CORNELL 
 
 UNIVERSITY 
 
 LIBRARY 
 
 FROM 
 
 President Farrand 
 
Cornell University Library 
 JS812.A8 B95 
 
 City and County of Denver 
 
 olin 
 
 3 1924 030 538 825 
 
3S 
 
W s-vy\ \ -v"i a 
 
 CITY AND COUNTY OF DENVER 
 
 ""R-csjIoyV ovs a. s vorv<w of t-tr^alv) 
 
 Report on a Survey 
 
 of the 
 
 Department of Social Welfare 
 
 Prepared for 
 
 The Colorado Tax Payers Protective League 
 
 by the 
 
 Bureau of Municipal Research 
 New York 
 
 July 1914 
 
 COU KM l..L 
 UN IV t IU-11 Y 
 
 I 1-k-AkY' 
 
x: 
 
 ks--r 
 
 -S3- 
 
 4g>_ 
 
 ^ 
 
 f\bp6<j 
 
 b 
 
 J.'iJM p3 
 , YRAJi 1 I J 
 
SOCIAL WELFARE DEPARTMENT 
 
 Contents 
 
 Page 
 
 Summary of Recommendations 5 
 
 Part I — The Office of the Commissioner : 
 
 Organization 21 
 
 Part II— The Bureau of Health : 
 
 Organization 25 
 
 Control of Transmissible Diseases 29 
 
 City Physicians 39 
 
 Dispensary Service 41 
 
 Protection of Child Health 45 
 
 Laboratory Service 49 
 
 Milk Inspection 53 
 
 Meat and Other Food Inspection 57 
 
 Sanitary Inspection 60 
 
 Registration of Vital Statistics 68 
 
 Clerical Service and Filing System 71 
 
 Publicity 71 
 
 Part III — The Bureau of Charity and Correction : 
 
 Organization 75 
 
 Appropriations 77 
 
 The County Farm 78 
 
 Outdoor Relief 83 
 
 Municipal Lodging House and Employment Bureau 89 
 
 Municipal Coal and Wood Yard 93 
 
 Detention Home 95 
 
 Part IV — Hospitals : 
 
 Steele Hospital 101 
 
 Sand Creek Hospital 108 
 
 The City and County Hospital 109 
 
 Part V— The Office of the Market Master 123 
 
 Part VI— The Office of the Pound Master ,. . . 127 
 
 PART VII— The Office of the Coroner : 
 
 Organization 131 
 
 Procedure 134 
 
 Records and Reports 142 
 
 Charts. 
 
Cornell University 
 Library 
 
 The original of this book is in 
 the Cornell University Library. 
 
 There are no known copyright restrictions in 
 the United States on the use of the text. 
 
 http://www.archive.org/details/cu31924030538825 
 
ERRATA 
 
 Since the Survey was made and the Survey Reports printed, our attention 
 has been called to the fact that the portion of the Survey Report dealing with 
 the Relief under the Mothers' Compensation Act should be modified, and in 
 accordance with the request of the New York Bureau of Municipal Research the 
 following corrections are made: 
 
 Corrections 
 
 Recommendation Number 17 on Page 13, reading as follows, should be 
 omitted : 
 
 "That so long as the appropriation provided for mothers' compensation 
 is under the control of the juvenile court, the juvenile court take 
 over altogether the investigation of applications for relief of this 
 nature, and so eliminate unnecessary duplication of work." 
 
 In place of the Section entitled "Division of Authority in Administration of 
 Mothers' Compensation Should be Avoided," on Pages 86 and 87, the following 
 section should be substituted, viz: — 
 
 "Relief Under the Mothers' Compensation Act 
 
 Appropriations for this purpose are made to the county poor 
 authorities as provided by law. The law states also that the county 
 poor authorities are required to pay the parent or parents or other per- 
 son designated by the court such sum as the court may determine or 
 its equivalent in supplies and assistance. Regarding the investigation 
 of the circumstances of persons applying for aid under the act, the law 
 states : 
 
 'The Juvenile Court *************** shall appoint proper persons 
 for the purpose of investigation, visitation, keeping of records and the 
 making of reports in cases requiring relief under this act'. 
 
 By courtesy of the Juvenile Court, the investigation and subse- 
 quent supervision of recipients of such aid has been placed in the 
 hands of the Division of Outdoor Relief of the Bureau of Charity and 
 Correction which makes recommendations to the court as to the 
 amount needed in each case. Although the court is not bound by law 
 to accept these recommendations, no friction has thus far arisen be- 
 tween the court and the poor authorities and the present procedure is 
 said by the executive secretary of the Bureau of Charity and Correc- 
 tion to be eminently satisfactory to all concerned." 
 
 \J 
 
 The Survey was made in the spring of 1914. Since that time, a number of 
 the recommendations contained herein have been put into effect by the variou 
 officials. 
 
SOCIAL WELFARE DEPARTMENT 5 
 
 SUMMARY OF RECOMMENDATIONS 
 
 The following is a summary of recommendations : 
 
 THE OFFICE OF THE COMMISSIONER 
 
 1 — That the various branches of service under the direction of 
 the commissioner of social welfare should be known as 
 bureas — as the bureau of health instead of the department 
 of health, and the bureau of charity and correction instead 
 of the commission of charity and correction. 
 
 2 — That the heads of the various bureaus should be required to 
 submit to the commissioner written daily reports of all 
 activities under their direction. 
 
 THE BUREAU OF HEALTH 
 Organization 
 
 1 — That a full-time, technically trained health officer be em- 
 ployed at a salary of $3,600 to' $4,000 per year, examinations 
 for this position to be open to any qualified candidate re- 
 gardless of residence. 
 
 2 — That no increased appropriations be made until an efficient 
 organization has been secured. 
 
 Control of Transmissible Diseases 
 
 3 — That a new ordinance governing the reporting of diseases dan- 
 gerous to public health be passed, this ordinance to require 
 written notification of such diseases by physicians within 
 24 hours. 
 
 4 — That the bureau of health should begin at once to require noti- 
 fication of cases of tuberculosis and inaugurate an active 
 campaign for its supervision and control. ♦ 
 
 5 — That opthalmia neonatorum, a communicable disease, produc- 
 ing blindness in babies, be reported to the bureau of health, 
 and that thorough investigation be made of all cases. 
 
 6 — That efforts be made to secure registration of cases of vener- 
 eal disease in order that those measures best calculated to 
 prevent its spread may be put into effect. 
 
 7 — That more thorough investigation of the sources of typhoid 
 fever and complete detailed records of such investigation 
 be required. 
 
 8 — That the vaccination law, which is now a dead letter, be en- 
 forced. 
 
6 DENVER 
 
 The increase of smallpox cases from 48 in 1912 to 100 in 
 1913 shows conclusively the need for the enforcement of the 
 law. 
 
 9— That the bureau of health provide stations throughout the city 
 where diptheria culture tubes, silver nitrate outfits, outfits 
 for taking blood specimens, etc., may be obtained by physi- 
 cians, and that collection of specimens for laboratory exam- 
 ination be made by policemen. 
 
 10 — That special card records be kept of all eases of communicable 
 disease and that several pin charts or maps be kept daily to 
 date showing the locations of all notifiable diseases. 
 
 11 — That the regulations of the bureau of health regarding the 
 bureau of health be amended to state specifically that quar- 
 antine begins on the date the disease is reported and not on 
 "date of sickness" as now required. 
 
 12 — That the physicians of the bureau of health personally see all 
 persons quarantined for disease before release from quaran- 
 tine is allowed. 
 
 14 — That placards be removed from houses under quarantine only 
 by a representative of the bureau of health and that the 
 present practice of allowing householders to remove plac- 
 ards be discontinued. 
 
 15 — That improved records of disinfection be kept in order that 
 the efficiency of disinfection procedure may be estimated 
 and in order that the bureau of health may determine in 
 what cases disinfection procedure may be modified or dis- 
 continued altogether. 
 
 16 — That the salaries of lay quarantine officers be reduced from 
 $1,500 to $1,200 a year. 
 
 Two quarantine inspectors at $1,200 provided with a 
 small automobile could easily do all the work now done by 
 four at a saving of over $1,000 a year. 
 
 City Physicians 
 
 17 — That in view of the fact that the establishment of the city dis- 
 pensary has greatly reduced the amount of work required 
 of the city physicians, they should be required to do more 
 work in the investigation of suspected cases of disease and 
 inspection for quarantine release. 
 
 18— That city physicians, who are paid $1,380 each for part-time 
 service, be required to render complete and detailed daily 
 reports of the time spent in city service. 
 
 Dispensary Service 
 
 19— That pupil nurses from the city and county hospital be used 
 regularly in dispensary work, and that service in the city 
 dispensary be made a part of their training. 
 
SOCIAL WELFARE DEPARTMENT 7 
 
 20 — That at least two additional paid nurses be employed in the 
 dispensary at salaries of at least $75 per month each, one 
 nurse to take up home visiting and care of tuberculous 
 patients and the other to do special work in the prevention 
 and reduction of infant mortality. 
 
 21 — That the dispensary, which is open only an hour a day from 
 12:30 to 1:30 p. m. endeavor to increase its service by 
 having a late afternoon hour from 5 to 6 p. m., or an even- 
 ing hour from 7 to 8 p. m., and that if additional medical 
 service is required an extra staff of clinic physicians be 
 appointed. 
 
 22 — That laboratory work for the dispensary, which is now per- 
 formed by the city chemist, be delegated to the city bac- 
 teriologist. 
 
 23 — That the removal of the offices of the police surgeons from 
 the building occupied by the dispensary would increase dis- 
 pensary waiting room facilities which are now entirely in- 
 adequate. 
 
 24 — That time and service records be required of the secretary of 
 the dispensary in order that the time which he spends in the 
 city service may be balanced against the salary paid. 
 
 25 — That the appropriation of $2,000 for 1914 is insufficient to pay 
 the salaries of present employees in the dispensary. For the 
 provision of the present, and additional dispensary service 
 recommended, $4,080 is needed. 
 
 Protection of Child Health 
 
 26 — That Denver's infant mortality, which is higher than that of 
 many cities in the same class, be reduced in 1914 by an 
 active campaign for saving babies' lives. Out of every 
 1,000 babies born in Denver in 1913, 111 died during the 
 first year of life. 
 
 27 — That, in addition to the child welfare service recommended for 
 the city dispensary, midwives be registered and supervised 
 by the bureau of health, day nurseries and infants' homes 
 be supervised and inspected; and that co-operation with 
 schools, churches, fraternal orders, commercial organiza- 
 tions, etc., be sought in an educational program for the 
 health of children. 
 
 Laboratory Service 
 
 28 — That the bacteriological laboratory be required to make ex- 
 aminations of sputum and blood from suspected typhoid 
 cases and other examinations necessary for the registration 
 
8 DENVER 
 
 and control of diseases. At present the bacteriologist of 
 the bureau of health limits his work to the examination of 
 diphtheria cultures although the services of the bacteriol- 
 ogist and his two assistants cost the city $4,320 a year. 
 
 29— That the bacteriological and chemical laboratory be combined 
 and that a full time bacteriologist be employed at a salary 
 of $2,400' a year, a city chemist at $1,500 a year, and two 
 laboratory assistants at $900 a year each. 
 
 This would give more and better service than under the 
 present two laboratory plants, and would cost $120 a year 
 less. 
 
 30 — That so long as part-time laboratory service is continued, com- 
 plete detailed time and service records should be required. 
 
 31 — That improved laboratory records be kept showing the follow- 
 ing facts regarding each specimen examined, material ex- 
 amined, from whom taken, by whom submitted and date 
 submitted, date examined, findings, date reported and 
 remarks. 
 
 Milk Inspection 
 
 32 — That the score card used for the inspection of milk stores be 
 revised so as to require more detailed information regard- 
 ing the sanitary conditions surrounding the handling and 
 dispensing of milk. 
 
 33 — That records of inspection of milk show in all cases what con- 
 ditions were found, what orders given, reinspections made, 
 and in what respect orders were complied with. 
 
 34 — That milk shipments into the city be so tagged with the 
 shipper's name and date of shipment that when investiga- 
 tion of contaminated shipments may be necessary all the 
 facts regarding each shipment may be obtained from an 
 examination of tags, which the dealer should be required to 
 keep on file. 
 
 35 — Eight milk stores were found to be operating without license 
 at the time of this study, although dealers had been ordered 
 to secure licenses at least three months before. The bureau 
 of health should enforce to the letter its regulations requir- 
 ing licensing of milk stores. 
 
 36 — That the ordinance governing country dairies be enforced. 
 Out of 128 country dairies inspected 75, or 59 per cent, were 
 found to score below 65. 
 
 37 — That the records of bacteriological analyses of milk samples 
 which show dangerous contamination of Denver's milk 
 supply, indicate the need for an ordinance fixing a max- 
 imum bacterial standard of 500,000 per cc. 
 
SOCIAL WELFARE DEPARTMENT 9 
 
 38 — That the bureau of health keep for the information of con- 
 sumers a list of various milk supplies and their rating as 
 indicated by dairy scores and chemical and bacteriological 
 analyses of their product and that it publish these facts in 
 the daily press. 
 
 39 — That in view of the statements of the chief meat inspector in 
 his last annual report that 90% of all cattle retained at city 
 slaughter houses on account of tuberculosis were dairy 
 cattle, the need for an ordinance requiring tuberculin test- 
 ing of dairy cattle is plain. Milk from tuberculous cattle is 
 especially dangerous to infants. 
 
 40 — That inspection of ice cream plants, which are now entirely 
 unsupervised, be required and an ordinance be passed re- 
 quiring definite standards in the manufacture and handling 
 of iee cream. 
 
 41 — That the present staff of milk inspectors, although inadequate 
 to inspect properly the 162 retail producers, the 240 whole- 
 salers and 463 retail milk stores, should not be increased 
 until higher standards of efficiency in milk inspection are 
 required and maintained. 
 
 Meat and Other Food Inspection 
 
 42 — That the service rendered by the chief meat inspector and his 
 staff, though carefully and efficiently performed, would in 
 all probability be improved by the adoption of score cards 
 for slaughter houses and the maintenance of individual 
 records of all food stores under supervision by meat in- 
 spectors. 
 
 43 — That all food stores inspected be graded according to the find- 
 ings on inspection, and that the efforts of the bureau of 
 health be concentrated on those places which are of low 
 grade. 
 
 This would reduce the amount of work needed and fur- 
 nish better records of service. 
 
 44 — That three of the present staff of meat inspectors be detailed 
 to regular inspection and sanitary control of bakeries, con- 
 fectionery stores, butcher shops, and other places where 
 food is sold at retail. 
 
 45 — That milk inspectors be required to make complete sanitary 
 inspections of retail stores in order that it may not be neces- 
 sary for other food inspectors to visit these places. 
 Duplication of inspection may be thus prevented. 
 
 46 — That publicity of facts regarding foods, the methods of adult- 
 eration, ways in which they may be contaminated and how 
 to avoid food dangers would be an effective aid in improv- 
 ing food inspection and enlisting the cooperation of citizens. 
 
10 DENVER 
 
 Sanitary Inspection. 
 
 47 — That records of sanitary inspection, which are entirely inade- 
 quate, be improved by requiring field inspectors to furnish 
 detailed reports of service— showing exactly where they 
 went, the time spent on duty, and results accomplished. 
 
 48 — That the chief inspector, who spends practically the entire 
 day in the office, would be of more service in the field 
 supervising the work of inspectors. 
 
 49 — That the inspection of street lighting, which is now performed 
 by the chief sanitary inspector, is not a health function and 
 it should be turned over to the department of improvements. 
 
 50 — That the office of assistant desk man be abolished. His service 
 is wholly clerical and not only was he idle the greater part 
 of the day, but was unable to handle expeditiously the small 
 amount of clerical work required. To detail a sanitary in- 
 spector at $90 a month to work which could be performed 
 by a $12 a week clerk is extravagance. 
 
 51 — That waste of time by field inspectors, who now spend a great 
 part of the forenoon lounging in the office before going into 
 the field, be prevented by having definite assignments for 
 field inspectors prepared on the night before. 
 
 52 — That the $1,200 per year now spent for hire of horses for 
 mounted sanitary inspectors be used in child welfare work 
 and milk or other food inspection. 
 
 53 — That complaint records be designed to show date of complaint, 
 name and address of complainant, nature and location of 
 complaint, by whom investigated, findings and action taken. 
 
 54 — That policemen be required to exercise sanitary control over 
 their respective beats and to report violations to the proper 
 authorities. 
 
 55 — That if the records of the sanitary inspection of hotels and 
 restaurants are to be a factor in control of hotels and restau- 
 rants they should be more carefully made. The fact that 
 57, or 47 per cent, of the 120 places inspected scored above 
 90 at the first inspection means nothing except that the 
 work was not well performed. 
 
 56 — That the hotel and restaurant inspector he required to account 
 for the time spent on duty by daily time and service records. 
 
 57 — That only three of the present force of seven dump guards be 
 retained thus effecting a saving of $3,360 a year. 
 
 Registration of Vital Statistics 
 
 58 — That an effort be made to improve birth registration because 
 of its importance to the citizen and to the health bureau. 
 
SOCIAL WELFARE DEPARTMENT 11 
 
 59 — That registration of births be required within 24 hours. The 
 city ordinance regarding reporting of births allows the 
 attending physician or midwife ten days in which to report 
 births. The state law requires physicians and midwives to 
 render to the bureau of health a statement of births attend- 
 ed by them, at the close of each month or within five days 
 thereafter. In either case too much time is allowed. 
 
 60 — Tha-t a certified copy of each birth certificate be mailed to 
 parents free of charge. 
 
 61 — That the bureau of health publish each week in the daily press 
 a statement of births reported. 
 
 62 — That visiting nurses, physicians, inspectors and others be re- 
 quired to find out on their visits the names of children 
 under five years of age and that these names be checked 
 against the records on file. 
 
 63 — That death certificates of children under one or two years of 
 age be checked against birth records to see whether births 
 have been reported. 
 
 64 — That births and deaths be tabulated by wards in order that 
 the health officer may know where the efforts of his staff 
 are most needed and may be most effectively applied. 
 
 Clerical Service and Record-Keeping 
 
 65 — That the chief clerk be made responsible for the filing and 
 proper keeping of all records; that chief inspectors and 
 others be not allowed to keep the reports of their own in- 
 spections in their own desks but turn them over to the chief 
 clerk for filing; that no one be allowed to remove records 
 from the file without requisition upon the chief clerk; and 
 that no record be removed from the file without a receipt 
 from the person so removing it. 
 
 Publicity 
 
 66 — That an attempt be made to arouse citizen interest and co- 
 operation through educational publicity; news articles of 
 timely interest, special bulletins on fly and mosquito 
 nuisance, prevention of disease, milk inspection, infant mor- 
 tality, etc., lectures, moving picture shows, a weekly or 
 monthly health bulletin in the periodical, "The City of 
 Denver," and an annual report containing information of 
 interest to citizens and not simply statistical data. 
 
j 2 DENVER 
 
 THE BUREAU OF CHARITY AND CORRECTION 
 
 Organization 
 
 1 — That the administration of the bureau of charity and correc- 
 tion would be improved by placing all the administrative 
 control in the hands of a chief responsible only to the com- 
 missioner, so that the present effective plan of administra- 
 tion may be perpetuated. 
 
 If a lay advisory board is deemed necessary, the chief of 
 the bureau of charity and correction should be empowered 
 to appoint such a board but such a lay board should be with- 
 out administrative functions. 
 
 Appropriations 
 
 2 — That cost figures in the various institutions under the direc- 
 tion of the bureau should be placed on a comparable basis 
 through the adoption of similar methods of determining 
 costs. This information is valuable if properly determined 
 as indicating where the need for economy may be. 
 
 The County Farm 
 
 3 — That overcrowding in the male wards at the county farm be 
 eliminated, and that the city take steps at once to provide 
 proper accommodations for all its charges. 
 
 4 — That there should be at least three more paid attendants for 
 service in the care of men. 
 
 The number of attendants at the county farm is inade- 
 quate as there is only one attendant for 129 men and one 
 for 17 women. 
 
 5 — That an effort be made to keep toilets scrupulously clean. 
 
 6 — That roller towels which are in common use at the county 
 farm are a menace to health and should be abolished. 
 
 7 — That clothing and personal effects of inmates be fumigated or 
 sterilized. 
 
 8 — That physical and mental examinations be provided for in- 
 mates in order to determine their ability to work. 
 
 9— That improved records of the care of tuberculosis patients be 
 kept in order that the efficiency of this service may be 
 determined. 
 
 10— That the register of inmates could be improved by keeping an 
 individual record of each inmate by means of a card register 
 giving all the information needed regarding the individual's 
 course in the institution. 
 
SOCIAL WELFARE DEPARTMENT 13 
 
 11 — That improved methods of transporting aged and infirm per- 
 sons to the almshouse be provided. 
 
 Police ambulances could be made use of for this purpose 
 provided the police surgeons are discontinued. 
 
 12 — That all inmates able to work be provided with employment 
 suited to their physical ability, such as cleaning, mending, 
 painting, garden work, watering or trimming lawns and 
 paths, repairing buildings, walks, furniture, etc. 
 
 13 — That the cost of conducting the farm be reduced during the 
 coming year by wider cultivation of land for food purposes. 
 Enough vegetables, eggs, milk, butter, etc., should be pro- 
 duced on the farm to supply all its own needs and many of 
 the needs of the Steele hospital and city and county hospital. 
 
 14— That stores records be kept in order that it may be possible to 
 determine at any time the exact condition of stores and the 
 daily consumption of food by inmates. 
 
 Outdoor Belief 
 
 15 — That improved records of cash relief given be adopted in 
 order that there may be a positive check upon the way in 
 which cash is used. 
 
 16 — That the practice of furnishing a secret liquor "cure" at $20 
 per course of treatment to intemperate applicants for relief 
 be discontinued unless given under the direction of one of 
 the city physicians. 
 
 17 — That so long as the appropriation provided for mothers' com- 
 pensation is under the control of the juvenile court, the 
 juvenile court take over altogether the investigation of ap- 
 plications for relief of this nature, and so eliminate unneces- 
 sary duplication of work. 
 
 18 — That daily reports of employees of the division of outdoor 
 relief should show not only total time spent in service and 
 number of visits made, but also where visits were made and 
 time spent at each place visited. 
 
 Municipal Lodging House and Employment Bureau 
 
 19 — That the municipal lodging house could be greatly improved 
 by the removal of partitions between small rooms, making 
 large single dormitdries. This would improve ventilation 
 and allow better enforcement of regulations governing the 
 conduct of lodgers. 
 
 20 — That toilet rooms and bathrooms, which are now separate, be 
 combined by removal of partitions to provide increased 
 lighting space and better ventilation. 
 
14 DENVER 
 
 21— That new lodgers be examined each night by one of the city 
 physicians in order that any lodger with infectious disease 
 may be isolated and given proper treatment. 
 
 22— That all persons admitted to the municipal lodging house be 
 vaccinated unless able to show satisfactory evidence of a 
 previous vaccination, in view of the statements of the health 
 officer that the majority of smallpox cases are brought to 
 Denver from without. 
 
 23— That fumigation of lodgers' clothes be performed not with 
 the clothes tied up in bundles, but hung upon clothes hang- 
 ers, so that there may be no doubt as to the effectiveness 
 of the disinfecting process. 
 
 24 — That lodgers be required to turn over all matches and smok- 
 ing materials and that they be prohibited from smoking in 
 the building at any time. 
 
 25— That an attempt be made to establish co-operative relations 
 between the municipal employment bureau and the state 
 employment bureau. 
 
 26 — That improved daily reports from the keeper of the lodging 
 house be required by the executive secretary, these reports 
 to show daily attendance and number of meals served, num- 
 ber of lodgers given temporary employment, number given 
 permanent employment, etc. 
 
 Municipal Coal and Wood Yard 
 
 27 — That the efficiency of the night watchman at the coal and 
 wood yard would doubtless be increased by denying him 
 the luxury of a bed in the superintendent 's office. 
 
 Detention Home 
 
 28 — That the superintendent of the detention home be appointed 
 by the commissioner of social welfare and made directly 
 responsible to the chief officer of the bureau of charity and 
 correction, on account of the friction between the super- 
 intendent of the detention home, who is an appointee of the 
 judge of the juvenile court, and the bureau of charity and 
 correction, which is responsible for the administration of 
 the home. 
 
 29 — That the provision of a cook at the detention home at a salary 
 of $480 a year be abolished as unnecessary. 
 
 The superintendent receives $1,200 a year and complete 
 maintenance for himself, wife and daughter. This is an 
 ample salary provision and should cover all service required. 
 
 30 — That in place of the faulty registration methods now em- 
 ployed, a duplicating form be used, the first copy to be 
 
SOCIAL WELFARE DEPARTMENT 15 
 
 given as a receipt to the officer who brings the child to the 
 home, and the duplicate to be kept as the permanent record. 
 
 31 — That comparison of meal cost figures at the detention home 
 with those of other city institutions indicates the need for 
 economy at the detention home. 
 
 The average cost per meal at the detention home is nearly 
 twice that of the Steele Hospital, the municipal lodging 
 house and the city and county hospital. 
 
 32 — That physical and mental examinations should be one of the 
 preliminary steps in the treatment of juvenile offenders, 
 since physical and mental defects are prime causes of tru- 
 ancy, waywardness and incorrigibility. 
 
16 DENVER 
 
 HOSPITALS 
 
 The Steele Hospital 
 
 l_That use be made of pupil nurses from the training school at 
 the city and county hospital instead of paid graduate nurses 
 in the Steele hospital. Pupil nurses with a year's training 
 should be competent to do this work under the direction of 
 the graduate nurses. 
 
 2 — That a card register of cases be used instead of the book regis- 
 ter now employed, this card history to contain the record in 
 brief of the case and a reference by number to the original 
 history charts. 
 
 3 — That history charts of discharged patients be properly filed 
 and not rolled up and thrown in a pile in a basement room. 
 
 4 — That physical examinations be required of all cases within 
 24 hours after admission. This is important for the attend- 
 ing physician in prescribing treatment and is also a protec- 
 tion to the hospital against charges of maltreatment or 
 neglect. 
 
 5 — That improved monthly reports should show the numbers of 
 cases of and deaths from each disease, cost of service, and 
 average daily cost, together with recommendations of the 
 head nurse or superintendent -regarding method of improv- 
 ing service. 
 
 6 — That physicians whose private patients are cared for at the 
 Steele hospital be required to charge those patients only 
 according to a maximum rate to be fixed by the commis- 
 sioner of social welfare. 
 
