so far 86 CITY MANAGER IN DAYTON as is possible on temporary grounds. The playground season ends each year with a play festival in which chil- dren from all playgrounds in the city participate. Attendance at the playgrounds is increasing rapidly. For the past three years it has been : 1915 150,600 1916 192,000 1917 209,400 Park Activities Park activities include, in addition to playgrounds, dancing, band concerts, baseball, child games, bathing, boating, camp-facilities, etc. The attendance is good, varying with accessibility of the parks. In 19 17 the bathing and boating activities were not prominent, since at only one park are there bathing facilities and these were not available because the dam was washed out. Camps The division has charge of 15 camps, 9 of which are located in private parks but are open to the public. All permits for the use of these camps are issued by the Divi- sion. During the summer 960 groups with a total of 25,000 persons used the camps. These camps are pro- vided with shelters, fireplaces, cooking utensils, dishes, etc., free of charge. Baseball The City Manager in 191 7 formed the Dayton Ama- teur Baseball Commission. This commission operated under the Division of Recreation and the secretary was employed by the Division. It operated during the sum- mer 9 leagues with a total of 96 teams; 1,096 players HUMANIZING CITY GOVERNMENT 87 comprised the teams and 385 games were played. In addition permits were issued for 113 independent games played on the Division's field. A Junior Baseball League of 10 teams was conducted in 19 18. Gardens The garden work is one of the most important under- taken by the Division. For the first time in 191 7 all gar- den work in the city was brought together under city con- trol. Because of the shortage in funds in all city activi- ties it was impossible to finance all the garden projects, so the Playgrounds and Gardens Association turned over $2,500 to the Division. In addition an interested private citizen agreed to cover any deficit up to $2,000, and fur- ther, the Board of Education financed and supervised the school gardens. Under this plan the city employed 10 garden inspectors and every garden was inspected and graded every two weeks. One vacant lot was plowed, free of charge, for each family making application. In 1917, 2,160 vacant lots were plowed as against 950 in 19 1 6. It is estimated that the products raised had a market value of $37,100. Another phase of garden activity is the backyard gar- dens. These are for children only. Seeds are sold to the children for one cent a package, 73,000 being sold in 19 1 7. These gardens are also inspected by the garden inspectors and the children are given advice as to cultiva- tion, successive cropping, etc. In 191 7, there were 2,900 backyard gardens as against 1,740 in 19 16. The esti- mated value of the products was $16,700. 118 children exhibited products a.t the county fair. The City Market Board offers free space to children wishing to sell their 88 CITY MANAGER IN DAYTON produce, but it is found that very little is brought to the market for sale. The garden season is brought to a close by a Garden picnic. This was attended in 1917 by nearly 4,000 children. All expenses of this were paid by the Division through funds given by private individuals. In addition to these two types of gardens there are what are termed " Boys' and Girls' Gardens," These are provided for through a private fund, but during the year 191 7 they were operated through the Division of Recrea- tion. 80 boys and 40 girls were each given a tract which they worked under the direction of ap expert gardener. In addition all children worked in the " cooperative gar- den." The produce of each individual garden belongs to the child working the garden, to be sold or used as he de- sires. The produce of the cooperative garden is sold and the returns distributed among the 120 children. The to- tal value of the produce raised was $3,600. In all there were 5,190 gardens supervised by the Divi- sion. The total value of the produce was $57,500. Country Club For some years the National Cash Register Company has operated a country club for the benefit of its em- ployees. This club offers golf, tennis, baseball, dancing and other amusements. It is about two miles south of the city and easily accessible by a car line. In the spring of 19 1 7 this club was turned over to the city to be ope- rated for the beniefit of all the people of the city, and the donor agreed to make up any deficit up to $4,000. Own- ership of the property was given to the city the next year. The country club experiment was not as great a suc- cess the first summer as was hoped for, The failure wa§ The Old- \'s. The New Recreation is Only Supervised Play HUMANIZING CITY GOVERNMENT 89 chiefly in attendance. Since attendance is one of the chief measures of the success of a recreation center this is important. The reasons for the small attendance are sev- eral. First, is perhaps the newness of the idea of a coun- try club for all the people. Second, is the fact of a charge for admission. This charge took the form of a membership fee varying from 50 cents to $5. In lieu of this an admission fee was charged with fees for vari- ous activities as golf and tennis. The admission fee of ten cents a person, plus ten cents carfare, is an item worth consideration to many people, especially family groups. The deficit for the year 1916 was $4,100, all of which the owners of the club paid, as also a small deficit in 1917. Winter Program In addition to this summer program there is a distinctly winter program. Attention is given to community cen- ters, gymnasium, dancing, lectures, etc. Two commun- ity centers are operated all year around, and afford a wide winter recreational program. DIVISION OF PARKS The work of the Division has consisted largely of the upkeep, improvement and extension of parks and play- grounds. The work of improvement has continued and expanded during the past four years, and over $16,000 is expended annually by the Division. In 191 1, a report on the Dayton parks by Olmsted Brothers, Brookline, Massachusetts, showed that there were only 19.6 acres of publicly owned parks, or one acre for 5,950 people. There are now available to the public 541 acres of city owned parks^ or an c^ddition of 521 acreg 90 CITY MANAGER IN DAYTON through gift or purchase. There is now one acre for each 278 persons. There are also now open to the pub- lic 1,465 acres of privately owned parks. Even now, however, Dayton is only fairly well equipped with pub- licly owned parks and open areas, as most of the additions are outlying. A municipal greenhouse was built by the Division out of scrap material gathered from various city departments. This greenhouse supplies flowers and plants for all city purposes for which they are needed. In 191 7 it car- ried 3 5, ODD plants with a sale value of $2,200, which were used by the visiting nurses and for bridge and park deco- rations. It also furnished 20,000 each of cabbage and tomato plants free to the children's gardens. The entire cost of the greenhouse was about the same as the city spent in a year for plants previously. In 1917 the newly appointed forester trimmed 2,750 publicly and privately owned trees along streets and in parks, planted 200, and sprayed over 1,000. OFFICE OF THE DIRECTOR Public Aid in Charities In outdoor relief, city funds are turned over to the Associated Charities to be expended by them as their other funds are spent: This provides centralization of outdoor relief but outside the city's offices. The city, however, maintains a general supervision of the expendi- ture of the funds and the Director of the Welfare Depart- ment is a member of the Board of Trustees of the Asso- ciated Charities. In 1916, $3,000 of the city's money was expended by th? Associated Charities, for the following orders : HUMANIZING CITY GOVERNMENT 9 1 1178 grocery orders, to 401 families $2150 233 coal orders, to 189 families SSo 207 orders for shoes, clothes, etc 300 $3000 In addition to this expenditure of $3,000 of city funds the Associated Charities spent from private contributions $15,000. The City of Dayton assists toward the maintenance of a home for deHnquent women, — the Door of Hope. For the past several years the city's contribution has been $2,000. The City of Dayton owns no hospitals. There are two large hospitals in the city — the Miami Valley Hos- pital and the St. Elizabeth Hospital. To each of these the city appropriates a sum considered sufficient to pay for the care of all public patients. Eor the years 1915, 19 16 and 19 1 7 the appropriations were $27,000, $27,000, and $30,000 to each hospital. The question of the proper payment by the city for the care of public patients in these hospitals has been the subject of controversy for several years. The Directors of the Miami Valley Hospital have long maintained that the amount is far below the actual cost of caring for the public patients. The city maintains that the hospital has not proven its case in making further requests. Several attempts to arrive a.t the basis for determining the amount of the city's obligation have been made, but they have not been thorough enough to arrive at any conclusion. The question comes up every year at budget time and will never be settled until a complete study is made defining first a " public patient," then determining whether all patients now termed public are really public, 92 CITY MANAGER IN DAYTON and a per diem patient cost for the year. This involves consideration as to whether the management of the hos- pital is efficient and economical, whether the accounting system makes proper distinction between various classes of patients, and, in fact, a host of other questions which arise in determining a municipality's relation to a quasi- public institution. The appropriation to Miami Valley Hospital was in- creased in 1918 to $40,000, with an agreement that a hospital investigator, at a salary of $1,200, should be appointed to work under the direction of the Director of Welfare. As a result of her work, about $3,000 was reported to the hospitals as properly due from patients able to pay, and nearly two-thirds of this amount was recovered. Legal Aid Bureau Previously to 1914 there was no free legal aid in the City of Dayton. There was a little unorganized work of this kind done through the Montgomery County Bar Association, but it was not extensive or very effective as a means of social betterment. Almost immediately after the induction of the new government into power a legal aid service as a part of the welfare work of the city was inaugurated — on March i, 1914. During the first year 727 cases were handled by the Division. This number grew to 1,298 in 191 7. Most of these undoubtedly represent aid to persons who other- wise would not have had the benefit of legal advice and aid in the settlement of their difficulties. The importance of this work can in no sense be meas- ured by its cost. Dayton can not lay claim to generosity in making financial provision for legal aid. HUMANIZING CITY GOVERNMENT 93 The development of the Bureau is statistically shown in the following table: Year New Cases Total Cost Average cost per Case 1914 727 $ 550 $ .76 1915 768 1200 1.59 1916 922 1300 1.43 1917 1298 1350 I-03 The cases are divided into fifty-three different kinds. Fifty-eight per cent, are included in the first four classes in the list, and 2 1 per cent, in the next four classes : Work and labor 26 per cent. Landlord and tenant 12 per cent. Board and room 10 per cent. Installment houses 10 per cent. ;M Domestic relations 7 per cent. Loan ofBce and pawn broker 5 per cent. Accounts 5 per cent. Money had and received 4 per cent. The remaining 21 per cent, are divided between the other 45 kinds of cases. The Bureau also collects money on cases, and distributes it according to the settlement effected. These collections exceed $700 per year. As with other welfare work legal aid is both curative and preventive. Legal aid is curative in being an agency ever ready to give free aid to those who have been in some way legally wronged. A large majority of its cases have been of thi's nature. The work of the Bureau is preventive in its work of eliminating conditions which bring about injustice need- ing legal aid to remedy. The most important of these has been the elimination of eleven loan shark companies and the supervision of installment houses. 94 CITY MANAGER IN DAYTON State-City Free Employment Exchange Free employment is one of the new functions adopted by the new government. Since there was no work of this kind under the old government, no comparative statistics are possible. The State of Ohio and the City of Dayton cooperate in this bureau. The state handles all the work of the male division of Exchange and the city handles the work of the female division. The cost is divided between the state and the city on this basis. The work was ina,ugurated for the city on July 20, 1914, when a superintendent for the city division was appointed. In 1916, there were 4,951 applications for work as against 6,853 ^^ 19^ 5- Requests for help numbered 4,538 in 1916 and 3,760 in 1915. The differ- ence is attributed to the greater demand for labor in 1916. Of the 4,951 applications, 3,347 were referred to positions and 3,067 were placed. 67.5 per cent, of re- quests for help were filled; 61.9 per cent, of applicants secured work; and 91.6 per cent, of those referred were placed. Applications and requests included office work, factory work, seamstresses, laundresses, cooks, maids, hotel and restaurant work, etc. Vacant Lots in Dayton Gave Way to — Children's Gardens Even Before the War CHAPTER VI PROTECTING LIFE AND PROPERTY The improvement effected in public service in Dayton through the elimination of politics, due to the adoption of a new charter and the Manager form of government, is well shown in the police and fire divisions. It is commonly accepted that political parties and bosses exert a powerful influence upon the police and firemen of our cities, due to the large number of employees and the availability of positions in public service consequent upon the success of any party. In Dayton, for instance, nearly three hundred and fifty men, or over one-third the city's payroll, are to be found in these two branches of the ser- vice. Scattered throughout the city, as they are, either on patrol beats or in the several fire stations, these employees come in daily contact with the people — the voters — ■ and this enhances their value as agents for some political creed when politics is recognized in the government. Prior to January, i, 1914, the story of politics within these two branches of the city service in Dayton was comparable to that of the usual city. At least, it was no better. There was a Board of Public Safety, consisting sometimes of two members, and sometimes of four. The Board named a Safety Director, who always was a good politician. A two-member board was bound to be of the same political faith as the Mayor who appointed it; when four, there were always to be found two Republi- cans and two Democrats. In either case, the effect upon the forces was the same. 95 96 CITY MANAGER IN DAYTON The board members came occasionally to headquarters ; perhaps twice a month, to sign vouchers of the two de- partments. This perfunctory task was their chief quali- fication for a posiition of leadership among the men in the ranks, which they always arrogated. ' The fine balance which obtained within the board ex- tended from the director downward into the ranks. With a two-party board, a nice allotment of patrolmen and firemen was the rule; when a one-party board, it was any easy process to " harmonize " the force. Civil service reform did not exist prior to 19 10, and from then until 1914 it was under political domination. The Secretary of the Board of Safety formerly gave all candidates an examination which he prepared, with the aid of the board members. The most baneful influence of politics, however, was that which affected directly the work for which these departments are maintained, — the protection of the per- son and property of citizens. It was not uncommon for a person haled for committing an offense to call upon a member of the Board of Safety — who, fortunately, was of the same political faith — and recite his predicament. Forthwith, the order would pass from the member directly to the arresting officer to release the prisoner and ignore the entire matter. It is apparent that the morale of the police force was low. Responsible direction of efforts was lacking; officers never knew what laws and orders to enforce, nor when they were liable to censure for a too rigid performance of their duty; conflicting commands were commonly issued by the different mem- bers of the Safety Board. Indeed, there was little incen- tive to do efficient police work; the only reward for a day's work was the salary. PROTECTING LIFE AND PROPERTY 97 THE NEW STANDARD OF PUBLIC SAFETY That a new order of things has prevailed in both the divisions of police and fire since the advent of the Man- ager plan is amply evidenced by a review of the present organization and methods and the results obtained, as compared with prior conditions. Under the charter the two divisions, together with building inspection and inspection of weights and meas- ures, were placed under the control of a director. He is appointed by the City Manager and is removable by him. The Manager retained the immediate direction of the de- partment from January i, 19 14, until May, 191 5, when he named an inspector of fire hydrants to the office. The new City Manager brought to the safety depart- ment a resolve to determine just what are the opportuni- ties for police and firemen to render the broadest possible service to the community and how these results might be obtained. This involved a consideration of the interests of the citizens and at the same time the welfare of the men in the service. As a result of conscientious effort and attention, a wider conception of safety work has been evolved and an efficient and well disciplined organi- zation built up. The high standards of police and fire service are appreciated by the people as never before. DIVISION OF POLICE Organisation The division of police is under the control of a chief, who is appointed by the City Manager. The present incumbent was retained from the preceding administra- tion, and continued in the position largely because of his 98 CITY MANAGER IN DAYTON years of service. The strength of the division during a period of years has been as follows : 1912 140 191S' IS7 1913 134 1916 158 1914 149 1917 173 The 132 patrolmen in the service in 19 17 were detailed as follows: Patrol duty 90 Ambulance men 2 Motor patrol 13 Plain clothes 6 Traffic II Desk men 3 Auto drivers 6 Printer i With 90 uniformed men for patrol duty in a city of 140,000 population, or one patrolman for each 1,550 per- sons, it is apparent that Dayton has not sufficient patrol- men according to the generally accepted standard. How- ever, this fact is recognized by the officials, and would at once be remedied were it not for the financial stringency which affects every phase of city activity. For purposes of distribution and supervision of the force, the city as a whole now comprises one precinct, with headquarters at the City Hall. An internal reor- ganization of the division was effected in 1914, to afford the necessary central control and desired administrative procedure. Patrol service is performed under a three platoon sys- tem, for three tours of duty, — 7 a. m. to 3 p. m. ; 3 p. m. to II p. M.; II p. M. to 7 A. M. The Chief is in com- mand during the day, while the uniformed inspector is in charge from 6 p. M. to 6 a. m. Securing Central Control In reorganizing the division of police, the extent of patrol service was based as nearly as could be determined PROTECTING LIFE AND PROPERTY 99 (records by locality of commission of crime had not been kept) upon the needs of the several sections of the city, while the efficiency of the service was to be a result of responsible administration, a trained force and adequate supervision. One roll call at the outset of each platoon, or " relief," which is held at the central police station, thus permits a maximum of control in administration, inspection and delivery of orders or other business. To meet the requirements dictated by police experience, that a city needs most protection at night, the second and third reliefs, during the night hours, are manned nearly three times as heavily as the day relief. There are ii " beats," or posts, on the day relief, and 32 beats on each of the night platoons. Measuring Results The average citizen is interested in his police depart- ment only to the extent that he wishes it to do efficient work and in the reports that will assure him the police are active in their work. Every phase of police service cannot be expressed in figures, any more than can health, welfare or legal work. It is too intangible to permit setting up definite units of measurement of results, and the present-day tendency toward preventive work, rather than merely one of apprehension of offenders, calls for something more than crime statistics. There are certain general figures, however, which help to indicate to the community the results of police service, as the following tabulations for a period of years : GENERAL POLICE STATISTICS 1912 1913 1914 191S 1916 1917 Number of arrests 4,436 6,299 5,719 S,io6 7,660 6,943 Number of convictions. 4.480 3,968 6,057 S,8o9 lOO CITY MANAGER IN DAYTON 1912 1913 1914 I91S 1916 I917 (Books de- Number of dismissals., stroyedby 183 96 160 167 Number held to Grand flood) Jury 190 206 157 264 230 Citizens' complaints re- ceived 3.096 4,04s 4.808 Amount of property re- ported stolen 88,800 101,300 161,100 Amount of property re- covered 64,700 67,100 137,000 Patrol wagon calls 4,825 5,828 3,889 Ambulance calls 3.602 3,276 4,578 Motor police calls on complaint 4.486 Persons aided 4,933 6,232 6,169 Outages reported, gas 8,248 17,281 18,584 and electric street lamps 6,613 9,301 9,306 Number of traffic viola- tions 464 454 239 It will be noted that 80 per cent, or over of arrests result in convictions, which indicates the justice of arrests and excellent support to good police work by court endorsement. However, not even is this ratio of con- victions to arrests made a certain index to the enforce- ment of the laws. The growth in number of complaints received from citizens is, strangely enough, an indication of effective patrolling, owing to the practice followed in Dayton of including in this figure the reports of patrolmen them- selves of irregular conditions found on their beats. Thus is the city made a complainant against its own departments. These complaints are invariably referred to the service or other department concerned, while citizen complaints affecting the police are investigated by the officer in the district in which the case arose. The practice of calling on the city ambulance for every kind of sick case requiring ambulance service is seen to PROTECTING LIFE AND PROPERTY lOI be a prevalent one, with a tendency to increase unduly. The ambulance is in charge of patrolmen without medical training, and this work should devolve either upon the two hospitals which receive appropriations from the city of approximately $30,000 each year for the care of " public " or charity patients, or upon private owners of ambulances. Emergency work could be cared for by the patrol. Other Evidences of Progress There are numerous indications, other than statistics, that the police are now functioning both ably and intelligently. First among the many substantial reforms introduced must be mentioned the establishment of the training school for policemen, which has directly affected every member in the division of police and will continue to do so until his last day of service. Through it discipline is recognized and the entire morale improved to a de- gree that makes possible effective police work along mod- ern lines. Second, the importance to the citizen cannot be over- stated of having every complaint fully reported, investi- gated and a report made. This record and follow-up are the basis of effective police work. Yet prior to 19 14 Dayton, like many other cities, failed grossly in this fundamental feature. The scope of police duties, methods of selecting and promoting men, cooperation with other city departments and with civic agencies, new sets of records, establishing of a crime prevention bureau and a junior police, — all these are incidents in creating a more vigilant and effective force. I02 CITY MANAGER IN DAYTON Getting Into the Service The best safeguards for eflfective police work are the guarantee that the applicant for a position on the force shall have his appointment considered solely upon the result of a competitive civil service examination, his re- tention secure through proper conduct and effort, and his promotion based upon his record and ambition. Politics is then no longer dangerous. These principles were definitely introduced in 19 14, and are substantially adhered to. Selection of policemen is made from the list of eligibles certified by the Civil Service Board as the result of a mental and physical examination. The questions are prepared by an exam- iner outside the department, while the physical examina- tion is made by one of the city's district physicians. Thus politics has been eliminated in obtaining appoint- ments. Of course, politics cannot be kept out of the division, — it is difficult to deny even a public servant the right to affiliate with a partisan organization with whose principles he sympathizes, but no recognition is made of the action. In the crucial primary election of August, 191 7, for instance, several policemen voted the Socialist ticket, directly opposed to the present form of govern- ment, yet the officials remain content to judge all mem- bers of the force by their work. When a vacancy occurs in the division of police, it is filled from the civil service list as the result of an exami- nation open for all of the men in the next lower rank. It must be borne in mind that tendencies upon the part of a Director or Chief to evade the provisions of merit service are the quickest means of undermining the force, no matter how perfect an organization may exist. There exists some criticism in this matter. PROTECTING LIFE AND PROPERTY IO3 Discipline and Removal The fundamental principle of prompt obedience, which is essential to good policing, is instilled in the men from the first day of service. A new set of rules was prepared in 1914, and each man is carefully instructed upon them. The rules are strictly and impartially en- forced for all. If a policeman has a grievance or other private matter, he is permitted upon request to confer with the Director about it. The Director hears all cases against policemen, and punishment is meted out with severity according to the best judgment of the Director after a recital by both sides of the facts in the case. Power of removal rests with- the Director, with right of appeal to the Civil Service Board. There have been sev- eral dismissals, but no appeals from the action taken. Salaries Dayton patrolmen received in 191 7 an annual salary of $1,020; sergeants, $1,260. A $60 per year increase was allowed in 1917, the first in many years. Uniformed men get every 12th day off. Since 1914 each patrolman receives a lo-day vacation with pay. The policemen are required to purchase their own uni- forms and overcoats, both of which have increased in cost at least fifty per cent, within the past three years. They must also purchase their own revolvers, which cost about $14. With these compulsory expenses, both of which properly should be borne by the city, it is evident that the Dayton police deserve a substantial increase in remuneration. I04 CITY MANAGER IN DAYTON Training School for Police Service Only when the poHceman has a proper knowledge of his duties can the public be assured that the department is giving their person and property the maximum of pro- tection. In order that the police might have as complete as possible a training for their work, a training school was established early in 19 17. The entire force has undergone a, rigid course of instruction in such matters as a general knowledge of the state laws and local ordinances, duties and powers of a policeman, rules of the division, first aid, humane handling of prisoners, self- defense, military drill and physical training, handling traflfic, court procedure, report writing, etc. Each week the policeman attends gymnasium classes for a two-hour period, to keep in fit physical condition. Safeguarding the Shoppers Dayton has recognized the demand for a regulation of traffic in the central sections of the city, and twelve posts have been established, with a sergeant in charge. The code of the National Safety First Committee has been