 7 — That a detention ward is needed where suspected cases may 
 be held for observation, as recommended by the deputy 
 health commissioner in his annual report. 
 
 8 — That a place be provided at the city and county hospital where 
 insane patients may be cared for and given the opportunity 
 to get rid of diphtheria bacilli by an abundance of fresh 
 air and sunlight. 
 
 9 — That ambulance service could be improved by the provision of 
 a city-owned ambulance for use by the Steele hospital and 
 by requiring a physieian or nurse to accompany the ambu- 
 lance on each trip. 
 
 10 — That better facilities for the disposal of waste are needed. One 
 or two small incinerators installed in the basement of the 
 hospital would obviate the present practice of burning 
 waste on a dump near the building, in direct violation of 
 the municipal code. 
 
SOCIAL WELFARE DEPARTMENT 17 
 
 11 — That salaries of employees at the Steele hospital be readjusted 
 to conform to fixed salaries usually paid for such work. 
 
 12— That stores records showing daily receipt, disbursement and 
 consumption of supplies be kept. 
 
 Sand Greek Hospital 
 
 13 — That the Sand Creek hospital building- either be put in good 
 repair and furnished with proper facilities for the care of 
 smallpox patients or abandoned and a separate ward for 
 smallpox cases be provided at the Steele hospital, where it 
 would be easily accessible to patients and physicians. 
 
 The City and County Hospital 
 
 14 — That a full-time trained hospital superintendent be employed 
 at from $2,400 to $3,000 a year and maintenance. 
 
 15 — That the number of internes be increased from 12 to 16 and 
 that the term of service be increased from 20 months to 
 two years. 
 
 16 — That a paid house physician at $1,200 is unnecessary, provided 
 a full-time, trained superintendent is secured. 
 
 17 — That internes serving their last few months in service should 
 be designated as house physicians, as is the practice in most 
 large hospitals. 
 
 18 — That better quarters be provided for physicians, if possible on 
 . the upper floor of the hospital. 
 
 19 — That there should be about 15 night nurses and from 45 to 50 
 day nurses. The nursing staff is inadequate and there are 
 too few night nurses, particularly since there is almost an 
 entire lack of fire protection. 
 
 20 — That better quarters should be provided for present nurses, 
 whether the number of nurses is increased or not. 
 
 21 — That the social service worker, who is paid $1,200 a year, be 
 relieved of clerical work in the office of the superintendent 
 and assigned to social service work in the homes of patients. 
 and that a clerk be secured at a clerical rate of pay. 
 
 22 — That the salaries paid service employees should be reduced in 
 many instances. 
 
 23 — That an attempt be made to enforce discipline, order and 
 cleanliness and to enforce the rules regarding smoking. 
 
 24 — That the general equipment of the hospital be improved by 
 the installation of elevators, a room for the disinfection and 
 
18 DENVER 
 
 sterilization of patients' garments, an operating room for 
 infectious cases, a new X-ray apparatus, and improved 
 kitchen and laundry equipment. 
 
 25— That the city and county hospital ambulances be required to 
 perform all city work and ambulance service by the police 
 be discontinued. 
 
 26 — That better records of ambulance service be kept as the pres- 
 ent records are incompletely and carelessly made out and 
 give practically no information regarding the work per- 
 formed. 
 
 27 — That a waiting room is needed on the ground floor of the 
 hospital. 
 
 28 — That all children be kept in a detention ward until it has been 
 
 ascertained that they are free from communicable disease. 
 
 That the regular children's ward should be in charge of 
 
 nurses specially detailed to this ward and at no time should 
 
 children be left alone for several hours as at present. 
 
 29 — That until the city of Denver is able to have these insane per- 
 sons transferred to a state institution, an alienist and a 
 special staff of internes should be placed in charge of the 
 insane pavilion. 
 
 30 — That it would be an economy and a measure of great value in 
 the improvement of the health of convalescents if facilities 
 could be provided for convalescing indigents at the county 
 farm. 
 
 31 — That the checks upon the methods of caring for the property 
 of patients at the city and county hospital be such as to 
 prevent any abuse of this function, which is now largely 
 delegated to a single attendant. 
 
 32 — That a card registry of patients be used instead of the cum- 
 bersome book now in use. 
 
 33 — That a complete record of the physical condition of the patient 
 on admission be kept. Case history charts are badly kept, 
 although these records are of great value to the attending 
 physician or surgeon in outlining treatment. 
 
 34 — That stores records be kept at the city and county hospital 
 in order that it may be possible for the superintendent or 
 bureau chief to determine where stores are going and in 
 what way they are being used. 
 
SOCIAL WELFARE DEPARTMENT 19 
 
 THE OFFICE OF THE MARKET MASTER 
 
 1 — That the question of removing the markets to a more favor- 
 able and more easily accessible site be .carefully considered 
 before money is spent on repairing buildings at the city 
 market, which are in an unsanitary and dilapidated condi- 
 tion. 
 
 2 — That the inspector who is employed regularly in addition to 
 the market master be dispensed with and that such inspec- 
 tion as the market master is unable to give be provided by 
 the sanitary inspector of the bureau of health. 
 
 3 — That time and service records be required of the market mas- 
 ter and his assistant. 
 
 THE OFFICE OF THE POUND MASTER 
 
 1 — That more complete records of the services of the pound mas- 
 ter be kept, showing how many dogs were received, how 
 many sold, the receipts from sales, how many were released 
 by order from the auditor, how many were destroyed and 
 the way in which they were disposed of. 
 
2u DENVER 
 
 THE OFFICE OF THE CORONER 
 
 Procedure 
 
 1— That the office of coroner be abolished and the duty of in- 
 vestigating sudden deaths be transferred to the office of 
 the district attorney, and the duty of performing autopsies 
 be transferred either to the bureau of health or to the city 
 and county hospital. 
 
 2 — That a morgue be established at the city and county hospital. 
 
 3 — That the procedure of the office be radically changed pending 
 the abolition of the office by statute. 
 
 4 — That the coroner be required to supervise the work of the 
 office and conduct all investigations himself. 
 
 5 — That all commercial aspects of the office, such as maintaining 
 it in conjunction with an undertaking establishment, be re- 
 moved. 
 
 6 — That neither the coroner nor any other city employee be per- 
 mitted to have any commercial interest in connection with 
 the performance of the duties of the office. 
 
 7 — That coroner's juries be drawn from a regular panel. 
 
 8 — That nobody be searched except in the presence of witnesses 
 and that a detailed statement of property removed be made 
 in the pedigree book. 
 
 9 — That no property found upon a dead human body be delivered 
 to relatives except upon an order from the public admin- 
 istrator or upon presentation of letter of administration. 
 
 10 — That unclaimed property be delivered to the public adminis- 
 trator, without regard to the amount involved. 
 
 11 — That bodies should not be removed until viewed by the 
 coroner. 
 
 Records and Reports 
 
 12 — That .a proper system of records and reports should be in- 
 stalled. 
 
SOCIAL WELFARE DEPARTMENT 21 
 
 REPORT ON A SURVEY OF THE 
 
 DEPARTMENT OF SOCIAL 
 
 WELFARE 
 
 Part I — The Office of the Commissioner 
 
SOCIAL WELFARE DEPARTMENT 23 
 
 REPORT ON A SURVEY OF THE DEPARTMENT OF SOCIAL 
 
 WELFARE. 
 
 PART I.— THE OFFICE OF THE COMMISSIONER. 
 ORGANIZATION. 
 
 Commissioner of Social Welfare the Administrative Head 
 
 The department of social welfare is under the direction of a com- 
 missioner. It includes the department of health, the commission of 
 charity and correction, the library commission, the county coroner, the 
 county superintendent of schools, the market master and the pound 
 master. 
 
 The names of the various subdivisions of this department show a 
 confusion of nomenclature which in itself indicates a confusion in or- 
 ganization. In this report the term "department" will be applied only 
 to the department of social welfare, and the department of health and 
 the commission of charity and correction will be referred to as 
 "bureaus." 
 
 Commissioner and Staff 
 
 The commissioner is also ex-officio the head of each of the various 
 branches of the department. The present commissioner is a practicing 
 physician who devotes the greater part of his time to his duties as 
 commissioner, although he continues to some extent his private prac- 
 tice. He receives a salary of $5,000 per year and has as assistants in 
 his office a secretary at $2,400 and a stenographer at $1,320 per year. 
 Improved Administrative Control Needed 
 
 The commissioner obtains his information regarding the work of 
 the various branches of service through personal investigation or con- 
 ference with subordinate officers. No daily reports are received, and it 
 is, therefore, impossible for the commissioner to know what is being 
 done without personal investigation or conference. The head of each 
 bureau or branch of the department should be required to submit a 
 daily report of the activities for which he is responsible. With such 
 reports in hand much time would be saved the commissioner and better 
 administrative control would be the result. He would be able to tell 
 at a glance, by a review of these reports, exactly what is accomplished 
 each day, and matters needing his personal attention could be more 
 promptly attended to. 
 
24 DENVER 
 
 Part II— The Bureau of Health 
 
SOCIAL WELFARE DEPARTMENT 25 
 
 PART II— THE BUEEAU OF" HEALTH. 
 ORGANIZATION. 
 
 Deputy Commissioner the Executive Head 
 
 The bureau of health comprises not only that part of the health 
 service which is designated officially as "office and inspection," but 
 also the supervision of the Steele Hospital for contagious diseases, the 
 Sand Creek Hospital for smallpox, the city and county hospital and 
 the city dispensary. The commissioner of social welfare has appointed 
 a deputy commissioner of health, so-called, who is charged with the 
 supervision of all health service. The deputy commissioner of health 
 also acts as superintendent of the Steele Hospital for contagious dis- 
 eases and as attending physician at the Sand Creek Hospital. He exer- 
 cises only nominal supervision over the city and county hospital, which 
 has its own superintendent, and he does not personally supervise the 
 work of the city dispensary, which has a secretary in charge. 
 
 Functions of Health Control 
 
 Apart from the clerical service required by the bureau, its func- 
 tions in health control may be divided as follows : 
 
 1. Registration and control of transmissible diseases. 
 
 2. City Physicians 
 
 3. Dispensary service 
 
 4. Protection of child health 
 
 5. Laboratoiy service 
 
 6. Milk inspection 
 
 7. Meat and other food inspection 
 
 8. Sanitary inspection 
 
 9. Registration of vital statistics 
 10. Hospital service 
 
 Organization Not Properly Balanced 
 
 Prior to 1913 little attention was paid to the efficiency of the 
 health organization. No attempt was made to direct the energies of 
 the department toward a program of productive health service. Con- 
 ditions were met as they arose, and there was no policy or program of 
 prevention. Even at the present time, as revealed by an analysis of the 
 payroll, many unnecessary employees are being retained in office be- 
 cause of long tenure of office or because of political or personal rea- 
 sons. The fact that a person has been employed for a long time is 
 regarded as a good reason for continuing him in office still longer, 
 although he may be absolutely inefficient. 
 
26 DENVER 
 
 Too much money is being spent for sanitary inspectors and dump 
 guards, to the neglect of dispensary service, infant welfare work, pro- 
 tection of the milk supply, and many other functions of service which 
 are absolutely essential to a well balanced and efficient health organ- 
 ization. Excessive salaries are paid for non-technical and part-time 
 service. It will be shown in succeeding pages that not only can money 
 be saved by the reduction of salaries and the elimination of unneces- 
 sary positions, but with the money thus saved it will be possible to 
 strengthen the bureau where strength is most needed. 
 
 The following summary of positions and salaries in the bureau of 
 health, exclusive of hospital employees, should be carefully scrutinized 
 in view of the recommendations which are made. 
 
 Positions Salaries 
 
 1 deputy health commissioner $ 2,400 
 
 1 chief clerk 1,800 
 
 1 registrar and permit clerk 1,200 
 
 1 complaint clerk 900 
 
 1 department matron 840 
 
 1 chief sanitary inspector 1,800 
 
 1 sanitary inspector assigned as "assistant desk man" 1,080 
 
 4 mounted sanitary inspectors @ $1,080 each 4,320 
 
 2 sanitary inspectors on foot @ $1,080 each 2,160 
 
 1 sanitary inspector assigned to disinfection squad 1,080 
 
 1 sanitary inspector assigned to hotel and restaurant inspection 1,080 
 
 7 dump guards @ $840 each 5,880 
 
 1 city physician assigned to inspection of school children 1,380 
 
 4 city physicians on outside duty @ $1,380 each 5,520 
 
 3 fumigators @ $1,500 each 4,500 
 
 1 chief milk inspector 1,800 
 
 1 assistant milk inspector '. 1,200 
 
 1 chief meat inspector 1,800 
 
 1 assistant chief meat inspector 1,380 
 
 7 meat inspectors @ $1,200 each 8,400 
 
 1 bacteriologist , 1,860 
 
 1 assistant bacteriologist 1,260 
 
 1 second assistant bacteriologist 1,200 
 
 1 city chemist 1,500 
 
 1 dead animal collector 900 
 
 1 secretary of the dispensary 1 380 
 
 1 head nurse of dispensary 9g0 
 
 1 nurse 900 
 
 49 Total $60,480 
 
 Time and Service Records Needed 
 
 No time records are required of either full-time or part-time 
 employees. It is impossible, therefore, to make any estimate of the 
 number of hours of service rendered in any instance, except in the 
 case of those employees who have regular office hours at the bureau of 
 
SOCIAL WELFARE DEPARTMENT 27 
 
 health. The following shows, as nearly as can be determined from the 
 facts available, the time service rendered and the salaries of part-time 
 employees : 
 
 Daily 
 Hours of 
 Part-Time Employees Salaries Service 
 
 Deputy health commissioner $2,400 6 — 8 
 
 City physician (medical inspector) . . 1,380 4 
 
 4 city physicians @ $1,380 5,520 Indefinite 
 
 Bacteriologist 1,860 2 — 3 
 
 Assistant bacteriologist 1,260 2 — 3 
 
 Secretary to the dispensary 1,380 3 — 4 
 
 Total $13,800 
 
 The city pays liberal (in many instances altogether too liberal) 
 salaries to its health employees. As shown in the above table $13,800 
 is spent yearly for part-time service without any one knowing how 
 much time part-time officers are spending on city work. Kecords 
 which will show how the employees are spending their time and the 
 character of service which they are rendering should be installed. In 
 no other way can a determination be made of the actual cost of the 
 various kinds of work performed by inspectors, clerks and others; 
 and without a knowledge of costs it is impossible to determine how 
 money can be most effectively spent. 
 
 Full-Time, Trained Health Officer Needed 
 
 The chief executive should be called the "health officer" or 
 "chief of the bureau of health". He should be a full time, trained 
 health officer and he should receive from $3,600 to $4,000 per year. 
 Future appointments should be made on the basis of an open, com- 
 petitive civil service examination, and eligibility should not depend 
 upon residence in Denver or Colorado. Denver should have the oppor- 
 tunity to secure the best man possible, regardless of his residence. 
 
 Efficiency of Service Before Increased Appropriations 
 
 The health appropriations for 1914 were apportioned as follows : 
 
 Office and inspection $ 69,370 
 
 Steele and Sand Creek hospitals 29,500 
 
 City and county hospital 120,000 
 
 Total $218,870 
 
 While this appropriation appears to be ample, it must be con- 
 sidered that the amount allowed for hospital service ($149,500) has 
 little to do with actual health protection and education. It is true that 
 the Steele and Sand Creek hospitals are hospitals for the control of 
 transmissible diseases, yet for the purpose of comparing the cost of 
 
28 DENVER 
 
 health service in Denver with that in other cities it is necessary to 
 exclude that which is spent for hospitals. 
 
 The last available report (1911) of the United States census bureau 
 gives the following table of per capita cost for health conservation, 
 exclusive of hospital service, in cities having a population of 100,000 to 
 300,000 in 1911 : 
 
 Per Capita Cost 
 City for Health 
 
 Conservation 
 
 Syracuse, N. Y.. . $ .59 
 
 Cambridge, Mass 55 
 
 Grand Rapids, Mich 48 
 
 Providence, R. 1 43 
 
 New Bedford, Mass 42 
 
 Worcester, Mass 40 
 
 Atlanta, Ga 38 
 
 Memphis, Tenn 36 
 
 Fall River, Mass. \ .35 
 
 Seattle, Wash 34 
 
 Denver, Colo 33 
 
 Louisville, Ky 30 
 
 Rochester, NY 29 
 
 Spokane, Wash 28 
 
 Indianapolis, Ind 23 
 
 Dayton, Ohio 16 
 
 Among these 16 cities it will be noted that Denver stood tenth in 
 1911. It is well recognized that few American cities are spending 
 enough for health service. Dr. William H. Park, director of laboratories 
 of the department of health of New York City, maintains that cities 
 from 100,000 to 300,000 should spend at least 85 cents per capita, and 
 this is in all probability a reasonable estimate. 
 
 In 1914 Denver plans to spend $69,370 for health service exclusive 
 of hospitals, giving a per capita cost of 30 cents on a basis of 230,000 
 population. Including $29,500 which has been allowed for the Steele 
 and Sand Creek hospitals, Denver's per capita cost will be 43 cents. 
 This amount, though less than needed, compares favorably with per 
 capita costs in other cities; and yet many cities, notably Rochester, 
 New York and Dayton, Ohio, are furnishing far more efficient health 
 service at a lower per capita cost. Efficiency of organization and of 
 service should come before increased appropriations. 
 
SOCIAL WELFARE DEPARTMENT 29 
 
 CONTROL OF TRANSMISSIBLE DISEASES 
 
 Methods of Reporting Defective 
 
 Typhoid fever and smallpox only must be reported on special 
 forms which are distributed among physicians. Other diseases are re- 
 ported personally or on the telephone. The report is received by the 
 person who answers the telephone, whoever he may be, and entered on 
 a memorandum slip for further registration by the chief clerk. This is 
 an uncertain method of reporting and registration. Blank post cards 
 for reporting diseases should be furnished physicians, and in all cases 
 the physicians should be required to send in a written report. Tele- 
 phone and personal reports should be encouraged, but such a report 
 should not excuse the physician from making the regular written re- 
 port. The requirement of written reports, which should be properly 
 filed, would settle all disputes which so frequently arise regarding the 
 physician 's responsibility. 
 
 New Ordinance Needed 
 
 Section 1025 of article 9 of the ordinances relating to public health 
 states that "whenever any physician or other person shall know or 
 have reason to suspect a ease of smallpox, cholera, typhus fever, scarlet 
 fever, diphtheria, measles, typhoid fever, or other infectious or con- 
 tagious disease within the city and county of Denver or within five 
 miles of the corporate limits thereof he shall immediately notify the 
 health commissioner of the same " 
 
 In the special physicians' bulletin, issued November 1, 1912, the 
 following statement is made: "Your attention is called to the fact that 
 all contagious or infectious diseases of any character must be reported 
 immediately to the health department. This ordinance will be strictly 
 enforced and any violations will result in court proceedings. This 
 ordinance includes scarlet fever, typhoid fever, spotted fever, diph- 
 theria, smallpox, varioloid, measles, chickenpox, whooping cough, 
 mumps, scarlatina, erysipelas and infantile paralysis." 
 
 It will be noted at once that the instructions contained in the 
 ordinance differ from those contained in this bulletin. There should be 
 no such conflict and the ordinance should be so clear as to admit of but 
 one interpretation. The ordinance is faulty in that it does not speci- 
 fically include many diseases dangerous to public health and within the 
 power of the health authorities to control. Furthermore, it should 
 specify the time within which physicians must report. "Immediately" 
 . means nothing to the physician except that he may report when he has 
 satisfied himself of the diagnosis. It should be noted also that scarlet 
 fever and scarlatina are separately named in the bulletin as though 
 they were different diseases. This distinction is not only confusing to 
 the lay mind but absolutely dangerous, because the common belief is 
 that scarlatina is merely a rash resembling but not identical with 
 scarlet fever. Scarlet fever and scarlatina are two names for one 
 disease which should be designated in all official literature as scarlet 
 fever. 
 
30 DENVER 
 
 A new ordinance should be drawn which will require physicians 
 to report in writing within 24 hours of the time the case is first seen the 
 full name, age and address of every person suffering from any of the 
 diseases listed below : 
 
 Measles 
 
 Mumps 
 
 German measles 
 
 Scarlet fever 
 
 Smallpox 
 
 Chiekenpox 
 
 Typhus fever 
 
 Diphtheria 
 
 Typhoid fever 
 
 Relapsing fever 
 
 Asiatic cholera 
 
 Tuberculosis (of any organ) 
 
 Plague 
 
 Tetanus 
 
 Anthrax 
 
 Glanders 
 
 Epidemic cerebro spinal meningitis 
 
 Infectious diseases of the eye, including trachoma, 
 ophthalmia neonatorum and other forms of sup- 
 purative conjunctivitis 
 
 Puerperal septicaemia (infectious disease following 
 child birth) 
 
 Erysipelas 
 
 Whooping cough 
 
 Acute anterior poliomyelitis (infantile paralysis) 
 
 Yellow fever 
 
 Malaria 
 
 Venereal diseases — gonorrhea, syphilis and chancroid 
 
 Tuberculosis Uncontrolled 
 
 In spite of the fact, orjather because of the fact, that Denver is 
 known the world over as a fresor t foFconsumptives, no official attempt 
 is being made to register orcohtrol in liny way the thousands of con- 
 sumptive patients within city and county limits. In 1913, according to 
 the records, there wereSS^deaths from tuberculosis. If we may accept 
 the statements of experienced investigators, there are approximately 
 five living cases of tuberculosis for every death. This means that there 
 were during 1913 approximately 2,775 cases of tuberculosis in Denver 
 absolutely unregistered and uncontrolled by the health bureau. It -is 
 false pride and false interest which leads the health authorities and 
 
SOCIAL WELFARE DEPARTMENT 31 
 
 to the Denver health authorities. These blanks have never been used, 
 and the clerk of the health office stated thatno_attempt had been made 
 to put into effect the state health board's ruling and no local ordinance 
 or regulation has been passed to supplement the state law. 
 
 Ophthalmia Neonatorum Not Reported 
 
 This disease, which is readily communicable, is caused by the in- 
 fection of babies eyes at birth by the organism which causes gonorrhea. 
 Statistics of blindness show that out of over 100,000 cases of blindness 
 in the United States over 10,000 have been caused by this disease. The 
 disease is easily preventable if proper measures are taken by physician 
 or midwife at birth. In spite of the fact that the disease is dangerous 
 to life and health and can be in large measure controlled, it is not even 
 classed as £epjOTEable.> Prompt reporting and thorough investigation 
 should be requiredrin every case, and upon this basis only can any 
 active campaign against this terrible disease be inaugurated. 
 
 Venereal Diseases Should Be Controlled 
 
 No effort has been made to obtain reports of gonorrhea, syphilis or 
 chancroid. These diseases are all readily communicable and dangerous 
 to life and health. Many city health departments are now demanding 
 that these diseases be reported and proper measures are being taken 
 to control them in so far as they may be controlled by official agencies. 
 Denver is backward in not regarding the control of venereal diseases 
 as a public health problem^ 
 
 Kegulation of veneral diseases by the health commissioner is 
 partially provided for in section 948 of article 1 of the health ordinance 
 which states that "Whenever in the discretion of the health commis- 
 sioner it shall be necessary to do so, he may order a medical inspection 
 of the persons or prostitutes and lewd women to determine whether 
 they are the subjects of or are afflicted with any contagious venereal 
 disease." This ordinance further provides for the isolation and de- 
 tention of such persons if necessary. However, without an ordinance 
 requiring the reporting of venereal diseases, the department does not 
 get the information needed about those who are afflicted with the 
 disease, and, as a result, nothing is accomplished. 
 
 More Thorough Reporting of Typhoid Fever Needed 
 
 Physicians are required to report typhoid cases upon special 
 blanks provided for the purpose. The form calls for information as to 
 the date of report, name of patient, address, hospital taken, age, sex, 
 water used, milk used, residence of patient three of four weeks prior 
 to sickness, whether disease was contracted in the city or elsewhere, 
 remarks, and name of physician. The chief clerk states that if circum- 
 stances warrant, further investigation is made. No records are avail- 
 able, however, to show the results of such investigations, although 
 according to the records for 1913 there were 201 cases and 30 deaths. 
 In the first annual report of the department of social welfare for 1913 
 the following table appears : 
 
32 DENVER 
 
 TYPHOID FEVER 
 
 1913 1912 
 
 201 cases 499 cases 
 
 30 deaths 30 deaths 
 
 Case mortality Case mortality 
 
 1.49 per cent .6 per cent 
 
 Apart from the fact that the case mortality is incorrectly calcu- 
 lated and should have been 14.9 per cent and six per cent these figures 
 are very significent. It is the experience of investigators all over the 
 country that the average case mortality in typhoid fever is 10 — 12 per 
 cent. These figures are quite constant, and it is more than likely that 
 the reason for a high case mortality in 1913 was that there were a large 
 number of cases not reported. Although there were almost 300 more 
 cases reported in 1914 than in 1913 the number of deaths was exactly 
 the same. Prom these figures the conclusion may be drawn that re- 
 porting of typhoid fever was less efficient in 1913 than in 1912, while 
 the reverse should have been true. 
 
 Possibility of Milk Borne Typhoid Fever 
 
 In cities with a uniformly good water supply, and this is one of 
 Denver's boasts, a large percentage of typhoid fever is milk borne. 
 Until the past year there has been no milk inspection and the inspection 
 now given would be of little value in determining possible milk dangers 
 from typhoid fever. In reporting the results of inspection of retail 
 stores, the inspectors, when answering the question on the record form 
 as to the source of the dealer's supply, state simply "several dairies". 
 To the investigator seeking to run down the sources of typhoid fever 
 this information would be of little value. He would have to make a 
 personal investigation at each dealer's to determine just where the 
 milk came from — a loss in time and a loss in control. Every case of 
 typhoid fever should be charged against the dealer who supplied the 
 patient with milk. This does not mean, that the particular milk con- 
 sumed was contaminated, but, if a certain milk supply showed a large 
 percentage of typhoid fever among the consumers, it would mean that 
 a careful investigation should be made of that supply. 
 
 Every Case of Typhoid Fever Should Be Investigated 
 
 Experience of other cities in dealing with typhoid fever proves 
 that eternal vigilance is the price of safety. Every case of typhoid 
 fever should be thoroughly investigated. This means investigation of 
 the patient's milk supply, water supply, food supply, possibility of 
 contact with other cases, home sanitation, nnssihilitv nf oar-via*. i^t an 
 
SOCIAL WELFARE DEPARTMENT 33 
 
 On account of its unusual ske and flimsy character, it cannot be filed 
 conveniently, and therefore is of little value as a permanent record. 
 A standard five by eight card should be used, which will call for all 
 the information desired for registration and, in addition, provide space 
 for the report of investigation by the city physician. 
 
 Vaccination Law a Dead Letter 
 
 Section 1022 of article 9 of the health ordinances states that "No 
 principal of any school and no principal or teacher of any private, sec- 
 tarian or other school, shall admit to any such school any child or 
 minor who shall not have been vaccinated within seven years next pre- 
 ceding the admission or application for admission to any such school 
 of any such child or minor; nor shall any such teacher or principal 
 retain or permit to attend in any such school any child or minor, who 
 shall not have been vaccinated within seven years next preceding the 
 attendance of such child." , 
 
 This ordinance is a dead letter, for no attempt is made to enforce 
 it. In 1913, 100 cases of smallpox were reported, as compared with 
 48 in 1912. In 1913, in New York City, only 20 cases of smallpox were 
 reported, while Denver, with only one-twenty-fifth the population, had 
 five times as many eases. The reason why New York City is compara- 
 tively free from smallpox is that the department of health enforces the 
 vaccination law. Vaccination is a positive preventive, and the city 
 which does not require it in its schools is neglecting the health of the 
 community. 
 
 New Form of Smallpox Record Needed 
 
 The form used for reporting smallpox cases is devised by the state 
 board of health. It is a flimsy slip of paper, eight and a half by five 
 and a half and unsuitable for filing. If a special record of smallpox 
 is desired, it should be kept on a five by eight card, which can be filed 
 and indexed for ready reference. , 
 
 Aids to Improved Health Control 
 
 The bureau of health vaccinates free of charge all persons apply- 
 ing for vaccination for smallpox and typhoid fever. It should supply 
 also to midwives free of charge silver nitrate outfits for the prevention 
 of ophthalmia neonatorum. Stations should be established throughout 
 the city in convenient locations where diphtheria cultures, specimens 
 of sputum, blood, etc., may be left by physicians. These stations should 
 also be supplied with cultures, silver nitrate outfits, sputum bottles, 
 etc., so that physicians may obtain these materials without necessitat- 
 ing a trip to the City Hall. Collections should be made from these 
 stations daily by policemen on duty in the neighborhood and turned in 
 to the laboratory at the close of the day when policemen report off 
 duty at police headquarters in City Hall. 
 
34 DENVER 
 
 Card Records of Individual Cases Needed 
 
 The chief clerk notes in a memorandum book all cases of diseases 
 reported. At the end of the month the records of all cases except 
 measles, mumps, whooping cough, and chickenpox are copied in special 
 books provided for the purpose under the following headings : 
 
 Disease 
 Date reported 
 By whom reported 
 When quarantined 
 "When released 
 
 Measles, mumps, chickenpox and whooping cough are entered on 
 cards, which are filed according to the names of patients. 
 
 Special card files should be kept of all cases of reportable diseases. 
 These cards should be separately filed, according to the nature of the 
 disease, and indexed according to names of patients, streets, or in any 
 other way desired for facilitating control. The use of such cards would 
 permit the recording of data regarding the investigation of cases and 
 other facts useful in control. By this method the information con- 
 tained thereon would be much more readily available than under the 
 present system. 
 
 Charts of Reportable Diseases 
 
 The bureau has one pin map, which is currently kept, showing by 
 the location of pins with differently colored heads the location of the 
 various diseases throughout the city. There are so many reportable 
 diseases that it is confusing to any one who wishes to visualize health 
 conditions by the aid of this map. The result would be much better if 
 several maps were used, each for groups of three or four diseases. 
 For example, cases of measles, scarlet fever, diphtheria and smallpox 
 could be noted on one chart ; tuberculosis alone on another ; typhoid 
 fever, infantile paralysis, cerebro spinal meningitis on another chart, 
 etc. 
 
 Quarantine Should Date From Day Disease is Reported 
 
 Placards are put up by disinfectors for the following diseases: 
 Measles, mumps, whooping cough, chickenpox, diphtheria, scarlet 
 fever, smallpox and other contagious diseases. A minimum quarantine 
 period has been established for each of the quarantinable diseases, and 
 special notices have been sent to all physicians. 
 
 The following quarantine limits have been established: 
 
e 
 
 SOCIAL WELFARE DEPARTMENT 35 
 
 Scarlet Fever— Not less than six weeks from date of sickness 
 Smallpox — Absolute quarantine from date of sickness and for 10 
 days after scaling is completed 
 
 "Date of sickness" in the above regulations has been assumed to 
 be the date on which the disease is reported. This, however, is not 
 definite enough. Considerable difficulty has arisen in the enforcement 
 of quarantine regulations on account of the interpretation which phy- 
 sicians and laymen choose to put upon the phrase "date of sickness" 
 in the quarantine regulations. Physicians and citizens naturally wish 
 to have this interpreted as meaning actually the date of sickness, in- 
 stead of date reported. The health authorities should insist that 
 quarantine begin on the date when the disease is officially reported. 
 This would aid in securing the co-operation of physicians and laymen 
 in reporting cases, because it would be for the interest of both to 
 report immediately and thus have quarantine begin immediately. It 
 would also avoid any confusion as to the date of termination of quaran- 
 tine. New regulations which may be drawn governing quarantine 
 should state specifically that quarantine begins when the disease is 
 reported; otherwise physicians or others responsible could delay re- 
 porting and put off quarantine indefinitely. 
 
 Exclusion from School After Termination of 
 Quarantine Unnecessary 
 
 At present no child is allowed to return to school following scarlet 
 fever until eight weeks from the occurrence of the last case in the 
 house, or until two weeks after the case has been finally fumigated by 
 the health authorities. The placard is, however, removed after six 
 weeks, so that actual quarantine is not maintained longer, and children 
 are free to go out, but not to school. In the case of diphtheria, no 
 person is permitted to return to school until two weeks after diphtheria 
 germs can no longer be found in the throat on bacteriological examina- 
 tion, although quarantine is released as soon as a single examination 
 of culture from the child's throat has been found to be negative. 
 
 Since children absent from school for three successive days are 
 not allowed to return to school until they have been examined at the 
 health office by a physician, and have received a permit that they are 
 physically fit to return to school, there is no reason why they should 
 be kept out of school longer. If at the end of the minimum quarantine 
 period the examining physician is not satisfied with their condition, 
 he may keep them in quarantine longer, but nothing is gained in pre- 
 vention by allowing children released from quarantine to play on the 
 street with other children and to go to moving picture shows and public 
 assemblies and still to exclude them from school — the only place 
 where they may be under real control. 
 
 New Procedure in Issuing School Permits Contemplated 
 
 A new procedure for the issuance of school permits has been sug- 
 gested since this investigation was begun, and, after thorough discus- 
 
36 DENVER 
 
 sion by the Medical Society, will doubtless be adopted. According to 
 the rules proposed, the procedure will be as follows : 
 
 l_Two successive negative cultures 24 hours apart will be re- 
 quired before release from diphtheria quarantine and tne 
 rule which requires two weeks' exclusion from school alter 
 culture has been found negative will be discontinued ihis 
 will allow the child to return to school as soon as the cul- 
 tures have been found to be negative. 
 
 2— Scarlet fever cases will be released for return to school after 
 six weeks' quarantine, but only after a visit by a city phy- 
 sician. If release is justifiable, a school permit will be 
 issued on the spot ; if not, quarantine will be continued two 
 weeks longer. In no case will quarantine be removed until 
 a city physician has authorized it. 
 
 3— Smallpox cases will be released after the minimum quarantine 
 period, but only after an inspection by a city physician. 
 
 4— All other cases will be released at the end of the minimum 
 period and the teacher of the school notified by mail that 
 the case has been released. 
 
 5__The rule requiring children to attend the bureau of health 
 and be examined by the bureau physician after three days' 
 absence from school will be discontinued. 
 
 6 — Personal visits will be made by city physicians in all doubtful 
 cases. 
 
 Placards Should be Removed Only by Health Authorities 
 
 It is common practice for the health authorities to allow house- 
 holders to remove placards at the termination of quarantine. This 
 should not be permitted except in the case of measles, which does not 
 require the visit of one of the disinfection squad. In all other cases 
 the physician who officially releases the case or the disinfector who 
 visits the house should remove the placards. It is bad practice to leave 
 anything to the citizen in such cases, for self interest almost invariably 
 will lead individuals to do things which public interest cannot sanc- 
 tion. The idea should be prominently kept before the people that the 
 health authorities are responsible for the prevention of communicable 
 diseases. 
 
 Disinfection Records Should be Improved 
 
 rnmigation by means of formaldehyde candles is performed for aX. 
 
SOCIAL WELFARE DEPARTMENT 37 
 
 might have disinfected a room using less material than was necessary 
 to disinfect properly the cubic contents of that room, or he might have 
 spent only a few minutes in performing a disinfection which should 
 have required an hour or more. Eeeords of fumigation or disinfection, 
 if they are to be of value in determining the necessity for fumigation 
 and its efficiency when performed, should show the time spent by the 
 disinfector, the amount of material used and the cubic space fumigated. 
 The report of this service for 1913 states over a table which shows the 
 work of disinfection, "The table submitted herewith does not show 
 nearly the amount of work accomplished by the three quarantine 
 officers, as they make many trips and attend many notices every day 
 of which no record is made." 
 
 Study of Disinfection Procedure Should be Made 
 
 During recent years ideas of disinfection and fumigation have 
 undergone a radical change. In New York City disinfection has been 
 discontinued as unnecessary after cases of diphtheria and scarlet fever, 
 and since the adoption of this practice, in July, 1913, there has been 
 no increase in the prevalence of these diseases. Dr. Charles V. Chapin, 
 health officer of Providence, Rhode Island, who is perhaps one of the 
 foremost authorities in the United States on this matter, has not per- 
 formed fumigation following scarlet fever and diphtheria for several 
 years, and he states that there has been no increase of cases on that 
 account. 
 
 Disinfection is a costly procedure, and if it is unnecessary it should 
 be discontinued. If citizens wish it the bureau of health should furnish 
 it at a fee sufficient to cover the cost of service. Denver should begin 
 at once a study of this problem. Tests should be ma'de of the effective- 
 ness of fumigation as now performed, and experiments calculated to 
 give some definite information as to the value of disinfection for cer- 
 tain diseases should be begun. 
 
 Improved Service at Less Cost Possible 
 
 There are at present three regular disinfectors and one sanitary 
 inspector doing nothing but disinfections following contagious diseases. 
 One horse and buggy is supplied for this service. During 1913, 853 
 premises were fumigated, 879 premises placarded, 22 funerals attended 
 and 93 complaints investigated. This gives a total for the three in- 
 spectors then employed of 1,847 visits made for all purposes, or, on the 
 basis of a year of 300 working days, an average of six visits per day. 
 Two men working together, if supplied with a small automobile, could 
 do all of this more easily and just as effectively as the three men em- 
 ployed in 1913 or the four men employed in 1914. Dayton, Ohio, has 
 found the use of a small automobile for this service both economical 
 and efficient. The reduction of the staff of disinfectors by two would 
 save $3,000 in salaries. 
 
38 DENVER 
 
 Quarantine Inspectors Overpaid 
 
 Three quarantine inspectors are paid $1,500 each. The work 
 which they are required to do is of a non-technical nature. At ttu 
 present time a sanitary inspector at $1,080 per year, who has beer, 
 detailed to this work, is doing as effective work as the $1,500 men 
 Efficient service in quarantine inspection can be secured for less 
 money. The two men equipped with an automobile, as suggested 
 should not be paid more than $1,200 each per year. For intermediate 
 quarantine visits, culture-taking and general supervision of cases re- 
 quiring direct control, two nurses at $75 per month each could be used 
 much more advantageously. They would be of great value in the dis- 
 semination of health information and in home visiting wherever needed. 
 
 The following comparison shows clearly the saving which would 
 result from a reorganization of the disinfection service along the liut-s 
 suggested : 
 
 Present Staff. 
 
 3 quarantine inspectors at $1,500 $4,500 
 
 1 sanitary inspector at $1,080 1,080 
 
 Upkeep horse and buggy (est.) 300 
 
 Total cost $5,880 
 
 Proposed Staff 
 
 2 quarantine inspectors at $1,200 $2,400 
 
 2 nurses at $900 1,800 
 
 Automobile and upkeep (est.) 600 
 
 Total, cost 4,800 
 
 Saving $1,080 
 
SOCIAL WELFARE DEPARTMENT 39 
 
 CITY PHYSICIANS 
 
 Increased Service from City Physicians 
 
 Five city physicians are employed at salaries of $1,380 each. Two 
 physicians take care of all suspected cases of contagious disease, and 
 the others care for other sick calls. One physician lias been detailed 
 to medical inspection of school children and the issuance of school per- 
 mits at City Hall between the hours of 10 and 12 a. m and 2 and 4 p. m. 
 
 The records show that the four physicians on outside service made 
 S.^S visits during 1913, or a daily average of 2.6 visits per inspector. 
 T3u*?e four physicians received also 5,598 office calls, or a daily average 
 of 3 8 office calls per day. 
 
 Since the organization of the dispensary, while the number of home 
 visits made by physicians has remained practically the same, office 
 visits by indigent patients have been greatly reduced. In the month 
 of March, 1914, only 31 office visits were reported by all four phy- 
 sicians. The work of the city physicians is therefore decreasing, due 
 to the effective work which is being done by the dispensary. Under 
 the new procedure of quarantine release just described, however, city 
 physicians will be required to make personal visits to release cases ot 
 scarlet fever and smallpox from quarantine. This will practically 
 double the amount of work now being done by city physicians and will 
 give increased opportunity to carry on educational work. 
 
 Medical Inspection of School Children Inadequate 
 
 At present all children who have been out of school for three days 
 or more must appear at the health office for examination by one of 
 the city physicians. Under the new procedure the board of education 
 will employ a single physician to conduct physical examinations in the 
 ■public schools. That this provision is entirely inadequate needs no 
 demonstration. Denver has over 30,000 school children. For one phy- 
 sician to provide physical examinations alone for this number of chil- 
 dren means that 150 examinations must be made each day of the school 
 year — a physical impossibility. Every school child is entitled to at 
 least one physical examination a year. The Colorado law requires ex- 
 amination of the eyes, ears and throats of school children by teachers. 
 This is by no means an adequate physical examination, for it cannot 
 detect serious conditions of the spine, lungs, heart and other organs. 
 Physical examinations should be made by physicians, and there should 
 be a staff of nurses to follow up cases which have been found to be 
 physically defective by physicians and to see that the defects are reme- 
 died. Denver is neglecting her school children. 
 
 Improved Record of Physicians' Services Needed 
 
 The city physicians send in monthly reports which state the 
 number of visits made, the number of office calls received, medicines 
 furnished, presciptions issued, hospital permits issued, and examina- 
 tions of patients for admission to the city farm. These records tell 
 
40 DENVER 
 
 very little about the kind of service rendered. Physicians should be 
 required to furnish daily reports of visits made, where made, cause 
 of visit, and they should show on this daily report other service per- 
 formed. Denver pays very liberal salaries to its city physicians, and 
 they should be required to render reports which will afford some 
 basis for determining their efficiency. 
 
SOCIAL WELFARE DEPARTMENT 41 
 
 DISPENSARY SERVICE 
 
 Dispensary an Effective Health Aid 
 
 Denver is to be congratulated on the recent establishment of a 
 city dispensary. At the time this survey was made the dispensary 
 had been in operation only one month, and the records of a month's 
 service only were available for study. It is clear, however, from 
 these records and from observation of the work of the clinics that 
 the dispensary will more than repay in service the $2,000 which was 
 appropriated for its equipment and maintenance. It has already 
 relieved the city physicians of practically all of their office work in 
 the care of indigents, and will undoubtedly result in a reduction also 
 of the number of outside visits required of them. 
 
 Organization 
 
 The permanent staff consists of a secretary, who is a practicing 
 physician, at $1,380 per year; a graduate head nurse at $900 per 
 year, and two unpaid pupil nurses from the training school at the 
 city and county hospital who are detailed to clinic duty at the dis- 
 pensary. In addition two volunteer "practical" nurses devote a por- 
 tion of their time to dispensary service. A volunteer staff of ten 
 physicians furnishes medical attention at the various clinics, which 
 are: 
 
 Tuberculosis, 
 
 General Medicine, 
 
 Surgery and Gynecology, 
 
 Diseases of Children and Infants, and 
 
 Genito-urinary. 
 
 Pupil Nurses Should be Used in Out-Patient Service 
 
 The opportunities for public health nurses are increasing daily 
 and training schools for nurses are now seeking to give their pupils 
 service in out-patient, home-visiting work. With an increased staff 
 of pupil nurses at the training school at the city and county hos- 
 pital, training in clinic duty, home-visiting, etc., should be made a 
 regular part of the nurses' course. It is therefore recommended that 
 as many pupil nurses pr needed be assigned to service at the clinics 
 and in out-patient work under the direction of the head nurse. Each 
 pupil nurse should spend at least a month in dispensary service. 
 
 Tuberculosis and Child Welfare Service Should be Extended 
 
 The head nurse stated that little home-visiting had as yet been 
 done, owing to the fact that the dispensary had so recently been 
 opened and because of the work required in getting the dispensary in 
 running order. It is planned, however, to extend home-visiting 
 service to the limit of funds made available. Special attention will 
 be paid to the home care of consumptives and it is hoped to make the 
 clinic for the treatment of children and infants the first step in an 
 
42 DENVER 
 
 active campaign for the prevention of infant mortality. For this 
 extended service there should be at least two additional nurses; one 
 who may visit cases of tuberculosis exclusively, and one who may 
 begin the work for the saving of babies in the homes. These nurses 
 should receive at least $75 per month and should have had special 
 training in their individual fields. 
 
 Dispensary Hours Too Limited 
 
 While it is recognized that physicians can hardly be expected to 
 give unlimited service without compensation, the fact that dispensary 
 hours are from 12:30 to 1:30 means that there are many who are 
 unable to avail themselves of dispensary service. The experiment 
 of opening the dispensary one evening a week was tried, but this 
 hour was found unsatisfactory to physicians and therefore was dis- 
 continued. The 12:30 to 1:30 hour is perhaps as convenient as any 
 during the clay, but it is well-nigh impossible for workers to avai' 
 themselves of the dispensary service at this hour. The dispensary 
 should be kept open from 5 to 6 or 7 to 8 at least three evenings a 
 week in order to accommodate those who cannot come at the noon 
 hour. If the present staff of physicians are unwilling to give the 
 extra time required, additional medical attention could be easily se- 
 cured. The dispensary service in most cities is considered so valuable 
 by physicians that there is keen competition for appointments. There 
 should be no difficulty in securing medical attendance in Denver. 
 
 Laboratory Service Inadequate 
 
 Although the volunteer staff of the dispensary includes a phy- 
 sician-bacteriologist, there is no reason why all bacteriological work 
 required by the dispensary should not be done by the city bacteriol- 
 ogist. The city chemist, who has been doing a large share of the 
 bacteriological work, admits he is not qualified to do it. If the com- 
 bined bacteriological and chemical laboratory is placed in the quar- 
 ters now occupied by the chemical laboratory adjacent to the dis- 
 pensary, as suggested elsewhere in this report, the small number of 
 bacteriological examinations, urine analysis, etc., required by the 
 dispensary could be quickly performed and reported on. In fact the 
 laboratory could render a report on a given specimen before the 
 patient had left the dispensary. 
 
 Clinic Rooms and Equipment Commendable 
 
 While there is general complaint regarding lack of room in the 
 clinic rooms, the health authorities are to be commended for the re- 
 sults obtained with the $2,000 allotted for the dispensary work. 
 Rooms are clean, with white painted walls, and though equipment is 
 limited to the minimum essentials, all eciuipment was found in good 
 order. Considerable improvement could be made in the lighting of 
 rooms by the addition of more window space. This could be done at 
 slight cost. 
 
SOCIAL WELFARE DEPARTMENT 43 
 
 Need for Improved Waiting Room Facilities 
 
 The dispensary is hampered by the lack of waiting room facili- 
 ties. The lower floor of the building in which the dispensary is 
 located is occupied jointly by the "commission" of charity and cor- 
 rection and the police surgeons, and a small room is set aside for the 
 secretary to the dispensary. All applicants are required to wait in 
 the common hall downstairs, and seating space is limited to the space 
 around the walls of this hall. If the two rooms now occupied by 
 police surgeons could be released these rooms would furnish ample 
 space for waiting rooms for all. 
 
 Dispensary Records 
 
 No special comment can be made on the dispensary records, for 
 their effectiveness could not be definitely determined after only a 
 month's experience. The present practice requires that the applicant 
 first visit the secretary, who interviews him, registers his name, ad- 
 dress,, and a tentative diagnosis of his disease upon a card and gives 
 the patient a slip calling for treatment at the proper clinic. These 
 slips are taken up by the clinic physician when the patient applies 
 for treatment. In addition, the clinic physician keeps the history of 
 each case on a special record card. 
 
 This system could be improved, it is believed, by requiring that 
 the patient go to the secretary on his first visit only. If accepted for 
 treatment by the clinic physicians, a card should be given him which 
 will entitle him to treatment as required and the physician should 
 specify on this card when he wishes the patient to return. Bach 
 clinic physician should have a nurse to assist him in recording his- 
 tories, and if greater use is made of pupil nurses in clinic practice 
 this can easily be brought about. Such procedure would save time 
 and allow the physician to do more work within the short time al- 
 lowed for the clinic. 
 
 Time Record Should Be Required 
 
 The secretary of the dispensary receives $1,380 per year. He is 
 a physician in private practice, although he states that he does very 
 little private work. He is required to be in his office during dispen- 
 sary hours from 12 :30 to 1 :'SO, and he states that he usually gets down 
 to his office about an hour before the clinic opens. The amount of 
 time actually spent by the secretary in public service is therefore in 
 all probability not more than three hours per day. The head nurse 
 of the dispensary spends the entire day in the clinic and in the field, 
 but how much time is spent in the field and how much in the clinic is 
 a matter of conjecture only. All employees of the dispensary should 
 show by detailed time and service records how much the city is receiv- 
 ing for the salaries which it pays. 
 
44 DENVER 
 
 Larger Appropriations Needed for the Dispensary- 
 Two thousand dollars was the appropriation for the use of th 
 dispensary in 1914 — although salaries alone for the secretary an 
 nurse in this service amount to $2,280. For proper organization fo 
 dispensary service the following estimate is made: 
 
 Secretary $1,380 
 
 Head nurse 900 
 
 Visiting nurses (2 at $900) 1,800 
 
 Total $4,080 
 
 Other service recommended may be supplied by nurses of th 
 training school at the city and county hospital. 
 
SOCIAL WELFARE DEPARTMENT 45 
 
 PROTECTION OF CHILD HEALTH. 
 
 Infant Mortality Unnecessarily High 
 
 It is well recognized by students of public health problems that 
 the infant mortality rate in a given city may properly be regarded as 
 an index to the efficiency of the health department. Denver is par- 
 ticularly fortunate in conditions of climate, drainage, standards of 
 living, housing, etc., all of which have a direct bearing upon the 
 health of the community. In spite of these favorable conditions, how- 
 ever, the records show that out of 3,265 babies born in Denver in 
 1913, exclusive of still births, 362 died during the first year of life, 
 giving Denver an infant mortality rate of 111.2 per 1000 births. Com- 
 parison of this infant mortality rate with that of other American 
 cities shows clearly the need for a definite program for the reduction 
 of infant mortality. Denver's infant mortality rate is lower than that 
 in many cities ; • but with all Denver 's wonderful health assets it 
 should be the lowest. Even New York, Cincinnati and St. Louis, 
 which have conditions to contend with which are unknown in Denver, 
 have lower infant mortality rates as is evidenced by the following 
 table : 
 
 Infant Mortality Rate 
 
 Omaha 66.2 
 
 Salt Lake City 69.6 
 
 Spokane 74.6 
 
 Springfield, Mass 81.8 
 
 Los Angeles 86.1 
 
 St. Paul 90.8 
 
 New Haven 91.4 
 
 Newark '. 92.4 
 
 Cincinnati 99.9 
 
 New York City 101.9 
 
 Brockton 102.7 
 
 Milwaukee 103.5 . 
 
 Boston 107.2 
 
 Schenectady 110-4 
 
 Denver -111.2 //«£ 
 
 Infant Mortality Reduced by Efficient Health Control 
 
 In cities where an effort has been made to reduce infant mortality 
 success has been marked. The infant mortality rate of New York 
 City has been reduced from 125.6 per 1000 in 1910 to 101.9 per 1000 
 in 1913 ; in Philadelphia from 142.4 per 1000 in 1910 to 112.8 per 
 1000 in 1913. -Similar gains have been made in every city where 
 proper measures have been instituted. The reduction of the infant 
 mortality rate from 125.6 to 101.9 in New York City meant the sav- 
 ing of the lives of 2500 babies. Competent authorities estimate that 
 fully two fifths of the babies who die during the first year of life could 
 be saved by proper municipal health control. 
 
46 DENVER 
 
 A Program of Child Welfare 
 
 Denver has no child welfare program. Medical examination and 
 supervision of school children is in the hands of the board of edu- 
 cation, and contact with school children is only had through the 
 examination of children desiring permits to return to school after 
 three days' absence. A beginning has been made in the dispensary, 
 which has a clinic for treatment of diseases of children and infants. 
 There are, however, many important branches of child welfare work 
 which have been overlooked. They may be briefly enumerated as fol- 
 lows : 
 
 1. Home-visiting of mothers by nurses 
 
 2. Ante-natal visits by nurses 
 
 3. Establishment of infants' milk stations 
 
 4. Supervision of midwives 
 
 5. Supervision of day nurseries and homes for 
 
 children 
 
 6. Co-operation with schools and other organiza- 
 
 tions 
 
 Home-Visiting by Nurse an Important Factor 
 
 Many health departments have discovered that the visiting nurse 
 is a most effective agent in promoting child welfare. The tactful, 
 sympathetic nurse visits the home, instructs the mother in the care of 
 herself and her baby, teaches the importance of breast-feeding, ren- 
 ders personal aid when it is needed, and becomes the family adviser 
 and confidant. New York mothers in the crowded sections of the 
 city have learned that the visiting nurse is their best friend, and her 
 advice and help is sought in protecting their children against death 
 and disease. A visiting nurse for child welfare service has been 
 recommended for work in connection with the dispensary. The value 
 of her work would undoubtedly be evident in a lower infant mortality 
 rate and in general health control. 
 