adopted, and an ordinance regulating the movement of traffic has been passed by the City Commission. Traffic booths and safety zone markers on the pavement have been provided. An auto light-dimming ordinance has also been passed. A special officer is assigned to the apprehension of " speeders," and through the support of a municipal court judge who absolutely refuses to sus- pend sentence and fine for any speeder ever brought be- fore him, a curb to this dangerous practice has been well established. Columbus, the state capital and city of nearly 200,000 Policemen Attend These Classes Regularly Note the Criminal's Equipment 50,000 Interested Persons Studied This Display at the Municipal Exhibit PROTECTING LIFE AND PROPERTY IO5 population, has lo men assigned to traffic. Comparison with Columbus and other cities indicates that Dayton is over-doing the spectacular regulation of traffic, even though appointments to ordinary patrol work must suffer a shortage on the plea of insufficient revenue. Never have adequate statistics been compiled of street traffic to justify the extent of regulation which the city has under- taken. Vice Conditions Like many another politically ridden city, Dayton had its illegal but tolerated district of segregated vice prior to 19 1 4. Certain elementary but ineffectual regulations were enforced, though no effort was made to confine commercialized evil practice within this district. The inmates of the fifteen houses then existing had to register personally with the police, furnish their own photographs as a part of the city's records, and be examined weekly by a. city physician. Yet the number of solicitors on the streets was excessively large for the size of the city. In February, 1915, the City Manager closed the segre- gated district, ruling that the statutory prohibition of commercialized vice should be enforced. A policy of persecution of all the former inmates and of questionable women was instituted, to keep the city as clean morally as the police power could do. A " vice squad " of two detectives was assigned to investigate vice conditions, prevent the establishment of houses of ill repute or assignation, keep down to a mini- mum street solicitation, and supervise saloons and cabarets, public parks and other places requiring rigid law enforcement. The way of the purist is hard, however, and humanity too often interferes with its own salvation. b Io6 CITY MANAGER IN DAYTON The law does not always keep pace with the reformer, and the policeman must be governed by the law. With a limited number of police who could be detailed to reduce this form of vice, the city had trouble in " abolishing " the district. A patrolman was for some time stationed in the street, warning every person who entered certain houses of his liability to arrest. Finally, the necessity of war and the presence of two Federal aviation fields within a short distance of the city compelled these houses to close their doors early in 191 8, and the occupants removed to a safe distance from the 5-mile limit. Crime Prevention Started In 19 1 7 a sergeant was assigned to direct a bureau of criminal prevention, to study the causes of crime and apply corrective measures. Already the bureau has done much work in the supervision of poolrooms and loafing places, helping oiifenders find employment, addressing classes in public schools and civic organizations, and re- sponding to scores of calls from anxious parents. The promise for this phase of police work is great, and thus far in its career definite records exist showing that in several cases arrests have been forestalled and made unnecessary. An ounce of prevention is worth a prison full of offenders. Still another innovation in police work is the organiza- tion of a Junior Police. This is sponsored by the City Manager and the director of safety. Under the imme- diate direction of a sergeant drills are held regularly, the boys who are members are encouraged to work with the police in preventing crime and the destruction of prop- erty, streets and yards are kept in a clean condition, and PROTECTING LIFE AND PROPERTY IO7 the ordinary gang of youths guided only by mob rule is displaced by an organization with an object, offering discipline, military organization and order. The work is of great assistance to the division of police as a preventive measure. Keeping a Record of Activities Perhaps in no phase of police work has more per- ma:nent advancement been made than in the installation and operation of a modem, informing set of records of all police activities, and in the prompt preparation of cur- rent reports from the record. In 1914, the only record kept was that of arrests. To-day patrolmen on duty carry memorandum books, in which they record all irregular conditions or happen- ings noticed on their beats, and the time and place of meeting their supervising officers. These loose leaf re- ports are turned in to headquarters, there to be checked with the reports of the sergeants. Another .important record is that of citizen complaints, already mentioned. These are invariably referred to the officer in command of the section in which the complaint occurs, if it is a police matter, and the report of results of investigation and disposition is filed and a report made to the complainant if desired. Wjth this thoroughgoing manner of recording and following up of citizen com- plaints, one of the most difficult of police problems has been solved by Dayton. To assure that these complaints shall be received and recorded, a uniformed officer is now detailed for desk duty on all three platoons. A desk blotter is kept at the central station, wherein is entered in chronological order all proceedings of the division. Printed forms have been introduced also to I08 CITY MANAGER IN DAYTON record the cases of persons aided, a detailed and classified record of arrests, detective cases, telephone calls, property reported lost and returned, etc. As a result of these extensive records it is possible to compile each morning a consolidated daily report of the division, containing a comprehensive tabulation of the activities of the force for the preceding 24-hour period, and also showing crime conditions for the day. Cumula- tive figures since Janua.ry ist are also given. This report is compiled and placed on the desk of the director of safety and the City Manager each morning. Separate reports are prepared for the uniformed and detective divisions. Cooperation with Other Departments With a centralization of control of the entire govern- ment came a spirit of cooperation among the component branches. The police were greatly influenced by this new atmosphere of mutual interest in getting things done, and they greatly increased their scope of work to include an interest in the conduct of the other departments. The detailed reports of conditions observed on beats and violations noted of corporation ordinances have been a great aid to effective work of the other departments. For instance, the reporting of thousands of outages of street lamps saves the city over a thousand dollars each year, the report of a broken curb sent to the division of streets secures a remedy of the faulty condition, and so on. A new phase of work was undertaken by the policemen in the winter of 1914-1915, which was distinctly of a social service nature. During the unusually dull days PROTECTING LIFE AND PROPERTY IO9 for labor at this time, there was passed a large bond issue for water works extensions, thus creating work of a public nature for thousands of unemployed. The water works called upon the police to aid them in the work of investigation, in order that, first Americans, then married men, might be sure of employment. The police sub- stantially aided in carrying to a success the entire plan of relief, through the work of inquiry and reporting which they did. Coupled with this humane function was that of investigating cases for the Bicycle Club, a social or- ganization which, upon the recommendation of police investigations, gave substantial amounts of money, food, fuel and clothing, to alleviate suffering. Educational Society of Police and Firemen Indicative of the spirit of mutual self-help existing between the two chief branches of the safety department is the establishment in 1915 of an educational society composed of members of the divisions of police and fire, incorporated under the state laws. The objects are to advance the knowledge of the members in their work and to effect a closer cooperation with each other. Two field days have been held at the Fair Grounds, which netted over $8,000 to the society. With the proceeds the first year a traffic squad was sent to Detroit to observe traffic conditions there, and a company of seventeen men from both branches was sent on a tour of the large Eastern cities, to study general police conditions. The application at home of their observations has proved the excellence of the plan. From the second year's receipts a squad of firemen was sent to several cities to become informed on best fire no CITY MANAGER IN DAYTON fighting methods, and several other firemen were sent to the factory from which was purchased the motor-driven apparatus, in order that they might gain a. first hand knowledge of its construction and method of repairing. Three officers from the police division went to New York to study the training school curriculum there, and upon their return established Dayton's first police school. POLICEWOMEN Soon after assuming office in 1914, the City Manager established another innovation, the Bureau of Police- women, which was placed under the supervision of the Director of Public Safety. Two policewomen were ap- pointed, and the work properly falling to such a bureau has since been carried on. The policewomen handle all female cases for the police, and accompany women prisoners to court. Their work consists of adult probation cases of women and girls from the municipal court who voluntarily place themselves under the probation of the policewomen; family condi- tions tending to immoral living; investigation of com- plaints about disorderly houses and reporting their find- ings to the police; prevention of children plying street trades; and supervision of dance halls, places of amuse- ment, parks, etc. The establishment in 1917 of a Domestic Relations Court by the county relieved the policewomen of many cases of domestic difficulties. The home for dependent girls, which was established in 1915 by a private charitable society which in 1916 turned the home over to the city for operation from the public funds, is under the supervision of the policewomen with a matron in charge. It provides a temporary home for friendless and poor girls, until they are able to help PROTECTING LIFE AND PROPERTY III themselves. Forty-three girls were cared for in the first ten weeks the home was open during 19 16, and this average has been maintained. Expressed in number of cases handled, the following is a record of the work of the policewomen : Year Number of Cases Probation Cases 1914 191S 1916 1917 237 1,156 1,624 1,656 69s 717 The general moral tone of all dance halls has been permanently elevated, and, through cooperation of the liquor licensing board, three dance halls adjoining saloons were closed; workhouse sentences have been prevented; and girls were saved from the penitentiary through heed- ing the friendly counsel of the policewomen and accepting positions found for them. The policewoman's methods are becoming more effectual, her follow-up work strengthened, and her re- sults more successful from year to year. The police- woman has proved her case in Dayton. PENSIONS Dependent upon certain conditions, policemen and their dependents may receive a pension from the policemen's pension fund. This fund was originally established in 1904 and reorganized by state law in 1910. A similar fund exists in the Division of Fire. On December 31, 19 17, there were 47 police pensioners, and payments for the year amounted to $16,800. There were 61 fire pensioners, who received $16,700 from the firemen's pension fund. A preliminary study of these funds in 19 14 indicated 112 CITY MANAGER IN DAYTON that there was need for reorganizing the administration of the funds, to secure more equitable payments and place them on a financially sound basis. CONCLUSION The foregoing is, briefly, the main story of the division of police. No mention has been made of the bureau of criminal identification with its modern system of records, its photographs and Bertillon measurements, and its con- tact with other cities. This work has been effective for a number of years. Neither has the imperative need for a new central police station been stated. The building now occupied by house prisoners temporarily is a disgrace. It is old, dark, damp and insanitary — a relic of the old bars and locks ages. However, the present administration has re- modeled it so far as its frail walls and floor permit, with a view to treating its unfortunate visitors as though they were human. A police station is a place for housing arrested persons prior to judgment upon their cases by the courts. When this fact is reflected upon by enough of Dayton's citizens, they may reform this barrier to an excellent police system. To date the claim of insufficient funds has been the excuse, — it is really an uninformed and disinterested citizen body. Fortunately, this one shortcoming has not affected the long list of progressive steps which the officials have made since January, 19 14, when the City Manager ad- ministration took office. DIVISION OF FIRE It is patent that the citizen ordinarily is interested in the work of the division of fire to the extent that it puts PROTECTING LIFE AND PROPERTY II3 fires out promptly, thus preventing losses of property, and possibly of lives. The conditions which existed in former administrations for this work have been briefly indicated. With a political regime, and political appointees in the fire fight- ing force, it is apparent that there did not exist the responsible control, the discipline and obedience, or the ability upon the part of the members of the force, to per-^ form their work. Cases existed of firemen refusing to answer alarms, either outright or through petty and in- sufficient excuses. Their position was secure, — the property of citizens must pay the toll in ashes. Coupled with the inherently faulty conditions found within the personnel of division was the inadequacy of equipment. Until 1914, all apparatus was of the horse- drawn type, — expensive and slow-going. It is not to be inferred from these statements that fires were not ex- tinguished. Once on the scene, the men put forth every effort to keep losses at a minimum, and the figures for the years 1909 through 1913 (except the year of the flood, 1913) show moderate amounts for both number of fires and average loss per fire. These results were accom- plished in spite of the absence of strict discipline, com- plete training, modem apparatus, and inspection of buildings, however, rather than because of them. When the City Manager assumed office in 1914, he gave special attention to adequate fire protection for the city, and retained the duties of Director of Safety until May, 191 5, in order that he might better solve the prob- lems of the service. He analyzed the situation simply but forcefully with the formula that to be certain a fire would be put out the. men must answer alarms promptly, obey instructions of superiors, know the business of fire 114 CITY MANAGER IN DAYTON fighting, and be furnished with adequate and ample equip- ment. How successful has been the effort to reach and mamtain these high standards of efficiency is the story of the division of fire during the past four years. Organization The division of fire is under control of a chief, who is appointed by the City Manager. The present incumbent was retained from the preceding administration, and has a creditable record of results. The strength of the divi- sion during a period of years has been as follows : 1912 162 191S 152 1913 152 1916 17s 1914 149 1917 174 A more responsible organization has been secured through placing a commanding officer in charge of each of the 16 stations in the city. Other features of the internal reorganization are later indicated. Fire Fighting Apparatus Half the success of combating fires rests with the apparatus and equipment with which the firemen are fur- nished. One of the great strides forward by the present administration was the introduction of modern motor- operated apparatus for the entire service. A list of the equipment is as below : 6 large triple pumpers. 4 junior pumpers 800 gallon p. m. pumper 40 gallon chemical tank 1000 feet of hose 44 feet of ladder 350 gallon p. m. pumper 40 gallon chemical tank 44 feet of ladder 1000 feet of hose PROTECTING LIFE AND PROPERTY II 5 3 combination hose andT 40 gallon chemical chemicals J 1000 feet hose [ 40 feet ladder 6 tractor, engines / ^oo to iioo gallon p. m. [ capacity 3 aerial trucks S ^5 and 75 feet aerial ladder \ 275 feet extra ladder I water tower S ^5 foot tower; 12 line I capacity I chief's auto 5 district chiefs' autos 5 service trucks — telegraph, hydrants, etc.— available as hose wagons in emergency. Fire Statistics The activity of the division is reflected in part by a statement of the number of fires, losses, etc. : STATISTICS OF FIRE LOSSES Number Number of of Fire Loss per Loss per Year Alarms Fires Losses Fire Capita 1912 677 623 $121,000 $194.77 $1.06 1913 861 760 1,391,0001 1,829.7s H.59 1914 897 821 330,000 415-72 2.6s 1915 825 716 213,000 297.5s 1.64 igi6 970 808 474,000 S87.60 3.39 19 1 7 90s 779 300,000 389.12 2.00 1 Flood year. Flood losses were $1,239,141. Other than flood losses were $152,468.68. Fifteen fires occurred at that time, condi- tions prevailing which rendered the division practically helpless. 1 1913 Flood losses, per capita $10.32 Other than flood losses, per capita 1.27 The loss per alarm for other than flood fires during 1913 was $206.65. Fire Prevention Bureau Established The foregoing figures fail to tell the whole story about the work of the division during the present administra- tion, as all the results cannot be measured currently year Il6 CITY MANAGER IN DAYTON by year. One or two big fires render comparisons use- less. This applies to the preventive work of the men specially assigned to this service, the benefits of which will prove cumulative during all future years. The prevention of fires by inspection was begun in 1914, when firemen from the various fire houses were detailed at convenient intervals to do this work in their surrounding districts. This was a temporary working plan only, and in 1915 the bureau of fire prevention was formally organized with three men, a captain being placed at the head of the bureau. The force assigned to this work was selected through the proficiency shown in the preceding year. The growth in extent of this bureau's activities is reflected in the following partial statement of work done : 1916 1917 Number of inspections made 16,879 18,132 Number of complaints received and investigated i,3S9 1,282 Number of inspections found defective 5,45o 6,050 Number of inspections found in good order .... 11,429 12,082 Number of chimneys repaired or rebuilt 4,277 978 Furnace Rue pipes repaired 366 236 Cellars cleaned 915 816 Gas leaks reported and corrected 143 435 The above statistics are indicative of the great im- portance of fire prevention. The work is being done more and more efficiently each year, and close cooperation is had by the bureau with other city departments, ser- vice corporations and the public. The establishing of this bureau has proved one of the strongest factors in reducing fire hazards and making life and property in the city safe. Motorized Apparatus For several years the replacement of horse-drawn apparatus by motor-driven had been under discussion. PROTECTING LIFE AND PROPERTY II/ This was prompted by the fact that motor equipment is tireless, stronger, always ready for the next alarm, can go faster and farther than horse-drawn, and is more economical in cost of operation. As early as 1912, bonds were issued to the amount of $119,000 to purchase motorized pieces. It was found upon close investigation by the Bureau of Municipal Research, that a portion of this amount was more or less liable to be lost to the city by being squandered in large commissions to interested public officials. The letting of the contract was rescinded by the council, and $50,000 of the original bond issue was turned back into the sinking fund. The new commission took steps to outline the needs of the city in modern equipment, and through widely adver- tised bids and competition made a start in 191 5 toward motorized apparatus, replacing almost half the horse- drawn wagons. During 1916 contracts were let which permitted the entire motorization of the division. The chief and marshals also have automobiles, enabling them to reach each fire quickly. The combined chemical, hose wagon and engine in one piece allows a greater stream to be directed against the flames, and this apparatus is therefore much more effective than the ordinary horse- drawn steam fire engine, which it displaced. New aerial trucks were provided, to displace older pieces and to be available in the congested districts. In addition to the purchase of the new rolling equip- ment, over 30,000 feet of high grade, thoroughly tested hose were purchased, and many new hydrants placed where conditions warranted. Improving Conditions for Firemen Recognizing that firemen could serve best only when their personal welfare is given the fullest possible atten- Il8 CITY MANAGER IN DAYTON tion, a reorganization was effected to this end. Instead of the period of service which had been the rule, requiring the fireman to remain on duty at the station for 96 con- secutive hours, the third-day-off plan was inaugurated in 19 1 6. Under this system each fireman has two days on duty, and the third he has free to spend at home. The benefit to the fireman of the additional relief from duty is, in the course of the year, of vast importance in his physical and mental condition. Under this plan it was provided, however, that every fireman should spend his fifteenth ofif day on duty, being assigned to a reserve squad at one of the stations in the congested district. Thus four squad wagons, with 10 men each, serve as an additional fire fighting strength to respond to first alarm calls in this district. Fire pro- tection has been doubled by resorting to this provision. Another action taken by the city commission to benefit the firemen was to increase their monthly pay $5.00. This was carried in the appropriation for 19 16, and was the first increase this branch of the service had received in many years. Conditions to-day demand that the salaries of firemen be further increased, both because of the more efficient work they are now capable of performing and because of increased costs of living and of the clothes required in their work. A graduated scale of increased salaries is under consideration by the commission, and it is highly probable that some plan may be effected to grant the increases. The only reason the commission has not long ago taken such action is the pressing one of insufficient revenues. Extensive repairs were needed at nearly every fire station, and money was appropriated in 1916 to carry out a carefully worked out schedule of the betterments PROTECTING LIFE AND PROPERTY II9 required. The release of horses from the houses has afforded additional space, and also permits of maintain- ing much more sanitary conditions. Prior to the reor- ganization within the division the firemen stationed at the houses could not make any repairs, owing to a technicality that they were employed solely as firemen. The men were ready and desirous, however, of putting the stations in shape if they were furnished the materials, and the reorganization made possible the detailing of firemen to this work. Training School for Firemen A definite course of instruction has been introduced, and this school is under the direction of a captain specially assigned to the work. Each fireman reports two hours every second week, and practice is had at a drill tower with pompier ladders, handling apparatus, laying hose, making couplings, rescue, first aid and sal- vage work, etc. Physical drills are also held regularly at the station houses, under the direction of the com- manding officer or the district chief. The New Type of Fire Station Owing to the extension and growth of the city since the last fire stations were built, a relocation of two of the companies was highly desirable. Bonds were author- ized for this purpose by vote of the electorate in November, 19x5, and within the next twelve months sites were determined upon, after giving full considera- tion to the requests of the people in the two sections of the city concerned, and two model and modern, bungalow type, fire stations were planned and built. They were opened, one in the summer of 1917 and the other early in I20 CITY MANAGER IN DAYTON 19 1 8, and not only furnish fire protection to the sections in which they are located, but have an artistic appearance in the residential districts. Educational Society The educational society, formed in conjunction with the police, has already been mentioned, and the beneficial results of this organization are reflected in the division of fire as certainly as in the division of police. Owing to abnormal conditions in 191 7, the field day exercises were not attempted. The field day serves as an excellent edu- cator to the public of the work of these two branches, and also increases the enthusiasm and ability of the men. Modern Reporting Methods As with the division of police, the system of records which obtained under former administrations was very incomplete or wholly lacking. Substantial and per- manent improvement has been made to overcome this condition, and to-day adequate records are kept currently of all activities within the division. As a result of a study and report by the Bureau of Municipal Research, a complete record keeping procedure was installed in both divisions. There is now prepared each morning a consolidated daily report, complete for the entire division, which gives the distribution and attendance of the force, and the number of fires, amount of estimated losses, number of inspections, etc. The report shows also the comparative figures for the same date the preceding year, and a cumulative total for the current year. This report is placed each morning on the desk of the chief and the Director of Safety, who submits it to the City Manager. PROTECTING LIFE AND PROPERTY 121 Records are kept of each alarm, whether box or still, and of each telephone communication received at head- quarters. Separate records are maintained at each sta- tion of attendance, work done, supplies used and needed, etc., and these are in turn submitted to headquarters. Merit System The remarks under " Police " as to entrance into the service, discipline, removal and promotion, are equally effective and observed as substantially in the fire division as in the police division, and detailed discussion of them is therefore not necessary. Pensions As stated under " Police," a pension fund exists for superannuated firemen or dependents. ( q.v. ) CONCLUSION Attempt is not made to describe in detail the fire alarm system, which is of the Gamewell make and automatic type. The National Board of Fire Underwriters are recommending a change to the manually operated type. It is also desirable that the entire alarm headquarters be removed from the present location over a fire station to a fireproof building. Each station has a fire alarm box and a large gong, a department and an automatic tele- phone. There are 276 public and private boxes dis- tributed throughout the city, all of Gamewell make. Fire hydrants have been well placed, but with each street paving special attention is given to strengthening the service if conditions warrant, in order that additional lines may be available. A high water pressure system for the congested districts has been established, with the 122 CITY MANAGER IN DAYTON necessary pumping facilities at the water works. The construction during 1918 of a 10,000,000 gallon reser- voir in the highest section of the city, will also afford additional protection to the entire city. DIVISION OF BUILDING INSPECTION Inspection of buildings is another municipal activity introduced by the City Commission. The inspection of existing buildings and structures of whatsoever kind, and the regulation of all building to be done, is a necessary function of the municipality. Only through exercise of this right by the commission, through its delegated body, the division of building inspection, can the safety of the lives and property of owners and users of the property be assured. Recognized standards of safety, ventilation, plumbing, etc., cannot, it has been