 Infants' Milk Stations Needed 
 
 Dirty, bacteria-contaminated milk is probably the largest single 
 cause of infant mortality. Milk is the natural food for babies, and 
 many of them are reared without the benefit of mothers' milk, which 
 is the only safe food. When milk is highest in bacterial count during 
 the summer months, when conditions of warmth and mtfisture are 
 most favorable to bacterial growth, infant mortality is highest. Den- 
 ver's milk supply is bad as shown by the reports of the milk in- 
 spectors. There are other causes which tend to produce high infant- 
 mortality in summer, but many experiments have proved that supply- 
 ing clean, wholesome milk to mothers and babies has a very marked 
 effect in reducing summer mortality. New York, Pittsburg, Boston, 
 Chicago, and other cities have found that the establishment of infants'' 
 milk stations, where mothers may procure clean, wholesome bottled 
 milk for themselves and babies, is a profitable investment. Such a 
 
SOCIAL WELFARE DEPARTMENT 47 
 
 milk station should be established in the dispensary where clean 
 milk can be sold to mothers; where they may be instructed in home 
 modification and care of milk ; and where their babies may have at 
 all times competent care and supervision. 
 
 Supervision of Midwives Neglected 
 
 In an examination of 100 birth certificates, 14 were found to have 
 been returned by midwives. Midwives are not required to register. 
 nor do the health authorities exercise any supervision over them, 
 although section 969 of article 4 of the revised ordinance states that 
 "Every physician or midwife practicing his or her profession in the 
 city or county is required to register his or her name, place of resi- 
 dence and office in a book to be kept for that purpose in the office of 
 the health commissioner." The state health law declares that mid- 
 wives shall be registered with the state board of health. Inquiry 
 however elicited the fact that only four midwives were so registered, 
 and yet, if this is a complete registration of midwives, four midwives 
 are delivering approximately 14 per cent of babies born in Denver. 
 In the eleventh biennial report of the state board of health the follow- 
 ing statement is found in the report of the medical inspector of lying- 
 in hospitals: "Throughout the state and more particularly in Denver 
 were numerous lying-in institutions, important and unimportant — 
 licensed and unlicensed. Some of these places were legitimate and 
 honorable, others were hot beds of crime. Not all, but many, of these 
 places were conducted by self-styled 'midwives'. In many instances 
 the midwife in charge had a secret arrangement with some outside 
 physician to assist her in crime. Some in disguise were using the 
 daily papers to advertise their business which was chiefly the pro- 
 duction of abortions. * * *" > 
 
 There are good midwives and bad midwives; but the protection 
 of mothers and babies demands at once a rigid inquiry into midwifery 
 practice in Denver. It should not be a matter wholly for state con- 
 trol. The health authorities of Denver should require the registration 
 of every qualified midwife, and a state law should be framed which 
 will result in the elimination of the midwives who are unfit to prac- 
 tice. Licenses should be issued upon the basis of careful examination 
 into their methods and equipment. And at all times their practice 
 should be under supervision by the bureau of health through its 
 physicians and nurses. 
 
 Supervision of Day Nurseries and Infants' Homes 
 
 All institutions caring for children should be required to register 
 with the bureau of health and there should be a periodic inspection 
 of these institutions by the health officer or his agents Lack oi 
 supervision of these institutions often results in abuses, and it is the 
 duty of the health authorities to see that no such abuses exist. 
 
48 DENVER 
 
 Ante-Natal Care of Mothers 
 
 Still another way in which the visiting nurse may be used t 
 advantage is in the visiting of expectant mothers. A large numbe 
 of babies die at birth or immediately thereafter because of the fac 
 that the mother did not know how to take care of herself before th 
 baby came. Much of her advice was perhaps received from friend 
 and neighbors who knew nothing of her particular needs. The visit 
 ing nurse learns of such cases in her visits to other homes, and b; 
 tactful approach may offer the expectant mother advice which ma: 
 perhaps save not only her own life but that of her child as well-. 
 
 Co-operation With All Agencies for Health 
 
 The ways in which the health authorities may secure eo-operatioi 
 in the protection of child health are legion. Dr. Josephine S. Baker 
 director of the bureau of Child Welfare of the department of healtl 
 of New York City, has organized "Little Mothers' Leagues" in th( 
 schools. The Little Mothers are taught how to care for the baby sc 
 that it may be kept well, as well as many other things which thej 
 should know about health. On New York's crowded East Side tin 
 older girls in the family frequently are charged with the care of the 
 babies while the mother is busy at work at home or outside. The 
 value of the instruction which may be given them through the Litth 
 Mothers' Leagues cannot be overesimated. Many cities have followed 
 New York's example. All organizations interested in health and wel- 
 fare, schools, churches, commercial organizations, fraternal orders 
 etc., are interested in child welfare problems as in no other. They 
 should be made effective agencies in the child welfare campaign 
 which it is hoped Denver will inaugurate without delay. 
 
SOCIAL WELFARE DEPARTMENT 49 
 
 LABORATORY SERVICE, 
 
 Laboratory Service Disorganized 
 
 There are two laboratories under the direction of the bureau of 
 health. The city chemist is provided with a laboratory in the build- 
 ing occupied by the dispensary, while the bacteriological laboratory 
 is in the City Hall. The city chemist, who receives a salary of $1,500 
 per year, is required to make chemical and physical analyses of 
 materials and supplies purchased by the city. Because the city bac- 
 teriological laboratory holds that its function is merely to make 
 examinations for diphtheria, all other work has been delegated to the 
 city chemist, who is not prepared in equipment or by training to do 
 much of the work which he is called upon to do, and which is entirely 
 outside pf the field of a city chemist. 
 
 The city chemist's laboratory is poorly equipped because, as he 
 states, no money has been allowed him for equipment. He has been 
 obliged to build his own cabinets and shelves, and to do what paint- 
 ing was necessary to make his laboratory presentable. 
 
 Reduced Cost and Greater Service in the Bacteriological Laboratory 
 
 The bacteriological laboratory holds that its sole function is to 
 perform examinations of diphtheria cultures and in the report for 
 1913 this statement is found: "Examination of cultures for diph- 
 theria bacilli is the only free bacteriological work done by the city 
 and in that respect Denver is somewhat behind some of her sister 
 cities which have^fr-ee examination of sputum for tuberculosis, Widal 
 tests for typhoid fever, examinations for rabies, etc". All this is 
 unfortunately too true. The bacteriological laboratory is doing very 
 little for the money which is spent on it. 
 
 The bacteriologist receives $1,860 per year for an unknown amount 
 of time, the assistant bacteriologist, $1,260 per year also for part-time 
 service, and a second assistant bacteriologist, who is in reality merely 
 a laboratory helper without technical training, receives $1,200 per 
 year, an unnecessarily high salary for this kind of work. The records 
 of this laboratory show that in 1913, 7,227 diphtheria cultures were 
 made and examined. This means that in a year of 300 working days, 
 on an average, 24 examinations per day were made. For this the 
 salaries amounted to $4,320. A full-time bacteriologist at $2,400 per 
 year, with a laboratory assistant at $900 a year, could have made not 
 only all the diphtheria examinations required but also all the exami- 
 nations of sputum for tuberculosis, all the blood tests for typhoid 
 fever, and other bacteriological work required and saved the city at 
 least $1,000 in salaries alone. 
 
 Little Use Made of City Chemist 
 
 Although it was intended that the city chemist should be of ser- 
 vice to the commissioner of supplies, so called, in making physical 
 and chemical tests of materials purchased by the city, he has done 
 
50 DENVER 
 
 very little work of this kind. He states that whenever he has obtained 
 materials for examination it has been necessary for him to go out and 
 get them himself, and that only rarely have materials been sent to 
 him by city departments. The record of work performed by the city 
 chemist bears out this statement. From January 1 to April 15, 1914, 
 the following samples of foods and supplies were examined by the 
 city chemist: 
 
 Milk 130 
 
 Cream 3 
 
 Wine : 49 
 
 Butter 3 
 
 lee Cream 1 
 
 Other foods 43 
 
 Drugs 2 
 
 Preservatives 3 
 
 Water 8 
 
 Asphalt 2 
 
 Oil 5 
 
 Gravel 5 
 
 Gasoline 18 
 
 Ink 1 
 
 Sputum i 47 
 
 Total 320 
 
 Although this record of only 320 examinations in three and one 
 half months cannot be commended, the city chemist should not be too 
 severely criticised on this account, for, as previously stated, he has 
 been obliged to be his own carpenter, painter, collector of samples, 
 and bottle washer. In addition it should be particularly noted that 
 the city chemist made 47 bacteriological examinations of sputum for 
 the dispensary. In the examination of 130 samples of milk he made 
 85 bacteriological determinations. None of this work should have 
 been done by the city chemist, but it was done by him because the 
 bacteriological laboratory did not or would not accept it. To do this 
 work, which required special training and technique, the city chemist 
 was obliged to learn by experience and by private study. He should 
 be commended for his efforts to do this work under such handicaps. 
 
 The city chemical laboratory is a very important factor in city 
 service. All goods purchased by the city should be examined by the 
 city chemist before payment is made, to see that definite standards of 
 quality are maintained. If this laboratory is made use of as it should 
 be, thousands of dollars may be saved yearly by the city in the pur- 
 chase of supplies. 
 
 Two Laboratories an Extravagance 
 
SOCIAL WELFARE DEPARTMENT 51 
 
 laboratories combined under one director in this room. The room 
 now occupied by the city chemist is suggested for this purpose be- 
 cause it is next door to the city dispensary, from which many bac- 
 teriological samples are received. 
 
 Laboratory an Aid in Registration of Disease 
 
 The registration and control of diphtheria, typhoid fever, tuberc- 
 ulosis, ophthalmia nennatorum, venereal diseases, and many other 
 communicable diseases under departmental control are greatly im- 
 proved through free laboratory service to physicians. A specimen 
 of blood from a typhoid patient means that the bureau has a 
 record of that case ; a sample of sputum from a case of tuberculosis 
 means registration of the case. The co-operation of physicians in 
 reporting diseases is much more readily secured when facilities for 
 laboratory service are furnished them free. 
 
 Re-organization Recommended 
 
 Under a combined bacteriological and chemical laboratory ser- 
 vice the following staff is recommended : 
 
 Full-time city bacteriologist $2,400 
 
 Full-time city chemist 1,500 
 
 Laboratory helpers (2 at $900) 1,800 
 
 Total cost ' $5J0O 
 
 Present part-time service in the bacteriological laboratory costs 
 $4,320, and the salary of $1,500 paid the city chemist makes a total 
 of' $5,820, $120 more than the cost of the full-time improved service 
 recommended. 
 
 Time Records Essential 
 
 In the service of the chemical and bacteriological laboratories as 
 in no other service, time records are needed. The health officer 
 should know what he is getting for the money which is spent on these 
 laboratories, and whether laboratory employees are giving at least a 
 time equivalent for salaries received. At present he has no mlorma- 
 tion whatever regarding the employees of the bacteriological labora- 
 tory, two of whom are on part-time service. 
 
 Improved Records of Laboratory Service Needed 
 
 The bacteriologist keeps a record only of the number of diph- 
 theria culture examinations made and the results of these examina- 
 tions The city chemist keeps a memorandum book m wmcn ne 
 records the analyses made and results. The laboratory record-keep- 
 ing system could be improved by the installation of card records ot 
 chemical examinations performed This record should show the 
 material examined, from whom taken and the date. It should state 
 how, by whom, and in what condition it was received, and it tne 
 
52 DENVER 
 
 sample and specimen was brought to the laboratary by inspectors or 
 others, the name of the person should be given. The results of exam- 
 ination should be clearly stated, as these examinations frequently form 
 the basis for court procedure. In all cases the record should be at- 
 tested by the examiner. Records of chemical and bacteriological exam- 
 inations of milk should be returned to the clerk for entry upon the 
 records of dairy or milk store inspection. Records of examination of 
 specimens of sputum, blood, diphtheria cultures, etc., should be en- 
 tered in separate record books showing: 
 
 Name of patient 
 
 Address. 
 
 Date sample taken 
 
 By whom submitted 
 
 Date examined 
 
 By whom examined 
 
 Findings. 
 
 Remarks 
 
SOCIAL WELFARE DEPARTMENT 53 
 
 MILK INSPECTION. 
 
 Staff and Duties 
 
 Two inspectors are employed, a chief milk inspector at $150 per 
 month and an assistant at $100 per month. They are required to 
 visit, inspect, and score country dairies, and wholesale and retail milk 
 dealers and creameries, and to take such samples of milk as may be 
 needed for bacteriological or chemical examinations. 
 
 Score Cards for Milk Stores Unsatisfactory 
 
 The score card used for milk stores is not adapted to the purpose. 
 There are only six scoring points, and these are by no means suffici- 
 ently detailed to enable the inspector to determine intelligently how 
 he should score. The form or score card adopted by the national 
 government should be used, as this is a standard which is being 
 adopted by health departments in many cities. The reverse of the 
 card, which is used for store and creamery inspection, calls for the 
 following information: 
 
 Milk supply from 
 
 Attendant's health 
 
 Kemarks 
 
 Ordered 
 
 Time given 
 
 Notified 
 
 Re-inspection date 
 
 Orders complied with 
 
 Except 
 
 Suit recommended 
 
 Signature of milk inspector. 
 
 Examination of the records shows that inspectors have been very 
 careless in filling out the records, and that as they stand they are of 
 no value whatever. 
 
 The following entries were found on the back of cards used for 
 creamery and store inspection: 
 
 Milk supply from— " Several dairies." 
 
 "Several dairies and stations." No entry. 
 
 Attendant's health— Invariably "good" or '^appar- 
 ently good." In one instance noted as "appar- 
 ently." 
 
 Remarks--" Place is in very bad shape." "Store 
 not very clean." "Has milk setting around on 
 floor and counters unprotected." "Store dirty." 
 "Sediment in bottles bad." "Store is filthy, 
 dirty." "Sediment in bottles." "Ice box not 
 clean " "Has no ice box." "Receiving dirty 
 
54 DENVER 
 
 bottles." "The bottles used by this man are 
 filthy." "No license." 
 
 Ordered — "To clean up." "To clean up at once or 
 license will be revoked in 24 hours." "To quit 
 dipping and breaking seals." "To clean out 
 ice box." "To get license." Etc. 
 
 Time given — No entry 
 
 Notified— " 
 
 Re-inspection date — 
 
 Orders complied with — 
 
 Except— 
 
 Suit recommended — " 
 
 It is clear, therefore, from these records that milk inspection can 
 by no stretch of the imagination be judged as efficient, nor can the 
 supervising officer obtain any information from the records regarding 
 field conditions. Information that the milk supply from a given 
 creamery or store is from several dairies means absolutely nothing to 
 the health officer or inspector who wishes to trace a contaminated 
 supply. It is of no value to learn that a store is filthy, that bottles are 
 dirty, or that milk is unprotected, unless we may learn also what steps 
 have been taken to remedy conditions. On not one single card out of 
 48 store cards and 38 creamery cards was there evidence that a re- 
 inspection had been made to remedy conditions found. 
 
 Milk Shipments Should be Tagged 
 
 Not only should the inspector state on the score card just where 
 the dealer obtained his milk but every can of milk which is shipped 
 into the city for bottling or distribution in any other manner should 
 be tagged with the name and address of the shipper and the date of 
 shipment. These tags should be filed by the distributor so that the 
 inspector who wishes to trace a given shipment may readily do so. 
 For example, if there should be an outbreak of typhoid fever among 
 the users of a certain distributor's milk, it would be necessary for the 
 inspector to ascertain where the milk came from one to three weeks 
 prior to the onset of the disease as it requires about that length of time 
 for the disease to show symptoms after infection has taken place. 
 Unless he could get this information regarding milk shipments he 
 would be unable to trace the milk supply which was probably respon- 
 sible for the outbreak of the disease. 
 
 Unlicensed Milk Stores in Operation 
 
 Seventeen milk stores were found to be operating without licenses 
 on inspection during November and December, 1913, and January, 
 1914, The files of milk licenses in the auditor's office were examined 
 on April 15. 1914, and eight of the 17 were found still unlicensed. 
 There is no excuse for this laxity on the part of inspectors. Milk 
 stores without license should be allowed 24 to 48 hours in which to 
 secure them and failure to do so should mean immediate prosecution. 
 
SOCIAL WELFARE DEPARTMENT 55 
 
 Department Regulations Not Enforced 
 
 During October, November and December, 1913, 128 wholesale 
 and retail producers were inspected and scored. According to the 
 regulations a license may not be granted unless the total score is 65 
 or more. Of the 128 scores examined, 75, or 59 per cent scored under 
 65. The chief inspector stated that these places were to be allowed to 
 continue provided the next scoring showed improvement to a point 
 above 65. At the time this study was made four to seven months had 
 elapsed, however, since the first scores were made, and in the mean- 
 time milk had been sold constantly in the city from dairies whose pro- 
 duct should have been excluded. This means inadequate protection. 
 It is decidedly bad practice to continue this sort of inspection and to 
 continue to be so lenient with dirty milkmen. The educational method 
 of dealing with dairymen is successful only when it is backed up by 
 enforcement of the law and frequent inspection when it is needed. 
 
 Bacteria Counts Show Dangerous Contamination 
 
 From milk sold by 162 retailers and 240 wholesalers, a total of 
 402 places, there are records of bacteriological examination of only 85 
 samples of milk since milk inspection was begun in November, 1913, 
 and these records, which are on file with the chief milk inspector, 
 prove conclusively that dangerous, contaminated milk is being pro- 
 duced and sold in Denver. The analysis of the 85 records available 
 shows that of the samples examined there were : 
 
 Bacteria 
 Under 100 000 " 
 
 per cc 
 
 ? j 
 
 7 5 
 J J 
 
 7 > 
 J J 
 ! J 
 J J 
 
 30 
 
 Between 100,000 and 250,000. 
 Between 250,000 and 500,000. 
 Between 500,000 and 1,000,000. . 
 Between 1,000,000 and 5,000,000 " 
 Over 5 000 000 " 
 
 7 
 13 
 
 7 
 17 
 
 2 
 
 
 1 
 
 8 
 
 85 
 Milk Standards Lacking 
 
 An ordinance is needed which will fix a maximum bacterial stan- 
 dard of 500,000 per cc, or even lower, for milk which is consumed in 
 Denver. The summer months are the dangerous months so far as milk 
 is concerned, and the experience of all investigators proves that low 
 bacterial counts in milk mean as a rule clean milk. It means more 
 than that, for we, know that infants' lives are needlessly sacrificed 
 by allowing milk high in bacterial counts to be sold. 
 Publicity a Safeguard 
 
 One of the most effective means of raising milk standards and of 
 educating dealer and consumer in the importance of clean milk is to 
 publish the facts regarding the milk supply. The health authorities 
 should publish in the newspapers each week or m widely-distributed 
 bulletins the bacterial counts, chemical analyses, and results oi other 
 
56 DENVER 
 
 tests in order that citizens may know where to get clean milk. They 
 should keep on file the information for citizens on the facts regarding 
 any milk supply and notify consumers through the daily press that 
 this information is available. Consumers will then buy where they 
 may get the best milk, and the dirty dealer will be likely to see to it 
 that his record improves. 
 
 Tuberculin Testing of Dairy Cattle Needed 
 
 In spite of the fact that it has been proven that a great deal of 
 tuberculosis, particularly among infants whose food is almost wholly 
 milk, is due to the milk being contaminated by tubercle bacilli. Den- 
 ver in common with many other American cities has made little effort 
 to protect her citizens from this kind of infection. Laws requiring 
 tuberculin testing of all dairy cattle have been passed in some parts 
 of the country and they have stood the test of the courts. Denver's 
 citizens have the right to be protected from tuberculosis and an ordi- 
 nance should be immediately passed which will prohibit the sale in 
 the city and county of Denver of milk from any but tuberculin tested 
 cattle. 
 
 The report of the chief meat inspector for 1913 states that 90 
 per cent of all cattle retained at slaughter houses on account of tuber- 
 culosis were dairy cattle. In view of this startling statement, it is 
 inconceivable that Denver can longer ignore this question. 
 
 No Inspection of Ice Cream Plants 
 
 No inspection of ice cream plants has yet been provided nor is 
 there any ordinance which requires definite ice cream standards. 
 This work should be part of the campaign for food protection, but 
 before additional service of this kind is recommended or provided 
 efficiency of inspection already established should be insisted upon. 
 
 Efficiency Before Increased Staff 
 
 There are in the city 42 creameries, 162 retail producers, 240 
 wholesalers, and 463 retail milk stores, a total of 907 places requiring 
 inspection, 402 of which are in the country, many outside of the city 
 limits. It is impossible for the men to inspect these places frequently, 
 since a visit to a country dairy sometimes requires an entire day. 
 It is recommended that during the summer the attention of the two 
 inspectors be concentrated on the country dairies, and that an effort 
 be made to discover which of these dairies require most improvement. 
 Efforts should then be put forth to bring them up to a satisfactory 
 standard. The inspection of city milk stores should be made by the 
 city meat inspectors when making their inspection tours. 
 
 While there is little doubt that an additional inspector is needed 
 the milk inspectors now employed should be first brought up to a 
 standard of efficiency. Records should be revised and properly used. 
 Milk inspectors should be provided with motorcycles in order that 
 the country dairies may be covered as rapidly as possible. 
 
SOCIAL WELFARE DEPARTMENT 57 
 
 MEAT AND OTHER FOOD INSPECTION. 
 Salaries and Duties of Inspectors 
 
 There are nine meat inspectors. The chief inspector is a veteri- 
 narian who receives $1,800 per year. His assistant, who is also a 
 veterinarian, receives $1,380 per year. Seven lay inspectors receive 
 salaries of $1,200 per year. There are four slaughter houses under 
 municipal inspection, and an inspector is stationed in each plant dur- 
 ing killing hours. One inspector is detailed to duty at the city meat 
 inspection office to examine and stamp all meat which is brought 
 into the city for sale by small country dealers through local merchants. 
 The other inspectors are detailed to special inspection of butcher 
 shops and other food stores, the following types of stores and business 
 places being under inspection: 
 
 Butcher shops 
 Grocery stores 
 Commission houses 
 Fish houses 
 Poultry houses 
 Fruit stands 
 Bakery shops 
 Eefrigerator cars 
 Peddlers' wagons 
 Meat wagons 
 Bakery wagons 
 
 Inspectors are also required to investigate all complaints which 
 relate to foods. 
 
 Supervision of all this work is exercised by the chief inspector, 
 who makes daily visits to the slaughter houses and the city inspection 
 office. He is thoroughly familiar with the work of his subordinates, 
 and, so far as could be observed during the course of this study, is 
 interested in his work and endeavoring to improve it. 
 
 Efficient Control of Meat Production and Distribution 
 
 There are only four slaughter houses under supervision by the 
 city meat inspectors. All others are supervised by federal inspectors. 
 Visits were made to all plants under municipal inspection, and the 
 work of the men and the sanitary conditions in the slaughter houses 
 were carefully observed. Denver is to be congratulated on the way 
 this work is being handled, and it is safe to say that little, if any, 
 meat which is diseased or contaminated reaches the consumer. Meat 
 which is brought into the city by farmers and others for sale to local 
 merchants must first be brought to the city inspection office where it 
 is examined by a veterinarian and stamped as passed or condemned. 
 If condemned, it is seized and destroyed. No meat not stamped by 
 national or municipal inspectors can be sold in Denver except 
 surreptitiously. 
 
5b DENVER 
 
 Condemnations by Veterinarians Only 
 
 Condemnations which may be made in slaughter houses can be 
 made only by veterinarians. If a lay inspector finds a carcass which 
 in his opinion should be condemned, it is set aside properly tagged as 
 "retained" until the chief inspector or his assistant passes upon it. 
 As there are only four slaughter houses under municipal inspection, 
 the chief inspector or his assistant is fully able to cover the ground 
 efficiently and expeditiously. 
 
 Records of Meat Inspection Excellent 
 
 The records of meat inspection are worthy of commendation in 
 many respects. Complete and detailed reports of slaughter house 
 condemnations are submitted daily by inspectors at the city office. 
 These reports state not only the number of carcasses condemned but 
 also the reason for condemnation and the kind of infection or con- 
 tamination found. These reports are very valuable in showing health 
 officers, and meat inspectors, veterinarians and citizens what the 
 dangers in meat are, and it is to be regretted that the report of the 
 meat inspector for 1913 cannot be placed in the hands of every citizen. 
 
 Daily Time Records Needed 
 
 Records of service could be improved by requiring inspectors to 
 submit a report of time spent in each kind of service. Since inspectors 
 in slaughter houses are required to perform other duties when 
 slaughtering is completed, time records, should show when their work 
 in slaughter houses was finished and when they reported at the office 
 for further arrangements. Men in the field should be required to 
 submit daily time reports showing when work was begun, how much 
 time was taken up for lunch, and when work was completed for the 
 day. 
 
 Use of Score Cards Advocated 
 
 Slaughter houses are not scored, although the use of the score 
 card has proved to be of great value in raising standards of cleanli- 
 ness in slaughter houses. The national government has adopted a 
 score card covering sanitation in slaughter hoiises and it is accepted 
 also in many cities. Its use by the municipal inspection service is 
 therefore recommended. 
 
 Other stores which are under inspection by meat inspectors are 
 not scored and on that account it is impossible to determine the exact 
 conditions in city food stores. The inspector keeps a record of con- 
 ditions found on inspection of stores but these records are not indexed 
 in any way. Score cards should be devised and all places under in- 
 spection should be graded according to their scores. They shou'd 
 then be tabbed and filed according to their grade. Stores which were 
 classed as grade "A" would probably require no inspection or inspec- 
 tion not oftener than once a year. Stores classed as "B" would need 
 more frequent inspection, and so on to "C" and "D". This would con- 
 
SOCIAL WELFARE DEPARTMENT 59 
 
 eentrate inspection where it was most needed and reduce to a mini- 
 mum the amount of work required. 
 
 Special Staff of Food Inspectors a Next Step 
 
 The three inspectors now assigned to the division of meat in- 
 spection should be especially assigned to the inspection of foods other 
 than miJk and meat and used exclusively for this work. They should 
 be furnished with score cards for the inspection of food stores. 
 Special attention should be directed to the sanitary control of bak- 
 eries. New ordinances should be drawn covering the supervision of 
 foods not only with reference to prodiietion and handling but also as 
 regards food adulteration. 
 