proved, be left to the individual contractor or owner with satisfactory results from a point of view of the public's reasonable demands. Prior to 1914 no effort had been made by the councils to provide for any conformance to even the minimum standards in the location and erection of buildings and other structures as garages, billboards, etc. It was neces- sary only to comply with the regulations imposed by the State safety codes and enforced by the State. Upon assumption to office in 1914, the city commission at once appointed a representative advisory citizen board, to serve without remuneration, to outline a building code. The board at once set to work upon a study of the provisions which should be embodied in such a code. To assist the board in the detailed work involved, and to study the experience in other cities, a building in- spector was appointed in April, 1915. The services of an architect in Columbus, who had specialized in an inter- PROTECTING LIFE AND PROPERTY 123 pretation of the State building code, were engaged by the Dayton Bureau of Municipal Research. Pending the acceptance and passage of a thoroughly suitable code locally, an ordinance was passed containing the essential and practicable provisions of the State code. During 191 5 extensive work was done in preparing the proposed ordinance. In August, 19 1 6, the complete draft of the code was submitted to the City Commission, and during the next three months public hearings were held, both day and night sessions, to consider its several sections. Real estate men, contractors, plumbers, electricians and others availed themselves liberally of the privilege afforded by these hearings, and so far as was possible the code was worded in a manner satisfactory to all interested. The code was finally passed on December 27, 1916, and has proved in practice to be a model and modern building code for a middle-sized city. The improvement in housing conditions through a rigid inspection of plumbing, gas fixtures, electric wiring, lighting and ventilating provisions has already been sub- stantial. There exists also an increased attention to methods of preventing fires, due to the work of the inspectors. The section of the code relating to smoke abatement has received special attention, through the appointment of an inspector for consideration of this large problem in an industrial city consiuning bituminous coal. An extensive educational propaganda has been conducted, giving emphasis to the economic waste of sending uncon- sumed fuel through the stacks and scattering it over adjoining properties, and calling for attention even in the display windows of merchants. In many instances 124 CITY MANAGER IN DAYTON recommendations for the installation of automatic stokers on furnaces have been adopted. The city, as an example, in January, 191 7, so equipped the water works. There remains, however, a great deal to be done in this phase of the work by, this division. The public schools, for in- stance, are great offenders. Upon the adoption of the code, some objections were met with upon the part of a few of those affected by it. However, the courts inflicted fines in some cases, which assured a more wholesome respect for the law. Through the passage of the code, the work of the Ohio Inspection Board within the city was assumed by the municipality. This Board is a private organization financed by the insurance companies, and it formerly had an agreement with the local electric utility that it was to inspect all wiring before the company should place a meter. Its work is now confined to inspections outside the city — except in those cases begun before the date the ordinance became effective — and citizens are now re- quired to pay only the city's reduced inspection fee. The division of building inspection is under the con- trol of the director of public safety, and its activities, in addition to assuring a much higher standard of safety, are self-supporting. The work is divided primarily into the branches of building, storage, gas, electricity, smoke and sanitary inspection. The last named service was taken over in 1916 from the division of health. The division cooperates closely with the divisions of health, fire and police. It is worthy of comment, in connection with a review of this self-supporting activity, that with the adoption of new functions, such as building inspection by even the most thoroughly honest administration, it is sometimes PROTECTING LIFE AND PROPERTY 1 25 difficult, if not impossible, to keep the individual friendly to the administration when he is put to a financial expense in order to comply with the modern standards of con- sideration for the community as a whole, as opposed to his personal and more selfish interests. This enmity is one of the sacrifices the public officials who are serving as administrators must occasionally make in behalf of the citizen body, even though it may ultimately result in their overthrow. It is a " reward " distinctive to a democracy. It can only be stated here that, so far as the regulation of buildings as to size, location and construction is con- cerned, in Dayton the best interests of 150,000 people in preference to the selfish ends of the individual owner require that the public authorities should dictate. Following is a statistical summary of the division for two years : 1916 1917 Estimated cost of buildings $3,699,000 $4,204,500 Permits issued, number 4,163 4,583 Permits issued, fees $8,000 $12,200 Inspections, number 412 5,443 Inspections, fees $1,500 $5,7oo Total receipts, permits, fees and sales .... $9,Soo $18,200 Inspections made, without fees 9,400 21,000 WEIGHTS AND MEASURES The inspector of weights and measures was given a wholesome incentive in the performance of his duties when the Manager plan of government was introduced. This function of the city government has been carried on for some years, but only in a restricted manner, owing to the failure of the administrative officials to appreciate its value. Under the reorganization of the departments the in- spection of weights and measures was placed within the department of public safety, and a closer supervision and 126 CITY MANAGER IN DAYTON control of the work was had by the director of this de- partment. Since 1914 the inspector has been given office quarters immediately adjacent to the central market, he has been furnished with the necessary standard equip- ment and a complete system of records introduced into his office. The moral support essential to effective results has also been forthcoming. The careful and recurrent inspection of weights, scales and measures used in the public markets and by whole- salers and retailers becomes of considerable economic importance when the number of transactions occurring within a twelvemonth are computed. The aim of the administration has been to protect not only the house- holder or other consumer, but also the honest merchant and dealer. Inspectional work has been extended from public markets to groceries, meat markets, coal dealers, etc., and has disclosed dishonest dealings in prize pack- ages, in tobacco shops, candy stores, etc. An extensive campaign of self -protection to the housewife and the honest dealer has been carried on by frequent addresses before public gatherings and through the press. Cooperation of the police, merchants and public has helped to make the work successful. Prior to 191 5, no records were kept of the amount of work done. Detailed records now kept show annual inspections and complaints handled in excess of 15,000 per year. The cost of the Bureau has ranged from $1,000 to $1,500 during the past ten years. The work was given impetus in 19 18 by the assistance of volunteer women inspectors, working under the direc- tion of the safety director and sealer. Hundreds of Scales are Condemned Each Year Housewives Are Protected Through the Work of Volunteer Women Market Inspectors CHAPTER VII MUNICIPAL HOUSEKEEPING With the advent of the Commission-Manager govern- ment in 19 1 4, a number of boards and independent branches of the city government were united into one department, in accord with the principle of centralized control and responsibility. The Department of Public Service, under the direction of a single head, was by charter given the management of streets and alleys, sewers, public buildings, markets and all public utilities of the city ; also designing and estimating on public works, cleaning streets and collection of waste. The Department was organized into the following divi- sions, which are discussed in turn : Engineering Streets Water Lands and Buildings. DIVISION OF ENGINEERING The routine work of the engineering division consists in preparing plans and estimates for street paving, sewers and drains, establishing grades, serving notices for con- nections to sewer and water mains, and investigating complaints relative to these services. The cost of the office of the engineer, which is payable out of the general fund, has been reduced under the new administration by charging the engineering cost on any improvements to 127 128 CITY MANAGER IN DAYTON the particular improvement a,ffected. The following table shows the comparative costs of the Division : Mayor-Council Plan Year Cost 1910 $17,600 igii 17,800 igi2 20,900 1913 8,000 City Manager Plan Year Cost 1914 $9,000 1915 10,200 1916 8,200 1917 6,500 The extent of the work accomplished in this division is shown by the following table : Streets and Alleys Paved Sewers Built New Grades Established Plans and Estimates Year Miles 1914 4.62 1915 3-8 1916 4.01 Miles 8.3S 7.11 9.00 For 52 Streets 102 Streets 63 Streets Prepared 112 25s Investigations 454 494 Contract work on public improvements has been greatly hampered by the abnormal conditions of labor and material markets. Contractors frequently refuse to bid on work advertised on account of the engineer's estimate being too low. As a result, the city since 19 14 has done an extensive amount of construction work by direct labor, and usually at a saving over the lowest contractor's bid. Eight-Hour Day for Labor During 1914, the eight-hour day was established for all laborers and employees working for contractors on public improvements. This meant an increase in wages of 25 cents per hour; that is, the laborers received $2.00 for eight hours or 25 cents an hour, whereas they formerly received $2.00 for ten hours' work or 20 cents per hour. MUNICIPAL HOUSEKEEPING I29 Notable Achievements Since 1914 In addition to the usual routine work, a number of notable accomplishments have been secured by this divi- sion since 1914, as are described. Topographical Survey A complete topographical survey of 16 square miles of the territory including Dayton and the immediately sur- rounding watersheds was made by the engineers. No accurate or reliable planning for the extension of drains, sewers, streets, etc., can be made without the data avail- able by such surveys. This, in addition to a portion in the western limits mapped by the Miami Conservancy Dis- trict, forms a complete, accurate and comprehensive topo- graphical map of this region. It has already been invaluable in the work of planning the sewer and drain system of Dayton. It is safe to state that millions of dollars have been wasted in the United States through the failure of cities to avail themselves of accurate topo- graphical maps on which to plan for the future territorial expansion as required with the increase in population. Design for a Storm Sewer System The problem of the design of a comprehensive storm sewer system has been attacked in a scientific way for the first time. Based upon a report by Metcalf and Eddy, designs have been made upon a rational basis for storm sewers in all parts of the city. These designs are based upon an exhaustive study of the duration and intensity of storms in this locality during a period of years. Rain- fall records for Dayton, Cincinnati and Columbus for 130 CITY MANAGER IN DAYTON long periods, together with the grades, character of topography and the character and condition of the ground surface in various portions of the city, have been made the basis of the design. Construction based on these plans has been aggressively followed. Dry Hollow Creek sewer, affecting millions of dollars of property on the west side, was completed, as also important mains in the east end. Design for a Comprehensive Sanitary Sewer System At the time of the adoption of the new charter, one of the most important problems presented was that of sewage relief. As far back as December, 191 1, the city engineer reported numerous complaints about the in- adequacy of some of the sewer mains and recommended a study and report of a plan for relief. No action was taken except to provide emergency overflows into rivers as temporary relief. The system was designed in 1890, and many piecemeal extensions had been made to the original system, but no steps to provide relief through comprehensive study and planning of the problem of enlargement were taken under the old regime. The new administration at once ordered the prepara- tion of an accurate survey and map of the existing sewer system. Three men worked approximately one year and four months on this and surveyed and mapped 200 miles of sewers. Accurate gaugings were then made to deter- mine the amount of sewage flow at various points and in gallons per capita of the total city population. Expert advice was taken in the report from M,etcalf and Eddy on the quantity of sewage to be used as a basis for the new plans. Based upon these recommendations, the gaugings, the MUNICIPAL HOUSEKEEPING I3I sewer survey and the topographic maps of the city and outlying area, a comprehensive design was made with the following objectives : 1. To relieve the existing overtaxed trunk sewers. 2. To provide sufficient relief sewers for future needs. 3. To remove the sewage from the various streams flowing through the city. 4. To purify eventually all the sewage of the city. Storm Sewer Maps A survey has been made of all drains in the city. Old maps in the office of the city engineer were not usable and all data were retaken. Three men spent over a year on this work and loo miles of storm sewer were surveyed and mapped. It is probable that the citizens of Dayton have never appreciated to any considerable extent the great value of the solution of foregoing engineering problems. The wise and foresighted planning for the future, as evolved by the City Manager administration since 19 14, with the advice of expert outside consultants, will mean more and more to the future of Dayton in every way — economically, industrially, physically and socially. The problems are solved not alone for the next few years, but in a manner that will permit of natural expansion as required. Three Bridges Built In March, 1916, the non-partisan administration awarded the contracts for three bridges, at a cost of over $400,000. There was nothing remarkable in the size of the contracts, but it is of interest to know that at the letting there were forty bridge contractors present. 132 CITY MANAGER IN DAYTON They represented all sections of the country, and a Pacific Coast firm received the three awards. The Engineering News of April 13, 1916, contained the following editorial concerning these bridges : " One theory of getting low prices in contract letting is that the contractor should be induced to gamble — guess — as blindly as possible. Another theory is that by securing the fullest information of working conditions and throwing this open to all bidders, the lowest and best bid will be obtained. The city of Dayton, Ohio, has just demonstrated that the second theory is true. " In calling for bids on three concrete arch bridges the city's engineering department made available to intending bidders unusually complete data on conditions. ... It got a series of bids with hardpan prices; and when it awarded the contract it put back into the public treasury many times as much as was spent in getting the information for the bidders." The Webster Street bridge was opened in 1917; the Keowee Street bridge early in 19 18, and the Fifth Street bridge was finished in 191 8, but not paved. The comple- tion of these bridges was retarded through the inability of the contractors to secure labor and materials, which was due partly to the commandeering of material and equipment by the United States Government ; to excessive rain and consequent high water; and to the decision of the Miami Conservancy Commission requiring the chan- nel of the river to be cleared of all false work during the winter months before the piers were completed. During 1914 permission was secured from the Ohio State Board of Public Works to fill and pave Valley Street across the Miami and Erie canal in place of in- stalling a lift bridge, saving taxpayers $12,500. Plans and specifications were prepared for the rebuild- ing of the Island Park dam. This contract was awarded c n Q CO MUNICIPAL HOUSEKEEPING 133 and the work completed, to the benefit of boating and recreation facilities on the river. BUREAU OF SEWER MAINTENANCE This bureau has charge of the cleaning and repairing of the 200 miles of sanitary sewers and the loo miles of storm sewers, the location and inspection of sewer con- nections, and the operation of a night soil disposal plant. Mileage has been increased at the rate of about 8 miles a year. The extent of the activities is shown for 1915 and 1916, for which records are available: Year Miles of Sanitary Storm Sewers Cleaned Total Catch Basins and Inlets Cleaned No. of Loads of Night Soil Handled Complaints Investigated 191S 1916 I SS 49 23 S6 72 7,000 S.630 1,672 250 2,143 In 1917, 1 16 miles of sanitary sewers were constructed. The comparative costs of this service under the two administrations are given below: Mayor-Council Plan City Manager Plan Year Cost Year Cost 1910 $14,900 1914 $19,900 1911 16,900 191S 20,100 1912 16,900 1916 19,500 1913 11,800 1917 19,900 The chief explanation of this increased cost during the period 1914-1916 is found in the increased scale of wages paid. STREET LIGHTING There has been little change in the street lighting situa- tion, because the contracts for street lighting made under 134 CITY MANAGER IN DAYTON the old administration were still in force until 1916. Additional lights have been installed each year. In 1915, 38 arcs and 40 incandescent lights were installed; and in 19 1 6, 18 arcs, 87 incandescent and 12 gas lights were installed. During 191 1 and 19 12 the cost of gas and electric cur- rent was paid out of bond issues. An issue of $25,000 was made in June, 191 1, and a second issue of $30,000 was made in December, 191 1. Boulevard lighting con- tinues to be paid for by special assessment. In 191 7 there were 404 standard 5-lamp clusters in the downtown sections paid for by special assessment. The actual ex- penditures for street lighting are given in the following table for the period under review : COST OF STREET LIGHTING Mayor-Council Plan City Manager Plan Bonds and General Special Special Tax Assess- Tax Assess- Year Levy ment Total Year Levy ment Total 1910 $ 64,900 $ $ 64,900 1914 $ 96,200 $17,800 $114,000 1911 49,200 31,600 80,8001915 99,500 17,400 116,900 1912 72,400 46,300 128,700 1916 94,700 13,600 108,300 1913 97,500 17,500 115,000 19171 93,8t)0 15,600 109,400 Totals . . .$284,000 $105,4001 $389,400 $384,200 $64,400 $448,600 1 This includes $54,800 of bond issues in 191 1 and 1912. During 191 6 the cost of gas lights had been reduced from $21.85 P^J" y^^^ to $14.03, and under the present agreement the price is about $16.00 per light per year. The city has issued bonds and purchased the poles and fixtures which formerly belonged to the lighting com- pany; the old lamps have been replaced by an improved type which gives a much better light. MUNICIPAL HOUSEKEEPING I35 DIVISION OF STREETS OMce of Superintendent The office of the superintendent of streets was filled under the new administration by a man who had had extensive experience in handling contract work on various railways and who later had been in charge of street work in Cincinnati. The first duty of the new superintendent was the organization of his division. Supervisors were placed in charge of garbage collection, ash and rubbish collection, street cleaning, and service cuts, and foremen were placed in charge of the various street repair gangs. Standard routes and schedules were established. Formerly no cost records were kept and even the records of work performed were lacking. A complete new cost system was devised and installed, which gives unit costs for each of the 25 different activities of the division. Current monthly reports in the form of graphic charts are made to the service director and city manager. As the fire division was motorized the horses were transferred to this division, with the result that by January i, 191 7, a stable with 40 horses was being main- tained. A blacksmith shop was installed. The high price of forage led the superintendent to raise forage, and several tracts of land, amounting in all to about 150 acres, were rented and planted to corn and oats. The stable is operated as a separate self-supporting enterprise. A revolving fund of $8,000 was established and is used to pay the expenses of the stable. This fund is reimbursed monthly by payments made by other bureaus of this division and other city departments who use city teams and wagons. A charge of $5 a day is 136 CITY MANAGER IN DAYTON made for a team, wagon and driver. The cost of opera- tion and maintenance of ii motor trucks operated by this division is also paid from this fund and a charge of $io a day made against each bureau or other city depart- ment using these trucks. This method of handling the stable makes it possible for each bureau to show very nearly its true cost, since the stable cost is distributed over the bureaus actually using the teams. The several services performed by the Division of Streets are discussed separately. GARBAGE COLLECTION Mayor-Council Plan 1910-1913 Collections irregular and infre- quent. Collectors worked 5J4 hours daily. Rules and regulations not en- forced. Strict discipline lacking. Outlying districts neglected. Weekly collection in summer and bi-weekly collections in winter. Water and rubbish mixed with garbage. Unsanitary conditions. Shipped 12 tanks per car. City Manager Plan 1914-1917 Regular collections because routes are standardized. Collectors work full day. Rules and regulations promul- gated and enforced. Constant supervision over men, teams and service. Collection throughout the en- tire city. Weekly collection throughout entire year. Clean garbage. Sanitary conditions. Shipped 22 tanks per car. COMPARATIVE SERVICE AND COSTS Cost Cost Tons Total Per Tons Total Per Year Collected Cost Ton Year Collected Cost Ton 1911 9,866 $28,200 $2.84 1914 12,627 $26,200 $2.07 1912 9,910 25,900 2.61 191S 15.506 24,900 1.60 1913 10,140 25.500 2.51 1916 16,334 25,200 i.SS Totals 29,916 $79,600 Average Cost per ton $2.65 44,467 $76,300 Average Cost per ton ?i-74 MUNICIPAL HOUSEKEEPING 137 These results were achieved through : Planned work to care for the needs of the whole city without regard for ward lines, favored sections, or favored parties. Standard routes and schedules established. Only those employees retained who perform a full day's work. Supervision over men and methods. Adoption of best methods and equipment. Citizen cooperation encouraged and appreciated. Throughout the period 1910— 1913 garbage was col- lected by the city in a more or less haphazard manner. The service supposed to be rendered, and anticipated by the public, was the weekly collection in summer and the bi-weekly collection in winter, except in the center of the city where collections were made daily. The city was divided into ten collection districts and the garbage was hauled to the Taylor Street loading station, from which place it was shipped on freight cars to the plant of the Dayton Reduction Company. The character of the actual service rendered can per- haps best be described by quoting excerpts from the min- utes of the Board of Health. Under date of November 28, 191 1, we quote the following: "As numerous complaints are made to this department re- garding the removal of this waste material (ashes and garbage) same not being collected as regularly as it should the Board de- sired to know why such a condition existed. Mr. Cox, speaking in regard to the garbage situation stated : — present equipment consists of ten two-horse wagons, and one single-horse wagon. During the summer period full equipment is used. To properly take care of the garbage situation twelve modern two-horse wagons should be in use. This would mean a weekly service throughout the resident district and daily service for the busi- ness district. The city should own all its own wagons. " Regarding waste of time by spending part of their hours in 138 CITY MANAGER IN DAYTON saloons, etc., Mr. Cox felt the public was much to blame. A rule of the department is that men should not receive tips of any sort and yet this is done and when investigation was made the public gives no assistance in having the wrong righted. The public should be compelled to put their garbage in proper metal- covered receptacles as called for in ordinance . As it is now all sorts of receptacles are used to take care of garbage, old boxes, lard cans, cases apd barrels being used. Cans and receptacles remaining uncovered are exposed to the rains and much water is hauled to the loading station as a part of gar- bage. Flies and insects of all kinds then become a pest." Under date of July 25, 191 1, Mr. Wuichet, President of the Dayton Reduction Company, made the following statement to the Board of Health: " Garbage as now collected comes to them a great deal of time in a most rotten condition. This he claims is due to infrequent collections of same by garbage department. " Garbage of to-day is likewise composed of a large amount of watery matter. Everything is put into the garbage can — tin cans, glassware, crockery, and any old thing. " During the winter months only six wagons are in operation while in the heated season only ten are used in gathering up garbage." It is evident from these excerpts that the garbage situ- ation in Dayton was far from satisfactory. The collec- tions were irregular and infrequent, rules and regulations pertaining to collections were not enforced with regard to containers or the mixture of rubbish or water with gar- bage, strict discipline was not exercised over the garbage collectors, the outlying districts of the city received infre- quent or no service and complaints were numerous as to the unsanitary conditions. Since the collectors were paid so much a day for delivering two tanks of garbage the temptation was presented to collect a small amount of garbage from a few customers who were in the h^bit of MUNICIPAL HOUSEKEEPING I39 handing out tips and then drive to some hydrant and fill the tank with water, and there is much evidence to show that the garbage did contain an excess amount of water. Also, an investigation by the Bureau of Municipal Re- search showed the collectors were actually working five and one-half hours a day, and being paid for ten hours. The excuse offered by the supervisor was the usual one — lack of equipment and funds. The new administration redistricted the city to cover the entire corporate limits and established a regular weekly schedule which has been maintained continuously throughout the years 1914, 1915, 1916 and 1917. The city was divided into ten collection districts ; a two-horse wagon with driver and helper was assigned to a definite route for each day of the week. The supervisor of gar- bage was furnished a horse and buggy to travel over the routes, supervising the work and attending to complaints of citizens. In this way the regular weekly garbage col- lection has been maintained and the whole city has been covered. Definite rules and regulations were promul- gated and distributed to residences. The first expedient which was adopted to enforce these rules was the refusal to take garbage that was mixed with rubbish and leave it to the health division to enforce removal at the expense of the citizens. This method proved to be slow and un- satisfactory and the plan was later adopted of pouring off the water on the ground near the garbage can and taking the garbage. This was highly resented at first by property owners and tenants, but proved to be a very effective way of securing compliance with the rules. The cost of garbage collection includes also the cost of operation of the loading station and the freight charge incurred for hauling the cars to and from the garbage 140 CITY MANAGER IN DAYTON plant. Under the old administration the city paid $5 a car for hauling the garbage to the private reduction plant, a distance of i}4 miles. The new administration paid $7 a car for hauling the garbage to the new disposal plant, which is about nine miles distant. This also in- cluded a switching charge. Several improvements have been made in loading the cars, with the result that the number of cars required to haul the garbage has decreased from an average of 539 cars per year during the period 1910-1913 to an average of 271 cars per year during the period 1914— 1916. Dur- ing the earlier period only one tier of tanks was loaded on a car, whereas during the latter period two tiers of tanks were loaded on each car, and still later the garbage was dumped directly from the tank into the freight cars, and in this way most of the water was drained off. Only one-half as many cars are now required to haul the gar- bage. The following table shows the number of tanks collected, the number of cars shipped and the average number of tanks loaded on each car during the period un- der review : Year Tanks Cars Tanks per Car 1910 6,023 S88 10 191 1 6,211 594 10 igi2 6,300 503 12 1913 6,42s 473 14 1914 5,961 284 21 191S 6,465 273 24 1916 7.300 285 26 Instead of requiring additional wagons and additional funds, a better organization and closer supervision has made it possible to maintain a regular weekly garbage collection throughout the year for the entire city at an actual decrease in total cost. The following table shows MUNICIPAL HOUSEKEEPING I4I the tanks and tons of garbage collected each year, the total cost of the service and the cost per tank and per ton of garbage collected : Year Tanks Tons Total cost Cost per tank Cost per ton 1910 6,023 9,653 $28,200 $4.68 $2.92 191 1 6,211 9,866 28,200 4.53 2.84 1912 6,300 9,910 25,900 4.1 1 2.61 1913 6,425 10,140 25,500 3.971 2.51 1914 5,961 12,627 26,200 4.40 2.07 1915 6,465 15,506 24,900 3.85 1.60 1916 7,300 16,334 24,200 3.45 I -55 1917 15,933 26,700 ... 