 This staff of inspectors would be a valuable aid to the milk in- 
 spection service. Many of the grocery stores and bakeries, which are 
 now under limited inspection by meat inspectors, sell milk and are 
 therefore subject to license and inspection by the milk division. Dupli- 
 cation of inspection of these stores should be avoided and could be 
 avoided provided the inspectors were sent out on specific assignments 
 to inspect certain places. A food inspector assigned to visit certain 
 stores should make an inspection of the methods of handling milk in 
 those stores, if milk is sold, and take whatever samples of milk may 
 be necessary. 
 
 Wider Publicity an Aid to Inspection 
 
 The report of the chief meat inspector, in the first annual report 
 of the department of social welfare, is well worth careful study by 
 every citizen. As an aid to inspection and control of the meat supply 
 it is recommended that the department publish a bulletin dealing with 
 meat inspection, the procedure of the department, what the house- 
 holder is to look for in buying meat, and other significant facts about 
 the food supply. There would be no difficulty in providing legisla- 
 tion to compel tuberculin testing of dairy cattle if housekeepers knew 
 the danger which results from the lack of such tests and if the house- 
 keeper knew that every piece of unstamped meat which is sold is 
 probably dangerously infected, there would be no market for un- 
 sound meat. 
 
60 DENVER 
 
 SANITARY INSPECTION. 
 
 Staff and Salaries 
 
 The chief sanitary inspector, who receives $1,800 per year, has un- 
 der his direction nine sanitary inspectors at $1,080 each per year and 
 seven dump guards at $840 per year. Four sanitary inspectors are 
 mounted, two are on foot, one is detailed to inspection of hotels and 
 restaurants, one to the disinfection squad, and another acts as ' ' assist- 
 ant desk man" in the office. The seven dump guards are stationed on 
 city dumps to see that ashes and refuse are properly dumped and 
 distributed on the dumps. 
 
 Records of Sanitary Inspection Unsatisfactory 
 
 For the purpose of inspection the city has been divided into six 
 districts which are now patrolled by the sanitary inspectors. No 
 definite assignments are given except for the investigation of com- 
 plaints. Bach man carries a book of notices, and upon discovering 
 a violation of sanitary ordinances he is required to issue a notice to 
 the" proper person, unless the violation is one which may be remedied 
 immediately. The stub of the order remains in the book for the in- 
 formation of the inspector on' reinspection. Examination of these 
 books gives no information iipon which the efficiency of their service 
 may be determined, nor is there in the hands of the chief inspector 
 any report which can possibly be of service to him in judging the 
 work of his staff. The only reports which are submitted to him are 
 the monthly reports of the six sanitary inspectors, on district duty. 
 The report forms call for information as to the number of 
 
 Premises inspected 
 
 Notices served 
 
 Complaints 
 
 Complaints investigated 
 
 Complaints with cause 
 
 Sewer connections ordered 
 
 Nuisances abated 
 
 Wells condemned 
 
 Civil actions begun 
 
 Judgments obtained 
 
 The reports of the six sanitary inspectors on regular sanitary 
 inspection duty during February, 1913, were examined with the follow- 
 ing findings : 
 
SOCIAL WELFARE DEPARTMENT 61 
 
 2. The only record which in any way sup- 
 ports these reports is the stubbook from which 
 notices are torn when violations are found and the 
 complaint record book and these are so carelessly 
 kept as to be of no value whatever. 
 
 3. In two instances, according to these re- 
 ports, the number of complaints found without 
 cause were greater than the number of complaints 
 investigated, indicating that reports were not pro- 
 perly checked by the supervising officer. 
 
 No Record of Reinspection 
 
 There is no record of reinspections following the issuance of 
 notice or order. The chief sanitary inspector states that the inspectors 
 know from the stubbook where orders have been issued and that they 
 go back to see that orders are complied with, and the number of com- 
 pliances is stated on the monthly reports. There is no evidence, how- 
 ever, to support these statements. Without detailed record of re- 
 inspections made and action taken, it is impossible to tell whether 
 the city is getting real service for the large amount of money spent 
 in sanitary inspection. Reports of inspectors should show in every 
 instance action taken and results. 
 
 Chief Inspector Should Do Field Duty 
 
 For the character of work now being done by the chief inspector 
 an $1,800 salary is entirely too high. During a two weeks' study of 
 the work of the bureau of health, practically all of the chief inspec- 
 tor's time was spent in the office. There is no necessity for a high 
 salaried chief remaining in the office to answer telephone calls and 
 .perform' the small amount of clerical work which could be as well 
 performed by an additional clerk at $12 per week The place for the 
 chief sanitary inspector is in the field checking up the work of his 
 subordinates. 
 
 Inspection of Street Lighting Not a Health Function 
 
 The chief sanitary inspector is also inspector of street lighting. 
 There is no reason why the time of the chief sanitary inspector, whose 
 salary is paid out of the health appropriation, should be detailed to 
 this work which is by no means a health function. This work should 
 be turned over to the department of improvements. 
 
 ''Assistant Desk Man" Unnecessary 
 
 To keep a sanitary inspector on duty in the main office to assist 
 the chief sanitary inspector is altogether unnecessary and $90 a 
 month is too much to pay for clerical service of this kind even if such 
 assistance were needed The "assistant desk man" employed in the 
 office during the course of this 'study was not only idle the greater 
 part of the day but was unable to handle expeditiously the small 
 
62 DENVER 
 
 amount of clerical work which he was supposed to do. It is recom- 
 mended that this employee be dropped altogether, or, if he is a par- 
 ticularly efficient field man, that he be put out in the field and one of 
 the other field inspectors dropped. At present the "assistant desk 
 man" is "deadwood" only. 
 
 Time Wasted by Inspectors and Supervisors 
 
 Inspectors are supposed to work from 9 :00 until 5 :00. It was 
 noted that not only did inspectors not go out at 9 but sometimes did 
 not get into the field until as late as 11 o'clock. Sanitary inspectors 
 may be seen any morning lounging in the office of the chief sanitary 
 inspector unrebuked. In the afternoon it was no uncommon thing to 
 see several persons not employees sitting in the office of the chief sani- 
 tary inspector discussing with him and his "assistant desk man" all 
 manner of topics not related to sanitary inspection. The health offices 
 should not be a lounging place for anyone at any time. Inspectors 
 should be required to report at the office at 8 :30 a. m., when they should 
 receive their assignments and leave at 9 a. m. Assignments should be 
 made out as far as possible., the night before and placed in a pigeon- 
 hole to which the inspector may have access. When he arrives in the 
 morning he should go at once to the pigeonhole, take his assignment, 
 receive any oral assignments which may be necessary and depart 
 promptly. Assignments should be made out in triplicate ; one for the 
 inspector, one for the chief sanitary inspector, and one to remain on 
 file in the office. It would then be possible to tell approximately 
 where an inspector is at any time during the day. 
 
 Mounted Sanitary Inspectors Unnecessary 
 
 Four sanitary inspectors are mounted. The city pays $25 per 
 month for horse hire, or $1,200 per year for horses alone. Aside from 
 the fact that men on foot are less costly, the efficiency of the inspector 
 on foot is greater than that of the inspector on horseback. The man 
 on horseback finds it necessary to dismount whenever careful investi- 
 gation is to be made. The result is that when a man makes 130 to 160 
 inspections a day, as mounted men report, he either makes them from 
 the back of the horse, in which case they are probably not very 
 effective, unless the inspection is in an alley through which he may 
 ride, or he dismounts and mounts 130 to 160 times. This means lost 
 motion and lost time. The man on foot in all probability makes more 
 careful investigations because he is put to no inconvenience in getting 
 the facts. It is therefore recommended that the service of mounted 
 men be discontinued, and all inspectors go on foot. 
 
 Handling of complaints 
 
 Complaints are kept in a record book, but not in proper form. 
 The book does not require definite information regarding the date of 
 complaint, the complainant and his address, the kind of complaint, 
 action taken by inspector, reinspection, or any other information 
 which will enable an investigator or the chief to judge the efficiency 
 
SOCIAL WELFARE DEPARTMENT 63 
 
 of service. The following extracts from the book show clearly the 
 defects of the record. The initial at the beginning of the entry indi- 
 cates the name of the inspector to whom the complaint was assigned; 
 the number immediately following is the day of the month : 
 
 January. 
 
 W. 2. Peters Paper Company wants inspector. 
 Guilty party was ordered to immediately clean up. 
 
 W. 14. Alley rear 3450, chicken feathers ; bad 
 condition. Could not establish responsibility. 
 
 9. 2246 Welton. H6rse standing in front; 
 unsanitary. No cause for complaint. 
 
 February. 
 
 G. 19 East 38th Avenue.— York. Dump ash- 
 es ; manure. 
 
 March. 
 
 M. 2. Ironton School wants inspector. Not 
 proper complaint. 
 
 G.16. 16 Downing. Ogden Terrace. 19 Ave- 
 nue. Shall let this rest until it thaws out more. 
 
 M. 14. 100 Galapago. Chickens ; rotten vege- 
 tables ; meats. Order to clean up. 
 
 These few complaints, selected at random, illustrate the chief de- 
 fects of the method of handling complaints : 
 
 1. Complaints are not properly entered and in some 
 
 cases not stated at all. 
 
 2. The name of the complainant is not given. 
 
 3. Action of the inspector is not stated. 
 
 4. No record of reinspection appears. 
 
 It is therefore impossible to determine from this record how many 
 and what kind of complaints were received, what the inspectors did on 
 investigation, how many reinspections were made in each instance, and 
 what the final result of the inspector's work may have been. 
 
 Proper investigation and remedying of complaints is the most im- 
 portant function of the sinitary inspector. Failure to investigate and 
 remedy citizens' complaints means lack of citizen cooperation, which 
 is so essential to efficient health service. A complaint register should 
 be kept by the complaint clerk in the office. Every complaint which 
 comes into the office should come to this clerk, and the following facts 
 should be promptly entered : 
 
 Date 
 
 Name of Complainant 
 Address of Complainant 
 Nature of Complaint 
 Location of Complaint 
 Inspector to Whom Assigned 
 Date of Assignment 
 
64 DENVER 
 
 When the inspector has made his investigation and report, the 
 record should be continued by the entry of the following facts : 
 
 Date Inspected 
 Findings 
 Action Taken 
 
 Notice or order issued 
 Abated by personal effort 
 Summons or other action 
 
 Date of Reinspection 
 
 Findings 
 
 Action Taken 
 
 Policemen Should Be Used as Sanitary Inspectors 
 
 Many cities, notably New York and Philadelphia, have discovered 
 that policemen may be used effectively for purposes other than the 
 detection of crime. No one has a better opportunity to know a given 
 district of the city than the policeman on his beat. It is therefore 
 recommended that the bureau of health seek the cooperation of the 
 bureau of police in making use of policemen for sanitary inspection. 
 Policemen should be furnished copies of the health laws and ordinances 
 and required to report violations. They should be provided with note 
 books with duplicate or triplicate detachable leaves. When a violation 
 is .found by a policeman he should make out his usual report on the 
 duplicate record. One copy of this should go to the health office. 
 Such a plan, if put into operation, would mean that a large and costly 
 staff of sanitary inspectors could be dispensed with. It would still be 
 necessary to have one or two inspectors to investigate complaints but 
 the six inspectors who are required to make routine inspections in large 
 districts could be eliminated at a saving of $6,480 per year. 
 
 Sanitary Inspection of Hotels and Restaurants Unsatisfactory 
 
 A sanitary inspector was assigned to the inspection of hotels and 
 restaurants on March 11th of the present year. A score card is used 
 which is well adapted to the purpose, and, if properly used, it would 
 serve every purpose. Up to April 15, 1913, 120 hotels and restaurants 
 had been scored. 
 
 Hotels and restaurants were graded according to their scores as 
 
 follows : 
 
 Grade A 90-100 
 
 Grade B 80- 90 
 
 Grade C 70- 80 
 
 Grade D Below 70 
 
 Of the 120 hotels and restaurants scored 57, or 47 per cent, scored 
 between 90 and 100 and twelve of them were scored 100 or perfect- 
 26, or 22 per cent, scored between 80 and 90; 25, or 21 per cent, scored 
 between 70 and 80, while 12, or 10 per cent, were below 70. 
 
SOCIAL WELFARE DEPARTMENT 65 
 
 These scores are altogether too high. It is hardly conceivable by 
 any one with experience in the inspection of restaurant kitchens and 
 dining rooms that 47 per cent of places scored should be found well- 
 nigh perfect, and careful examination of these score cards proves that 
 these scores cannot be taken as a true index to conditions in Denver's 
 hotels and restaurants. 
 
 Reinspections Carelessly Made 
 
 Of the 120 places, 103 were scored once and 17 twice during the 
 period from March 11th to April 15th, making in all 137 inspections. 
 
 Of the 17 places reinspected, 12 were of class "D" (below 70) and 
 five were of class "C" (70 to 80). On the reinspection seven were 
 scored "A" (90 to 10O) and 10 were scored "B" (80 to 90). In one 
 instance the inspector scored a restaurant as 76 on the first inspection ; 
 on the second inspection he gave a score of 100, although he reported 
 "They are almost through cleaning walls and ceilings." So long as 
 work was incomplete, no score should have been given; certainly not 
 a score of 100. In another instance the inspector scored the place 78 
 on the first inspection. On the second inspection he scored 97, and 
 reported, "Will clean up walls this week." On the detailed score full 
 credit was given for the condition of walls on the basis of the proprie- 
 tor's promise to clean them. It is clear, therefore, that little confidence 
 can be placed in the accuracy of these records. 
 
 Time Records Needed 
 
 In the 28y 2 working days from March 11 to April 15, 1914, 137 
 inspections were made. The inspector gave all his time to the work, 
 from 9 a. m. to 5 p. m., a seven-hour working day. He inspected, there- 
 fore, at the average rate of four to five places per day, or one hotel and 
 restaurant every hour and a half. As the inspection required only the 
 scoring of the kitchen, dining room, and pantry, and the restaurants 
 inspected were all in the downtown district, it is hard to understand 
 what he did with his time. The following analysis of several days' 
 work will indicate clearly the need for more active service : 
 
 Tuesday, April 7. 
 
 Hotel or Restaurant : Score 
 
 The Dutch Mill 87 
 
 Elite Cafe 92 
 
 Oppenheim Lunch Room 100 
 
 The George Bell Baking Co 100 
 
 Edelweiss Cafe 100 
 
 Wednesday, April 8. 
 
 King Heung Restaurant 83 
 
 "Welton Cafe and Bar 85 
 
 Home Dairy 89 
 
66 DENVER 
 
 Thursday, April 9. 
 
 Dadisman's Waffle House 80 
 
 Pell's Oyster House 100 
 
 Apollo Cafe 83 
 
 Friday, April 10. 
 
 George 's Kestaurant 8o 
 
 Cafeteria 94 
 
 Bob White's Cafe 92 
 
 Pure Food Exchange 94 
 
 Saturday, April 11. 
 
 Waldman's Cafe 92 
 
 New Broadway Cafe 92 
 
 The Isle Restaurant 83 
 
 The Popular Restaurant 79 
 
 The Savoy Hotel 86 
 
 Monday, April 13. 
 
 Shirley Hotel 100 
 
 Hotel Metropole 94 
 
 Brown Hotel 80 
 
 Navarre Hotel 76 
 
 To anyone familiar with the location of these various hotels and 
 restaurants it is clear that some accounting is needed of the time spent 
 by inspectors in this service. Time records should be required, and 
 these records should show when work was begun, when and where 
 visits were made, and when work was completed for the day. 
 
 Dump Guards 
 
 Seven men at salaries of $840 each are employed on city dumps, 
 where they are required to supervise the depositing of ashes, refuse, 
 and night soil. Only one dump is used for the disposal of night soil, 
 and there two men are stationed, one for day duty and one for night 
 duty. Two men are stationed on another large dump, and one each on 
 three smaller dumps. 
 
 The supervision of the disposal of ashes and refuse is not properly 
 a matter for health control. It is a matter of municipal housekeeping 
 which has probably no bearing upon the health of the community. 
 There is no more reason why men should be stationed all day long on 
 city dumps than that men should be stationed all day in front of homes 
 quarantined for contagious diseases. The ordinance's and regulations 
 governing the disposal of ashes, refuse, and night soil are cle;.rly de- 
 fined and should be enforced; but there should be no need for contin- 
 uous guarding of dumps as at present. Control of dumps for ashes and 
 refuse should be under the bureau of highways, since these dumps are 
 
SOCIAL WELFARE DEPARTMENT 67 
 
 being utilized for the making of new land and streets. Supervision of 
 dumps where manure and night soil are deposited should be maintained 
 by .the bureau of health and regularly inspected by the sanitary in- 
 spectors. Violations should be prosecuted, but the use of $5,880 in 
 salaries for dump guards by a department which needs money for 
 efficient health service should not be sanctioned. A single inspector 
 at the regular salary of other sanitary inspectors — $1,080 — should be 
 able to supervise the city dumps effectively. In view of the fact that 
 night soil can be transported and dumped only at night, one night 
 guard is required at the dump where such material is placed. On that 
 dump which is used for the deposit of manure a guard should be sta- 
 tioned continuously to see that manure is properly placed and covered. 
 This arrangement would allow the reduction of dump guards from 
 seven to three. This would mean a saving of $3,360 per year. 
 
 Summary of Changes of Organization Recommended in the Sanitary 
 Division 
 
 1. The chief inspector, should be detailed to field 
 
 duty. 
 
 2. The office of "assistant desk man" should be 
 
 abolished. 
 
 3. A clerk at $720 should be employed to perform 
 
 the clerical work required in this division. 
 
 4. Four dump guards should be discontinued. 
 
 As a result of this reorganization the following saving may be 
 effected : 
 
 Discontinuance of "assistant desk man". . .$1,080.00 
 Discontinuance of four dump guards 3,360.00 
 
 $4,440.00 
 Cost of additional clerk 720.00 
 
 Total saving $3,720.00 
 
68 DENVER 
 
 REGISTRATION OF VITAL STATISTICS 
 
 Birth Registration Defective 
 
 In the report of the department of social welfare for 1913 the fol- 
 lowing statement appears : ' ' While the birth returns for the year show 
 an increase of 738 over the returns for 1912, still they are unsatisfac- 
 tory, and it can safely be said that there were several hundred unre- 
 ported births." If this statement is true it is time that some radical 
 measures were adopted to compel physicians, midwives and others to 
 report births. 
 
 Importance of Birth Registration 
 
 The importance of birth registration cannot be overestimated. The 
 child whose birth is unrecorded may be seriously hampered in after life 
 by the negligence of physician, midwife or parents. His right to educa- 
 tion, citizenship, property and proper consideration in the courts de- 
 "* pends upon the registration of his birth. To the health office such 
 registration is invaluable as it provides information as to where the 
 exercise of health control is needed by child welfare nurses in their 
 educational campaign for the protection of child health. It tells where 
 midwives are and indicates the need for their supervision. It indicates 
 the localities where preventive work in control of transmissible diseases 
 is most needed. Through records of infant mortality, complete birth 
 registration gives an accurate index to the health progress of the city. 
 For example, Denver's infant mortality rate which is extremely high, 
 / / 1 i o2. % points to faulty measures of protecting child health. It points 
 also to poor registration of births. In Denver if all births had been 
 properly reported the infant mortality rate would have been reduced 
 considerably, since the infant mortality rate means the number of 
 babies under one year of age that die out of each 1,000 born. 
 
 New Law Necessary 
 
 According to the state law "It shall be the duty of the attending 
 physician or midwife to file a certificate of birth properly and com- 
 pletely filled out giving all the particulars required by this act, with 
 the local registrar of the district in which the birth occurred within 
 ten days after the date of birth. ' ' 
 
 Section 967 of Article 4 of the city ordinances differs widely from 
 the state law governing the reporting of births. According to this 
 ordinance "It shall be the duty of every person mentioned in the prev- 
 ious section (physician or professional advisor) to keep a registry of 
 the births and deaths registered by him, to make for the health com- 
 missioner each month a copy of such registry containing all the facts 
 required to be entered in such registry, and such statement or registry 
 shall be made at the close of each month or within five days there- 
 after. ... " 
 
SOCIAL WELFARE DEPARTMENT • 69 
 
 Why there should be one law for the state and another for the 
 municipality is not clear. Both law and ordinance are defective be- 
 cause they allow too much time for reporting births. 
 
 Physicians, midwives and others who report births usually leave 
 registration until the last minute allowed by law. The result is that, 
 unless certificates have been made out the same day as the birth, there 
 is opportunity not only for neglecting registration longer than the ten 
 days allowed, but also for neglecting it entirely. Experience has 
 proved that in order to be most effective the law should require that 
 physicians and others make returns within 24 hours after the birth. 
 Such a law in Colorado would immeasurably improve registration. 
 
 Certified Copies of Birth Certificates Should Be Issued Free to Parents 
 
 At present a fee of 50 cents is required for the issuance of certified 
 copies of birth certificates. To improve registration of births it is rec- 
 ommended that this practice be discontinued and that the health 
 authorities mail to the parents, as soon as a birth is reported, a certi- 
 fied copy of the birth certificate. The health officer of Montclair, New 
 Jersey, has discovered that his birth registration has been improved by 
 issuing to parents a neatly printed certificate of birth with the health 
 department seal attached. Parents who fail to receive such a certifi- 
 cate following the birth of their children want to know why, and in- 
 quiry at the health department immediately puts the department in 
 touch with the facts. 
 
 Educational Publicity an Aid to Birth Registration 
 
 There should be published each week in the daily press a statement 
 of births during the week with names and addresses of parents. This 
 would undoubtedly result in the discovery of many unreported births. 
 The issuance of a bulletin or pamphlet to physicians, midwives, nurses 
 and citizens telling them of the importance of birth registration should 
 also be part of the educational program. 
 
 Visiting Nurses Helpful 
 
 Through visiting nurses registration may be greatly improved. 
 When a nurse visits a home where there are babies or children, she 
 should seek to discover whether the births of these children are record- 
 ed. In like manner all babies who may be brought to the dispensary 
 for treatment should have their birth registration investigated and if 
 milk stations are established the same procedure may be followed then. 
 
 Death Returns Should Be Checked 
 
 Whenever the death certificate of a child under one or two years 
 of age is received the records of birth should be examined to see if that 
 child's birth is recorded. Many unreported births have been discov- 
 ered in this way and responsibility fixed upon the physician or mid- 
 wife who violated the law. 
 
70 • DENVER 
 
 Law Should Be Enforced 
 
 The registrar of vital statistics states that the present law is not 
 thoroughly enforced. Delay on the part of physicians and midwives is 
 frequently excused, and there are no records of prosecution, although 
 violations have not been uncommon. Physicians and midwives should 
 be notified that the law will be enforced and that in the future vio- 
 lators will receive the maximum penalty for violation. There is no 
 more reason why physicians should be excused for infraction of law 
 than that other citizens should be so excused. 
 
 Registration of Death Should Be Prompt 
 
 The law requires that a burial permit shall be issued only on the 
 presentation of a death certificate properly attested by physician or 
 attendant. The law requiring physicians to register deaths, however, 
 states that returns shall be made "At the close of each month or within 
 five days thereafter." To furnish information of value to the health 
 officer in control of transmissible diseases every death should be re- 
 quired by law to be reported within 24 hours. Then, if the death is 
 due to typhoid fever, scarlet fever, diphtheria or other dangerous 
 disease and was not previously reported, the health officer may fix the 
 responsibility for failure to report and may make immediate investiga- 
 tion into the source of the disease. A great share of effective health 
 control depends upon prompt and accurate death returns, and the 
 health department which fails to take cognizance of this fact fails in 
 service. 
 
 Deaths Should Be Classified by Wards 
 
 In order that the health officer may know in what sections deaths 
 from various causes are most prevalent, the registrar should classify 
 deaths according to their residence in various wards. All deaths of 
 infants under two years should be so classified in order that informa- 
 tion regarding the need for infant welfare work may be readily avail- 
 able. If the infant mortality in one ward is found to be several times 
 higher than that in another ward with somewhat similar conditions of 
 living, prompt investigation would doubtless show the causes. A pin 
 map should be kept on which the deaths of infants under one or two 
 years of age could be indicated and this would make it possible to 
 demonstrate the need for a child welfare campaign. It would be worth 
 while to know in just what localities the 521 stillbirths and deaths of 
 infants under one year occurred and why certain districts of the city 
 showed so much higher infant mortality rates than others. The work 
 for reduction of infant mortality could then be concentrated where it 
 is most needed. 
 
SOCIAL WELFARE DEPARTMENT 71 
 
 CLERICAL SERVICE AND FILING SYSTEM 
 
 Clerical Work Unsystematic 
 
 At the present time routine clerical work at the health office is 
 taken care of by three clerks. So far as could be observed during the 
 period of study clerical work was well performed, although inadequate 
 methods of reporting and filing by inspectors and others make any- 
 thing like systematic record-keeping impossible. Many of the reports 
 of inspectors were found in the desks of chief inspectors while others 
 were filed in the proper file. Complaint records were kept by the var- 
 ious chiefs of divisions responsible for the conditions complained of 
 and not by the complaint clerk. No attempt has been made to cen- 
 tralize information regarding complaints or inspections and the result 
 is that inspectors and others have made little effort to see that records 
 are properly made and filed: There should be a file for each individual 
 record and records should be kept in the files. The chief clerk should 
 be responsible for records and no one should be allowed to remove 
 records from the file without returning to the chief clerk a receipt for 
 records removed: Otherwise important records might be removed from 
 files without the knowledge of anyone but the one removing them. 
 
 PUBLICITY 
 
 Little Health Publicity 
 
 Until the past year the health activities have made little effort to 
 educate the public in health matters. Too much has been spent for pro- 
 tecting alleys and refuse dumps and-not enough for teaching citizens 
 how to protect themselves against disease and how to assist in prevent- 
 ing disease. Modern health service is largely educational. No one 
 would be sick if he knew how to keep well. There are many ways in 
 which citizens may be kept informed about health matters. These may 
 be briefly enumerated as follows : 
 
 1 — News articles of timely interest 
 
 2 — Special bulletins on fly and mosquito prevention 
 typhoid fever, care of infants, protection of 
 milk, etc 
 
 3 — -Lectures, moving pictures, etc., in schools, clubs 
 commercial organizations, trades unions, etc 
 
 4 — A weekly or monthly bulletin containing interest- 
 ing news regarding local health service and 
 that of other cities 
 
 5 — The annual report 
 
 "City of Denver" A Medium for Health Publicity 
 
 The Denver health office has at its hand an excellent medium for 
 health publicity. Instead, however, of providing a dry-as-dust statis- 
 
72 DENVER 
 
 tical statement of the number of premises inspected, the number of 
 cattle slaughtered, or the number of loads of refuse conveyed to the 
 dumps the authorities should use the "City of Denver" for the publi- 
 cation of pertinent paragraphs on the house fly, don'ts for vacationists, 
 prevention of typhoid fever, bacterial counts of milk, summer care of 
 babies, and other interesting information about health which the public 
 ought to know. At least one page of the "City of Denver" should be 
 devoted to health publicity of this kind. 
 