1.68 The city has increased in population very rapidly dur- ing the last few years, yet garbage collection has been extended to the outlying districts as rapidly as they have been built up. To-day the city is collecting more gar- bage from a larger territory than ever before and yet the cost is less than before. In short, the citizens of Day- ton have a more frequent, more regular and vastly ex- tended service and they are securing this with an actual decrease in total cost of the service. GARBAGE DISPOSAL Mayor-Council Plan City Manager Plan 1910-1913 1914-1917 Private reduction plant. Municipal reduction plant. Damage suit cost city $30,500. Net profit of $28,400 in three Average cost $3,050 a year. years. OPERATION STATEMENT, MUNICIPAL GARBAGE DISPOSAL PLANT — DAYTON Revenue 1916 1917 1918 Sales of grease, tankage, etc $31,300 $37,6oo $71,200 Inventory on hand at close of year. .. . 15,000 S,8oo Total $46,300 $43,400 $71,200 142 CITY MANAGER IN DAYTON Expenses 1916 1917 1918 Cost of maintenance and operation . . . $27,700 $3S,40o $48,800 Operating profit $18,600 $ 8,000 $22,400 Interest on bonded debt $ 2,750 $ 3,8/5 $ S.3S0 Sinking fund reserve 1,950 2,775 3,90a Total $ 4,700 $ 6,650 $ 9,250 Net operating profit $I3.900 $ i,3So $I3.IS0 Former Conditions During the period 1910-1913 the garbage of the city was disposed of by a private reduction company in ac- cordance with the terms of a ten-year contract dated Oc- tober 23, 1903. Under this agreement the city delivered the garbage to the plant of the Dayton Reduction Com- pany free of charge and the Company disposed of it with- out charge. This company also disposed of all night soil and dead animals. The plant was located about one and one-half miles from the center of town. The city agreed to pay the freight on the cars required to haul the gar- bage from the loading station to the plant at a rate not exceeding $5.00 per car for the round trip and to clean and sterilize all tanks after they were emptied. The arrangement proved to be unsatisfactory to the private reduction company, to the city, and to the citizens. The reduction company did not make any profit on the venture and at no time did it declare a dividend on its stock. The chief reasons assigned for the failure of the enterprise were that the plant did not get all the garbage produced in the city and that sufficient care was not taken to keep foreign substances out of the garbage. On a claim of non-delivery of all city garbage the re- duction company brought suit against the city for dam- ages in the amount of $125,000, the claim covering the MUNICIPAL HOUSEKEEPING I43 first four years of the contract. A second suit for $ioo,- 000 covering the three years following was brought by the company and a third suit covering the balance of the contract was threatened. In the early part of 19 13 a compromise was effected and the city paid $30,500 dam- ages to the reduction company, and paid one-half of the court costs; this settlement covered the remaining life of the contract. From time to time complaints were made to the board of health by residents of the city living in the vicinity of the plant that the plant was a nuisance. The following excerpt is taken from the minutes of the board of health dated November 4, 1910: " From investigation made the Doctor felt that the above company allowing gases to escape they were certainly respon- sible for creating such nuisance. Also the East End Improve- ment Association has been raising very serious objections to the nuisances as mentioned above." Upon the termination of the ten-year contract the city seriously considered letting a contract to a private com- pany to collect and dispose of all garbage at a fixed sum each year, but such an agreement was not effected. The new administration employed Mr. Stephen E. Wil- son, an expert in garbage matters, to make a compre- hensive study of the garbage situation ; as a result of this investigation it was decided that the city should build and operate its own reduction plant. Mr. Wilson had charge of the construction of the new plant. The plant was completed at a cost of $110,000. It is located at Whit- field, almost nine miles southwest of the city. An 8- room house was built in order to have the Superin- tendent living near the plant and additional houses have been erected to provide homes for some of the other em- ployees. 144 CITY MANAGER IN DAYTON During the intervening period, between the termina- tion of the old contract and the beginning of operations at the new garbage reduction plant, all garbage collected was buried. The new reduction plant was placed in op- eration in December, 1915, and since that time the city's garbage has been reduced at its own plant. The proceeds received from the sale of grease and tankage have been greater than the cost of operation. ASH AND RUBBISH COLLECTION Mayor-Council Plan City Manager Plan 1910-1913 1914-1917 Collection made 1910-11-12; no Continuous collections. collection in 1913. Collection made once every four Bi-weekly collections. to seven weeks. No regular schedule. Regular schedule. Antiquated equipment. _ Modern dump wagons. No records kept of service per- Cost records show cost per formed in igi2 and 1913. cubic yard collected. Receptacles for ashes and rub- Require rubbish to be placed in bish not required; shoveling boxes or barrels and placed in from ground. rear of lot or at front prop- erty line. Two helpers to each wagon. One helper to each wagon. COMPARATIVE SERVICE AND COSTS Cost per Cubic yards Cubic yards Total Cubic Year Removed Total Cost Year Removed Cost yard 1910 50,158 No records 1914 77,481 $35,300 $0.46 1911 57,158 kept showing ipij 87,000 32,200 0.37 1912 No rec- total cost 1916 93,915 28,300 0.30 ords kept of this 1913 No col- service 1917 86,120 19,000 0.34 lections made In brief, there were more cubic yards of ashes and rub- bish collected from a wider territory than ever before, during 1914-1917, and at a decrease in the cost. These results were achieved through: Work planned to cover entire city. MUNICIPAL HOUSEKEEPING 145 Standard routes and schedules established. Supervision over men and methods. Modern equipment and modern methods used. Exact records kept of service performed and of costs, to show how leaks and losses might be eliminated. No favoritism in hiring or retaining employees or in per- formance of work. Single devotion to the public interests. Ash and rubbish collection was made by the city dur- ing the years 1910, 191 1 and 1912, but this service was discontinued in 1913. The city was divided into eleven regular routes, but no regular schedule for collection was established. Definite rules and regulations governing the service were not enforced. Citizens were not required to place ashes and rubbish in receptacles and the city employees shoveled them from the ground. It required from four to seven weeks to cover the routes. Modem dump wagons were not used and the two helpers assigned to each wagon had to assist in unloading the wagons as well as loading. Twelve wagons were in use and to each wagon was assigned a driver and two helpers. Since there had been no collection in 191 3 the new ad- ministration found that ashes and rubbish had accumu- lated in cellars, yards and alleys, and a general clean-up of the city was started and three collections were made over the entire city. In May, 1914, regular routes were established and a four-week schedule was maintained un- til November, when a regular bi-weekly collection sched- ule was started throughout the entire city with a weekly collection in the center of the city. This has been main- tained throughout the years 1915, 1916 and 1917. A spring Clean-up Day was inaugurated by this Bureau in 1915- The city was divided into five districts and two wagons were assigned to each district and given a definite route 146 CITY MANAGER IN DAYTON to be followed each day. Two extra wagons were used as required, to enable the wagons to keep up to the sched- ule. The collection force consisted of a supervisor, who was furnished a horse and buggy with which to travel over the routes, supervising the work and attending to citizens' complaints ; twelve wagons with drivers and two helpers were assigned to each two wagons ; fourteen mod- ern ash wagons of four cubic yards' capacity were pur- chased. The new administration by reason of a better organiza- tion, better scheduling and routing of work, better meth- ods and modern equipment, has been able to give the cit- izens of Dayton a regular bi-weekly ash and rubbish col- lection throughout the city with a weekly collection in the center of town, in spite of the large increase in population which has resulted in an increase in the number of cubic yards to be removed and in the territory covered. During the city manager administration both the total cost and unit cost of the service has decreased. STREET CLEANING Mayor-Council Plan City Manager Plan 1910-1913 1914-1917 No regular schedule. Regular schedule. Occasional cleaning during win- All streets cleaned weekly dur- ter. ing year. No records kept of work done. Complete cost accounting sys- tem operated. The following table shows the total mileage of paved streets and alleys and the total cost for street cleaning for the years given : Year Paved Streets and Alleys Miles Total Cost Cost per Mile 1913 1914 191S 1916 97 lOI los no Not- available $34,500 26,100 27,300 $341 258 248 MUNICIPAL HOUSEKEEPING 147 The absence of records for the period 1910-1913 show- ing work done and cost of the service makes impossible any comparison. Both ash and rubbish collection and street cleaning were, until 1914, paid out of one fund and it is impossible to separate the costs of the two ac- tivities. Combining the costs during the new adminis- tration, for convenience in comparing, the following fig- ures result : ASH AND RUBBISH COLLECTION AND STREET CLEANING Mayor-Council Plan City Manager Plan Year Cost Year Cost 1910 $ 63,400 1914 $ 69,800 1911 69,300 1915 58,300 1912 69,400 1916 SS.600 $202,100 $183,700 Actual saving, $18,400. From conversations with former officials and with cit- izens, the following facts stand out : The street cleaning work was done chiefly by hand and push brooms, and the rotary brooms and flushers owned by the city were little used ; throughout the winter regular work stopped, and during the open months only occa- sional cleaning was done. The city manager administration organized the street cleaning work so as to clean all the paved streets once every ten days, and later changed the schedule to once a week. The work performed consists of cleaning all the paved streets and alleys, flushing certain specified streets and removing snow and ice from the streets. The business section of the city was cleaned daily by 16 patrolmen with brooms and push carts; about 10 miles comprising 274,000 square yards of pavement was cleaned in this manner. The remaining paved streets of the city, about 85 miles 148 CITY MANAGER IN DAYTON in length and comprising 1,359,000 square yards of pave- ment were divided into six standard routes, and were cleaned once a week by hand push brooms or by horse- drawn rotary brooms. Seventeen miles of streets, mostly in the business sec- tion, and certain main thoroughfares were flushed three times a week and the cost of flushing was assessed to the property owners. During 191 4, 1915 and 19 16 snow removal was per- formed by this bureau; there were removed 6,968, 5,778 and 8,883 cubic yards respectively, at a cost of about 20 cents a cubic yard. Notwithstanding the fact that the mileage of paved streets has increased each year the total cost of cleaning has steadily decreased. STREET REPAIRS COMPARATIVE COSTS AND SERVICE Mayor-Council Plan City Manager Plan Paid from Year Tax Levy Bonds Total Year Tax-Levy igio $17,000 $42,000 $ 59,500 1914 $ 42,800 1911 24,200 77,000 101,200 191S 70,800 1912 45,800 4S,8oo 1916 63,500 Total $206,500 $177,100 Actual Saving, $29,400. No records of v\rork done. Complete cost accounting system. Cost paid for out of bond issue. Cost paid for out of current revenues. Paid contractors $1.58 per sq. yd. Cost of asphalt street repairs 65 for asphalt street repairs in cents in 1916, by direct labor. 1913. Equipment not kept in repair. Repair shop established. Mileage of paved streets, 81 in Mileage of paved streets, 93 in 1913. 1916. . There are no records to show how much was done on street repair work during the period 1910-1913. The funds were provided for this work in a large part by bond MUNICIPAL HOUSEKEEPING 149 issues. This is not considered good financing because street repair work is one of the costs of current operation of the city government and should be paid for out of cur- rent revenue. Soon after the flood an emergency bond issue was made and some part of this was devoted to the repair of streets, but aside from this emergency measure the new administration has paid for all street repair work out of current income. Dayton has about 93 miles of paved streets and 180 miles of unpaved streets. The mileage of paved streets and the per cent, of total mileage is given in the following table for the year 1916 : Kind of Pavement Length in Miles Per cent. Brick S6 63 Sheet Asphalt 23 26 Concrete 7 4 Wood Block 2 3 All other S 4 93 100 Repair gangs are organized to care for each kind of pavement. The division owns and operates a fixed as- phalt plant, a portable asphalt plant, several road rollers, several motor trucks, a large number of teams, wagons, and miscellaneous equipment. The extent of street repair work done since 19 14 is given in the following table : Year Brick Sq. Yds. Repair Cost Cost per Sq. Yd. 1914 191S 1916 1917 3,824 $2,900 2,871 4,400 1,761 2,400 3,729 . 4,600 $.75 I.S3 1.37 1.24 Year Asphalt Sq. Yds. Bituminous Macadam Cost per Cost per Cost Sq. Yd. Sq Yds. Cost Sq. Yd. 1914 191S 1916 1917 26,976 36,042 26,447 22,723 $12,800 $ .47 7,562 19,200 .53 15,900 .65 18,200 .80 $1,500 $ .20 150 CITY MANAGER IN DAYTON GRAVEL STREETS Cubic Yards Cubic Yards Year Gravel Placed Dirt Removed 1914 5,620 4,750, cleaned 40 miles. 191S 10,964 on 106 streets, @ 61 8,000, cleaned 105 miles of cents per cu. yd. streets and 40 miles of alleys. 1916 11,664 on 304 streets, @ 60 6,749, at 52 cents per cu. yd. cents per cu. yd. 2,109, at 78 cents. 1917 6,628,® $1,035^. A large part of the cleaning of gravel streets is done by workhouse prisoners. The only cost for this work is the cost of supervision. An average of 26 workhouse prisoners were used at a cost of $1,700 in 191 5 and $2,400 in 1916 for supervision. This division has charge of scraping, cleaning and oil- ing of streets, the cost of which is paid for out of special assessments levied against the property benefited. Oil- ing of streets by the city by using heavy asphalt oil was started in 1914. The best evidence of the satisfactory results obtained is the fact that petitions received in 19 15 covered over three times that done in 1914; namely, 36 miles in 1915 compared with 11 miles in 19 14. In addition to the regular repair work the division has charge of all cuts made in streets. Under the old administration the city made and restored cuts in paved streets only. The cuts in gravel streets were made by plumbers and service corporations. In May, 19 14, the city took over the work of making all sewer connections in all streets from the sewer to the property line; a uni- form rate was charged all plumbing based upon the di- mensions of the cut made. The charges made cover the cost of the work. In 1913 street repair work was done on asphalt streets at $1.58 a square yard. The Andrews Asphalt Paving MUNICIPAL HOUSEKEEPING ISI Company of Hamilton, Ohio, entered into a contract on July 2, 191 3, to repair asphalt streets, including binder, at the above figure. The cost of asphalt repair under the three years of the new administration ranged between 47 and 65 cents a square yard. The following table shows the number of cuts made, the cost of the work and the revenue received by the city for this service : Year No. of Service Cuts Total Cost Revenue 191 4 1,158 $14,800 $15,800 191S 1,995 18,000 24,900 1916 1,769 17,100 23,800 The equipment of the city has been kept in good repair and several new pieces of modem road-making machin- ery have been acquired. By expending $150 in the re- pair of the lo-ton road roller which was regarded as use- less, it was possible to use this roller throughout the year. The expenditure of $300 on the repair of the stationary asphalt plant enabled it to be operated for the first time since 191 1. Two new road rollers and two new 5j4-ton Mack trucks were purchased. Ten two-yard dump wag- ons were also purchased. BRIDGE, WALK AND LEVEE MAINTENANCE The Division of Streets is charged with the mainte- nance of bridges and levees, but owing to the limited funds available for this work only necessary repairs are made. During 1915, 105 repairs were made to bridges, and during 19 16, 46 bridges were repaired. All levees along the Miami and Mad Rivers and Wolf Creek were reenforced during 1915 and were raised from 6 to 18 inches in various places. Following is a table of comparative costs for this work; 152 CITY MANAGER IN DAYTON Mayor-Council Plan City Manager Plan Year Cost Year Cost 1910 $9,900 1914 1911 11,600 191S $3,100 1912 7,200 1916 3,900 1913 1,5,00 191? 15,700 DOG POUND COMPARATIVE SERVICE AND COSTS Mayor-Council Plan City Manager Plan Year Dogs Collected Cost Year Dogs Collected Cost igio Not known $ 3,000 1914 i,77S $1,200 191 1 Not known 3,500 1915 1,941 800 igi2 Not known 6,100 1916 1,757 800 Total 3 years $12,600 $2,800 Actual saving, $9,800. Throughout the period 1910-1913 the city employed a pound master to collect live dogs, and dead animals were removed by contract. The new administration employed a dog catcher who collects both live and dead animals. This plan has re- sulted in a marked reduction in the total cost of this serv- ice. DIVISION OF WATER Mayor-Council Plan , City Manager Plan 1910-1913 ' 1914-1916 Water supply deficient in Day- Abundance of water in all parts ton View, Ohmer Park and of the city. Riverdale. Water pressure below 30 pounds A pressure of 60 pounds ismain- in many sections of the city. tained throughout the city. Householders were urged to Householders may use water conserve the water supply. freely for all purposes at any hour of the day. 291 gallons pumped per pound In 1916, 437 gallons pumped per of coal in 1910. pound of coal. Cost of operation in 1912, $121,- Cost of operation in 1916, $96,- 000. 000. Pumped 8 million gallons daily Pumped 12 million gallons daily in 1910. in 1916. Mains of larger size than 12 Mains of larger size than 12 inches, 30,000 feet. inches, 77,000 feet. Actual receipts in 1912, $201,000. Actual receipts in 1916, $264,000, MUNICIPAL HOUSEKEEPING 153 COMPARATIVE STATEMENT OF SERVICE AND COSTS Mayor-Council Plan o Oi y 01 "Sea -tt ■*!" "a ^.y 5 o S ^^ .S* rt s boo _ ■!-• " ■« 2 fi^S^a o oj p. j3 rtHxi S m o >. Hw U§OQ Pi OW OOoQ HU Ph 1911 26,039 8.74 $18^,900 $109,600 $ 59,400 $i6g,ooo $20,900 1912 27,874 9.52 201,000 121,100 61,000 182,100 18,900 1913 29,778 10.70 211,900 123,500 75,700 199,200 12,700 Total 3 years. ..$602,800 $354,200 $196,100 $550,300 $52,500 City Manager Plan 1914 31,278 11.23 $246,000 $120,200 $78,500 $198,700 $47,300 1915 32,&3 9.89 228,800 98,100 82,600 180,700 48,100 1916 34,196 12.12 264,200 95,600 141,000 236,600 27,600 Total 3 years. ..$739,000 $313,900 $302,100 $616,000 $123,000 STATEMENT OF OPERATION FOR I916 Expenses : Revenues : Operation $ 95',6oo Sales of water and Depreciation 56,000 meter rents $254,000 Taxes 28,000 Amount city should pay Interest 118,000 for water used for Overhead 4,700 public purposes and fire protection i43,5oo Total expenses $302,300 Net profit $ 95,200 $397,500 In 1917, there were 35,835 services; receipts were $294,700 and expenses $247,700. Thirty-two per cent, of the consumers pay the min- imum annual charge of $4.40. Only three of the cities in the U. S. having a population of 100,000 to 300,000 in 19 1 5, having a municipally owned plant, charged lower rates per 1,000 cubic feet than Daj^on and only six lower minimum rates. The rates were raised by the city com- mission in 19 18, and since that date these figures would 154 CITY MANAGER IN DAYTON be revised as against the year 19 17, on which they were based. Notable Achievements since January, 1^14 WATER SUPPLY Greatly increased the supply of water available pre- vious to January, 19 14, by the following improvements : Ten new wells completed at Tate's Hill. All wells connected up with water supply system. Emergency supply of 12,000,000 gallons daily secured through purchase of Bimm lands. Cleaned wells and eliminated leaks. PUMPING PLANT Capacity increased 68 per cent. Gallons pumped per pounds of coal increased from 291 gallons in 19 10 to 437 gallons in 1916. One billion more gallons pumped in 19 16 over 19 10, using 722,000 pounds less of coal. 1916 1910 Gallons pumped 4,727,928,000 3,391,623,000 Coal used, pounds 10,924,000 11,646,030 Coal used, tons 3,426 5,823 Coal cost per ton $2.24 $2.50 DISTRIBUTION SYSTEM Comprehensive plan prepared for all future mains laid adequate for a city of 300,000. Increased size of mains larger than 12 inches from 30,000 feet to 77,000 feet. Increased mileage of mains 30 miles in three years. Organization The new charter made possible a more compact and centralized organizatioii in all departrp^nts and nowhere MUNICIPAL HOUSEKEEPING 155' were the good features of this new plan more evident than in the division of water. Formerly the oflSce manager, chief engineer, and the construction superintendent were appointed by and re^ ported directly to the director of service. Under this plan the three departments of the water works were man- aged as more or less separate and distinct units. The only person directly responsible for the coordinatioti of the activities of these three units and for the operation of the water works as a whole was the director of service, who had so many additional demands upon his time con- nected with the supervision over the Departments of Streets, Engineering, Lands and Buildings, Public Mar- kets, and other minor activities that he could not devote sufficient time to the supervision of a large public utility like the water works. One of the first acts of the new administration was to employ a trained engineer as superintendent of the water works. This superintendent was placed in direct charge of all the activities of the plant and reports directly to the director of service. To this position was appointed a technical graduate in engineering with several years' practical experience. The work of the water works was organized under thj-ee bureaus, — .Revenue Collefction, Pumping and Supply, and Construction and Maintenance. This new organization has resulted in economies and im- provements in each of the bureaus, which have paid many times over the added cost of a superintendent. Bureau of Revenue Collection The Bureau of Revenue Collection has charge of the bookkeeping work, makes out all bills, makes collections, reads meters, keeps all cost records, and other financial 156 CITY MANAGER IN DAYTON records of the department. Beginning in December, 1 9 14, a new system of collecting water rents was put into effect. It was formerly the custom to collect watei* rents quarterly from all consumers in the city at the same time, which necessitated having 10 or 12 meter readers tem- porarily employed for between 5 or 6 weeks of each quar- ter. Under the new plan the city was divided into three col- lection districts and each district paid its water rents in different months. The 10 or 12 meter readers who were paid $3.00 a day were displaced by 3 men on for 313 days at the same rate, with the result that 80 per cent, of the complaints were eliminated. The meter readings are more accurate, the work in the water department is more equally distributed over the whole year and the receipts of the division are more nearly uniform each month. The same number of men now handle 25 per cent, more work. Bureau of Pumping and Supply The Bureau of Pumping and Supply is in charge of a supervisor of pumping, under whose supervision the effi- ciency of the plant has been increased 50 per cent, over 1910. The number of gallons pumped per pound of coal in- creased from 291 in 19 10 to 437 in 19 16 — an increase of 50 per cent. A billion more gallons of water were pumped in 1916 than in 1910 using 700,000 pounds less of coal. 1916 1910 Gallons pumped 4,727,928,000 3,391,623,000 Coal used, pounds 10,924,000 11,646,000 The daily pumpage required from the pumping plant is MUNICIPAL HOUSEKEEPING 157 50 per cent, greater than it was six years earlier. In 1910 an average of 8,000,000 gallons per day was re- quired, whereas to-day the daily average required is 12,000,000 gallons. The payroll at the pumping station has been reduced from $24,000 in 1913 to $18,000 in 1916. A part of this saving is due to the discontinuance of a booster station at Linden Avenue, and the removal of the pumps to the Keowee Street pumping station. This change made it possible to discontinue the services of the two pump ten- ders formerly stationed there. Other savings have been effected through a reduction in the amount of miscellan- eous labor employed around the plant. The number of days' labor was reduced from 1,930 days in 19 13 to 500 days in 19 16, thus effecting a saving of $2,800. Bureau of Construction and Maintenance The Bureau of Construction and Maintenance has charge of the laying of new mains, making water connec- tions, cleaning and repairing and setting meters and all work connected with the maintenance of the distribution system. The payroll cost of this Bureau in 1916 had not in- creased over what it was in 191 3, notwithstanding the fact that the Bureau was charged with the maintenance of 30 more miles of mains than were cared for in 1913. Dur- ing each of the years 191 4, 1915 and 19 16 from one-third to one-half of all the meters in use were repaired. The figures are as follows : Year Meters in Use Meters Repaired 1914 25,308 14,286 igiS 26,639 ii>037 1916 27,992 8,501 1917 29,225 (82% of services) 7,938 iS8 CITY MANAGER IN DAYTON A valve gang was organized to make a systematic in- spection and report on the 5,000 water valves throughout the city. These had been neglected for years and many had become inoperative. The following table shows the scope of work per- formed by this Bureau during the periods under review : Year 1910 1911 1912 1913 Total Length of Pipe in Use Additions Feet 957,738 995,222 1,039,234 1,066,689 Miles 181 188 196 201 Feet 37',484 44,012 27,455 Totals 108,951 1914 1,077,518 203 10,829 1915 1,181,863 223 104,355 1916 1,221,777 230 39,914 Totals 155,098 Total Meters in Use Year Number Increase 1910 19,041 191 1 20,900 1,859 1912 22,400 i,Soo 1913 23,784 1,384 Totals 4,743 Miles 7 8 5 2 20 7 29 Total Hydrants in Use Number Increase 1,889 1,944 1,991 2,030 2,030 2,081 2,112 55 47 39 141 o 51 31 82 Total Services Number Increase 23,717 26,039 2,322 27,874 1,83s 29,778 1,904 1914 191S 1916 2S',3o8 26,639 27,996 1,524 1,331 1,357 31,278 32,623 34,196 Totals 4,212 6,061 1,580 1,345 1,573 4,418 It will be observed that 9 more miles of pipe were laid during the period 1914-1916 than were laid during the period 1911-1913; whereas the number of hydrants, meters and services installed during the latter period were 59; 531 ; and 1,643 l^ss, respectively. MUNICIPAL HOUSEKEEPING 159 Far-Sighted Planning Besides its effort toward economy and efficiency through better organization and attention to administra- tive details, the new government immediately took up the question of increasing the water pressure and supply throughout the city and of putting the water works on a sound financial basis. It directed its efforts along three lines : first, increasing the size of the distributing mains ; second, increasing the pumping capacity; and third, in- creasing the water supply. Distributing Mains The firm of Pollard and Ellms was employed to make a complete report on the water works situation together with an historical valuation of the water works property. The report of this firm recommended a complete rehabili- tation of the distribution system and outlined a plan of development to provide for the condition which was esti- mated would prevail in 1930. This involved replacing many of the old mains with new and larger mains and the city is now carrying out this plan and program. Ow- ing to the fact that the city had a comprehensive plan and knew the quantity of pipe which would be required, it was enabled to place an order for 6,500 tons of iron pipe in December, 1914, when the price of iron was at its lowest point. This was purchased for $21.40 a ton delivered. Three months later the price rose to $22, a year later to $28, and it has gradually increased in price until in April, 1917, the price was $55 a ton. It was necessary to build two lines across the river. The first line which the city laid across the river by day labor cost $3,000 as compared with the contractor's bid of $8,500; while the second line cost $8,200 as compared l6o CITY MANAGER IN DAYTON to the $10,000 bid. The work was carried on during the winter of 19 14 and 1915 in order to give employment to a large number of unemployed men. Over 2,000 men were given employment. Men were changed and paid off daily in order to distribute the benefits as widely as possible. The department laid during the years 191 5 and 1 9 16 as many feet of mains of larger sizes than 12 inches as were laid throughout the entire history of the water works. The lineal feet of sizes larger than 12 inches increased from 30,000 to 77,000 during these two years. The department has practically stopped laying pipe of four inches or less, only 2,400 feet have been laid in the past two years. A new 900,000-gallon reservoir was constructed at Fairview Avenue, which resulted in increased supply to Dayton View. Pumping Capacity Increased No addition had been made to the pumping capacity since 1901. In 1915 a 4,000,000-gallon high pressure pump was installed and in 1916 a 20,000,000 low pres- sure turbine pump was installed. The capacity of the plant was thus increased from 35,000,000 gallons to 59,- 000,000 gallons or an increase of 68 per cent. Water Supply Increased Improvements were already under way to increase the water supply when the new government came into power. Plans had been formulated for increasing the supply by driving additional wells at Tate's Hill. The development of this supply was started in 19 12, land was purchased, a 36-inch line over two miles in length was laid and 16 wells were finished before January i, 1914. The new MUNICIPAL HOUSEKEEPING l6l government rapidly pushed this work to completion by drilling lo additional wells and connecting up all the wells with the water system. The completion of Tate's Hill supply added 8 million gallons per day to the water supply of the city. The supply can be increased by add- ing new wells and by making other minor changes at small costs. Two-thirds of the wells at the Keowee Street pumping station were cleaned out, and their flow increased in some instances from 50 gallons a minute to 700. Numerous cracks and leaks in the existing mains were found and eliminated. In 19 1 5 Bimm Lands were purchased by the city at a price of $67,000, which was less than one-fourth of the former price asked when the city was contemplating pur- chasing these lands prior to 1914. The purchase of this property will afford an emergency water supply of 12 million gallons daily. The net result of these improve- ments has been that the water supply is vastly greater than it was in 19 13. These various changes have changed the situation in Dayton from one of no pressure on wash days and during sprinkling hours in Dayton View and the West Side to one of adequate pressure and supply at all times in all parts of the city. Activities under Way With a direct pumping system such as exists in Dayton, it is necessary that the supply of water and the capacity of the pumping plant and distribution system shall be equal or in excess of the heaviest domestic demand for water, which time generally falls between the hours of 5 to 7 in the evening. In addition the capacity of the plant must be sufficient to handle a serious fire on top of this 1 62 CITY MANAGER IN DAYTON heavy domestic demand and to do this with one or two pumps out of commission. The average daily consumption of water during 1916 was 13,000,000 gallons. The daily range was from 11,- 000,000 gallons in the winter to 15,650,000 gallons dur- ing the summer months. The maximum daily consump- tion was one summer day when it reached 19,380,000 gallons. The maximum hourly demand for water at any one time during the year was at the rate of 38,000,000 gallons per day, and the pumping plant and water supply and distribution system has to be sufficient to furnish that amount of water and to furnish sufficient water to handle a serious fire. The water works has prepared plans for the construc- tion of a large storage reservoir which will equalize the fire pressure, permit more efficient distribution, and re- quire less pumping capacity. The firm of Metcalf and Eddy was employed to pass upon the plans of the water department. The report of Metcalf and Eddy contains the following significant statement: " The present water consumption has already approached dangerously close to the limit of capacity of the existing works. The great fluctuation in rate of pumping from 6,000,000 to 32,000,000 gallons daily is undesirable and can be avoided with- out burdensome expense by providing reservoirs and necessary reenforcement of the distribution system. Desirable margins of safety no longer exist." The city constructed in 1918 a large reservoir, of 10,- 000,000 gallons capacity, which will equalize the present fire pressure and enable the pumps to operate at higher capacity and efficiency. This improvement cost $142,- 000, and is placed on a hill in the southeast section of the city. MUNICIPAL HOUSEKEEPING 163 WATERWORKS COSTS The revenue from a municipal waterworks plant should be sufficient to pay all operating expenses and the interest and sinking fund charges on all the outstanding bonds in order for it to be regarded as a self-supporting utility. It should not pay for additions to the plant out of cur- rent income. If, therefore, the total receipts of the waterworks for a period of years are compared with the total operation costs plus the interest and sinking fund charges, it may be determined in a general way whether the plant has been self-supporting. These figures are given in an earlier table. The fig- ures show that calculating on the above basis the water- works plant has been operating at a, profit during the past six years. The total net profit during the past three years is $71,000 greater than the total net profit earned during the three years 191 1, 1912 and 1913. The figures given in the table show in a general way the success of the plant, but it requires considerable deeper study to arrive at an approximately true estimate of the net earnings of the plant because neither the actual receipts nor the actual expenditures represent true earn- ing or true expenses of the plant. Revenues For example, the actual receipts of the waterworks during 1916 were $264,000. This sum includes approxi- mately $10,000, which should not be regarded as revenue since it represents the amount paid by property owners for new services installed by the waterworks, so that the revenue of the plant was approximately $254,000. In addition to furnishing water to private consumers a, mu- 164 CITY MANAGER IN DAYTON nicipal waterworks also furnishes water for public use on streets and for sewers, fountains, public buildings, and for fire protection to property, but the plant is not ordi- narily given credit for the amount of water supplied for these purposes. A rough estimate of this service is sometimes made and allowed for by charging a fixed sum for each hydrant, but this is very unsatisfactory because the cost of fire protection bears a very slight relation to the number of hydrants. A conservative estimate of the value of the water used for public purposes and for fire protection has been computed to be $143,000, so that this amount should be added to the actual receipts in order to arrive at the revenue of the plant for the year 1916. Expenses The actual expenditures of a plant for a year can not be taken as the true expenses, for the reason that addi- tions to the investment of the plant may have been made out of current income and no allowance may have been included for paying the interest and sinking fund charges on the outstanding waterworks bonds. The expenses of a waterworks plant should include the following items when determining the net earnings of the plant : a. All cost of operation, including salaries, office ex- penses, cost of pump, maintenance of mains, etc. b. Depreciation. c. Taxes. d. Interest on investment. e. Overhead. If these charges are all included a very close estimate of the actual results of operation for the year 19 16 will result. MUNICIPAL HOUSEKEEPING i6s Expenses Operation : Office of Supt Revenue col ection . . Pumping and supply. Construction and main tenance .$ S.IOO • 14.300 . 42,100 . 44.200 Less capital outlay.. $105,700 .$ 10,100 Revenue Total receipts $264,140 Less capital outlay re- funds 10,140 $254,000 Amount city should pay for water used for public purpose and fire protection $143,500 $ 95.600 Depreciation 56,000 Taxes 28,000 Interest 118,000 Overhead 4,700 Total $302,300 $397,500 Net profit $ 95,200 The net profit of the plant for the year igi6 was some- where in the neighborhood of $90,000, and this was se- cured without an increase in charges for water rates or meter rents. The following table shows a comparison between results obtained at the waterworks during 1913, the last year of the old administration, and during 1916: Expenses 1913 Operation $123,500 Overhead 6,100 Depreciation 50,900 Taxes 28,000 Interest 102,600 Total expenses $311,100 Revenue $212,000 Amount city should pay 143.500 Total revenues $35S.Soo Profit $44,400 igi6 $ 95,600 4.700 56,000 28,000 118,000 $302,300 $254,000 143.S00 $397.5.00 $95,200 1 66 CITY MANAGER IN DAYTON DIVISION OF LANDS AND BUILDINGS The Superintendent of Lands and Buildings has charge of the operation and maintenance of the City Hall building, Central Police Station, the Public Markets and Municipal Garage. City Hall Building By making alterations in this building in 19 14, quar- ters were provided for the three judges of Municipal Court, the City Manager, Purchasing Agent, Police- women, and City Sealer. This saved a proposed expen- diture of over $2,000 a year for rent. Some of the of- fices were remodeled and repainted, re-wired and altera- tions and repairs made from time to time to facilitate the operations of the various departments. Part of the exterior of the building was cleaned by sand blasting and painting. By heating this building with purchased steam, two old boilers and the services of two engineers were dis- pensed with, effecting a saving of $700 per year. Two public comfort stations have been constructed at the Main Street entrance of the building, one for women and one for men, after years of agitation for these neces- sities. Public Markets Following an old established custom in Dayton, the sidewalks and curb spaces on several downtown blocks are rented to farmers and others three days each week for market purposes. A children's market has been es- tablished on Fourth Street, where they sell the products of their own gardens. The city has two public markets, the Central Market MUNICIPAL HOUSEKEEPING 1 67 which occupies the first floor of the City Hall building, and the Wayne Avenue Market. Many improvements were made in these public markets in the way of installa- tion of cases for the protection of foods, the hanging of door and window screens and the laying of new floors. The receipts from the public markets have increased from $25,000 a year in 191 1 and 1912 to $27,000 in 1915 and 1916. Municipal Garage Among the first acts of the new city administration was the establishment of a central motor garage for the repair and adjustment of all motor equipment. A super- visor and several mechanics were employed to keep the cars of the city in repair. This has resulted in a con- siderable saving to the city. A new garage with a capac- ity of 34 cars was built. Much of the material for this building was secured from the old bridges which were torn down preparatory to erecting new bridges. Rooms for the central city storehouse and the office of the Super- intendent of Lands and Buildings were also provided. The city had in 1916, 89 autos of eight different makes. Cost records are kept of the cost of repairing each car and this information is summarized and sub- mitted monthly to the City Manager and Service Direc- tor. The first method adopted for defraying the cost of repairing automobiles was the payment of all repair charges out of one fund called the Motor Garage Fund. This method proved unsatisfactory because it placed no direct responsibility upon the various city departments to keep down their repair costs. The plan finally adopted in the 1916 budget was to make provision in the budget of each city department for the repair costs pf its own nia- I05 CITY MANAGER IN DAYTON chines and to create a revolving fund sufficient to operate the garage about two months. The garage billed the de- partments for all repairs made and the departments paid their bills and reimbursed the revolving fund. This method places responsibility for repairing directly with the departments owning and using the cars and tends to hold down repair costs. An automobile evening school has been started where training is given in actual handling of motor vehicles and talks are given to city employees using passenger autos, trucks and motorcycles. CHAPTER VIII GETTING AND SPENDING The charter provides for a Director of Finance who shall be appointed by the City Manager and be in charge of the Department of Finance. He is also Secretary of the Trustees of the Sinking Fund. Under him there shall be a City Accountant, City Treasurer and a Pur- chasing Agent. In practice, the Director of Finance has acted also as City Accountant. It is questionable whether this consolidation of offices has been a wise move because the department has been undermanned from the very beginning of the present organization. The work of the Department is divided into three divi- sions, — Accounting, Receipts and Disbursements, and Purchasing. Purchasing is reviewed in a separate chap- ter. DIVISION OF ACCOUNTING This Division has charge of the financial records of the city, the payment and audit of all claims, the preparation and certification of all special assessments for public im- provements and the issuance of licenses. One of the first tasks of the Division was the revision of the accounting system from a cash basis to an accrual and appropriation control basis. Until 19 14, the ac- counting system was similar to that commonly found in cities, one which affords a check over cash receipts and disbursements only. A control over appropriations and accounts receivable and payable had never been intro- duced- Property records did not exist. i6g 170 CITY MANAGER IN DAYTON The system as first contemplated has never been fully installed, due primarily to the fact that the head of the Department, who was a public accountant trained in pri- vate corporation work only, never fully appreciated its necessity and never really entered into the spirit and pos- sibihties of his public position; and also to the fact that the City Manager, being of the engineering profession, did not know the intimate details of a municipal account- ing procedure which would afford him promptly and ac- curately the information he desired. Outside assistance was offered the Department, — but it is impracticable to attempt to force a procedure upon any department of the city government. A model procedure will be a success only so far as the responsible public official is willing to accept and operate it. The system is designed to reflect, not alone current cash receipts and disbursements, but income and expense data as well, and further to afford control over current funds, equipment, stores and permanent property. It is not gen- erally recognized in municipal accounting procedure that extensive losses to the taxpayer result through misap- plied supplies and materials, and even some classes of equipment, and this shortcoming is sought to be remedied in Dayton. The desired procedure has been adopted to the extent that all official accounting control for the city is had in the Department of Finance. Records of revenues con- tinue to be maintained in the several collecting depart- ments, as water, engineering, etc. Reports are made cur- rently to the central office by them. In recording disbursements, the system adopted pro- vides for all accounting to be done by the central office, inasmuch as the preparation of vouchers is centered in GETTING AND SPENDING I7I the division of purchasing, and all disbursements are made through the treasury. The procedure governing appropriation accounting is the most substantial improvement made over that for- merly obtaining. Even in this, however, the system is weak in that while a central control is absolute the infor- mation about the several appropriation accounts is not always immediately available to the departmental offices as needed. In practice, therefore, the several offices find it convenient to maintain memorandum accounts of ap- propriations, balances, orders and expenditures. Overdrafts of appropriations are prevented by requir- ing orders for supplies or services to be certified as to suf- ficiency of funds by the Accounting Division before they may be placed. At the end of each month statements are taken from the books showing expenditures, encum- brances against appropriations and available balances, and copies of these monthly are submitted to the City Man- ager and each of the departmental offices. The entire program for maintaining such records as will afford control over equipment and permanent prop- erty, as well as cost data by functions of the government, is before the department and is gradually being carried into effect. It is unfortunate for the City Manager form in Dayton that credit cannot be given it for the operation of a complete and model municipal accounting system so far in its history. The Budget Since the new form of government went into effect, the city has been operated under a segregated budget. This, together with the accounting control afforded by the ap- propriation accounts, has made it possible for the Com- 172 CITY MANAGER IN DAYTON mission and City Manager to control expenditures and live within the current income of the city. That this end, so loudly proclaimed as a desirable and necessary feature in 1914, has not been achieved in 1917 and 1918, is due solely to policy and not to the failure of the ac- counting system or budget. The charter provides for a public hearing on the budget each year. There was considerable public interest man- ifested at the first public budget hearing, but year by year the interest of the public has waned until now only a few citizens attend the meeting and the majority in attendance are city officials and employees. As a means of exercis- ing administrative control over expenditures, the budget has proven to be a very effective instrument, but as a means of educating and interesting the public in civic matters, the public hearing on the budget leaves much to be desired. Continuous Audit In addition to the audit of the city's books by the State Bureau of Inspection of Public Offices, the Commission employs directly a firm of certified public accountants to make a continuous audit of the city's books. This was a distinct feature of the new charter, although it is highly probable that a provision that the Commission should per- manently employ an auditor, answerable directly to them, to serve as a check upon the administrative branch in all financial matters, would be fully as expedient and eco- nomical. The audit serves as a valuable check upon the correctness of the accounts and methods, and assures the Commission through current reports that the financial procedure is sound and correct. GETTING AND SPENDING 173 DIVISION OF RECEIPTS AND DISBURSEMENTS This Division has charge of the receipt and disburse- ment of all public funds belonging to the city. It han- dles about 750 payrolls involving over $700,000, and pays off 24,000 employees with an average of $1,000 each semi-monthly payroll. A schedule has been worked out whereby the payrolls of the various departments are paid on different days of the month, thereby distributing the work more evenly through the month. All city em- ployees are paid in cash with the exception of the City Manager, the Commissioners and the heads of depart- ments, who are paid by check. By having the paymaster travel around to various places where laborers are work- ing an annual saving of about $1,500 is effected, as time is no longer wasted in coming to the Treasurer's office for pay. Bonded Debt The bonded debt of the city has steadily increased un- til on January i, 191 7, it was $7,280,000. Nearly $1,- 000,000' of this increase was made as a result of a vote by the people. Starting January i, 19 14, the city adopted the policy of issuing sinking fund bonds and setting up a reserve for retiring the bonds at maturity. A study of the sinking fund requirements as of September, 1917, showed that there was an excess of several hundred thou- sand dollars in the fund over actual requirements. Taxation and Finance The adoption of a new home rule charter did not free the City of Dayton from the restrictions of the State laws regulating the power of cities to levy taxes. In Ohio there is a well-known Smith " One Per Cent. 174 CITY MANAGER IN DAYTON Law," — which is in reality a one and one-half per cent. law, — which limits all taxes levied for State, county, school, township and city purposes to 15 mills, or $15 on each $1,000 of assessed property valuation. This law was passed in 191 o, and its purpose was to bring out all personal property, through a guaranteed maximum tax rate, and to place all real property on the tax lists at 100 per cent, of its true value. The history of taxation in Ohio since the adoption of the law shows that it has failed in its primary purpose, but it has served to cur- tail the activities of the larger cities of the State. Un- der its operation the cities have been compelled to forego necessary expenditures through the encroachment of the State, county and school districts, as the latter have been in position to secure action on their requests first, and the remainder of the tax rate has gone to the cities. The Stnith One Per Cent. Law The main provision of the law, in addition to the 15- mill maximum above cited, is that there shall be a maxi- mum tax levy for the five taxing districts of 10 mills, or I per cent, (hence the name) on the dollar for current operation and for sinking fund and interest charges on bonds issued since June 2, 191 1, without the vote of the people. The same law provides also that, in addition to the 10 mills for operation, a levy of not to exceed 5 mills may be made for interest and sinking fund requirements of bond issues prior to June 2, 191 1 (the date the law became effective), and debt charges and sinking fund require- ments on bonds authorized by vote of the people since that date. The law further provides that the debt charges on certain bond issues, as those for flood relief, GETTING AND SPENDING 175 epidemics, and State highway bonds, may be levied, in ad- dition to the two levies already mentioned. Should the demands to be made of the 5-mill levy for certain bond issues not be equal to the limit authorized, any remaining balance up to that limit, 5 mills, may be- come available as a tax levy if authorized by a sufficient majority of the voters. By taking advantage of this in- terpretation, then, it is apparent that the total levy by any city might exceed the 1 5-mill maximum by the amount levied for emergency purposes. To illustrate, a levy might be comprised as follows : lo-mill levy, for operation and sinking funds since June 2, 191 1, without vote of the people 10 mills S-mill levy, for sinking funds prior to 191 1, and since 191 1 with vote of the people; balance unused for these needs, available for operation if voted by the people S mills 3-mills, as required for emergency, as highways, epi- demic and flood relief 3 mills Total levy 18 mills The tax ra.te for Dayton for 19 18 is 18 mills, — due to the levy of 2.845 mills levied for the flood relief work being done by the Miami Conservancy District, a political subdivision of nine counties, created by special act of the State legislature. This example shows that the Smith Law is complex, as well as that it in fact does not in some cases restrict the tax rate to the 1 5-mill maximum orig- inally contemplated. The story is only half told, however. There is an in- ternal limitation of the law establishing a maximum limit for each taxing district for operation as follows : for the State and county 3 mills; for the township 2 mills; for the school district 5 mills ; and for the city 5 mills, — or a 176 CITY MANAGER IN DAYTON total of 15 mills. The problem lies in the necessity of making an adjustment among these districts so that the total of the 15 mills theoretically allowed shall never ex- ceed the 10 mills actually allowed by law for operation of the units. A County Budget Commission, consisting of the county auditor, county treasurer and county prose- cutor, are empowered to adjust the tax rates so as to bring them within the provisions of the law. Neither the city nor schools have a representative on this commis- sion. It is apparent that if one taxing district can present its claim to this commission with sufficient force to obtain its full quota, for example, the city 5 mills, then the re- maining taxing districts must have their estimated needs so revised as to come within the remaining 5 mills to make up the total of 10 mills. The practical bearings of this law upon the finances of Dayton have been the following: First, the City of Dayton had little or no control over the tax rate. No matter how much it might request or how urgent its needs might be, it could receive only what was left after the State, county and schools were provided for. While the total tax rate for all taxing districts in- creased during recent years in Montgomery County, the tax rate for city purposes remained practically constant. The distribution of the tax rate is given in the following table : Year 1 Total Distribution Levied Tax Rate State County Schools City of Dayton 1911 13.6 .451 2.129 4-22 6.800 1912 12.8 .451 1.949 3-675 6.725 1913 14.4 .961 2.024 4.16 7.25s 1914 13.6 .450 2.039 401 7.101 1915 13-4 .450 2.588 4.13 6.232 1916 15.6 .450 3-735 4-II5 7-300 1917 15.4 .450 3.976 4.074 6.900 ^ Taxes are expended the year subsequent to the year levied. GETTING AND SPENDING 177 The City of Dayton received from taxes for current operation a total of $200,000, or an average of $50,000 a year more during the last 4-year period than during the preceding 4-year period. The actual receipts from gen- eral taxes for current operation are summarized below : RECEIPTS FROM' GENERAL TAXES — CITY OF DAYTON 1910 $514,600 1914 $571,800 191 1 542,700 1915 670,300 1912 480,200 1916 505,500 1913 557.000 1917 545,500 Total, $2,094,500 Total, $2,293,100 Offsetting this increase from general taxes must be placed the decreased return from liquor taxes which were $196,000 less during the period 1914— 1917 than during the period 1910— 1913. The total receipts from all sources during the period 1910-1913 were $4,051,000 and during the period 1914— 17 they were $4,687,000, which makes an increase of $636,000. This is made up of approximately the fol- lowing items : Increased receipts from waterworks, $263,000; from municipal court, $29,000; from recrea- tion, $17,000. Receipts from new sources of revenue from the garbage plant amount to $79,000; from street restoration, $179,000; from sweeping tracks, $59,000; from lighting crossings, $21,000. Formerly the work of restoring street pavements after cuts were made, was done by plumbers, but this work was taken over by the city and a charge was made. The cost of doing this work must therefore be subtracted from the receipts to arrive at the true situation. The street car companies were formerly required to sweep the tracks. This was later done by the city itself and the companies were charged the actual cost of the work. Special lights were placed at dangerous 178 CITY MANAGER IN DAYTON crossings and railway companies were made to reimburse the city for this added expense. The increased revenues therefore during the past four years have not come from taxes, but are the direct result of more careful attention to the operation of all municipal activities and to the proceeds from a few new undertakings. Second, the operation of the tax law forced the admin- istration to submit practically every bond issue of any size to a vote of the people. Unless this was done, the debt charges on all bonds issued without a vote of the people would have to be provided for out of the 10 mills and thereby decrease the amount available for operation. In 191 5 the new administration prepared a bond budget ag- gregating $1,053,000 and submitted it to a vote of the people. The details were as follows : WHY DAHON NEEDS $1,000,000 BoDd Issue SIDEWALKS »5.l)0O DRINKING FOUNTAINS ...