 The Annual Report Should Be Improved 
 
 The department of social welfare should be highly commended for 
 its efforts to turn out a presentable report of its activities during the 
 past year. There is considerable room for improvement, however, and 
 a comparison of Denver's health report with that of many other cities 
 of one-third Denver's size is certainly not flattering to Denver. In the 
 annual report of the department of social welfare 64 pages are given 
 up to health. Twenty-one of these pages are devoted to various classi- 
 fications of deaths; by months, by ages, by occupations, by nativity, 
 etc. All this information could easily have been placed on less than 
 half the number of pages at considerable saving. 
 
 All statistical information has been arranged by months. This is 
 a waste of good paper and print. It is of no value to the citizens to 
 learn that there were 1,576 cattle killed in May and 1,540 in June. All 
 the information, for example, on pages 13, 14, 15, 16 and 17 could have 
 been condensed and placed on two pages without any decrease in the 
 value of the information. Almost every page of the report shows 
 wasted space, all of which the city must pay for. 
 
 More information of the kind furnished by the meat inspector is 
 needed. The heads of the various divisions should furnish some infor- 
 mation which will be of use to the man on the street. The average 
 citizen probably does not know that there is a system of meat inspec- 
 tion, but if he reads the report of the meat inspector carefully he will 
 want to know more, and interest on his part is just what is wanted. 
 
 It is doubtful if the health report is read by more than a handful 
 of citizens. A great many copies go to other health departments and 
 as a factor in educational health work its value is slight. It can be 
 made of real service and at lower cost. Give the citizen the facts about 
 health work and how he may cooperate, show him how the health 
 authorities are spending the funds he gives them and what they and he 
 are getting for it. He has the right to know ; and when the time comes 
 that the health of the community is made everybody's business a long 
 step toward efficient health control will have been taken. 
 
SOCIAL WELFARE DEPARTMENT 73 
 
 Part III— The Bureau of Charity and Correction 
 
SOCIAL WELFARE DEPARTMENT 75 
 
 PART III— THE BUREAU OP CHARITY AND CORRECTION 
 
 ORGANIZATION 
 
 The "Commission" 
 
 The commission of charity and correction, so called, is a board of 
 three members appointed by the commissioner of social welfare. Its 
 organization, powers and duties are defined by sections 197-8 of the 
 charter as follows : 
 
 There shall be a commission of charity and correction con- 
 sisting of three members appointed by the mayor for a term of 
 two (2) years. The commission shall have control of the de- 
 partment of charity and correction and shall serve without 
 compensation.***** 
 
 The commission shall have charge of all charitable work 
 done by the city and county; have charge of the city and 
 county farm, of the detention school, and may establish and 
 have charge of a municipal lodging house, and shall make and 
 enforce rules for the government of said institutions. They 
 shall perform such other duties, not inconsistent with the gen- 
 eral laws of the state and the provisions of this charter, as the 
 council may, by ordinance, require 
 
 The charter further requires (sections 200 and 202) that — 
 
 The commission shall visit all charitable institutions, all 
 jails and all institutions of the city and county where sick, 
 insane, destitute or other persons are confined, and may cause 
 any person convicted of violating any law or ordinance, and 
 who is confined or on parole, to be examined as to the causes 
 contributing to the delinquency 
 
 The commission shall visit the city and county farm at 
 least once each month ; shall visit the city and county hospitals 
 and may recommend to the mayor any change in management 
 deemed advisable. 
 
 Under section 11 of the revised charter the commissioner of social 
 welfare succeeds to all the powers and duties of the commission. 
 
 Constantly Changing Personnel Hampers Efficiency 
 
 As indicated in the preceding paragraphs, the bureau of charity 
 and correction, is personally responsible for the conduct of the various 
 charitable and correctional institutions of the city. Actually however, 
 because of many changes in the personnel, because of frequent changes 
 in policy and procedure, proper administration of the institutions un- 
 der its charge has been seriously hampered. 
 
 According to a statement prepared by the superintendent of out- 
 door relief, the commission originally created in the fall of 1911 held 
 office until the spring election in 1912, but made no changes in record- 
 
76 DENVER 
 
 keeping or general procedure. Following the spring election in 1912 
 an entirely new commission was created and some changes were made. 
 Two investigators and an executive secretary were appointed. In 
 November 1912 one of the members of the commission resigned and a 
 new member was appointed. In January 1913 old record forms were 
 entirely abolished, and the present record system was installed. In 
 June 1913 the members of the old commission were dismissed and a 
 new commission appointed with the deputy commissioner of health as 
 chairman. The following September two members, the present execu- 
 tive secretary and the present superintendent of outdoor relief, were 
 replaced by two lay members. The commission then consisted of the 
 deputy commissioner of health and the two lay members. One of the 
 lay members has since resigned and the position is still vacant. 
 Executive Secretary, the Executive Head 
 
 With the appointment of an executive secretary the need for a 
 commission ceased. Through immediate contact with the problem of 
 charity and correction, the executive secretary is best qualified to de- 
 termine the needs of his organization. The executive secretary should 
 be made and called the chief of the bureau of charity and correction. 
 He should be directly responsible to the commissioner of social wel- 
 fare. If a lay advisory committee is deemed necessary, the chief of the 
 bureau of charity and correction should be allowed to appoint one, but 
 this committee should act solely in an advisory capacity. 
 
SOCIAL WELFARE DEPARTMENT 77 
 
 APPROPRIATIONS 
 
 In 1913, $107,000 was spent for the maintenance of the various in- 
 stitutions and branches of service conducted by the commission. In 
 1914, $86,465 was appropriated and distributed as follows : 
 
 Outdoor relief $41,000.00 
 
 Mothers ' compensation 10,000.00 
 
 Municipal lodging house and employment 
 
 bureau 3,400.00 
 
 Municipal coal and wood yard 2,085.00 
 
 Detention house 4,980.00 
 
 County farm 25,000.00 
 
 The municipal store, which had been conducted during 1913, was 
 discontinued on January 1st of the present year because it was found 
 that the demands for such goods as could be properly handled in the 
 store were not sufficient to justify the overhead cost. 
 
 Analysis of the administration of the various institutions and their 
 methods in providing efficient service for funds allowed will be dis- 
 cussed in detail for each institution. 
 
 Cost Figures in Various Institutions Not Comparable 
 
 It is impossible to make proper comparison of cost figures in the 
 various institutions under control of the department of social welfare 
 owing to the fact that the same basis has not been used in each case. 
 In the municipal lodging house the average cost per meal is calculated 
 by dividing the total cost of conducting the institution including sal- 
 aries, rent, water, light, heat, fuel, etc., by the number of meals served. 
 In the city and county hospital, the Steele hospital and the county 
 farm, the average cost per meal, according to the annual report for 
 1913, is found by dividing the cost for service, utensils, etc., in the din- 
 ing room and kitchen plus the cost of provisions, by the number of 
 meals served. The cost of fuel, water, repairs, etc., are not included. 
 At the detention home the average cost per meal is. calculated by divid- 
 ing the salary cost of the cook plus the cost of provisions by the number 
 of meals served, although this represents only a part of the actual, cost 
 of purchasing, preparing and serving meals. 
 
 Cost figures are extremely valuable as the basis of supervision and 
 they are interesting to the citizen who wishes to know whether the 
 city's funds are being wisely and economically expended. The present 
 segregation of budget items, because of its lack of detail, does notallow 
 the establishment of proper units on which comparative cost' figures 
 may be based. There should, however, be a common basis for calculat- 
 ing costs and until this is provided cost figures are only approximate 
 and cannot be properly compared. 
 
78 DENVER 
 
 THE COUNTY FARM 
 
 Administration, Employees and Salaries 
 
 The county farm is under the direction of a superintendent who is 
 directly responsible to the bureau of charity and correction through its 
 executive secretary. The employees and their salaries are as follows: 
 
 A superintendent $ 1,500.00 
 
 Assistant superintendent 720.00 
 
 Tuberculosis nurse 480.00 
 
 Porter 420.00 
 
 Housekeeper 480.00 
 
 Engineer .. . ." 1,080.00 
 
 Fireman 720.00 
 
 First cook 600.00 
 
 Second cook 300.00 
 
 2 waitresses at $300.00 each 600.00 
 
 Baker 240.00 
 
 2 chaplains at $120.00 each 240.00 
 
 6 farmers at $360.00 each 2,160.00 
 
 Milker 480.00 
 
 Total salaries $10,020.00 
 
 Male Wards Overcrowded 
 
 At the time of this investigation there were 162 inmates at the 
 county farm, including the inmates of the tuberculosis pavilion. In 
 the main building there are seven wards now occupied. Six of these 
 rooms, which are about 18x35 feet in size, and occupied by men, con- 
 tain 97 patients, each room or ward containing 15 to 17 inmates, an 
 average of 37 to 42 square feet of space to each inmate. Beds are about 
 two feet apart. One large room over the dining room is for women, 
 and 17 women are quartered there. Between each two of the men's 
 wards there is a hall which is filled with benches and used as a smok- 
 ing or lounging room. The large room used by the women is, however, 
 used as bed room and lounging room combined. As the majority of 
 men' are unemployed, they spend a great part of the day in the ward 
 rooms on or in their beds. There are apparently no rules as to smok- 
 ing, and several of the men were observed smoking while lying on their 
 beds. Beside each bed was a cuspidor. Ventilation was uniformly bad. 
 
 A similar condition existed in another ward which is directly over 
 the boiler room in the power house. This room, which is approxi- 
 mately double the size of the regular ward rooms, contained 38 beds, 
 32 of which were occupied. 
 
 With such conditions of over-crowding, definite rules should be 
 established as to the occupancy of rooms. All inmates able to leave 
 their rooms during the day should be compelled to do so, and rooms 
 should be thoroughly cleaned and aired daily.. No smoking should be 
 allowed in the wards at any time, and, except for sleeping purposes, 
 
SOCIAL WELFARE DEPARTMENT 79 
 
 these ward rooms should be kept as free from occupancy as possiblee 
 during the day. Under the most favorable conditions, it is difficult 
 to provide proper ventilation without discomfort to the aged and 
 infirm, who are sensitive to slight changes of temperature. 
 
 It is hoped that occupancy of the two recently constructed hos- 
 pital wards will tend to relieve the present congestion, as sick inmates 
 are now cared for in the regular wards, but more room simply means 
 more inmates. It is the experience of all almshouses that the number 
 of inmates is limited only by the capacity of the institution. This is 
 particularly true in Denver, because many of the almshouse inmates 
 are non-residents without means of support, who have come to Denver 
 seeking health. There are now at the city and county hospital many 
 patients who should properly be at the county farm, but owing to lack 
 of room and because they do not require supervision and custodial 
 care, are kept at the city and county hospital. 
 
 Number of Attendants Insufficient 
 
 There is but one attendant for women and one attendant for men. 
 There are 129 men and 17 women, many of whom need considerable 
 care. The housekeeper, who is a woman with practical nursing expe- 
 rience, is well able to look after the women, but the single male attend- 
 ant has found it necessary to detail an inmate as an aide in charge of 
 each ward. The result is that proper discipline, order and cleanliness 
 are not maintained in the male wards. There should be a paid male 
 attendant, preferably one of institutional experience, in charge of each 
 pavilion of the main building in addition to the present attendant. 
 Each of the three attendants should be personally responsible for two 
 of the male wards in the main building. The large male ward in the 
 power house could be under the personal supervision of the present 
 attendant, who should be the chief of the attendant staff. 
 
 Toilet Facilities Inadequate 
 
 There are four toilet rooms for men in the main building, or one 
 toilet room for each 20 to 25 inmates. Each toilet is equipped with one 
 bath, one urinal, two stools and four wash basins. Bath rooms were 
 dirty and foul smelling, although the attendant stated that they had 
 not yet been cleaned for the day. In each of the toilet rooms was a 
 filthy roller towel, which had apparently been in use several days. 
 In the male ward over the boiler room, in which there were 32 inmates, 
 there was one toilet room containing one bath, two stools, a urinal and 
 three wash basins. Here again was found a dirty roller towel. In the 
 women's ward the toilet was found in much better condition, although 
 here, too, the roller towel was evidently in constant and common use. 
 The ordinance prohibiting the use of roller towels should be observed 
 at the county farm if no where else, for almshouse inmates are almost 
 invariably careless in their habits of cleanliness. 
 
 Clothing and Personal Effects of Inmates Not Fumigated 
 
 No provision is made for the fumigation or sterilization of the 
 clothing and personal effects of inmates. All clothing and personal 
 belongings not in daily use are simply tied up in bundles and stored 
 in the basement in the room where much of the food is stored. These 
 
80 DENVER 
 
 bundles of clothing were covered with dirt and dust. 
 
 All clothing of inmates should be thoroughly fumigated or steril- 
 ized with live steam before being stored, for clothing cared for as at 
 present may remain vermin-infected or even infected with disease- 
 producing germs for a long time. 
 
 Inmates Should Receive Physical and Mental 
 Examinations on Admission 
 
 Medical attention is provided as needed by a physician who lives 
 near the county farm. lie receives $20 a month for his services, which 
 the assistant superintendent stated are satisfactory. No physical ex- 
 aminations are given inmates on admission. The attendant stated that 
 almost all male inmates are infirm and unable to work. Of this, how- 
 ever, there can be no definite proof without proper examinations. It 
 is not likely that any inmate would admit that he is able to work so 
 long as it is possible for him to live without work. Not only are phys- 
 ical examinations desirable in determining how many inmates are phys- 
 ically able to perform tasks suited to their strength, but also for deter- 
 mining proper treatment of those who are physically weak. 
 
 Many of the male inmates and practically all of the female inmates 
 are mentally defective, and in the women's ward several were observed 
 who should be in an institution for the insane. An effort should be 
 made to discover what inmates are insane in order that they may be 
 removed from the county farm to the proper institutions. It is de- 
 cidedly improper to compel women without mental defects to live in 
 the fame rooms with those whose mental condition makes them an 
 annoyance and perhaps a menace. 
 
 Care of Tuberculosis Patients 
 
 There are 16 male tuberculous patients quartered by themselves in 
 a small frame building that was originally a farm house. A male nurse 
 is constantly in attendance. All cooking is done within the building 
 by a special diet cook. Although the building is not in the best of re- 
 pair and not adapted by construction for proper care of tuberculous 
 patients, the service which is being rendered is a much needed one. 
 Good food, rest and plenty of fresh air and sunshine are furnished in 
 abundance. No records are available, however, to show whether the 
 treatment given these patients is successful. The test of hospital 
 service is result of treatment, x and without complete individual case 
 records such results cannot possibly be determined. 
 
 Improved Register of Inmates Recommended 
 
 A register is kept of inmates which shows only the few facts re- 
 garding the individual's name, age, address, date of admission and 
 date of discharge, which are needed for identification. No record 
 accompanies the patient who may be transferred from the city and 
 county hospital to the county farm, nor is any record kept of the phys- 
 ical condition of the inmate after his arrival. In the tuberculosis ward 
 temperature charts only are kept. 
 
 It is recommended that a card record be maintained of every in- 
 mate. This should include the information required for registration 
 
SOCIAL WELFARE DEPARTMENT 81 
 
 and identification; physical history, mental condition, admitted 
 through transfer from other institution or on recommendation of char- 
 ity board, previous , hospital or institutional care, condition on dis- 
 charge, destination on discharge, and any other facts which might be 
 of value in determining the efficiency of the institution as reflected 
 by the care or treatment given the individual. 
 
 In the tuberculosis ward similar card records should be kept in 
 addition to complete hospital records of physical condition from day 
 to day, such as gain or loss in weight, temperature, etc. These facts 
 are important. If the county farm method of treating tuberculous 
 patients is successful, it is of interest to every citizen to know it ; if it 
 is unsuccessful, the fact should be known and an effort made to deter- 
 mine the reason. 
 
 Better Ambulance Service Needed 
 
 The ambulance in use at the county farm at the time of this in- 
 vestigation was one that had been borrowed from the Steele hospital. 
 It was a horse-drawn vehicle, closed at ends and sides and furnished 
 with two narrow padded benches. The stablemen stated that the am- 
 bulance in regular use was being repaired, but that it was even more 
 uncomfortable than the borrowed one. To transfer aged and infirm 
 patients 17 miles in this "Black Maria" borders on the criminal. As 
 much forethought and care should be shown by the city in its dealings 
 with the man or woman destined to the county farm as in its dealings 
 with its other charges. The ambulance of the city and county hospital 
 should be used for these transfers; or, if police surgeons are discon- 
 tinued, the police ambulance could be used. 
 
 Resources of Farm Should be More Widely Developed 
 
 Until the past year little attempt was made to develop the re- 
 sources of the farm. A dairy barn has recently been built, however, 
 which accommodates 54 cows. The 24 cows now owned at the farm 
 produce an average of 65 gallons of milk daily, 15 gallons of which are 
 used to supply the Steele hospital. By increasing the number of cows 
 enough milk could be produced to supply a large part of the milk 
 needed at the city and county hospital, which paid $7,140.93 for milk 
 and cream during 1913. Vegetables, which cost the city and county 
 hospital $2,073.05 during 1913, could be supplied from the county farm 
 at half that cost. In fact, the city and county farm should be able to 
 produce on its 340 acres enough farm products to supply the needs of 
 practically all the city institutions. This means wider cultivation and 
 more employees, but the saving which would result would warrant the 
 increased outlay. 
 
 Employment Should be Provided for Inmates 
 
 Aside from the employment of a few of the inmates as assistants 
 in care of wards and as dishwashers in the kitchen, practically no pro- 
 vision is made for furnishing light work for inmates who are able to 
 work v Every inmate who can be kept busy should be kept busy. 
 There are plenty of odd jobs to do, such as cleaning, mending, paint- 
 ing, or light work on lawns and roadways. If men can be found who 
 
82 DENVER 
 
 have any special ability as carpenters, shoemakers, tailors, gardeners, 
 etc., they should be put to work at these occupations. Many men were 
 observed absolutely idle who would have been better off at some light 
 work. The ingenuity of the superintendent will be severely taxed to 
 furnish occupations for inmates, but there are few who could not be 
 used with benefit to themselves and to others. 
 
 Cost of Feeding Inmates Low, But Should be Lower 
 
 The following dietary is provided for inmates at the farm : 
 
 Breakfast 
 
 Cereal 
 Coffee 
 Bread, butter and syrup 
 
 Dinner Supper 
 
 Meat, stew or boiled meat ,,.,, , -,- 
 
 Soup-twice a week f + llk P uddm / or rice 
 
 One vegetable Stewed frmt 
 
 Pudding — when soup is not served ® a , , , 
 
 rp Bread and butter 
 
 Bread and butter Eggs-on Sunday 
 
 This is a very ample menu, but, according to the report of the 
 superintendent of the farm, the average cost per meal during 1913 was 
 only .05,4 cents. These cost figures are not strictly accurate, because 
 they include only the cost of foods, utensils and service in the kitchen 
 and dining room. The cost of production of food, the cost of coal re- 
 quired to cook it, and other minor items were not included. As the 
 same factors were considered in calculating the cost of meals at the 
 city and county hospital ($.0817) and at the Steele hospital ($.088), it 
 is fair to compare the cost of meals in these other institutions with 
 that at the county farm. 
 
 This cost should be further reduced during the coming year. Now 
 that proper facilities are at hand, enough butter, vegetables, eggs, etc., 
 should be produced to supply completely the needs of this institution, 
 as well as other city institutions. So far as possible the food furnished' 
 inmates should be home-grown. Large quantities of fruit could be pre- 
 served. In fact practically all food required except meats could be 
 produced at the farm. Meats should be purchased by the carcass and 
 not by cuts. 
 
 Stores Accounts Needed 
 
 Although large quantities of provisions are stored in the basement,, 
 no stores records are kept. The assistant superintendent is in charge 
 of the store room, and issues goods only upon requisition by the cook, 
 housekeeper, or superintendent. No stores records are kept other than 
 these requisition slips, and the record of the inventory which is made 
 annually. For the , information of the superintendent, me executive 
 secretary and the citizen who may wish to know, records should be 
 kept which 'will show the exact condition of stores and the daily, week- 
 ly or monthly consumption. 
 
SOCIAL WELFARE DEPARTMENT 83 
 
 OUTDOOR RELIEF 
 
 Staff and Duties 
 
 Outdoor relief is under the direction of a superintendent of relief, 
 who receives $1,200 per year and is directly responsible to the execu- 
 tive secretary. The office and field staff under his direction consists 
 of two stenographers at $720 per year, an interviewer at $840 per year, 
 and three visitors, two of whom are paid $840 per year and one $720 
 per year. 
 
 The stenographic and clerical work of the office is heavy, owing 
 to the completeness of the records and the amount of correspondence 
 required to satisfy the records. Careful personal investigation of 
 records and correspondence demonstrates that there is little doubt that 
 the services of two stenographers are required. 
 
 The interviewer receives all applicants for aid and makes the pre- 
 liminary examinations necessary. If the pressure of work renders it 
 necessary, she performs field work also in the investigation of cases. 
 She is required to carry on the correspondence necessary to establish 
 the proper status of the applicant as worthy and properly a charge of 
 the city and county. Observation of the work of the interviewer and 
 examination of the records of her service indicates that this position 
 is a necessary one. 
 
 The three investigators spend the greater part of their time in the 
 field following up the various sources of information indicated in the 
 preliminary applications in order that the precise degree of responsi- 
 bility on the part of the applicants may be fixed. Analysis of the 
 work of the visitors, as shown in the reports of investigations, indicates 
 that these visitors are thorough in their work and perform a necessary 
 service in proper distribution of relief. 
 
 Investigation Thorough; Records Commendable 
 
 Applicants for relief are required to fill out an application for re- 
 lief calling for the following information : 
 
 Date 
 
 Surname — Address 
 
 Names of others in the family 
 
 Where born 
 
 Date of immigration, U. S. 
 
 Date of immigration, Colorado 
 
 Date of immigration, County 
 
 From what county 
 
 References 
 
 Remarks 
 
 If the need of the individual is not urgent, the ease is referred to 
 one of the visitors, who makes a thorough investigation to determine 
 the circumstances of the individual or his family, physical or mental 
 defects of the members of the family, sources of income, insurance, re- 
 
84 DENVER 
 
 sponsibility of relatives, religious affiliations, references, previous aid 
 received, names and addresses of employers, and, in fact, all informa- 
 tion upon which may be determined the exact needs of the individual 
 and of those dependent upon him for support. All sources of reference 
 or information indicated by the visitor's report are carefully followed 
 up; and all correspondence, memoranda and reports relative to the 
 investigation are attached to the record, which is filed according to 
 the name of the applicant. A material relief record, which is attached 
 to the history sheet, shows when and what kind of aid is subsequently 
 given. This sheet shows the following facts : 
 
 Date 
 
 Groceries given 
 
 Coal given 
 
 Rent paid 
 
 Clothing given 
 
 Other aid 
 
 Source of other aid 
 
 The method of record-keeping and the manner in which records 
 are filled out is satisfactory. With such a comprehensivee history of 
 each case, the superintendent of relief is well able to determine not 
 only the needs of the applicant, but also to inaugurate a program for 
 making him self-supporting. The records for 1913 show that, although 
 1,997 applications were made, material relief was given to but 1,157, 
 or 57 per cent. The remaining 43 per cent were denied relief on the 
 ground that the investigation demonstrated that relief was not needed. 
 There can be no question as to the need for this thorough investigation, 
 and the cost of maintaining a staff of visitors or investigators, which 
 appears large, is more than offset by the prevention of pauperization 
 and the actual saving in material aid which might otherwise be given. 
 There were 840 persons who were refused aid. Had they been given 
 material aid the cost to the city would have been many times greater. 
 
 Duplication Prevented by Confidential Exchange 
 
 A confidential exchange is maintained where records are kept of 
 all cases obtaining relief from any organization. "When an applica- 
 tion for relief is received by an organization holding membership in 
 the exchange, a registration slip is mailed to the registrar of the ex- 
 change, who records the information contained thereon and returns the 
 slip to the sender with information as to any relief which may have 
 been rendered by other organizations or individuals. In this way a 
 great deal of duplication of relief is prevented. 
 
 Grocery and Coal Orders Properly Checked 
 
 Orders for groceries calling for the specified list of articles are 
 issued periodically to applicants who have satisfied the supervisor of 
 relief that they are entitled to relief. The grocery order is made out 
 to a dealer in the district in which the applicant lives, or another with 
 
SOCIAL WELFARE DEPARTMENT 85 
 
 whom he may desire to trade. All orders are prepared in duDlieate 
 
 The following list of groceries is specified on the slip : 
 
 
 23 lbs. Mour 
 
 
 12 lbs. Potatoes 
 
 
 10 lbs. Corn meal 
 
 
 2 lbs. Crackers 
 
 
 2 lbs. Colorado lard 
 
 
 2 lbs. Rice 
 
 
 2 lbs. Sugar 
 
 
 2 lbs. Navy beans 
 
 
 2 lbs. Salt pork 
 
 
 % lb. Tea 
 
 
 % lb. Can of baking powder 
 
 
 1 lb. Coffee. 
 
 
 1 bar Laundry soap. 
 
 
 The executive secretary determines by questioning the applicant 
 what other things the applicant may need. If in his opinion other food 
 supplies are needed, he may allow them. The individual then takes 
 this order, signed by the executive secretary, to the grocer, who fills 
 the order and requires the purchaser to sign a receipt upon the order 
 blank, stating that all supplies listed on the order have been received 
 in good condition. At the end of the month the order is returned with 
 the grocer's bill to the executive secretary, who checks the accuracy 
 of the bill from his duplicate record and issues a requisition upon the 
 auditor for the amount of the bill. 
 
 In like manner an order for coal or wood, also in duplicate, may 
 be issued by the executive secretary upon the superintendent of the 
 coal and wood yard. This order is presented by the applicant at the 
 municipal coal and wood yard and must be presented by the driver to 
 the applicant for receipt at the time coal is delivered. This order is 
 retained by the driver and is turned in to the executive secretary with 
 his monthly bill. Deliveries of coal and wood are made by private 
 teamsters, who are paid according to the distance traveled. The city 
 is divided into three zones. Deliveries in the first zone cost 50 cents, 
 in the second zone $1.00, and in the third zone $1.50. 
 