*b,ODO SEE INSIDE GETTING AND SPENDING 179 Paving, repairing, grading, sewers, etc .$ 457,000 Two engine houses 130,000 Storm sewers 252,000 Water works (drinking fountains) 5,ooo Market House 17,000 Parks and playgrounds 9,ooo Municipal correction farm 50,000 Purchasing and condemning land for street openings. 18,000 Keowee Street bridge 115,000 Total $1,053,000 All of the above issues were approved by the necessary two-thirds majority of the people, and in this way the city guarded against the encroachment of debt charges upon the amount of money available for current operation. " Government hy Deficit " It has been frequently stated that one of the impelling reasons for a change in government was the unsatisfac- tory method of handling the city's finances. On Decem- ber 31, 1907, the outgoing administration left unpaid bills and payrolls to the amount of $i35,ocK). At the November, 1908, election the people voted in favor of an issue of $135,000 public service deficiency bonds tO' pay the above bills and payrolls. These were dated February I, 1909, and were payable at the rate of $9,000 a year. When these bonds were issued, the departments were operating upon a basis much in excess of their income and they continued so to operate. The method of juggling the funds of the city and of increasing the floating indebtedness is well illustrated by the following example. On February i, 191 2, the float- ing indebtedness of the Department of Safety was $135,- 000. Up to June, 1912, additional certificates of indebt- edness were issued to the amount of $105,000 in antici- l8o CITY MANAGER IN DAYTON pation of the collection of taxes. The amount of taxes collected for the half year amounted to $110,000 so that the department had practically borrowed up to its limit. All but $40,000 had been spent by March, 1912, and in order to secure funds to operate the department until July, 1912, it was necessary to borrow $65,000 from the serv- ice fund. The service fund was then authorized to bor- row enough money to replenish it pending a bond issue. On September 3, 1912, the voters were again asked to vote upon the question " to issue bonds in the sum of $170,000 for the purpose of supplying a deficiency in the revenues of the Departments of Public Service and Pub- lic Safety." This proposition was defeated by a very large majority. The net result was that during the 4 years, 1910-1913, the floating debt was increased $59,000 and on January i, 19 14, when the new administration came into power, they inherited this floating debt of $125,000. During the 4-year period i9ioto 1913 inter- est paid on temporary loans amounted to $20,600, or an average of $5,150 a year. The new administration has in four years reduced the floating debt from $125,000 to $65,000. Furthermore, the policy has been adopted of paying off the total amount of the floating debt in March, just after the semi-annual taxes are received, and then borrow again in December just enough to meet the current expenses. In this way, the loan is carried only a few months with a consequent saving in interest. The total interest paid during the four years 1914-1917 amounts to $3,600, or an average of $900 a year. The annual interest saving is over $4,200 a year, which alone is greater than the salary of the Di- rector of Finance. The details of the transactions are shown in the following table : GETTING AND SPENDING l8l Year Amount Borrowed Amount Paid Temporary loan unpaid at close Increase Decrease of year Interest Paid 1909 1910 1911 1912 1913 $257,000 271,000 346,000 295,000 otal 4 years Average $ 75,000 7S,ooo 65,000 65,000 $238,850 270,000 307,000 345,000 $18,150 1,000 39,000 $50,000 $116,850 135,000 136,000 175,000 125,000 $ 4,100 5,000 5,300 6,200 T $20,600 per year . $125,000 75,000 75,000 65,000 5,150 1914 191S 1916 1917 $50,000 10,000 $ 75,000 75,000 65,000 65,000 $ 1,800 700 500 600 Total 4 years $ 3,6oo Average per year 900 Bond Issues for Current Operation In addition to the deficiencies, bonds were issued for current operation throughout the period 1910 to 1913. Two issues of general Hghting bonds were made in 191 1, one for $30,000 dated December i to pay bills for light consumed in the year 191 1. The date of payment of these bonds runs from the year 1920 to the year 1940. Each year, general street repair bonds were issued to pro- vide money to repair the brick and asphalt streets as well as the gravel and macadam streets. Many of these bonds do not mature until the year 1935. The details of these bond issues are given as follows : Year Purpose Amount 1910 General street repair $40,000 1911 General street repair 75,ooo 1911 General lighting bonds S5,ooo 1912 General street repair S3,ooo 1913 General street repair 40,900 The actual expenditures from these bond issues are as follows: 1 82 CITY MANAGER I2Sr DAYTON Year 1910 1911 1912 1913 Total $ 42,000 100,700 76,900 53,500 Street Lighting $23,800 31,100 Street Repair $ 42,000 77,000 4S,8oo 53,500 Total $273,100 $54,900 $218,300 During this period, the total of $273, icx) was expended from bond issues for current operation. During the years 19 10 and 191 1, bonds were also is- sued to extend the indebtedness incurred during the ear- lier years because funds were not available to pay off the bond issues when they became due. During these two years, $100,000 of such bonds were issued. When the new City Commission took office in January, 1914, they adopted several policies relative to the issu- ance of bonds, as follows : 1. To issue no bonds for maintenance or operating expenses. 2. To issue no substantial amount of bonds without a vote of the people. 3. To issue no bonds without creating an adequate annual sinking fund so that the full amount of the issue will be avail- able to meet them when they come due. 4. To issue no bond to run for a greater length of time than the life of the improvement. Many bonds which have matured since January, 1914, were serials ; no sinking fund had been accumulated to pay them, hence the present administration has had to pay them from current tax money. During this time the city has been accumulating a sinking fund on its bond issues. The funds in the hands of the Sinking Fund Trustees on January i, 1914, amounted to $128,450; on January i, 1919, they were $690,100. Thus, since the new adminis- tration became effective over $550,000 have been reserved for future bond needs. It is worthy of note that the pol- icy adopted by the Commission and Manager in 19 14 was that of issuing sinking fund bonds, which is contrary to GETTING AND SPENDING 183 the now very general tendency throughout the country to issue serial bonds, which are considered more economical and more satisfactorily financed. Adherence by the Commission since 1914 to the policies relative to bonds is one reason for the sound condition of the city's finances. Special Assessments for Current Operation During the period 1910-1913 and for a number of years before this time special assessments had been levied to cover the cost of street sprinkling and street lighting. Sprinkling districts were created by petitions of property owners. In 1913 a number of streets, about 16 miles in all, were oiled by private agreement between citizens and a private contractor. The assessments for street light- ing were made to cover the cost of the operation of the boulevard lighting system in the center of town. The new administration decided to flush the streets in- stead of sprinkling them, and the main streets in the cen- ter of town have been flushed three times a week. About 17^ miles were flushed. Flushing costs about twice as much as sprinkling streets, but the result obtained is so much better that most property owners prefer the flush- ing. The charge against a lot amounts to only a few dollars a year. Street oiling has been largely extended since the pas- sage of an ordinance in 1914 providing for the perform- ance of this work by the city, creating assessment dis- tricts and providing for the assessment of costs. In 1914, the city oiled 11 miles; and 6 miles were oiled by private contract. In 1915, 36 miles of streets were oiled by the city. The cost per square yard decreased from $3.25 in 1914 to $1.95 in 1915. The cost of boulevard lighting continued under the new administration to be assessed to property owners 184 CITY MANAGER IN DAYTON benefited. The following table shows the receipts from special assessments levied for current operation purposes and the expenditures made for these purposes during the period under review : Street Sprinkling Year Receipts Expenditures Street Lighting Receipts Expenditures 1910 $13,300 191 1 5,900 1912 3,000 1913 800 $17,000 900 700 700 $15,200 17,000 14,400 $ 8,000 25,100 17,500 1914 1,100 19151 14,300 19162 23,600 1917 1,800 15,500 28,700 15,500 16,600 12,700 15,200 17,800 17,400 13,600 15,600 1 Includes oiling. 2 Includes oiling and flushing. Revenue for Current Operation A policy adopted by the Commission upon taking office in 1914 was that the city would be operated within its in- come each year, and no current indebtedness would be in- curred. A detailed budget procedure, giving exact anal- ysis of both receipts and appropriations, was operated to ensure compliance with this policy, and was carefully watched by the City Manager. Each month he had a monthly statement of all current income, by sources, and a cumulative total to date for the year ; and also a state- ment of expenditures and outstanding liabilities, monthly and cumulated to date. Further, comparisons with pre- ceding years are given. This reporting procedure has been continued. As has been stated, the city entered the year 19 14 with a current indebtedness of $125,000; this amount, how- ever, was offset by a cash balance of $49,500. The cash was at once applied to reduce the debt to $75,000, and subsequently an additional $10,000 was paid off. The remaining balance, $65,000, has been carried, in the man- GETTING AND SPENDING l8S ner earlier indicated, since that date. Until 191 7, the city lived strictly up to the expectations set for it by an interested public, of living within its income and yet giv- ing a far wider and better service to the citizens. In 1917, the city began to feel the effects of rising prices, for material, supplies and labor. Dayton fac- tories were operating nearly 100 per cent, on war mate- rials — aeroplanes, tanks, shell time fuses. Liberty motor parts, naval gun mounts, gun sights, etc., — and this caused a great influx of population as well as demands for added service in the way of police and fire protection, health and traffic regulation, sanitary, vice and other problems to be met. Revenues were not commensurate with demands, and at the end of the year the city had spent $81,000, or about 6 per cent, in excess of its in- come. Owing to great uncertainty of conditions, which materially affected both revenues and expenses of the city, the failure to operate up to the sound financial stand- ards of normal times may be condemned only after an intimate study of all the elements involved. However, in the face of things, the Commission should have felt itself bound to cut its cloth the ensuing year upon an ultra- conservative basis in planning services. In 19 1 8 the city found it necessary to increase police- men's and firemen's salaries $15 per month, or over $50,000 per year. Other labor also then required an increase. Obviously, prices for supplies as coal, gaso- line, etc., existing in prior years could not be equalled, and to continue to render the same service as during the preceding four years of the new government, new sources of revenue were sought. Water rates were increased, yielding $60,000; steps were taken to adopt an occupa- tional tax, but a decision of the Supreme Court postponed 1 86 CITY MANAGER IN DAYTON the passage of such ordinance during the year. In the interim, the basis of operation had not been curtailed, so it became necessary in November to place before the citi- zens the proposal of a deficiency bond issue as a war emergency, as follows : $ 65,000, debt as at January i, 1914, 81,000, 1917 net deficit, 139,000, 1918 deficit, $285,000, total. However, due to the influenza epidemic, the usual edu- cational campaign was forestalled, and the proposal failed of the required two-thirds majority vote. At the same time, a vote of an extra one-mill tax for the next two years carried. The end of 191 8 found the deficit only $32,000, instead of the anticipated $139,000, due to radical cuts in personnel and service. The total current debt therefore is $178,000, including that inherited from the former administration. The attempt is not made to defend the management policy of a Commission which allows a lapse of sound financial planning for the business of government, but it is believed fair to state the effect of war-time conditions on a municipality and the endeavors of the legislative body to meet them. As a matter of fact, Dayton is financially in a favorable situation as compared with the other large cities in Ohio. It must be remembered that all the large cities, as Cleveland, Columbus, Cincinnati and others, are severely handicapped in their financial affairs due to the existing tax and debt laws. There are several possible remedies for relieving all Ohio cities, and among them are: I. Assessment of real and personal property at full value. This would require a change in the tax laws, to secure the ap- GETTING AND SPENDING 1 87 pointment of capable assessors through the State rather than locally. 2. A maximum limit on each separate taxing division, — State, county, city and school district. 3. A distinction between levies for current operation and debt service. A maximum limit might well be placed on the levy for either. Further, home rule in taxation for cities offers the only dependable solution. If the residents and taxpayers of a city are educated up to expecting the wide range of com- munity services from their municipal government which modern urban conditions dictate as essential, and are willing to pay taxes for them, no State regulations should be permitted to gainsay their desires. At the last State campaign both political parties were definitely committed to financial relief for the cities of the State. One reason for this action was that it was recognized that with prohibition, a source of revenue would be cut off for which some substitute must be avail- able. This problem is even now being threshed out by the legislature. One local relief is a general reappraisal of property, to increase the duplicate. The last appraisal was made in 1910, and evidence is ample that a greatly increased revenue would be afforded through this channel. However, for political or other reasons the county commissioners have refused this relief to the city. The City of Dayton contributes three-fourths of the county's revenues, yet in taxation the city is absolutely at the mercy of county officials. Possible consolidation of the two units of government suggests one solution for this difficulty. " What is the Tax Rate? " Many inquiries are made as to the tax rate in Dayton. 1 88 CITY MANAGER IN DAYTON This is, in fact, a question raised in every city. Citizens — home owners, prospective purchasers, and renters — who think the rate may be " high," httle appreciating the insignificant portion which falls to them for payment; real estate dealers, both the bona fide and the speculative ; industries long established and those seeking a favorable site ; — all these raise the question : " What is the tax rate ? " Comparisons are then attempted, one city with another, to get the answer that will meet the requirements of the occasion. No attempt is made here to reply to this question by comparing Dayton with any other city, in Ohio' or else- where. Too many elements enter into the seemingly simple question. The ratio of assessed to true property valuations ; the range of services undertaken by the cities ; whether the schools are included ; the area and population served, and the topographical and other natural condi- tions; the number and kind of public utilities operated by the municipalities; the revenues from ordinary and extraordinary sources, — all these, and many other fac- tors, have a bearing on the question. The only fair answer that can ever be given this ques- tion, in Dayton or any other city, is that the tax rate is irrelevant, — it is solely a question of what does the citizen and taxpayer get in return for the taxes he pays ? If the taxes are honestly expended in efficient service, the city having the higher tax rate is either performing a wider range of services on behalf of the citizenship or is giving a higher grade of service. The fundamental task and duty of the taxpayer who would be an efficient citizen is to make certain that the taxes levied are wisely expended. GETTING AND SPENDING 1 89 HOW A CITY OF 150,000 GETS ITS MONEY FOR CURRENT OPERATION General Fund Receipts, Two Years, Dayton, Ohio Receipts from taxes, — 1913 1917 General property $ 557,000 $ 545,500 Liquor 154,900 125,700 Cigarette and inheritance 1,000 8,800 Franchise 5,600 7,600 Waterworks 21 1,900 294,700 Rents, — Market and curb spaces 22,500 27,200 City property 2,700 5,000 Miscellaneous receipts, — City scales 700 600 Workhouse 6,000 2,600 Municipal court 8,600 21,700 Night soil 1,400 Recreation 700 5,5oo Other 100 3,400 Sales, — Garbage plant — 47,600 Other 1,200 2,300 Reimbursements, — Sweeping tracks /None in 1913 — \ — 14,900 Street restorations I because of the I — 30,300 Lighting crossings \flood / — S.ioo Bridge repairs 9,800 300 Street sprinkling and flushing 800 7,000 Street lighting 14,400 — Other 300 3,000 Licenses — Vendors 2,100 4,000 Vehicles 19,000 7,000 Theaters and shows 1,000 I,300 Dog 700 800 Other 1,200 2,800 Permits, — Building 1,500 6,200 Streets and sewers 6,600 6,900 Milk 600 1,300 Food 400 600 Plumbing 4,800 3,700 Sealer of weights and measures and other 300 10,100 Interest, on deposits 47>90o 40.S00 Total of above receipts $1,084,300 $1,245,400 190 CITY MANAGER IN DAYTON 1913 1917 Reimbursements and refunds — 107,300 Temporary loans 295,000 65',ooo Total receipts for operation $1,379,30° $i.4i7,7oo HOW A CITY OF 150,000 SPENDS ITS MONEY FOR CURRENT OPERATION General Fund Expenditures, Two Years, Das^ton, Ohio Department 1913 1917 General legislation and administration $ 26,100 $ 42,100 Civil Service Commission 2,500 4,600 City Planning Commission — 1,700 Department of Law 10,000 12,800 Department of Finance iS,ooo 23,400 Interest on loans 6,300 600 Director of Public Service, — Office of Director 8,300 7,400 Division of engineering 117,300 123,300 Division of streets (1913, flood year)... 44,000 231,200 Division of water 123,500 142,800 Division of lands and buildings 7,90O 24,100 Department of Public Welfare, — Office of Director of Charities S4,3O0 80,800 Bureau of legal aid — 1,300 State-City employment exchange — 900 Division of correction 18,600 22,000 Division of parks 17,800 19,300 Division of recreation — 22,300 Division of health 25,600 44,600 Department of Public Safety, — Division of police 166,000 196,900 Division of fire 171,300 200,400 Division of building inspection — 17,000 Division of weights and measures 2,100 1,200 Municipal court 10,500 33,200 Board of elections 44,7oo 29,700 Board of sinking fund trustees 1,600 69,400 Miscellaneous items 3,ioo — Total expenditures for operation $876,500 $i,353,000 CHAPTER IX PURCHASING FOR A CITY One of the best instances of economy and eflSciency efifected by the commission-manager plan is that of a central purchasing office. With the adoption of the principle that a public cor- poration should have the same organization and adminis- tration for conducting its business affairs as a private corporation, it was but logical that the important function of purchasing should be remodeled on a practical and economical basis. Like a cash register, auto tire or kodak business, city business requires both personal ser- vices and goods to perform its activities. As has been noted, the city made provision to secure its personal services through recognized channels. To obtain the supplies, materials and equipment needed by the municipality required that a businesslike procedure be established to that end. Specialized functions must be delegated to specific departments of an organization, in order that a maximum of results be assured. In Dayton prior to 19 14, it was the custom of each department or office to purchase its supplies and equip- ment for itself, and independently of any authority or control save the appropriation of funds to that depart- ment. Wherever orders were placed, one could com- monly find either personal friends or friends of the administration. This is a condition which is t5^ical of American cities to-day. Even in Dayton this state of affairs is found to exist to-day with both the county and 191 192 CITY MANAGER IN DAYTON schools, which are independent of the city charter and are dominated by poHticians. Firms which knew the " City Hall " merely as a governmental agency were not listed on the city's vouchers ; but vendors who appreciated the fact that they belonged to a political party, and that there was such a day as election day, and that they lived in wards, were frequent callers at the city treasurer's window. Under such conditions, with purchases made at retail and a favored few supplying the demands of the city, prices were higher than might be expected of a corporation spending over $500,000 each year for sup- plies and materials. Since January i, 1914, however, these old-time methods have entirely passed. Modem principles of purchasing were then introduced, and have since that date been gradually improved. A central agency was created by the charter for the purchase of all supplies, operation of a stores system, competitive bidding, and the elimination of red tape in conducting this phase of the city's business. The division of purchasing is placed by the charter as a part of the Department of Finance. The experience of four years indicates that the division might well be an independent function, directly under the City Manager, even though it is intimately concerned with the financial records. Specifically, the charter provides that the " City Purchasing Agent shall, in manner provided by ordinance, purchase all supplies for the city, sell all real and personal property of the city not needed or unsuitable for public use or that may have been condemned as useless by the director of a department. He shall have charge of such storerooms and storehouses of the city as may be provided by ordinance, in which shall be stored all supplies and materials purchased by the city and not delivered directly to the various departments, and he shall inspect all supplies delivered, to determine quality PURCHASING FOR A CITY 193 and quantity and conformance with specifications, and no voucher shall be honored unless the accompanying invoice shall be indorsed as approved by the City Purchasing Agent." By actual practice the term- " supplies " as used in the charter has been defined to include materials and equip- ment, and also certain contractual services wherever feasible. The charter provisions have been augmented by standardizing specifications for commodities pur- chased. It is in the duties of purchasing and maintaining a storeroom that the most substantial savings have been made by this division. The chart indicates the extent of activity of the division. REQUISITIONS RtCElVED and -OEDCES ISSUED DIVISION OF .PURCHASING DAYTON OHIO feCQUlSlTIOHS RtCEIVED ■■^339 ■^■3298 ■JJURtfUASE OtBEtS ISSUED ^Izairj 5T0EEROOM ORDERS ISSUED Wi WKM si^ »l&^l^HiS97 ^^■■■i'se Nole'd.ecre»/-e in jjomber of reaui/ilioiw, I'ndicalrno ijuanlrti/ purcha/ing and rhu/ Ttxuer prlccf ' In 1916, as a typical year, $582,000 in orders were placed with outside vendors, and $10,000 with the city's storeroom. It is estimated that 17,000 telephone calls requesting prices w?re jnade, and 2,600 inquiries mailed- 194 CITY MANAGER IN DAYTON Storeroom sales were made for 12,500 orders, and a total of 4,300 vouchers prepared by the ofifice. While a decrease is shown for 19 16, with a further re- duction in 1917, in the number of requisitions received from departments and offices for supplies, this does not mean a reduction in work. It signifies, instead, that the practice of asking for small quantities of items is being discontinued as the departments learn the economies and conveniences of wholesale buying. The storeroom is being used more extensively each year. The savings to the taxpayers from the operation of a central purchasing agency are not reflected in the above figures. A comparison of prices at which goods were purchased under both the new and old administrations would reveal in part the advantages of the modern pro- cedure. During the past two years, however, war con- ditions have so stimulated prices that such comparisons would be unfair. Instances of comparative prices, 1914, with earlier years, are given later. The record in economy and improved service through this office may be classified as due to the following prac- tices, which are discussed briefly: Purchasing at wholesale prices. Purchasing at lowest and best prices. Purchasing in wholesale quantities, for the year's needs. Purchasing when market conditions are most favorable. Purchasing only standard commodities which by nature per- mit of competitive bidding. Eliminating unnecessary range in kinds of supplies used. Effecting prompt delivery of goods to departments, through storeroom. Paying vendors promptly. Providing thorough inspection of delivered goods. Maintaining complete records of all transactions. PURCHASING FOR A CITY 195 Constitutionally a central agency does not insure wholesale buying. Requisitions from departments might be filled singly as received, and independently of the re- quirements of other departments or of future needs of any department for the same kind of goods. With a storeroom and an appropriation to the purchasing agent of a " rotary " or revolving fund for supplies, Dayton has been able to anticipate the city's needs for all ordinary goods by all departments, and by buying in quantities and holding in the storeroom until requisitioned by the depart- ments, substantial savings have been effected. A rotary fund of $10,000 — until 19 17, $5, 000 — has been avail- able, and by reason of its being turned over two to three times annually, is in effect a fund of $25,000. A few examples will serve to show the advantages of central control in purchasing, under the direction of an experienced buyer, as compared with the extravagance of each department buying of favored retailers. Wholesale prices in 19 14, as against retail prices paid in former years, are exemplified in the following list : Mayor-Council Plan, 1913 and earlier $1.25 gallon .75 each $3 to $4 per 100 sheets .80 to $1.20 per 1,000 $2.50 each $1.00 to $iiio per 1,000 Floor oil Typewriter ribbons Carbon paper Paper clips Flash lights Yellow second sheets Cup grease $ City Manager Plan, 1914 .12 gallon ,25 each .65 100 sheets ,23 per 1,000 ,95 each ,28 per 1,000 Rubber bands Rough soap 3j/^c per lb., pur- chased by bbl. $1.26 per lb., in whole- sale lots $4.50 per 1,000 lbs. in wholesale lots .10 per lb. in 10 lb. cans .08 per lb. in 25 lb. cans 4.00 per lb, in % or ^ lb. lots 8.75 per 1,000 lbs. in J4 bbl. lots It will be borne in mind that these are random in- 196 CITY MANAGER IN DAYTON stances, of which the financial records of past years reveal hundreds of similar economies. Lowest and best prices are assured by the practice of obtaining competitive bids, on open specifications clearly and concisely set forth. An average of three local tele- phone requests for prices is made on small purchases, while printed specifications and requests to bid are sent usually to from 4 to 12 vendors, both local and out of town dealers on larger orders. A single instance of the result of widely advertising for bids, to secure a minimum price, is that of coal, where the number of mine owners who bid to furnish the city's coal supply was increased from 2 to 29. Prices paid in 1914 were $2.46 and $2.63 per ton, dependent upon the point of delivery ; the former prices were $4.75 and $5.00. During the recent months of fuel shortage, the City of Dayton was of course affected, as any other consumer, by the increase in price. An example of saving by purchasing fuel through competition is shown in the following table, which covers a year for which it was difficult to obtain any bidding : COAL BIDS RECEIVED FOR SUPPLY FOR YEAR ENDING JUNE, 1917 Straight Run of Mine 4 " Lump Bidder Price per Ton Guarantee B.T.U. Ash Price per Ton Guarantee B.T.U. Ash Last year's contract end- ing July I, 1916 Logan-Poca- hontas Fuel Co S. J. Patter- son Co Reliance Coal & Coke Co. $1.99 14,000 6% $2.23 14,000 2.24 14,001 6% ^AlVi 14,001 2.35 14,300 5% 2.40 14,000 7% 2.70 14,200 (,% 6% PURCHASING FOR A CITY 197 Lowest prices were also obtained on the motor apparatus purchased in 191 5 and 191 6, in the program of motorization of the division of fire. Keen competition was indulged in by the various firms bidding, and some criticism was had of the city officials for demanding what were termed excessive allowances on old apparatus traded in. It was felt that these allowances were in the nature of reductions on original bids for new pieces, the nego- tiations for allowances having been conducted after the bids were formally opened and announced publicly. However, the opportunity to offer allowances on the old apparatus was made on equal terms to all bidders. The advantage of buying in large quantities, antici- patory of the year's needs of any commodity by all city departments, is an important one. By charter, no con- tract may remain in force longer than one year. It has been, therefore, the practice to enter into a price agree- ment, allowing the city the privilege of dictating as to time and place of delivery, and giving a safe margin as to maximum and minimum of quantity. At the same time the city is protected against the rise in price, and assured the benefits of any decline. A case in point was the agreement made for gasoline on August I, 1915, to extend during the next twelve months, calling for the purchase of not less than 60,000 and not more than 90,000 gallons, at a price of 9 cents per gallon — or two cents below the then prevailing mar- ket price. Before the life of this contract had expired, the price of this commodity had risen to 26 cents, and a saving of about $9,000 was effected for the city. Similar savings were enjoyed in the past four years in contracts for foodstufifs for the workhouse, feed for horses in the division of streets, etc. 1 98 CITY MANAGER IN DAYTON It is apparent that with a rotary fund at all times avail- able, an experienced purchasing agent may take advan- tage of market conditions to replenish his stocks in stores. This procedure has been followed in all cases of com- modities having a seasonal fluctuation in prices. Even more important, from the point of view of economy and effective administration, is the ability of the public officials to look ahead with a single eye toward public improvements planned, and to anticipate market conditions during a numbei- of months as they will affect the cost of these outlays. During the past three years an extensive program of permanent improvements has been underway, and acting through the purchasing office, large amounts of construction material were purchased several months in advance of the time they were to be required. It was apparent early in 191 5 that the trend of the market was upward, and plans were then made to buy and store the materials which were to be required, and then to sell them to the successful contractors for the work at prices then prevailing. In October, 191 5, 800 tons of reenforcing steel were purchased at $27.00 per ton, and by the time the bridges for which the steel was needed were begun the market price of steel had gone to $69.00. Fifty-eight thousand three hundred barrels of cement, costing $1.37 net per barrel when purchased by the city in 191 5, were disposed of to contractors on the Fifth St., Webster St., and Keowee St. bridges at a much higher price at time of construction. Sewer pipe was bought 84 per cent, off- the list price, making a saving of $40 per car or an estimated gross saving of $8,- 000. Water pipe was purchased in 1914 to the amount of 6,278 tons by a long-term contract, at $20.40 per PURCHASING FOR A CITY 199 ton, and by the time it was all laid the price had risen to over $25. This low price on water pipe was not equaled or bettered by any municipality that year. These figures are but an evidence of the foresight of the present administration in doing the city's business with a view of protecting the taxpayer's pocketbook. The new type of purchasing introduced also the prac- tice of buying only those commodities the quality of which can be definitely determined by practical scientific tests, either in its own laboratory or in private labora- tories under contract. To serve as a basis for effective purchasing, standard specifications have been found necessary. Standardization is impossible for a city under segregated buying by departments, and it is not even inherent in a central office. Dayton, however, adopted the plan of preparing standards for each supply used by any department. A result is found in stationery. Formerly each de- partment and office ordered its own stationery, with the result that there was an interesting manifestation of in- dividual esthetic tastes among the heads of these offices, and letter heads cost from $12 to $20 per thousand, pur- chased in lots of one thousand. As much as $20 was paid for a copper plate by the head of a minor bureau. In 1 9 14, a uniform style of stationery was adopted for use by all departments, a supply was purchased for the year's needs, and the price was $2.65 per thousand. The practical quality, the appearance and the dignity of the paper were not impaired by the change. No longer does the City of Dayton purchase coal, — it now purchases only the heat units of the coal, measured in British Thermal Units (B. T. U.'s), and a maximum percentage of ash and sulphur content, from samples 200 CITY MANAGER IN DAYTON taken from each car delivered. Detailed specifications have been drawn up, and Dayton is justified in its claim that it has an unsurpassed set of specifications for this commodity. As to definite specifications on printing work (police payrolls), the comparative prices in Jan- uary, 1914, and October, 1913, were $7 and $13.75, for the same kind of forms. Fire hose, too, afifords an example. By providing definite standards and tests which the hose must meet, and placing an inspector in the factory where the hose is manufactured, the former price of $1.10 per foot has been reduced to 47J/2 cents, — and a higher grade of hose, meeting every test set, is received. Water pipe is also tested, by inspectors at the foundry where made. Similarly, specifications have been prepared for gasoline, lubricating oil, paint, cloth for firemen's and policemen's suits, clothing for workhouse prisoners, food supplies, hydrants and water meters (open specifica- tions), soap, harness, boots, shovels, etc. The foodstufifs dispensed by the concessions awarded at the city parks are also required to come up to a high grade test for content and purity. It is true that during recent months some of these standards for municipal supplies could not be required due to market conditions, as in the case of coal, soap, food, etc., but they are only partially and temporarily suspended. The economy from eliminating unnecessary kinds of articles is witnessed in the case of letterheads, as just given. It has applied with equal force to dry goods, paints, cleaning supplies, etc. A central storeroom has been established, and expanded with the growing calls made upon it. Over 300 articles are now carried in stores, and a continuous inventory PURCHASING FOR A CITY 20I kept of each kind of goods. The advantage of a store- room in economy of time needs no emphasis to those who have an acquaintance with pubHc offices. In many in- stances the storeroom has been able to effect immediate delivery to the requisitioning department, whereas to have followed the usual procedure of conducting business with outside firms would have entailed costly delay. The general result has been to greatly expedite the public service, in numerous cases and in different ways. Delay in receiving supplies is proverbial in the ordinary city department. A hindrance common to cities in attempting to buy at reasonable prices is the delay the vendor sustains in receiving his payment for the goods, and as the city is looked upon as an " impersonal but wealthy " corpora- tion, it is usual for the dealer to add an amount to the price to protect him against this kind of loss. The prac- tice is not without some justification. Due to red tape, general inefficiency and lack of cooperation between the finance department and other departments, the vendor of a considerable bill of goods to the city suffers a reduction in his profit unless an extra price is tagged on. A city is always able to meet its obligations, yet seldom is it that possible discounts are taken by it. These conditions have been overcome in Dayton, and through a sound accounting procedure which assures that an order — every purchase order is approved by the City Manager — for supplies will be let only provided there is money in the fund to pay the bill, and through a close and active cooperation by the division of purchasing with the division of accounting, invoices are passed through promptly for payment. Not only do vendors receive their money on time, but they do not have to beg it at the 202 CITY MANAGER IN DAYTON city treasurer's window, as the warrants are mailed to them. The city, on the other hand, is enabled to take the maximum cash discount, and secures a minimum price because it enjoys the confidence of the manufacturers and dealers. The affable drummer, with his " mixing " ability and persuasive tongue, has been displaced by the scientific salesma:n with a thorough knowledge of his product from the raw to the finished state and who is content to leave the success of his sale to the merit of the goods. The goods are permitted to speak for themselves. The broker or middleman, who is versed in the intricacies of municipal red tape and who does business on a small margin with large orders, is persona non grata at the city hall. His supplies, being of an uncertain quality and not up to specifications, might pass the scrutiny of careless city officials. Yet he would have no reputation to sus- tain, and the city would be the only loser. Now, however, with responsibility definitely placed by a central authority upon the department head, it is neces- sary to obtain a certain standard of results with the sup- plies furnished upon the department's own requisition. Therefore, the departments are very zealous in making thorough inspections of deliveries of goods, and must indorse the voucher for payment of the article that it meets the conditions laid down for it. Thus far the sys- tem of departmental inspection has proved very prac- ticable, but it is contemplated to establish an inspectional function under the direct supervision of the purchasing agent. Finally, and not least of importance in assuring the success of a central purchasing agency, is the system of records kept by the office for purposes of reference. A PURCHASING FOR A CITY 203 copy each of the requisition, the specifications drawn up for each order, the requests to bid, the purchase order, and the bids received are all systematically filed. The keystone of the records, however, is the card index of each purchase, upon which is recorded the date, price paid, quantity and quality of the supply, the vendor's name and the department for which purchased. This card, filed by commodities, furnishes the data necessary for placing new orders, and serves as a basis for estimat- ing requirements for the ensuing year. The foregoing experience, due not alone to the form and method it provided, but also to the officials, is the basis for the conclusion that Dayton's purchasing pro- cedure has been an unparalleled success in proving the case for centralized authority and control, and the placing of definite responsibility upon experienced and capable aides, supported by adequate power and modern methods. The record in Dayton's central purchasing agency is one of business, not politics. CHAPTER X PROTECTING A CITY'S RIGHTS The policy of aggressive action which has char- acterized the present administration has extended as well into the Department of Law. The charter sets forth in a definite and comprehensive manner the duties of the city attorney. These duties and responsibilities have been assumed and executed in a vigorous and capable way by this official and his assist- ants. This fact is not to be proved by citing statistics of a specific nature, as the duties are of a wide range and in an advisory capacity. Comparisons with prior years are not easily made. A number of long outstanding cases were found in the files in 1914, and these were handled promptly. The increase in scope of activity by all departments has naturally re- sulted in an additional amount of work of a legal nature, and every subject is handled currently so far as its nature permits. COMPARATIVE COSTS OF THE DEPARTMENT OF LAW AND THE OFFICE OF CITY SOLICITOR City Solicitor City Attorney 1910 $io,goo 1914 $11,000 1911 11,500 191S 11,800 1912 11,600 1916 11,900 1913 10,000 1917 11,900 By a provision of the charter, the city attorney is appointed by the City Manager for an indefinite term, and is removable by him, as are the heads of the other 204 PROTECTING A CITY S RIGHTS 205 departments. The same attorney with the same three assistants has served since January i, 1915. Owing to the large number of administrative matters referred to this office for a legal opinion and ruling, and owing to the great moment these matters are to the public, the question has frequently been raised as to the advisability of the city's legal representative being ap- pointed by the legislative body, thus relieving him of any possible bias in favor of the executive who appointed him. It may be said with all fairness, however, that thus far in the conduct of affairs in Dayton, such pro- cedure has proved unnecessary as a safeguard for the public welfare. The great majority of acts of the Manager and his subordinates in charge of departments and divisions are referred to this office for a ruling as to their legality, unless the contemplated action is merely of an ordinary routine nature. It is at once manifest that, were there an inclination on the part of the executive to influence the decisions of the attorney, this course would be possible by the removal, if necessary, of the recalcitrant attorney and the selection of one who would heed his demands. The legal head of the city confers with the City Com- mission as to proposed legislation of almost every char- acter. In fact, it may be said that prior to taking definite action the legal " safety first " of this official is obtained. All contracts entered into on behalf of the city must be approved as to form by him. He or his representative attends all meetings of the Commission, and also the staff conferences of the City Manager. He attends a great many conferences of the Manager with his department or division heads. The city attorney is a member of the Board of Revi- 2o6 CITY MANAGER IN DAYTON sion of Assessments, which passes upon tentative assess- ments for public improvements after notice to property owners affected, and adjusts disputes so far as possible before the assessment is levied. This plan of action avoids nearly all litigation about such matters, and by reason of its anticipatory nature it is one of the most serviceable activities of this department from the citizen's point of view. An average of nearly 300 ordinances, 'on the range of subjects requiring attention and action of the Commis- sion, are drafted by this office each year, — such as issu- ance of bonds, assessments for and authorization of public improvements, purchase of property, prices to be charged by public utilities for their products and ser- vices, franchises, privileges, health and police regulations, and all other matters requiring formal action by the Commission. Many claims for damages to persons and property, in which the city is defendant, require the attention of the city attorney in investigation, adjustment if that is ad- visable, and preparation for defense and in hearing, where necessary. Particular attention has been paid to efforts to avoid litigation by judicious settlements in all cases where by accepted rules of law the city is liable, on the theory that the citizens should not be put to unneces- sary expense or delay in recovering what may be justly due. To mention specifically some of the more important matters which have engaged the department of law since January, 19 14, and which serve as a test of the efficiency of the department : The constitutionality of the principle of home rule in PROTECTING A CITY'S RIGHTS 207 city government was established, through a case carried through the courts. The dismissal by the City Manager of an employee, the superintendent of the water works, was successfully defended before the Civil Service Board. This is the only case of dismissal which has been brought before that body. The complete and extensive building code was reviewed for approval. The Supreme Court of the State completely adjudi- cated the powers of the County Budget Commission, when a suit in mandamus was brought by the city. Negotiations with public utilities concerning service, rates and practices have been conducted usually by the City Manager and the City Attorney. In this way there has been a readjustment of the rate for gas, resulting in the temporary abandonment of an artificial gas plant furnishing gas at $1.00 per thousand feet and getting natural gas service for all citizens desiring it at 34 cents per thousand cubic feet. Investigation of and negotia-; tions concerning electric light rates and service have been imdertaken and are in progress. Street railway service is also under investigation. Complaints relative to all such matters are given such attention as franchise pro-: visions and legal means of correction justify and permit. Difficulties with the purchasers of bonds of the city, due to the objections based upon the limitation of the tax rate by the tax laws of the State, required an extensive study of this subject, and resulted in the adoption of the plan that bond requirements should henceforth be sub- mitted to the people for their vote, which plan has been followed save in a few instances involving small amounts 208 CITY MANAGER IN DAYTON as to which it has seemed necessary and advisable to avoid the expense and delay of a referendum vote. Litigation has been handled with satisfactory results in nearly all instances, but particular emphasis has been laid upon the avoidance of litigation so far as possible. It is worthy of comment that during the entire five years of City Manager government no outside counsel has been employed by the city. PROSECUTING ATTORNEY The City Attorney is by law the prosecuting attorney in the municipal court. The duties of this office are growing each year and require the constant attention of one assistant to the City Attorney detailed for that pur- pose. Following is a chart indicating these activities : CA5C3 TRIED, FINES COLLtCTED AMD CITY'S PORTION of FINES rtPAETMENT OF LAW— DAYTON OHIO , > QN C\ O^ (IN CASES TRIED 1^ FINES COLLECTED 0^ hysical condifion; and instruments liable to loss, theft and rapid depreciation. ,'Note: — The following lists are illustrative and not exhaustive. 1, Chemicals, Drugs, and Medicines. Tojinclude acids ; alcohol ; ammonia ; antitoxin ; disinfectants ; gums ; liomeop'athic - drugs ; medicines, — veterinarian ; medical bandages ; jgauze; medicated cotton; minor rubber supplies; ointments; photo- -graphic chemicals; pills; powders; quinine; serums; soaps, — blue, medicated; splints; suture materials; tape; wines and liquors; whis- Itsjr;; water, — ^medicated; vaccine; etc. 246 CITY MANAGER IN DAYTON 2. Clothing, Dry Goods, and Notions. To include aprons; awning cloth; bedding; blankets; bunting; bur- lap; buttons; canvas; cloth; cotton goods; comforts; curtains; dress findings; flags; hats; linen; mattresses; oilcloth; pillows; ribbons; robes; rubber goods; shoes; suitings; sheets; thread; towels; yarn, etc. 3. Food Products. To include bread; cereals; condiments; crackers; dairy products; flavoring extracts; fish; flour; fruits ;. groceries, — baking powder, cof- fee^ lard, pickles, salt, spices, sugar, syrup, tea, etc.; ice; meats; pas- tries; soft drinks; soups; tobacco; vegetables; water; etc. 4. Forage. To include bran; chicken feed; corn; excelsior; hay; meal; middlings; salt; straw; shavings; tan bark; etc. 5. Fuel. To include calcium carbide; coal; charcoal; coke; excelsior; wood; etc. 6. Minor Instruments. To include minor apparatus, instruments, tools, and utensils which are liable to loss, theft, and rapid depreciation. Minor apparatus to include that used in cleaning, engineering, hospital, laboratory, medical, painting, recreation; alcohol lamps; bal- ances; blow pipe; burners; base balls; braces^ — leg; drills; filters; flasks; games; lanterns; lantern globes; measures; oars; printing frames; rubber; scales; tubing; tool bags; water coolers; etc. Instruments to include calipers; chains,— measuring ; compasses; dating machines ; douches ; drafting instruments ; dental supplies ; for- ceps; gauges; lenses; numbering machines; pincers; saws; scissors; sterilisers'; surgical instruments; thermometers; triangles; etc. SAMPLE PAGES OF THE DAYTON BUDGET 247 Tools to include adzes; augers; axes; bellows; bending tools; bits; braces; caulking tools; clamps; crow-bars; curry combs; emery cloth; jacks; hand cuffs; hose,— N. O. S.; oil stones; pinchers; punches; reamers; shears; scrapers; stakes^— engineer; whips; etc Utensils to include baskets; bells; brooms; boilers; boxes; brush- es; bags; bottles; bowls; barrels; cans; cups; cuspidors; dishes; enamel ware; glass ware; griddles; jars; knives; oil lamps; lamp wicks; mats; pails; picture frames; window poles; whistles, — ^police; etc. 7. Oils and Lubricants, To include candles; graphite; greases; gasoline; naphtha; oils^— il> luminating; oils^— lubricating; etc. 8. Stationery. To include binders; books, — ^blank'; book supports; calendars; cards; card holders; chalk; clips; crayons; desk pads; duplicator supplies; envelopes; eradicators; erasers; filing cabinet supplies; ink; labels; manuscript covers; mimeograph supplies; pads; paper; paste; pen- cils; pens; rubber stamps; sponges; tracing cloth; typewriter supplies; water colors; wax; etc. Publications, — ^to include almanacs; atlases; books,' — ^reference, text; catalogs; charts; dictionaries; magazines'; maps; newspapers. Other Supplies. To include supplies which cannot properly be allocated to other classes; as, — ^badges;, chamois skins; explosives; fertilisers; horse- shoes; matches; photograph racks; seeds and plants; soaps; scouring preparations; shrubbery; tree?' toilet articles, N. O. S.; wall paper; iraste; etc, 248 CITY MANAGER IN DAYTON E MATERIALS. Jiaferials are commodUies of a permanent nature,— in a raw unfinished or finished state, — entering into the construction, renewal, replacement or repair of any land, building, struC' iure pr equipment. Mote : — The following lists are illustrative and not exhaustive. 1. X'Uniber, ■To include blocks; laths ;_ mill products, — sash doors and blinds; mouldings ; shingles ; ties ; tiniber, — hewn, round ; etc. Machine and Hetal Materials. To include .electrical materials ; hardware ; iron, steel, and other met" als; machine. parts; nails, bolts, etc.; pipe, pipefittings, and valves; porcelain materials ; and wire and wire rope. Electrical Materials to include anodes ; armatures ; batteries ; bat- tery parts; bells; buzzers; carbons; clamps; coils; commutators; con- duit; fan parts ; fuses ; insulators; lamps, — incandescent; moulding; plugs; reflectors; shades; sockets; switches; telephone parts; zincs; etc. Hardware to include brackets ; braces ; castors ; caps ; cleats ; cot- ter pins; curtain fixtures; door knobs; door checks; engine gongs; handles ; hinges ; hooks ; hose fittings, (except couplings and nozzles) ; latches; .license plates; locks; keys; name plates; number plates; rods; rollers; springs; worm shafts; etc. Iron, Steel and Other Metals to include aluminum; brass ; bronze ; castings; cylinders; grates; copper; iron; l?ad; metal,— Babbitt; Steel; steel balls; tin ;. tubing,— meul; «inc; etc, SAMPLE PAGES OF THE DAYTON BUDGET 249 Machine Parts to include automobile parts; boiler fittings; «n«. gine fittings: fire engine parts; fire extinguisher parts; fire alanatde* graph parts; garbage incinerator parts; harness parts} hydrant parts; meter parts; pulleys; pump fittings; range parts; road machine parts; sewer maclune parts ; smoke stacks ; vehicle parts ; etc. Nails, Bolts, etc., to include bolts; nails; nuts; rivets; screws jri staples; washers; etc. Pipe, Pipe Fittings and Valves to include bands; tends; bibs; bushings; caps; cocks; connections; couplings; cells; faucets; fer» rules; gauges; pipe; plugs; traps; tubing; valves; valve fittings; ets«' Porcelain Materials to include basins; bowls; closet parts; tanks; urinals; etc. Wire and Wire Rope to include cable; metal cloth; metal gauze; mesh; netting; rope; wire; etc. 3. Masonry. To include asphalt; asphalt binder; brick; cement; clay; concrete; flagging; granite; gravel; lime; limestone; loam; mortar; pitch; plaster; road oil; sand; screenings; stone; tar; terra cotta; tile; trap- rock ; etc. 4. Paints, Oils, and Class. To include alabastine; benzine: floor dressing; fillers; floor wax; glass; glue; gold leaf; lead; oils, — linseed, turpentine; paints; pitch; putty, shellac; tinner's cements; varnishes; whitewash; etc. 5. Other Materials. To include fibre, leather, a'nd rubber products, etc; — auto tires,— inner tubes, casings; belting; cordage; felt products; hemp; hides; , line; leather; oakum; packing; pipe covering; pelts; roofing,— felt or patent; rope; rubber; twine; etc. 250 CITY MANAGER IN DAYTON P. EQUIPMENT. Equipment comprises the live stock, furniture, machinery, implements, vehicles, and apparatus necessary and useful in the operation of the corporation, and which may be used repeatedly without appreciable impairment of their physical condition, having a calculable period 0/ service. Note : — The following lists are illustrative and not exhaustive. 1. Furniture and Furnishings. To include awnings; benches; beds; book cases; buffets; bureaus; cabinets; carpets; chairs; chests; desks; lockers; mirrors; radiators; refrigerators ; rugs ; stands ; stoves ; stretchers ; tables ; window shades ; etc. 2. Live Stock. 3. Machinery and Implements. To include adding machines; ammeters; armatures; air compressors; boilers; drill presses; dynamos; emery wheels; fans; forges; gongs; grind stones; guns; harrqws; hydrants; meters; motors; plows; pumps; rifles; revolvers; road rollers; scrapers; sewing machines; sprinkling. carts; squilgees; typewriters; vacuum cleaners; vises; etc. 4. Motor Vehicles. To include automobiles; cycle cars; motorcycles; motor fire trucks} trucks, etc. 5 Vehicles and Harness. To include bicycles; buggies; carriages; carts; harness; saddles; trucks; wagons; etc. 6. Miscellaneous. To include law library books; equipment for drafting, engineering, hospitals, laboratory,, medical, nautical, recreational, etc., not othtf'^ wise specilie.d or allocated. 0. LANDS. BUILDINGS AND STRUCTURES,— By Purchase, SAMPLE PAGES OF THE DAYTON BUDGET 25 1 GENERAL COMMENT The estimates of financing a government are of two parts, viz ; 1. Estimates of the needs 2. Estimates of the financial resources to meet those needs. To consider these estimates fully, the budget of a municipality must be prepared with respect to both the past and the future. We should include, and this budget does include so far as they have been found necessary in considering the financing of current activities, the following statements: 1. A balance sheet, summarising everything the city owns and all that it owes, including the surplus. 