 Improved Record of Cash Relief Recommended 
 
 Cash relief is given only in emergency cases, and only in amounts 
 of $3 or less. If in the opinion of the supervisor of outdoor relief a 
 greater amount is needed, the applicant is given an order upon the 
 auditor. When cash relief is given the employee who actually dis- 
 burses it is required to give a receipt to the supervisor of relief. This 
 receipt states the purpose for which the money is to be used, and it is 
 signed by the employee actually disbursing the cash and turned over 
 to the applicant. The individual to whom it is given in turn renders 
 a separate receipt for the amount. The two receipts are then pinned 
 together and remain as the official record of the transaction. If, how- 
 ever, the receipt from the person who finally received the money should 
 be lost, there is no positive record that the money was used for the 
 
86 DENVER 
 
 purpose for which it was allowed. A single receipt should be used, 
 which will serve not only as the receipt from the employee who dis- 
 tributes the funds, but also as a receipt from the person to whom it is 
 finally paid. These receipts should be filed with the complete record 
 
 of the case. 
 
 Liquor Cure Should be Discontinued 
 
 Certain applicants for aid, whose indigence is considered to be 
 largely the result of intemperance, have been given treatment for the 
 liquor habit at a local institution. These treatments require three to 
 five days, and are paid for at the rate of $20 per treatment. Careful 
 inquiry among local physicians, and an interview with the proprietor 
 of the "cure," elicits the fact that the method is to nauseate the patient 
 by medicinal treatment. What the medicine is, how it is prepared, and 
 what symptoms other than nausea it provokes, could not be determined 
 owing to the fact that the formula is a secret. In 1913, $852.06 was 
 paid to the proprietor of this cure. No special records have been kept 
 of these cases, and there is no basis upon which may be determined 
 the effectiveness of the cure, except personal examination of individ- 
 uals. Although there can be no question as to the desirability of at- 
 tempting to provide a cure for the liquor habit, there is insufficient 
 evidence that this is a satisfactory cure, or that this is a proper ex- 
 penditure of city funds. No cure which depends merely upon nauseat- 
 ing the individual can be successful in more than a small percentage 
 of cases, and then only when the conditions underlying the individ- 
 aul's desire or tendency to drink can be removed. Furthermore, the 
 use of secret prescriptions upon the city's poor without the supervision 
 of city physicians cannot be sanctioned. Under no circumstances, with 
 or without such supervision, should any person be treated without a 
 complete record of his treatment and the result obtained. According 
 to such records as are available, of a series of cases treated during the 
 past year at the municipal lodging house, many relapsed after a period 
 of a few, months. No definite data can be obtained, however, owing 
 to the fact that no records of treatment and follow-up are available. 
 Many of the recipients of the treatment have passed from observation, 
 and no information as to the permanency of the cure can be had. 
 
 The individual is required to give a six months or one year note 
 for $20, but as these notes are simply promises to pay, it is not likely 
 that much money will be returned. No notes have fallen due as yet. 
 
 Division of Authority in Administration of Mothers' 
 Compensation Should Be Avoided 
 
 Relief given under the mothers' compensation act is under the 
 supervision of the juvenile court. By courtesy, however, the investiga- 
 tion of applications for relief and the subsequent supervision, of recip- 
 ients of aid under the act has been placed in the hands of the division 
 of outdoor relief, although the juvenile court conducts its own investi- 
 gations and exercises supervision through the probation officers of the 
 court. It is not clear why this same work should be performed by two 
 
SOCIAL WELFARE DEPARTMENT 87 
 
 different investigators. The investigation of an application for aid 
 under the mothers' compensation act requires a considerable expendi- 
 ture of time and money, and duplication of service doubles the cost to 
 the city. 
 
 The bureau of charity and correction is charged with the admin- 
 istration of funds appropriated for mothers' compensation. There is 
 no check, however, upon the manner in which the judge of the juvenile 
 court may distribute this appropriation. So far no difficulty has 
 arisen, but the court is not bound in any way to accept suggestions. 
 So long as the court has power over this appropriation and may dis- 
 tribute it as it sees fit, the court should be charged with the adminis- 
 tration of these funds, and appropriations for this purpose should be 
 made to the juvenile court. The probation officers of the juvenile 
 court are well qualified to make investigation, and the advantage of 
 having entire control of investigation and resources under one head 
 is apparent. 
 
 Employees Should Keep Expense Records 
 
 No records are kept by visitors of the way in which money allowed 
 for carfare, telephone, etc., is spent. When the visitor needs money, 
 she notifies the supervisor, who allows her the amount wanted. The 
 visitor then gives the supervisor a receipt for the money and the trans- 
 action is closed. "While there is no ground for supposing that the 
 money supplied visitors for expenses is not properly used, the pro- 
 cedure is unbusinesslike and open to abuse. Visitors and other em- 
 ployes using public funds should be required to render in their weekly 
 reports expense statements showing how money was spent. It would 
 then be possible to check these expense records against the daily rec- 
 ords of service performed. 
 
 Improved Service Records Reccommended 
 
 The executive secretary is to be commended for his efforts to se- 
 cure complete records of time and service by employees in the division 
 of outdoor relief. Every employee is required to submit to the execu- 
 tive secretary on Monday morning a summary of work performed dur- 
 ing the previous week. This summary calls for the following informa- 
 tion as to each day's service : 
 
 Time work was begun 
 
 Time off 
 
 Time work was concluded 
 
 Hours worked 
 
 Visits made 
 
 Office interviews 
 
 Letters written 
 
 Other work done. 
 
 Working hours are from 9 :00 to 5 :00, except on Saturdays, when 
 the regular closing hour is 1 :00 o'clock. During the month of January, 
 when three part-time visitors were employed to assist in investigating 
 
gg DENVER 
 
 the increased number of applications for relief, there were 22 full 
 working days of seven hours each, and five Saturdays of four hours 
 each The required hours of service were therefore 174 for the month. 
 The following summary of time spent by the various employees was 
 taken from the summary record book of the executive secretary : 
 
 Full-Time Employees Hours of Service January, 1914 
 
 Executive Secretary 203 Hours 20 Minutes 
 
 Supervisor of Relief 208 Hours 45 Minutes 
 
 Stenographer 185 Hours 50 Minutes 
 
 Stenographer 182 Hours 55 Minutes 
 
 Interviewer 204 Hours 15 Minutes 
 
 Visitor 198 Hours 40 Minutes 
 
 Visitor 189 Hours 35 Minutes 
 
 Visitor 214 Hours 00 Minutes 
 
 Total hours of full-time 
 
 employees 1,587 Hours 20 Minutes 
 
 Average daily hours of full- v 
 time employees (27 work- 
 ing days) 7 Hours 21 Minutes 
 
 Part-Time Employees 
 
 Visitor 117 Hours 30 Minutes 
 
 Visitor , 140 Hours 00 Minutes 
 
 Visitor 168 Hours 45 Minutes 
 
 Total hours of part-time 
 
 employees 426 Hours 15 Minutes 
 
 Average daily hours of part- 
 time employees (27 work- 
 ing days) 5 Hours 15 Minutes 
 
 Daily reports are extremely valuable to the supervising officer as 
 a basis for determining the efficiency of his staff, particularly where 
 a large part of the work is performed in the field. The time records 
 should show not only the number of visits made — for this means little 
 or nothing — but also where visits were made and the time required 
 for each visit. 
 
SOCIAL WELFARE DEPARTMENT 89 
 
 MUNICIPAL LODGING HOUSE AND EMPLOYMENT BUREAU 
 
 Administration Commendable 
 
 The superintendent of the municipal lodging house, who receives 
 $900 per year and maintenance for himself and wife, is directly- re- 
 sponsible to the executive secretary. So far as could be observed in a 
 one-day study of this institution, its affairs are in the main well ad- 
 ministered, and, although there is still room for improvement, physical 
 conditions in the institution are worthy of favorable comment. Good 
 order, discipline and cleanliness are in evidence throughout the build- 
 ing. 
 
 Recommendation for Improved Construction 
 
 The two floors of the building which are available for use are cut 
 up into small rooms, each containing two or three beds. Rooms on 
 each floor are arranged on either side of the corridor, the corridor on 
 the lower floor being used as a dining room, while that on the upper 
 floor is used as a reading and lounging room. Although the rooms at 
 each end of the corridor are open to the outside air, the rooms between 
 are dark and unventilated except by windows which have been cut 
 through the walls into the end rooms. Fairly good ventilation may be 
 secured by opening all windows in each end room, but in winter, when 
 it is desirable to keep the corridors warm, ventilation of inside rooms 
 is difficult. 
 
 The provision of separate rooms for small groups' of lodgers, while 
 desirable perhaps from the lodgers' point Of view, is not the most sat- 
 isfactory plan. The best municipal lodging houses are arranged on the 
 dormitory plan, so that definite rules regarding ventilation, conduct 
 of lodgers, etc., may be established for all and readily enforced. The 
 use of the vacant ground floor of this building for superintendent's 
 office, dining room and kitchen would leave both upper floors free for 
 sleeping quarters. The partitions between small rooms should be torn 
 down and the entire space on each floor converted into one large dor- 
 mitory room, the lower floor being used for men and the upper floor 
 for women. As the number of women who apply for lodging is small, 
 one or two small rooms on the top floor could be preserved for their 
 occupancy. It is highly desirable, however, to have the quarters for 
 men and women absolutely separate. As much sleeping space could 
 be secured on one floor by this change as is now available on two floors. 
 
 A bath and a small toilet are provided on each floor. The toilets 
 are separated from the baths and they are dark and poorly ventilated. 
 It is recommended that the partitions between toilets and baths be 
 removed so as to improve lighting and ventilation of toilets. 
 Physical Examination of Lodgers Should be Required 
 
 No applications for admission to the lodging house are received 
 after 10 o'clock p. m. Each applicant is required to fill out an appli- 
 cation blank which calls for information as to his name, age, occupa- 
 tion, address of relatives and friends, length of time idle, physical con- 
 dition, etc. 
 
90 DENVER 
 
 No physical examinations are given lodgers before they are ad- 
 mitted. All are required to take a hot bath and their clothes are taken 
 from them and thoroughly fumigated. Bach lodger is given a clean 
 night shirt at bed time and furnished with a clean, freshly changed bed. 
 
 It is highly desirable that each lodger be given a physical exam- 
 ination before admission. These men, who are traveling about the 
 country, sleeping in all sorts of places, many of them unclean or suffer- 
 ing from parasitic or infectious diseases, should not be allowed to en- 
 danger others or the entire community because of failure of the authori- 
 ties to observe proper precautions. One of the city physicians should 
 be required to visit the lodging house every night before 10 o'clock 
 to examine lodgers. In view of the fact that it is claimed that many 
 of the smallpox cases are brought to Denver by wayfarers, the health 
 authorities should insist that all lodgers be vaccinated except those 
 who are now able to show a vaccination scar. 
 
 Fumigation of Clothing Unsatisfactory 
 
 The lodgers' clothes are tied up in a bundle and fumigated during 
 the night by the use of formaldehyde fumes. The superintendent 
 stated that he believes this to be sufficient for the destruction of ver- 
 min. Clothing which is tightly tied up in bundles cannot be thor- 
 oughly disinfected by this method. It is recommended, therefore, that 
 clothing be hung upon clothes hangers and so fumigated, in order that 
 there may be no doubt as to the effectiveness of disinfection. 
 
 Smoking Should be Prohibited 
 
 Lodgers are allowed to smoke in the corridor on the upper floor. 
 As noted in a previous paragraph, the fact that lodgers occupy small, 
 separate rooms makes it difficult to control them when once they have 
 retired to their rooms, and it is more than probable that lodgers do 
 smoke in their rooms. This difficulty would be met by the dormitory 
 arrangement suggested. In view of the fact that the building is almost 
 wholly unprotected against fire (see report on the bureau of fire), it is 
 recommended that lodgers be required to turn over all matches and 
 smoking materials to the superintendent, and that rules prohibiting 
 smoking by lodgers be posted and rigidly enforced. 
 
 Work Requirement in Return for Lodging and Meals 
 
 Three hours of work at the municipal coal and wood yard is con- 
 sidered a sufficient return for supper, lodging and breakfast. The 
 .applicant for aid is given a ticket which he presents to the superin- 
 tendent of the coal and wood yard. On completion of his work the 
 superintendent notes the hours worked and the individual is then given 
 food and lodging to the amount credited to him upon his ticket. It is 
 the rule that no more than two nights' lodgings may be given to any 
 one applicant, but the superintendent may rescind this rule in special 
 cases if he deems fit. This is apparently an equitable arrangement 
 and the superintendent stated that little difficulty is met with in 
 getting a proper work equivalent for aid rendered. 
 
SOCIAL WELFARE DEPARTMENT 91 
 
 Service of Employment Bureau Extended by Co-operation 
 with State Bureau 
 
 The superintendent also conducts an employment bureau in which 
 any indigent person who desires permanent employment may register 
 free of charge. A list of positions is kept and an attempt is made to 
 fill them by assignments from among those registered in the employ- 
 ment bureau. The results, as indicated in the annual report of the 
 superintendent, are well worthy of note. During 1913 more or less 
 permanent employment was secured for 1,350' persons, not including 
 those who received temporary employment at the municipal coal and 
 wood yard. 
 
 A state employment bureau has been established in Denver, but 
 the superintendent of the municipal employment bureau states that he 
 has made no effort to co-operate with the state bureau. It is quite 
 probable that the service rendered by both bureaus could be improved 
 by co-operation and exchange of lists. 
 
 Feeding of Lodgers 
 
 Only two meals a day are served to lodgers. In the morning they 
 receive coffee, bread and butter, and oatmeal, with sugar and milk; 
 for supper, meat and potatoes, bread, butter and coffee. According to 
 the records, the average cost per meal during January, 1914, was $.007 ; 
 February, $.1007 ; March, $.118. A comparison of these figures indi- 
 cates a higher meal cost than in the city and county hospital ($.0817) 
 and the Steele hospital ($.088). Analysis of cost figures for meals at 
 the> lodging house shows, however, that the figures of the superintend- 
 ent were based upon total cost of the institution during the three 
 months named, including salaries, rent, fuel, light and heat and other 
 miscellaneous items; while the average cost per meal in the other insti- 
 tutions was calculated on the basis of cost for groceries and provisions 
 and service in dining room and kitchen. It is impossible, therefore, to 
 make proper comparisons of average meal cost in the various institu- 
 tions. If -cost figures at the municipal lodging house had been calcu- 
 lated on the same basis as that in other institutions it would be found 
 that the average cost per meal at the municipal lodging house is only 
 about one-half that in other city institutions. This is probably due to 
 the fact that the superintendent and his wife eat precisely the same 
 fare as the lodgers, and also because the cost of service in the municipal 
 lodging house is much lower than that in the other institutions. 
 Records and Reports 
 
 The admission slips, upon which all the information needed for 
 registration of the individual is entered, are completely and properly 
 filled out. These are filed alphabetically according to the name c* th? 
 individual. For filing purposes, however, this record could be im- 
 proved by the use of a small three by five card instead of the flimsy 
 five by eight sheet now used. 
 
 A monthly report of the number of beds furnished, number of 
 mea's provided, and the number of positions secured for applicants is 
 
92 DENVER 
 
 rendered to the executive secretary. It is recommended that in addi- 
 tion to the monthly report a daily report of service at the municipal 
 lodging house and employment bureau be rendered, embodying the 
 following facts: 
 
 Number of admissions Male Female 
 
 Number of beds occupied 
 
 Number of meals served. 
 
 Number of lodgers given temporary employment at 
 the coal and wood yard 
 
 Number of lodgers registered in employment bureau 
 
 Number of lodgers given permanent employment. 
 
 Other facts, such as illness of lodgers, medical atten- 
 tion, etc. 
 
 Such a report would keep the executive secretary daily informed 
 as to conditions at the lodging house, so that proper action could be 
 taken immediately should the necessity arise. 
 
SOCIAL WELFARE DEPARTMENT 93 
 
 MUNICIPAL GOAL AND WOOD YARD 
 
 Work Test f6r Able-bodied Indigents 
 
 The coal and wood yard which is conducted by the department 
 of social welfare has proved to be an effective agent in reducing the 
 cost of caring for the indigent and in reducing the number of those 
 who would receive aid without adequate work return. 
 
 There are two regular employees at the yard, a superintendent, 
 who receives $900 per year, and a watchman at $480 per year. All 
 other work is performed by those who may be sent from the municipal 
 lodging house or directly from the department of outdoor relief. 
 Lodgers at the municipal lodging house are required to work three 
 hours as payment for supper, lodging and breakfast, while other work- 
 ers receive payment according to the number of hours worked at the 
 rate of $1.00 cash or $1.50 in groceries for eight hours' work. 
 
 City Saves on Purchases of Fuel 
 
 Coal is purchased at the rate of $2.80 a ton at the track, which is 
 immediately adjacent to the yard, and the work of unloading and 
 storing coal is performed by the temporary employees in return for 
 aid given. Coal deliveries to families are made according to orders 
 issued by the executive secretary, and these deliveries cost from $0.50 
 to $1.50, according to the zone in which delivery is made. This method 
 of supplying coal saves the city an amount equal to the dealer's profit, 
 or approximately one-third. 
 
 Wood is obtained without cost from the bureaus of highways and 
 parks. The work of sawing and splitting is done by men from the 
 municipal lodging house. Thus the city receives practically without 
 cost, except for meals and lodging at the municipal lodging house, 
 wood enough to supply its needy families. 
 
 City's Waste Paper Utilized 
 
 During 1913 a building costing $2,000 was erected on the grounds 
 for housing the paper-baling apparatus and material. Waste paper 
 is collected from the stores and from the street cans and sorted and 
 baled by employees at the yard. Two men are regularly employed at 
 the yard, although they are not upon the city payroll. They and their 
 families are recipients of aid from the division of outdoor relief, and 
 because of their experience in paper sorting and baling they are con- 
 tinued as regular employes at $1.00 per day. This is not paid in cash, 
 but is credited to them by the division of outdoor relief for aid ren- 
 dered. 
 
 Paper is sold at prices varying from $3.00 to $10.00 per ton, and 
 about one carload a month is shipped out. The superintendent stated 
 that the revenue received from this industry is about sufficient to pay 
 the wages of the men employed. As the families of these workers 
 would otherwise become charges of the division of outdoor relief, this 
 
94 DENVER 
 
 method of their support is an actual saving. In addition to paper sort- 
 ing and baling work is furnished to indigents when wood sawmg is 
 not needed. 
 
 Night Watchman Should Earn His Salary 
 
 The presence of a night watchman at the coal and wood yard is a 
 necessity because of thieves who make frequent raids upon the coal and 
 wood piles. It was noted, however, that there was a bed in the super- 
 intendent 's office, which he stated was used by the night watchman. 
 Of course it is useless to provide a night watchman and then give him 
 a bed, for few watchmen actually watch if they are allowed to go to 
 bed during their hours of work. 
 
 Records and Reports Commendable 
 
 The superintendent keeps a record book in which he enters the 
 name, amount of the order, address of the recipient of each order, the 
 date of the order, date of delivery, the order number and the name of 
 the driver who delivered the order. These facts are summarized for 
 the day upon a daily report to the executive secretary, showing the 
 total amount of fuel delivered, amount on hand at last report, amount 
 .received and car number, amount delivered and balance on hand. 
 This is a very satisfactory record, for it enables the executive secretary 
 to learn at any time the exact condition of stores. 
 
 In addition to the above records the superintendent of the yard 
 keeps a record book which shows the amount of work performed by all 
 employees, both regular and temporary. He also submits a weekly re- 
 port, which shows in detailed form all the business done each week, 
 including the number of men employed, the hours of service rendered, 
 receipts of supplies and their cost, sales and receipts from sales, and 
 all items of expense entailed in the conduct of the yard. This record 
 is very complete and the superintendent of the yard is to be com- 
 mended for the completeness and accuracy of his records and reports. 
 
SOCIAL WELFARE DEPARTMENT 95 
 
 DETENTION HOME 
 
 Division of Authority in Administration of Detention Home 
 
 The detention home is under the direction of the bureau of charity 
 and correction, but the superintendent of the home is appointed by the 
 judge of the juvenile court. The superintendent of the institution is 
 also a probation officer, and he regards the judge of the juvenile court 
 as his superior officer, although the detention home is under the 
 administrative control of the department of social welfare. It is evi- 
 dent from conversation with the superintendent that there is a great 
 deal of friction between him and the bureau of charity and correction, 
 so much so in fact, that proper administration of the home is seriously 
 hampered. It is recommended, therefore, that the detention home be 
 placed entirely under the supervision of the social welfare department 
 by requiring that the superintendent of the home be appointed by the 
 commisioner of social welfare and made directly responsible to the 
 executive secretary. 
 
 Salary Cost Should be Reduced 
 
 The superintendent of the home receives a salary of $1,200 a year 
 and maintenance. His wife acts as matron and receives no salary, al- 
 though she is allowed maintenance in the home. The school board fur- 
 nishes a teacher for the children in the home at a salary of $50.00 per 
 month, and the bureau of charity and correction provides for his main- 
 tenance. The cook receives $40.00 per month and maintenance. The 
 superintendent is also allowed maintenance for his daughter. 
 
 The detention home accommodates about 13 children in addition 
 to the superintendent, his wife and daughter and the cook. During 
 1913, according to the report of the superintendent of the home, there 
 was a daily average of seven to eight children in the home. To care 
 for this small number of children in the home should not require such 
 a large outlay for salaries. Maintenance is furnished for the superin- 
 tendent, his wife and daughter, and this fact should be taken into con- 
 sideration. A cook should not be necessary, and the wife of the super- 
 intendent should perform this service without extra salary. The 
 executive secretary stated that he is positive that a competent couple 
 could be secured who would perform all the work required at the single 
 salary cost of $1,200 per year and maintenance. This extra salary cost 
 of maintenance of this institution should not exceed $1,200 per year. 
 
 Improved Registration of Children Recommended 
 
 When a child is brought to the detention home the officer who 
 brings him is given a receipt, which states the name of the child, age, 
 address, arresting officer, complaint, where arrested and the date. 
 To be committed to the home does not necessarily mean that the child 
 was under arrest, as this receipt indicates, for children are frequently 
 committed for care until responsibility for further care can be fixed 
 upon friends or relatives. For example, at the time of this study a 
 child was being held at the detention home because he had been left 
 
96 DENVER 
 
 suddenly an orphan, and an effort was being made to establish com- 
 munication with his relatives. This receipt should therefore be modi- 
 fied to show simply the cause of detention — not of arrest. 
 
 Bach child is registered on a card as soon as admitted. This card 
 calls for the name, address, age, school grade, charge, officer and date 
 of admission — almost identically the some information contained upon 
 the receipt given the officer who brings the child to the home. In addi- 
 tion to this card record the superintendent keeps a large record book, 
 in which are entered for each child — serial number, age, present (that 
 is, the number of children in the home at the time of admission), num- 
 ber of meals served, charge, school attendance when released and dis- 
 position. This record was not completely filled out, however, and it 
 was therefore valueless for the purpose of analyzing the service ren- 
 dered. 
 
 To simplify this cumbersome method of record-keeping, it is recom- 
 mended that a duplicate form be used, so that when the receipt is given 
 ! to the officer for the child, the duplicate, which should be a card for 
 filing, will contain all the information necessary for registration. The 
 back of this duplicate card, which is to remain in the home as the per- 
 manent record, should call for all additional information desired as to 
 his commitment, conduct in the home, length of stay, school work, dis- 
 charge and final destination. This would mean that a single writing 
 would suffice for the complete record. 
 
 General Conduct of the Home 
 
 So far as could be observed in the short length of time devoted 
 to the study of the work of this institution, there is much that is com- 
 mendable in the general appearance of buildings and grounds. The 
 building is old and floors and walls are not in the best of repair, but 
 it is very well cared for throughout. The rooms are large, well venti- 
 lated and thoroughly clean, bedding is clean and in good condition, 
 toilets and baths are clean, well lighted and ventilated, and kitchen 
 and dining room were found to be models of cleanliness. The grounds 
 were also in excellent condition. , 
 
 Need for Economy in Purchasing 
 
 The superintendent stated that he endeavors to give each child 
 the same sort of care that they would get in their own homes, and to 
 make them contented and healthy. This is a praiseworthy ambition, 
 and the appearance of the children seemed to indicate that this was 
 being done. According to the report of the superintendent for 1913 
 however, the average cost per meal was $.176, or twice that of the city 
 and county hospital, and almost twice that of Steele hospital and that 
 ot the municipal lodging house. The superintendent stated that this 
 is due to the fact that he supplies food in abundance and of the best 
 quality to children, because he believes that the city should give them 
 the best while they are in the city's charge. While this is also excellent 
 in principle, the fact remains that there has been undoubtedly extrava 
 
SOCIAL WELFARE DEPARTMENT 97 
 
 gance in purchasing. Children do not need luxuries, but plain, simple 
 nourishing fare, and plenty of it. 
 
 The following bill of fare, as given by the matron, represents an 
 average day's meal, the fare for children and employees being the 
 same : 
 
 Breakfast 
 Cakes and syrup 
 Oatmeal, Post toasties or puffed rice with milk and 
 
 ._ sugar 
 Fruit. 
 
 Dinner 
 
 Beef or lamb stew — on Fridays, fish 
 
 Eggs — three times weekly in place of meat 
 
 Potatoes and one other vegetable 
 
 Milk or cocoa 
 
 Bread and butter 
 
 Dessert — either pudding or fruit four times a week. 
 
 Supper 
 
 Warmed-over or baked potatoes 
 
 Vegetable — tomatoes or corn 
 
 Eggs 
 
 Jelly cake or fruit. 
 
 From this bill of fare it is evident that a high meal cost must 
 follow. Fruit, which is an expensive item, is found on the bill three 
 times a day; eggs, another expensive item, occurs at least once a day, 
 and sometimes twice. The use of prepared cereals, such as Post toasties 
 and puffed rice, is expensive. During the coming year the average 
 meal cost in this institution should be cut almost one-half. This will 
 mean a saving of approximately $1,000.00. 
 