2. Detailed estimates of revenue expected during the' year. 3. An operating statement, showing under the proper functional classifications all the revenue and expenses of the past year,— a. By character of expenditure b. By objects of expenditure 4. An appropriation statement, showing the unencumbered bal- ance from the preceding year, still available for expenditure this year. As this budget is for the General Fund only, the unencumbered balance from 1915 is shown as the first item of revenue in 1916,— $50,108.10. 5. A "work program," outlining the projects the administrationi, plans to undertake during the year. This work program has been furnished in part in 1916 by the itemisation of appropri- ations by functions. 6. An estimate of expenses for each department and for each activity of each department for the year. 7. A debt statement. This statement affects a budget for cur- rent activities only in so far as current revenues need be ap- plied to the liquidation of funded debt. In Dayton, the only funded debt cared for directly from the General Fund is that of bonds and' their interest which are a direct lien against water works revenues. For this reason it has been iinneces- sary to include a balance sheet of either the water works or the general sinking fund. 252 CITY MANAGER IN DAYTON CONSOLIDATED BALANCE SHEET Cash ,..,.,„,...,„.,.. Accounts Receivable . Taxes Receivable ., ASSESS Materials and Supplies on Hand.. Undeposited Collectidits . Accrued Water Charges GENfiRAL (Assets and Liabilities 50,108.10 23,375.!i8 109,102.53 26,510.03 700.80 17,497.18 Total General Account Assets... ..$ 226,S00.ia Cash— General Bond Fund... Special Assessment Fuiid „ . Total C4sh .-^.... Unpaid Assessments— 'Receivable . CAPITAL (Assets and Liabilities 867,706.18, 103,869,17 Certified Tola! Onpaid Assessments..-.. _...._„ Less Reserve for Loss in Collection 164,089.22 939,533.10 ....$ 1,103,022.62 53,000.00 ..$. 971,575.33 Ket Unp'etld Assessments...^ Accounts' Receivable - Property— Lands Buildings Other Structures, Streets, Etc Equipment - - « Live Stock «„ - $ 1,054-838.40 420,078.34 _ 11,184,312.34 3,088,736.10 _ 9,665.00 1,048,622.68 2,882.41 Ttftal Property Less Reserve for Depreciation- „ $13,763,630.24 ,.- ■ 498,478.44 Net Property . Undistributed Cost , Bond and Coupon Redemption Fund... Total Capital Account Assets..... _ , 15.263,131.80 1,633.19 20488.50 -517,310,043.87 Cash ._ Firemen's Pension Fund— Cash Securities Total Firemen's Pension Fund... Police Relief Fund— Cash- TRUST (Assets and Liabilities 34.(l*'' Securities $ 3.536.69 52,800.00 $ 1.375.05 4,6(10.00 Total Police Relief Fund- Retained Percentage Fund -« Total Trust Account Assets.. 56,396.69 5,975.03 16,688.99 _S 79.034.83 Total Assets . ^17,615.873.87 SAMPLE PAGES OF THE DAYTON BUDGET 253 AT DECEMBER 31, 1915 ACCOUNT Penaining to Current Operation) UABILITieS Notes Parable 3 75,000.00 Sundry Claims — « 33.25 Unaccrued Revenue — Liquor Taxes and Market Rents~_— _ 63,405.22 Total General Account Liabilities.. $ 138,438.37 General Account Surplus: Excess of Immediate Liabilities over Cash (current deficit)_$ 24,925.15 Net Assets not Applicable to Financing Appropriations.-.:^ /113,2S6.86 Total General Account Surplus „ _ 88,361.71 Total General Account Liabilities and Surplus $ 226,800.18 ACCOUNT Pertaining to Improvements) Bonded Debt— General .....^. _ _ _ _ .$6,327,280.00 Special Assessment . — 668.600.00 Total Bonded Debt _ $7,295,880.00 Less Sinlcing Fund.... „._..„.....«._.. - 398,664.95 Net Bonded Debt - - 6,897,215.05 Reserve for Redemption of Bonds and Coupons - 20,188.50 Total Capital Account Liabilities „ $ 6,917,403.55 Capital Account Surplus: Cash in Excess of Immediate Liabilities , ~ $ 971,575.95 Less Outstanding Orders and Contracts 392,410.79 Surplus Available for Further Expenditure $ 579,164.56 Surplus Unavailable for Further Expenditure 9,813,475.76 Total Capital Account Surplus 10,302,640.32 Total Capital Account Liabilities and Surplus $17,310,043.87 ACCOUNT Pertaining to Special Trusts) Unclaimed Money ^ $ 34.09 Firemen's Pension Fund 66,336.69 Police Relief Fund 6,975.05 Retained Percentages (Due Contractors) 16,688.99 Total Trust Account Liabilities _ - $ 79,034.82 Total Liabilitiea - $ 7,134,876.84 Total Surplus - 10,481,002.03 1 Total Liabilities and Surplus . $17,615,878.87 254 CITY MANAGER IN DAYTON Estimated I&come, 1916 with a Comparative Statement of Actual Receipts for 1915 Nature of Revenues Cash balance on hand, January 1st. Delinquent Taxes 1916 1915 Estimated Actual 504O8.IO f 6,680.00 15,600.00 Included in General General Property Taxes In 1916, -agiSroKnaa li^ateof J»"M81,890 In 1915, .4136% r° * ""P'"^^'® °' { 166,831,200 producing j«5W61j from which are deducted; 1916 Swerve for delinquent. $ 5,900.68 Collection fees 6,000.00 Refunds 1,000.00 State Auditor's charge. 981.49 Pensions nil State Industrial Com- mission 2,717.83 1915 nil t 7,000.00 1,000.00 2,000.00 15,000.00 ■nil $15,600.00 H|I26,000.00 Net Return from General Property Taxes, (1915 includes Delinquent Taxes) Collateral Inheritance Taxes Refunds from County, as per Findings of State Auditor ; Water Works Revenues Bents Market Houses and Curb Spaces Real Estate ' City Buildings „ City Equipment Other Rents Miscellaneous Receipts Municipal Court Scales Night Soil .' Work House. t)og Pound Birth and Death Certificates Cutting Weeds Bomberger Park Skating Rink Boating . . .• Canoe Lockers Dancing Refreshments Bathing Vending, Check Rooms, Etc .";...!...* Other Receipts 489,928.61 670,274.67 2,500.00 2,577.37 5,635.00 260,000.00 228,413.33 26,600.00 27,478.67 2,795.00 3,302.73 150.00. 300.00 531.88 250.00 214.67 15,000.00 17,700.46 600.00 632.80 3,500.00 3,166.00 8,500.00 2,247.55 130.00 127.45 175.00 137.60 650.00 285.15 700.00 650.88 688.85 100.00 72.63 150.00 164.75 2,000.00 1,476.76 2,000.00 1,623.81 1,500.00 1,196.28 200.00 71.33 300.00 724.29 SAMPLE PAGES OF THE DAYTON BUDGET 255 1916 Nature of Revenues Estimated Sales Purchasing Agent 800.00. Garbage Products 60,000.00 Beimbursements Street Cleaning 15,000.00 Street Repairs 28,000.00 Street Lighting 5,412.00 Street Flushing 7,000.00 . Bridge Repairs 500.00 Hydrant Repairs 100.00' Water Works Extensions Stores Fund Bond Issues, Advertising 500.00 Bond Issues, Wages of Engineers 10,000.00 Other Reimbursements 400.00 Licenses Liquor 123,500.00 Cigarette 1,300.00 Vendors 4,000.00 Theatres and Shows 800.00 Pawn Brokers 350.00 Vehicles 8,000.00 Junk Dealers 1,000.00 Dog 800.00 Dance . ./.' .' 400.00 Other Licenses 200.00 Permits Streets 7,000.00 Driveways 600.00 Poles 200.00 Billboards 1,050.00 Rollers 100.00 Building 12,250.00 Plumbing 4.400.00 Milk 950.00 Pood 750.00 Other Pei-ni its 450.00 Interest On Deposits, General Fund 3,600.00 On Deposits, General Bond and Special As- sessments Funds 62,528.93 Sundry Revenues Excise Revenues 6,600.00 Imprest Cash and Stores Fund 5,340.00 Temporary Loan • ■ 75,000.00 $1,328,252.64 1915 Actual 368.74 699.87 17,602.47 35,640.40 5,319.93 804.22 418.23 4,190.64 3,212.39 272.74 117,051.17 1,287.23 3,374.00 871.25 300.00 8,081.30 1,100.00 739.75 313.25 350.00 6,452.00 Included in other Included in other' Included in other Included in other 2,473.52 4,523.25 1,008.00 1,135.50 3,569.91 3,908.37 6,441.66 6,300.00 75,000.00 $1,281,351.69 e3 S S ? a s!3 ssssas g ass s s s i i s s ■s s S SI! 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Ii^sss £51 1: s s § gsiiSs |>|li I SIS lengsS liiii | a a S a Be a ll I Stg S S8^! 5 o e e e ;832| ISSaS 357 JS§ « §S8S!;S sag S SSSasg 85 s SS3 S i ! I i ? ^ ? ??s gs ggs s S S S S S 8 S g|| i| g|g i s?. a o u en h we; 3 S -S| SR 8 ^ 8 8S3SSS SS s SS 311111 o h en o O h en O ia« pn ea S an £ £r !0 M e MNWncf 2 *S •! * *^ OS M fc««"«._ s 8 s s s I g HiHi -a ^|3 i ! 111^88 888888 88 888 8 2 I 3 I S I i |||S|8 gS SS| I I si I I I B 3 r sSm 9 B j; Sefoeataa ~ See Q 2S8 SJo'=-a I woo pa na 8? 88 j a'o.S « O P fl Jill = S P 9 P« S iPann n £oaBa o ° S u d a 5 5 s • OS WW „ s'^ ^ Si ^ ^sss -3 da I g I sggs t " I § ^ s s ss s $ 8 g i ii S t I s s § I s if s 3 ess 1 1 s i^nn 8 3 § § ? § I i e ^ S3SSS sss s s s s § i f 1^ 8 S 8 S S fi| I" S S 3 8 I lilll dS e e " & * o o o '£»« £■ gOAAfi 26o CITY MANAGER IN DAYTON Cost by Objects Purchased Petiomi Sentie SaltuclS* .,...., „.., ,f561#5(k48 Vfa^a. ^,.. ..-,.. .,.*,..», ,.. 180,2V8a« Cotitractwi^ S&niicea OommnnidatiOn ■■ ^...^..^...^ 4,167:16 Oontractnal Kepairs„. ..,......,.„ .,.. ll,92S.OO' Eire of Equipment. 41,056iS7 Insurance i,92iiS Public UtUity Services, N. O. S. 119,967^2 Speciitl Service , i,67S.D0 Traveling , 1,709.00 Other Contractus^! Service. , . ^ ^ . 17,604.53 Sundry Qharget Contributions 60,250.00 Debt Service .; ;.... 128,737£5 • ImprestCash -. 5,340.00 ICefunds and Claims 230.00 Chemicals, Drags and Medicines 3,108^0 Clotiiing, Dry Goods and Notions 8,929.90 FoodProducts 7,525.00 Forage 1 9,287.00 Fuel ; 27,553.00 Minor, Instruments 6,098,00 Oils, and Lubricants 15,136.00 Stationery 7,017.87 Other Supplies 2,420^1 Uaterialt Lumber 6,401.00 Machine and Metal Materials 35,473.00 Masonry 11,673.00 Paints, Oils and Class 1,467.00 Other Materials 9,470.27 Jlqiiipmmt Furniture and Furnishings. . , 2,804.22 Machinery and Implements SJ293.40 Motor Vehicles 1,750.00 Vehicles and ECamesa 250.00 Miscellaneous 675.00' tmjmM 82,07IL6S 63,184.27 %7T2j62 Total fl,2e4.12«48 SAMPLE PAGES OF THE DAYTON BUDGET 261 CIVIL SERVICE BOARD Code Ebcpense Personal Service 4 A 1 Salaries Board Members (3) . .at9 260 per yr. Secretary (1) at 2400peryr. Clerk (1) at 720peryr. Contractual Servioet 4 B 1 Commnnication 4 B 6 Special Service 4B8 Other Supplies 4D8 Stationery Capital Outlay Equipment 4 F 1 X Famitnre and Fomishlnga. Schedule Expense Appro ' priations sss 000 3870.00 3870.00 100.00 50.00 50.00 200.00 100.00 26.00 Total. 4195.00 OFFICE OF THE MANAGER E^ense Penondl Service City Manager (1) ..at (12600 per yr. 12500.00 Secretary (1) at 2400 per yr. 2400.00 Clerk-Stenographer (1) at 900 per yr. 900.00 Stenographer (1) ..at 900peryr. 900.00 16700.00 Wages Messenger (1) 12.00, 312 days 624.00 17324.00 Contractual Service* Communication 160.00 Special Service 1000.00 Sundry Charge* Contributions SupplicB Stationery 100.00 Other ..; - 10.00 Capital Outlay Eqviprttent 3 F 1 X Furniture and FamishingB. . .'. 6A1 SA2 6B1 6B6 5C1 6D8 6D9 Total. 1160.00 60.00 110.00 25.00 18669.00 262 CITY MANAGER IN DAYTON DEPARTMENT OF LAW Api>ro- Code Schedule Expense priations Expense Personal Service 6 A 1 Salaries City Attorney (1) . . .at $4000 per yr. 4000.00 Ass't City Att'y ( 1) . . at 3500 per yr. 3500.00 Asa't City Att'y (1) . .at 2000 per yr. 2000.00 Prosecutor (1) at 1000 per yr. 1000.00 Secretary (1) at 780 per yr. 780.00 11280.00 11280.00 Contractual Services 6 B 1 Commmiication 10.00 6 B 4 Insurance 6.25 6 B 6 Special Service 200.00 6B7 Traveling 50.00 6B8 Otiier 34353 609.78 Supplies 6D8 Stationery 100.00 Capital Outlay EqtUpment 6F1X Furniture and FamiBbings 10.23, Totat , 12000.00 DEPARTMENT OF PUBLIC SERVICE OFFICE OF THE DIRECTOR Expense Persorml Service 7 A 1 Salaries Director (1) at f 4000 per yr. 4000.00 Secretary (1) at 1000 per yr. 1000.00 Bookkeeper (1) at 1200 per yr. 1200.00 6200.00 6200.00 Contractual Services 7 B 1 Communication 90.00 7B2 Contractual Repairs .". . 5.00 7 B 7 Traveling ; '. 4.00 7B8 Other 5.00 104.00 Supplies 7D8 Stationery 7S.00 7D9 Other 15.38 93.36 Capital Outlay Equipment 7F3X Machinery and Implements...^ 20.00 Total ., 6417.36 SAMPLE PAGES OF THE DAYTON BUDGET 263 BUREAU OF LANDS AND BUILDINGS Expense Peraotuil Service 26 A 1 Salaries JaDitor (1) at $802.80 per yr. Janitor (2) at 720.00 peryr. Janitor (2) at 600.00peryr. Janitor (2) J50, 7 mos. Janitress (2) 50, 7 mos. 26 A 2 Wages Carpenter 13.50, 326 days Carpenter 2.30, 326 days Painter 3.60, 60 days Plumber 4.40, 60 days Contractual Services 26 B 1 Communication 26 B 2 Contractual Repairs 26 B 4 Insurance 26 B 5 Public Utility Services, N. O. 8 26 B 7 Traveling 26 B 8 Other Sundry Charges 26 C 4 Imprest Cash 26 C 6 Refunds and Claims Supplies 26 D 1 Chemicals, Drugs and Medicines. , 26 D 2 Clothing, Dry Goods and Notions. 26 D 4 Forage 26 D 5 Fuel 26 D 6 Minor Instruments 26 D 7 Oils and Lubricants 2eD 8 Stationery 26 D 9 Other Materials 26 E 1 Lumber 26 E 2 Machine and Metal Materials. 26 E 3 Masonry 26 E 4 Paints, Oils and Glass 26 E 5 Other 802.80 1440.00 1200.00 700.00 700.00 4842.80 1141.00 815.00 216.00 264.00 2436.00 2.00 800,00 600.00 2500.00 45.00 7278.80 1295.00 6242.00 10.00 30.00 40.00 8.00 38.00 2.00' 270.00 222.00 8.00 95.00 208.00 8S1.00 1300.00 542.50 125.00 232.00 40.00 2439.60 Capital Outlay Equipment 26F1X Furniture and Furnishings 309.50 Total 16160.80 264 CITY MANAGER IN DAYTON BUREAU OF MOTOR VEHICLES Expense Perionai Benioe 27 A 1 Salaries Supervisor (1) at|1200peryT. Chief Meclianiciaii (1) at lOOOperyr. Night Watdunan (1) at 720 per yr. Stockkeeper (1) at 900 per yr. Chief Inspector ( 1) . . at 1000 per yr. Cost Clerk (1) . .at $720 peryr., 1 mo. 27 A 2 Wages Repairmen $3.25, 978 days Inspectors — Auto .... 2.50, 640 days Watchman 2.50, 60 days Contractual Services 27 B 1 Communication 27 B2 Contractual Repairs 27 B 4 Insurance 27 B.5 Public Utility Services, N. O. S 27 B 7 Traveling 1200.00 1000.00 720.00 900.00 1000.00 60.00 4880.00 3178.60 1600.00 I 150.00 4928.50 9808.50 66.00 1850.00 250.00 272.00 50.00 2488.00. Sundry Charges 27 C 4 Imprest Cash. 27D1 27D2 27D5 27D6 27D7 27D8 27D9 Supplies Chemicals, Drugs and Medicines. . Clothing, Dry Goods and Notions. Fuel Minor Instruments Oils and Lubricants Stationery Other Materials 27 G 1 Lumber 27 K 2 Machine and Metal Materials. 27 E 4 Paints, Oils and Glass 27B6 Other Capital Outlay 27 FIX Fnmitnre and Furnishings. 27F3X Machinery and Implements. 27F4X Motor Vehicles 10.00 80.80 33.00 138.00 469.00 9863.00 80.77 24.00 10698.@7 10.00 8000.00 60.00 7985.27 16045i!7 7.00 618.40 20.00 646.40 Total. „ 39695.74 INDEX Abattoir (see Meat inspection) Accounting, division of, 169 Allen, Dr. William H., 226 Amateur Baseball Commission, 86 Ambulance, city service, 100 Analysis, of food, water, etc. (see Laboratory) Annual report, of city commis- sion, 217 Ash and rubbish collection, 144 Assessments (see Special Assess- ments) Audit, continuous, 172 Banks, E. T., 12 Barlow, James E., 27, 48, 56 Baseball, recreation division, 86 Bice, C. E., 12 Bond budget, 178 campaign for, 54 Bond issue, deficiency, failure of, 186 voted upon, 178 Bond issues, for current opera- tion, 181 Bonded debt, 173 Bonds, municipal, method of is- sue, 182 Boulevard lighting, 183 Bridge, walk and levee mainte- nance, 153 Bridges, new, built, 131 Budget, municipal, 171, 184 preparation of, 52 public hearings on, 172 sample pages of, 243-264 exhibit, 217 Building code, 122 Building inspection, division of, 122 Bureau of Municipal Research, 7, IS, 16, 61, 117, 120, 123, 139, 216, 2271 26s Bureau Research — (Cont'd) activities of: budget procedure, 230 charities surveys, 237 city charter, 231 Civil Service Commission, 239 department of finance, 238 distribution of the tax rate, 239 division of building inspec- tion, 23s division of correction, 236 division of fire, 233 division of health, 235 division of police, 234 division of purchasing, 239 division of recreation, 237 division of streets, 233 division of water, 232 garbage removal, 232 legal aid bureau, 236 limiting expenditures, 229 municipal exhibit, 240 police and firemen's pension funds, 23s publicity, 240 reorganization of the gov- ernment, 232 discontinuance of, 228-9 endorsement by City Manager, 227 reports by, 241-2 Burkhart, E. E., 12 Campaign for new charter (see Charter campaign) Camps, recreation in, 86 Cappel, Fred, 12 Central Trades and Labor Coun- cil, 211 Chamber of Commerce, Com- mittee of, 6 Charities, public aid in, 90 266 INDEX Charter, city, agitation for, 7 effective Jan. i, 1914, 16 result of vote on, 14 Charter campaign, 14 Charter Commission, Committee on Final Preparation, 14 conduct of campaign for elec- tion of, II electing a, g framing of charter by, 13 organization of, 14 organization for election of, 11 personnel of, 12 pledge of candidates for, 9 result of election for, 12 Charter Primer, The, i — foot- note Citizen advisory commissions, 42 Citizens' Committee, 212 participation in 1917 election, 219 Citizen interest, evidences of, 226 necessity for, 225 City-county consolidation, solu- tion for financial problem, 187 City commission, annual report, 217 citizen advisers to, 42 installation of first, 16 not fully representative, 28 procedure of, 36-37 securing expert counsel, 24 size, discussion of, 21 City government, compared with a private business organi- zation, 20 City Hall, 166 City Manager, civic cooperation with, S3 duties of, 47 preparation of budget by, 52 relations with Civil Service Commission, 49 routine work of, 50 salary of, 46 selection of, 47 staff conferences. Si subject to recall, 46 City Manager plan, affords prop- er organization, methods and men, 29 contrasted with Mayor-Coun- cil plan: ash and rubbish collection, 144 ash and rubbish collection and street cleaning, 147 bridge, walk and levee main- tenance, 152 dog pound, 152 engineering, 128 garbage collection, 136 garbage disposal, 141 health work, 61 law department, 204 legislative body, 31 purchasing, 195 sewer maintenance, 133 street cleaning, 146 street lighting, 134 street repairs, 148 waterworks, 1S2-3 democracy of, 27 evidences of popular support, 44 organization and procedure of Commission, 103 reasons for its success, 30 (see Commission - Manager plan) City Market Board, 87 City Planning Board, 43 Civic cooperation, with City Manager, S3 Civic Music League, S3 Civil Service Commission, 39 prior to 1914, 40 Civil Service reform, former, in Safety Department, 96 Coal, purchase of, 196, 199 Comfort stations, public, 166 Commission-Manager form of (municipal) government, definition of, 7 — footnote Commission-Manager form, first suggestion of, for Dayton, 2 INDEX 267 Commission form of municipal government, definition of, 7 — footnote " Committee of 100," 8 Complaint bureau, 53 Correction, division of, 80 Correction farm, 82 Costs, of government (see Sta- tistics of cost) Country Club, Community, 88 County Budget Commission, 176, 207 Cox, Governor James M., 6, 13 Criminal identification, bureau of, 112 Current debt (see Floating debt) Current operation, revenue for, 184 Day labor, pay of (see Eight- Hour Day) Dayton Bureau of Research (see Bureau of Municipal Re- search) Dayton Reduction Co., 137, 142 Death rate, comparative, 63-64 Debt, bonded, 173 Deeds, Edward A., 7 Democratic party, candidates for Charter Commission, 10 participation in 1917 election, 219 Departmental organization, ad- vantages of, under City Manager plan over other plans, 22 Departmental organization, of city government, discus- sion of, 77 Dependent girls, home for, no Dog Pound, 152 Domestic Relations Court, no Door of Hope, 91 Educational Society of Police- men and Firemen, log, 120 Eight-hour day, for labor, 128 Election of 1917, 218 conduct of primary campaign, 219 cost of, 222 issue of final election, 221 issues of, 219 results of final election, 221 results of primary election, 221 Elliott, Fred W., 25 Employment Exchange, State- City, 94 Engineering, Division of, 127 notable achievements of, 129 Engineering News, 132 Expenditures, of a city of 150,- 000, 190 Expert counsel, popular objec- tions to, ungrounded, 26 securing of, 23 Federal form of government, modified, some arguments against, 8 definition of, 7 — footnote Federated Improvement Associ- ation, 2 Finance, Department of, 169 division of accounting, 169 division of purchasing, igr division of receipts and dis- bursements, 173 organization of, 169 Financial relief, for Ohio cities, campaign for, 187 proposed, 186-7 Fire, division of, 112 apparatus, 114 improved conditions for fire- men, 117 merit system, 121 motorized apparatus, 116 new type of station, 119 organization of, 114 pensions, 121 prevention bureau, lis records, 120 third-day-off plan, 118 training school for, 119 statistics, 115 268 INDEX Fire prevention, bureau of, lis Floating debt, increase during 1917-1918, 185 reduction of, 180, 184 Flood of 1913, I lesson of the, 12 Citizens' Relief Committee, 13 Flotron, John R., 16 Flushing of streets, 183 Folkerth, Chas. W., 12 Food establishments, inspection of, 72 Food inspection, bureau of, 67 Forester, city, 90 Garage, municipal, 167 Garbage, collection of, 136 disposal of, 141 disposal, prior to 1914, 142 Garbage reduction plant, 144 Gardens, backyard, 87 boys' and girls', 88 division of recreation, 87 school, 87 vacant lot, 87 Garland, Dr. D. Frank, 58 Gas, rates and service, 25, 207 Goethals, G. W., 48 Government, municipal, several types of, definitions of, 7 — footnote " Government by Deficit," 179 Greater Dayton Association, 42 Greenhouse, municipal, 90 Magenah & Erickson, 25 Harley, E. C, 7, 12 Harris, Mr., trafiic adviser, 25 Health, division of, 59 comparative costs, 63 medical inspection, 65 organization and personnel, 61 summary of accomplish- ments since 1914, 63 Health oflficer, resignation of, 75 Health program, things remain- ing to be done in, 79 Home Rule Amendment, to Ohio Constitution, 5 Hospital investigator, municipal, 92 Hospitals, city aid to, 91 " Hungarian Colony," sanitary conditions in, 77 Hunt, Henry T., 49 Indebtedness, municipal (see Bonded debt, Floating debt) Infant death rate, comparative, 64 Inspection of buildings, 122 James, Lee Warren, 12 Junior Police, 106 Kneisly, O. B., 12 Laboratory, city, 74 Lands and Buildings, Division of, 166 Law, Department of, 204 important cases, 206-7 prosecuting attorney, 208 Leach, Frederick W., 25 Legal Aid Bureau, 92 Levees (see Bridge, Walk and Levee Maintenance) Light. Dr. A. L., 75 Lighting, of boulevards, 183 McGee. John F., 12, 16 Mandel, Arch M., 240 Maps, storm sewer, 131 Markets, public, 166 Martin, Harry P., 49 Mayor, presides over Commis- sion, 31 Meat inspection, 71 Medical inspection, bureau of, 65 statistics of, 66 Mendenhall, A. I., 12, 16 Merit .system (see Civil Service Commission) Metcalf & Eddy, 24, 129, 130, 162 INDEX 269 Miami Conservancy District, 4.3, 129, 132, 17s Miami Valley Hospital, 91 Milk products, inspection of pro- duction and distribution of, 67 Milk tests, 69 Montgomery County Bar Asso- ciation, 92 Municipal government, general types of, definitions of, 7 — footnote Municipal lodging house, 83 National Board of Fire Under- writers, 121 National Cash Register Co., 88 National Safety First Commit- tee, 104 Neighborhood improvement as- sociations, 2, 42 Non-partisan candidates, in 1917 election, 220 Nursing, public (see Medical Inspection) Olmsted Bros., 26, 89 Operation, statistics (see Sta- tistics of operation) Opposition, to city government, 210 refutations of, 215' Organization, of municipal gov- ernment, Dayton, 21 Parks, division of, 89 area of, 89 recreation in, 86 Parole system, for workhouse prisoners, 81 Pasteurization, ordinance passed, Patterson, John H., i, 7, 8, 12, 13, 226 Paved streets, and alleys, miles of, 146 Pensions, firemen's, 121 police. III Playgrounds, 8S Playgrounds and Gardens Asso- ciation, 54, 59, 8s, 87 Police, division of, 97 cooperation with other de- partments, 108 crime prevention bureau, 106 discipline and removal, 103 getting into the service, 102 Junior Police, 106 measuring results, 99 organization of, 97 other evidences of progress, lOI records, 107 salaries, 103 securing central control, 98 traffic regulation, 104 training school for, 104 vice conditions, 105 pensions, iii Police station, need for modern, 112 Policewomen, no Politics vs. non-partisan govern- ment, 35 Pollard & Ellms, 24, 159 Population, of Dayton, i — foot- note Preferential voting, 28 Price agreements, purchases by, 197 Prison, municipal (see Work- house) Proportional Representation, 28 Prosecuting attorney, 208 Public comfort stations, 166 Public markets, 166 Public opinion, about the city government, 209 Public Safety, department of, 95 Public Service, department of, 127 Public Welfare, department of, 57 Publicity, periodic, about the city government, 216 Purchasing, division of, 191 reasons for economy, 194 storeroom, 200 270 INDEX Purchasing — (Continued) function, should be independ- ent, 192 Rauh, Leopold, 7, 12 Recall, applicable to city man- ager, 27 Receipts and disbursements, di- vision of, 173 Records, fire, 120 police, 107 Recreation, division of, 84 winter program, 89 Republican party, participation in 1917 election, 223 Responsibility, lack of, for re- sults, under Mayor-Coun- cil plan, 36 for results, under City Man- ager plan, 36 Revenue, for current operation, 184 Revenues, of a city of 150,000, 189 Rike, Frederick H., 7 Safety, department of, 95 a new order in, 97 Sanitation, bureau of, 73 Schantz, Adam, 45 Segregated district, elimination of, 105 Service, department of, 127 engineering division, 127 organization, 127 division of streets, 13S division of water, 152 Sewer maintenance, bureau of, 133 Sewer, sanitary, design for, 130 storm, design for, 129 maps, 131 Shroyer, Geo. W., 16 Smith One Per Cent Law, 4, 173 effect on Dayton's finances, 176 Socialist Party, candidates for Charter Commission, 10 favors modified Federal form of government, 8 Socialist Party — (Continued) objections of, 210 pamphlet opposing the city government, 210 participation in 1917 election, 219 Sparks, W. A., 12 Special assessments, for boule- vard lighting, 183 for current operation, 183 for street flushing, 183 for street oiling, 183 Staff conferences, 51 Statistics of costs : ash and rubbish removal, 144 bridge, walk and levee main- tenance, 152 dog pound, 152 engineering, 128 food inspection, 68 garbage collection, 136 garbage disposal plant, 141-2 law department, 204 legal aid, 93 outdoor relief, 91 sanitary inspections, 73 sewer maintenance, 133 street cleaning, 146 street lighting, 134 street lighting assessments, 184 street repairs, 148 street sprinkling assessments, 184 waterworks, 153, 165 Statistics of operation : abattoir inspections, 71 ash and rubbish removal, 144 building inspection, 125 civil service commission, 41 dairy and milk plant inspec- tion, 6g dog pound, 152 engineering, 128 fire, 115 fire prevention, 116 food inspection, 68 garbage collection, 140 gardens, 87 laboratory, 74 INDEX 271 Statistics — (Continued) legal aid, 93 medical inspection, 66 milk inspection, 70 outdoor relief, 91 playgrounds, 86 police, 99 policewomen, iii prosecuting attorney, 208 public health nursing, 67 purchasing, 193 purchasing coal, 196 sanitary inspections, 73 sewer maintenance, 133 street cleaning, 146 street repairs, 148 waterworks, 1S4 waterworks distribution -sys- tem, 158 St. Elizabeth Hospital, 91 Storeroom, central, established, 200 Street cleaning, 146 Streets, division of, 135 office of superintendent, 135 Street flushing, 183 Street lighting, 133 Street repairs, 148 by contract, 150 Streets, oiling of, 183 Switzer, J. M., 16 Taxation and finance, 173 Tax limits, law governing, 174 Tax rate, discussion of, 187 Topographical survey, 129 Tuberculosis Society, 54, 59, 62 Types of municipal government, three general, definitions of, 7 — footnote United Trades and Labor Coun- cil, 214 Upson, Dr. Lent D., i — foot- note Vice conditions, 105 Visiting Nurses Association, 54, 59, 62, 66 Vital statistics (see Death rate, Infant death rate) Waite, Henry M., 16, 24, 27, 48, S3. 54, 55, 75, 227 Walks, maintenance (see Bridge, Walk and Levee Mainte- nance) Water, Division of, 152 activities under way, 161 bureau of construction and maintenance, 157 bureau of pumping and sup- ply, 156 bureau of revenue collec- tion, iss costs, 163 distribution mains, 159 expenses, 164 metered service, 157 notable achievements since 1914, 154 organization of, 154 plans for future needs, 159 pumping capacity increased, 160 revenues, 163 water supply increased, 160 Weights and Measures, bureau of, 125 Welfare, Public, Department of, 57 office of the Director, 90 organization of, 58 provisions in charter rela- tive to, 57 purposes of, 58 Welfare, director, duties of, 57 " What is the tax rate? " 187" Wilson, Stephen E., 26, 143 Workhouse, contract labor in, 80 correction form, 82 parole system in, 81 Zehnder, J. B., 12 PBINTED IN THE TJNITBD STATES OF AMEMOA "THE following pages contain advertisements of a few of the Macmillan books on Icindred subjects: Property and Contract in Their Relation to the Distribution of Wealth By RICHARD T. ELY, Ph.D., LL.D. Of the University of Wisconsin; author of "Outlines of Economics," editor of " The Citizen's Library," etc. Cloth, 8°, 2 vol., $4.00 A Special Law Library edition, sheep, $7.50 " I am sure the great value of this monumental work will make itself felt more and more as those who study the sub- ject are compelled by the necessity of the case to make use of it. There is nothing else on the subject worth while talking about." — Roscoe Pound, Dean of the Faculty of Law, Harvard University. " A book to be read and pondered over by every econ- omist." — The New Statesman (London). 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