 Physical and Mental Examination of Children Needed 
 
 No physical or mental examination is given to children who ap- 
 pear before the juvenile court, although it is a well known fact that 
 much of the so-called delinquency of children is the result of physical 
 or mental defects. Many children who are habitual truants from school 
 and who commit other wrongful acts because of their absence from 
 restraint in school, are habitual truants because they have defective 
 vision, hypertrophied tonsils, adenoids or orthopedic defects which 
 make study and school restraint tiresome or even painful. Many others 
 are mental defectives who are unable to distinguish right from wrong, 
 or who because of a mental defect which places them behind their 
 fellows in school, do everything possible to escape school control. 
 Every child brought before the juvenile court should receive a physical 
 examination and have his mental age tested by the use of the Binet 
 test. If a child of ten years shows a mental age of five by this test, 
 it is probable that he has a mental defect which needs study and treat- 
 ment. 
 
98 DENVER 
 
 Test physical examinations were made of seven children in the 
 detention home. One child had defective vision. She stated that she 
 has purchased glasses two years before, but had never worn them be- 
 cause they gave her headaches — obviously a case of physical defect 
 needing correction — a correction which would perhaps cure the delin- 
 quency. Two boys were found to have hypertrophied tonsils and ade- 
 noids — a physical defect which has a marked influence on health and 
 intelligence. Another child, a girl, was found to have a marked spinal 
 curvature, which might, and quite likely did have something to do 
 with her moral delinquency. Crookedness of body has its influence 
 in promoting crookedness of mind and morals. Thus out of seven chil- 
 dren four, or 57 per cent, were found defective physically, a positive 
 indication of the need for a more thorough study of this phase of 
 juvenile delinquency. 
 
SOCIAL WELFARE DEPARTMENT 99 
 
 Part IV — Hospitals 
 
SOCIAL WELFARE DEPARTMENT 101 
 
 PART IV— HOSPITALS 
 STEELE HOSPITAL 
 Administration and Organization 
 
 The Steele hospital, which accommodates about 100 patients, is 
 under the control of the bureau of health through the deputy commis- 
 sioner of health, who acts as superintendent of the hospital. The hos- 
 pital staff consists of a head nurse at $960 per year, and seven grad- 
 uate nurses at $720 per year. There is in addition one unpaid pupil 
 nurse from the Fort Collins Training School for Nurses. There are 13 
 service employees, including housekeeper, attendants, kitchen maids 
 and porters. So far as could be observed in the course of this study, 
 the administration of the hospital was efficient and the number of 
 employees no more than was needed for the work in hand. 
 
 Medical Service Satisfactory 
 
 Medical service is supplied by the deputy health commissioner 
 whenever he is called by the head nurse, and in addition each interne 
 at the city and county hospital is required to spend two months of 
 his general hospital service in the Steele hospital, but not as a resident 
 in the hospital. He lives in the city and county hospital and makes 
 routine daily inspection of cases. He is also on call for such special 
 service as may be required. 
 
 Pupil Nurses Should be Used 
 
 Seven graduate nurses are now employed at $720 each per year. 
 This means an annual expenditure for nurses of $5,040. The pupil 
 nurses in the Denver training school at the city and county hospital 
 do not have the advantage of service in the contagious insane wards 
 of the Steele hospital, although the Fort Collins Training School for 
 Nurses has recognized the value of this service and sends its pupils to 
 Denver to get training in contagious disease service. Not only could 
 the training course for nurses at the city and county hospital training 
 school be greatly improved by offering the pupil nurses the advan- 
 tages of this contagious disease service, but the cost of the contagious 
 disease hospital could be reduced by at least $3,600.00. Five graduate 
 nurses at $720 per year could be dispensed with and their places taken 
 by pupil nurses from the training school. Under the direction of the 
 head nurse and one other graduate nurse pupil nurses who had had a 
 year at least of general hospital service would be well able to do the 
 work required in caring for cases of contagious disease. 
 
102 DENVER 
 
 Card Register of Cases Recommended 
 
 On admission to the hospital the following facts are entered upon 
 the register of patients : 
 
 Name of patient 
 
 Address 
 
 Name and address of physician referring case 
 
 Date of admission 
 
 Diagnosis 
 
 Date of discharge. 
 
 This register has been well kept, but a better register of cases 
 should be kept by the use of a card register. Each case admitted 
 should have an admission card on which all the facts now required by 
 the register should be entered. In addition the card record should con- 
 tain a brief history of the case including condition on admission and 
 condition at discharge. These cards should be filed consecutively 
 according to the number of the case, and the case chart of the patient 
 while in the hospital should bear a corresponding number. If more 
 detailed information regarding any case should be required the chart 
 should be readily available for reference. 
 
 Case Charts Should Be Filed 
 
 At present case charts are not preserved. After the patient has 
 been discharged his chart is simply rolled up, a rubber band is snapped 
 around it and it is stored away in the fumigating room. These charts 
 should be carefully filed by numbers corresponding to the numbers on 
 the registration cards previously mentioned. This entails no additional 
 work and means the saving of considerable time when examination of 
 records is desirable. Hospital records are frequently called for in 
 court actions, and they are of value to any one desiring to make a study 
 of hospital service or to physicians working to make research into the 
 causes, treatment and results of hospital care of contagious cases. 
 
 Physical Examination on Admission Should Be Required 
 
 Physical examination of patients when admitted is not made. This 
 should be routine procedure as treatment depends largely upon the 
 findings of physical examination. -Furthermore, the hospital should 
 insist upon it for its own protection. It frequently happens that a 
 patient recently discharged from a hospital is found to have some con- 
 dition not noticed or recognized prior to his admission to the hospital, 
 v and hospitals are frequently called upon to defend themselves against 
 charges of maltreatment or neglect. Careful physical examination on 
 admission would prove whether such charges are justified. 
 
 Improved Monthly Reports Recommended 
 
 Monthly reports of hospital service are rendered to the commis- 
 sioner of social welfare. The report includes simply statistical infor- 
 mation regarding the number of patients admitted and discharged, the 
 
SOCIAL WELFARE DEPARTMENT 103 
 
 number of deaths, the number of eases of each disease, number of em- 
 ployees, number of meals served, amount of antitoxin used, number of 
 . intubations and amount of collections from pay patients. These re- 
 ports would be much more valuable to the commissioner if they con- 
 tained not only this statistical information but also a comparative 
 statement of the number of cases and deaths from each disease, cost of 
 service and average daily cost, together with recommendations of the 
 head nurse or superintendent regarding methods of improving service. 
 
 Hospital Service Abused 
 
 Private patients are required to pay $15 a week for private rooms 
 or $7 a week for ward care. The rate for patients received from coun- 
 ties outside of Denver is $10 a week for ward care, while the rate for 
 patients from the state home for dependent children is $5 per week for 
 ward service. Other patients are cared for free of charge. The head 
 nurse staied that patients were being attended in the hospital by their 
 own physicians who were charging them $3 a visit. This information, 
 she stated, had been obtained from the patients themselves. It fre- 
 quently happens, therefore, that a patient who has been in the hospital 
 several weeks is unwilling to pay the hospital for his care because of 
 the fact that he was obliged to pay his private physician a large fee for 
 visits made to the hospital. 
 
 Hie hospital authorities should make a careful investigation of 
 this matter. It is decidedly unfair to the patient and unfair to the city 
 to allow physicians to charge their hospital patients $3 per visit when 
 all nursing tare, medicines, etc., is being furnished by the hospital. If 
 patients are able to pay for service at the contagious disease hospital 
 they should be made to pay. Physicians should be allowed to visit 
 their private patients, but only in the presence of a nurse or staff 
 physician, and if the practice of allowing physicians to charge private 
 patients for service rendered by the city is to be continued, a maximum 
 charge should be fixed. 
 
 Precautions Against the Spread of Infection Commendable 
 
 The superintendent of the hospital has adopted all modern precau- 
 tionary measures to prevent the spread of infection by patients. Wards 
 for diphtheria and scarlet fever are entirely separate and in different 
 yaits of the building, and there is no communication between the 
 patients in separate wards. All visitors, physicians as well .as laymen, 
 are required to protect themselves by gowns before visiting the wards, 
 and visitors to the scarlet fever wards are required to wear boots of 
 unbleached linen. 'On going out of the ward all visitors are required 
 to wash their hands thoroughly and rinse them in antiseptic solution. 
 Gowns and boots are removed by the nurse and sent immediately to 
 the fumigating room in the basement. AH clothing of patients is thor- 
 oughly disinfected in the fumigating room. All laundry except nurses' 
 linen and gowns and children's night gowns are sent to the fumigating 
 room for 12 hours and then sent to a laundry in the city to be washed. 
 Children's night gowns and nurses' gowns are thoroughly sterilized 
 by live steam before being washed. 
 
104 DENVER 
 
 Detention Ward Needed 
 
 Diphtheria patients are not admitted to the wards until cultures 
 from their throats are found positive by the city bacteriologist. There 
 is no detention room, however, in which suspected cases may be held 
 for observation and in which cases of mixed infection may be cared 
 for. The deputy health commissioner recognized the need for such 
 facilities and made recommendation to this effect in the report of the 
 Steele Hospital for 1913. 
 
 Improper Care of Insane Diphtheria Carriers 
 
 A serious situation exists in the Steele Hospital, and one which 
 should be remedied at once. In the dark, gloomy basement 16 insane 
 patients were found who were diphtheria carriers. They had been sent 
 to the Steele Hospital from the city and county hospital, which has no 
 means of isolating such patients. To thrust these people into a ward 
 of this kind without proper facilities for light, air, exercise, and recrea- 
 tion is little short of criminal. The fact that they are diphtheria car- 
 riers is only incidental, because the mere presence of diphtheria bacilli 
 in their throats does not make them ill. They are insane patients, how- 
 ever, and the fact that must be constantly kept in mind is that whether 
 they are diphtheria carriers or not they are entitled to receive at the 
 hands of the city and county of Denver care which is commensurate 
 with their deplorable condition. Their very location in the basement 
 of the Steele Hospital contributes to the persistency of the diphtheria 
 bacilli in their throats, because it is a well-known fact that good food, 
 plenty of light, plenty of fresh air, and sufficient exercise to promote 
 physical well-being, plays a large part in eradicating diphtheria bacilli 
 from the throats of diphtheria carriers. A place should be provided at 
 the city and county hospital where these patients may be isolated and 
 cared for. 
 
 Ambulance Service Inadequate 
 
 Two ambulances, one for diphtheria and one for scarlet fever, are 
 kept at a private livery stable in the city which charges the city $3.00 
 per call. Neither a doctor nor a nurse accompanies the ambulance, as 
 this would necessitate an extra trip to the hospital. Prior to October 
 1, 1913, no records of the amount of money paid for ambulance calls 
 were found at the hospital. During 1913, $877.00 was spent for livery 
 and from October 1, 1913, to April 1, 1914, the following amounts were 
 spent by months : 
 
 October $130.00 
 
 December 82.00 
 
 January 112.00 
 
 February 49.00 
 
 March 87.00 
 
 Total $460.00 
 
 The contagious disease hospital should provide its own ambulance, 
 and it is probable that this could be done at less cost than under the 
 
SOCIAL WELFARE DEPARTMENT 105 
 
 present system. In all cases a physician or nurse should accompany 
 the ambulance in order that the patient may receive proper care en 
 route. There is no reason why separate ambulances should be provided 
 for diphtheria and scarlet fever cases. A single ambulance properly 
 equipped is sufficient provided the necessary steps are taken to disin- 
 fect the ambulance after each case of contagious disease has reached 
 the hospital. 
 
 Improved Facilities for the Disposal of Waste Needed 
 
 • 
 No facilities are provided within the hospital for the incineration 
 of infected materials. All such materials are carried to a distance of 
 about 200 feet from the hospital, where they are burned. At the time 
 of this investigation, section 77 of article 13 of the municipal code, 
 which states that "It shall be unlawful to burn bonfire or rubbish ex- 
 cept between the hours of four and eight-thirty in the afternoon of any 
 day" was being violated. A large bonfire was burning between the 
 hours of 10 a. m. and 12 m. 
 
 Small incinerators should be installed in the basement of the 
 hospital in which all waste materials, garbage, rubbish, etc., could be 
 destroyed. The cost of this equipment would not exceed $500.00. 
 
 Hospital Employees Overpaid 
 
 Employees other than nurses at the Steele Hospital are paid very 
 liberally, for all employees are maintained in the hospital in addition 
 to their salaries. 
 
 As the result of a recent investigation by a committee appointed 
 by the board of estimate and apportionment to study New York City's 
 hospitals, a salary and wage schedule for hospital employees was pre- 
 pared based upon maintenance in hospitals. The hospitals studied 
 were all much larger than the Steele hospital, and it is therefore im- 
 possible to compare accurately the quantity or quality of service ren- 
 dered by employees. On the basis of this report, however, it is clear 
 that Steele hospital employees are overpaid. 
 
 Employees may be divided into two classes : 
 
 A. Those serving less than one year 
 
 B. Those having rendered one year or more of consecutive 
 
 service. 
 
 The following schedule of salaries, including maintenance, at the 
 Steele hospital based on the careful study above mentioned has been 
 prepared : 
 
10 6 DENVER 
 
 Those serving Those serving 
 less than one more than one 
 year eonsecu- year consecu- 
 Position Present Salary tively tively 
 
 Housekeeper $720 $420 $480 
 
 Attendants— 2 @ $360 720 2 @ $360 720 2 @ $420 840 
 
 Porters— 2 @ $300 600 2 @ $300 600 2 @ $360 720 
 
 Engineer 480 420 480 
 
 Kitchen porter 420 240 300 
 
 Cook 600 420 480 
 
 Assistant cook 360 300 360 
 
 Maids— 3 @ $360 1,080 3 @ $240 720 3 @ $00 900 
 
 Laundress 420 300 360 
 
 Assistant Laundress 360 240 300 
 
 Total $5,760 $4,380 $4,860 
 
 Present yearly salary cost. .$5,760 
 
 Maximum yearly salary cost 
 
 recommended 4,860 
 
 Minimum yearly saving.. $ 900 
 
 Cost of Hospital Service 
 
 So far as could be observed from personal investigation and study 
 of reports of the hospital, an effort is being made to administer funds 
 economically in the purchase of supplies. The report of the hospital 
 for 1913 gives the average cost per patient per day as $1,327, and 
 the average cost per meal as $0.08. These figures compare favorably 
 with cost figures in other hospitals of similar nature so far as they may 
 be obtained. The basis on which these figures are obtained in various 
 hospitals and institutions throughout the country varies so widely, 
 however, that it is not possible to make detailed analysis and compari- 
 son of cost figures. According to the last annual report of the New 
 York City health department (1912) the average cost per patient per 
 day in the three contagious insane hospitals under control of the de- 
 partment was $2.02, or $0.69 more than at the Steele hospital. 
 
 Purchase and Provision .of Supplies 
 
 Fresh meats, vegetables and fruit are ordered daily through the 
 commissioner of supplies. Milk and eggs are supplied by the county 
 farm. The amount of staple supplies on hand in the hospital is never 
 large, as only one month's supply is piirchased at a time. The matron 
 or housekeeper of the hospital is in charge of the store room and issues 
 supplies only upon requisition from the cook or head nurse. There is 
 no stores record, so that it is impossible to tell the stores on hand at 
 any time without an inventory of supplies. It is recommended that 
 such a record be kept so that there may be at all times an exact state- 
 ment of the condition of supplies. 
 
SOCIAL WELFARE DEPARTMENT 107 
 
 Fire Protection Inadequate 
 
 Fire protection at the Steele hospital is entirely inadequate and 
 should be at once improved. This matter is discussed at length in the 
 report on the bureau of fire. 
 
108 DENVER 
 
 SAND CREEK HOSPITAL 
 
 Better Care of Smallpox Patients Needed 
 
 The smallpox hospital, so called, is a small frame building situated 
 in the middle of the open prairie six miles from the city. Accommoda- 
 tions are provided for about nine or ten smallpox patients, there being 
 two small rooms with two beds each, and one large room with six beds. 
 The hospital is in charge of a trained nurse who is apparently capable 
 and efficient. She receives $60 per month and maintenance, and her 
 husband who assists her receives $40 per month and maintenance. 
 
 The building is in bad condition throughout, and if its use is longer 
 continued it should be put in good repair. Rooms are heated by stoves 
 and as the building is entirely unprotected from the wind, it is practi- 
 cally impossible to heat all rooms comfortably in winter and at the 
 same time provide the much-needed ventilation. There are no sewer 
 connections, and all waste water and discharges must be carried out of 
 the building and emptied upon the ground or into the outside privy. 
 The bath for patients is in a small shack about 100 feet away from the 
 main building; water for patients' baths must be heated on the stove 
 and turned into the bath. Waste water flows out of the tub upon the 
 ground underneath the building. 
 
 Medical attention is provided by the deputy health commissioner. 
 When his services are required he is obliged to make the long trip to 
 the hospital and back, which takes almost two hours. 
 » 
 
 The smallpox hospital should be abandoned as soon as possible and 
 
 a separate building should be constructed at the Steele hospital where 
 smallpox patients may be cared for. There is no more danger in car- 
 ing for smallpox patients at the Steele hospital than in caring for other 
 contagious cases. The idea that smallpox is so dangerous that cases 
 must be cared for in a "pest house" miles away from other human 
 habitation is not in keeping with m modern knowledge of contagious 
 diseases. The smallpox hospital should be easily accessible to the 
 patient, who is sometimes very ill and to whom the journey of six miles 
 is a severe hardship. It should also be easily accessible to the visiting 
 physician so that cases may be under daily observation. 
 
SOCIAL WELFARE DEPARTMENT 109 
 
 THE CITY AND COUNTY HOSPITAL 
 
 Need for Improved Service Recognized by Superintendent 
 
 It should be said at the outset that many of the defects noted in 
 the succeeding pages have already been mentioned by the superin- 
 tendent of the city and county hospital in the report of the social wel- 
 fare department for 1913. The following defects in the equipment of 
 the institution and in the care of patients were noted in this annual 
 report. 
 
 1 — Lack of room in the wards for the insane and in- 
 adequacy of their care 
 2 — Overcrowding of wards of chronic cases, many of 
 which could be admitted to the county farm if 
 sufficient room were provided in this institution 
 3 — Many parts of the hospital antiquated and should 
 be remodeled 
 -Overcrowding of the nurses' home. 
 
 The superintendent further states that the following improvements 
 are contemplated or under way: 
 
 1 — The construction of a noiseless floor in the oper- 
 ating room 
 2 — Installation of a first class sanitary kitchen 
 3 — Improvements in laundry and engine room 
 4 — Remodeling of garage. 
 
 Need for a Full-time Trained Superintendent 
 
 The superintendent of the city and county hospital is directly re- 
 sponsible to the commissioner of social welfare. He is a practicing 
 physician who devotes a part of his time only to hospital affairs, for 
 which he receives $2,400 a year. It was impossible to learn how much 
 of the superintendent's time was spent at the hospital as there are no 
 time or service records available. The house physician stated that the 
 superintendent was accustomed to visit the hospital twice or three 
 times daily, in the morning, sometimes in the afternoon and in the 
 evening, but that there were no fixed hours for his attendance. In the 
 absence of the superintendent the house physician is in charge. The 
 house physician, who is a former interne, spends his entire time at the 
 hospital for which he receives $1,200 a year and maintenance. 
 
 The city and county hospital in Denver, which is a large institution 
 in point of size and capacity, needs a full-time trained hospital super- 
 intendent at its head. It is difficult to conceive of a position in which 
 part-time service would be less efficient than that of the superin- 
 tendent of a hospital of 500 beds. The appointment of a salaried house 
 physician is only a makeshift. Few hospitals of this kind with a large 
 interne service have a paid house physician. A superintendent should 
 be employed at $2,400 to $3,000 per year with maintenance, and full- 
 time service should be required. The paid house physician could then 
 be dispensed with and the senior internes could and should perform 
 
110 DEN\£ER 
 
 the duties of house physicians as is the practice in most general 
 hospitals. 
 
 Number of Internes Should Be Increased 
 
 There are 12 internes who serve 20 months each. Judged by 
 Eastern hospital standards there should be about ten internes for each 
 200 beds in a general hospital such as the city and county hospital. 
 There are entirely too few internes to provide the kind of service which 
 this hospital should give and it is recommended that the number of 
 internes be increased to 16 and the term of service from 20 months to 
 two years, two internes retiring every three months. The two internes 
 entering the last three months of service should be respectively house 
 physician and house surgeon. 
 
 Staff Room for Physicians Needed 
 
 The rooms provided for physicians are on the main floor just off 
 of the corridor leading to the wards. The rooms are small and poorly 
 furnished, and as a result physicians spend as little time in their rooms 
 as possible and make use of the inner corridor as a lounging room. A 
 large recreation room has been provided for physicians and nurses who 
 alternate in their use of this room. This room, however, is in the base- 
 ment and badly lighted- Rooms for physicians should be so located 
 that they may have a certain amount of privacy. Rooms on the top 
 floor of the building should be given to physicians and the service em- 
 ployees who now occupy these rooms should be provided for elsewhere. 
 A staff room should be provided for the sole use of physicians as a 
 lounging room and reading room when off duty. The present common 
 use of the recreation room by physicians and nurses does not make for 
 the best discipline and the establishment of right relations between 
 physicians and nurses. 
 
 Nursing Staff Inadequate 
 
 The number of nurses varies considerably from time to time. 
 According to the last published roster of nurses at the hospital there 
 were 50 pupil nurses and four supervising nurses including the chief 
 nurse. In addition there were ten orderlies, including the head orderly, 
 and five attendants in the male insane ward. There is practically no 
 information at hand by which we may determine the proper ratio of 
 nurses to patients in a hospital of the same type as the city and county 
 hospital. The recent studies made in New York City by a committee 
 appointed by the board of estimate and apportionment resulted in the 
 determination of certain ratios between nurses and patients, but, as 
 stated in the report of the committee on inquiry, the schedule prepared 
 was not intended to cover attendance at tuberculosis and psychopathic 
 wards, both of which require a large share of nursing duty in the city 
 and county hospital. The determination of needs at this hospital there- 
 fore has been based upon conditions found therein and upon the meth- 
 ods of extending the work of the nurses' training school in the city 
 dispensary and the contagious disease hospital, as previously recom- 
 mended in this report. 
 
SOCIAL WELFARE DEPARTMENT 111 
 
 The hospital accommodates approximately 450 to 500 patients, in- 
 cluding the patients of the insane wards. In a hospital with all modern 
 appointments and conveniences the number of nurses now provided 
 could perhaps furnish adequate service. The city and county hospital, 
 however, is not so provided. Of the 54 nurses, 50 are pupil nurses in 
 training and therefore not as capable as graduate nurses. Of this 
 group of pupil nurses 10 are assigned to night duty, or an average of 
 one pupil nurse to each 45 to 50 patients. This is entirely too few 
 nurses for night duty, particularly in a hospital without fire protection 
 and where many of the patients are old people. Judged by hospital 
 standards elsewhere, the number of night nurses should be increased 
 to 15 at the least. This would leave 35 nurses for day duty, or one 
 nurse to each 13 or 14 patients. It is the opinion of the investigators 
 that there should be one day pupil nurse to every ten patients, or 
 approximately 45 to 50 day nurses. According to these figures there 
 should be for city and county hospital service alone about 65 pupil 
 nurses. 
 
 Need for Improved Accommodations for Nurses 
 
 The recommendations regarding the number of nurses can hardly 
 be put into effect without increasing and improving the nurses' living 
 rooms. Thirteen nurses are quartered on the third floor of one of the 
 hospital buildings. The rooms are small and cheaply furnished. No 
 closet room is provided, and this need is me|; by wardrobes which fur- 
 ther diminish the already scanty room space. Walls are cracked and 
 stained in many places, and floors and floor coverings in several rooms 
 are in bad condition. 
 
 The nurses' home accommodates about 40 to 45. Rooms are large 
 and each room is occupied by two or three nurses. The furniture is of 
 the cheapest. The floors and walls of the rooms are in bad condition, 
 and in many places the floor boards are worn almost through. There 
 are only three baths for the entire number of nurses and only four 
 toilets. Fire preventive or protective apparatus is wholly inadequate. 
 
 Efficiency of nursing service depends largely upon the provision 
 of proper accommodations for nurses. No nurse compelled to live for 
 two years under the conditions found at the city and county hospital 
 can give her most efficient service. Her room is her home, and lack of 
 convenience and comfort there makes her dissatisfied. The city of 
 Denver can afford to give its nurses, the great majority of whom are 
 pupil nurses, who are paid only about $10 a month, good living condi- 
 tions. A nurses' home is needed with ample accommodations for about 
 75 nurses. This would allow more space in the hospital buildings for 
 the use of patients. 
 
 Social Service Should Be Extended. 
 
 A social service worker is employed in the hospital. She is re- 
 quired to act as a collector of money for services rendered to patients 
 not public charges of the city and county of Denver. At the present 
 time she acts also as a clerk in the office of the superintendent, there 
 
112 DENVER 
 
 being no regular clerk employed. She states that her time is taken up 
 almost wholly with clerical work and with such social service work 
 as she is able to carry on among the patients in the wards. Little 
 attempt is made to extend social service into the homes of patients or 
 to supervise home care of discharged patients. A clerk should be em- 
 ployed to take over the office routine now being performed by the 
 social service worker who receives $1,200 per year. This is perhaps a 
 proper salary for a social service worker but not for a hospital clerk 
 who could be secured for $720 per year. The extension of social service 
 into the homes of patients in the hospital and discharged from the 
 hospital is productive of great good. Light work may be found for 
 convalescents so that they may be self-supporting and their recovery 
 may be hastened. Others in the family may be advised regarding their 
 own health. Care and treatment may be provided for sick or crippled 
 children and the public health and welfare promoted generally. 
 
 Salaries of Service Employees Too High 
 
 The number of service employees in the hospital appears to be 
 ample. Owing to the limitations of this study it was impossible to de- 
 termine the precise duties of each of these employees or to obtain any 
 but a general idea of the efficiency with which their work is per- 
 formed. From personal observation, later to be detailed, it is believed 
 that in the main their work is not efficiently performed. Salaries paid 
 nontechnical employees are unusually and unnecessarily high, consider- 
 ing the fact that full maintenance at the hospital is allowed in addition 
 to salaries. A determination of the precise amount of salary requisite 
 in any given case depends so largely upon the duties performed that 
 estimates are likely to be in error where there is no definite classifica- 
 tion of hosiptal labor or any standardization of salaries. 
 
 The following table has been prepared to show the present salaries 
 of certain employees in the city and county hospital and the recommen- 
 dations relative thereto. This table has been based upon the recom- 
 mendations of a committee of inquiry appointed by the New York 
 board of estimate and apportionment to investigate salary standards 
 in the Bellevue and allied hospitals of New York City, although 
 changes have been made to fit the service at the city and county 
 hospital. 
 
SOCIAL WELFARE DEPARTMENT 
 
 113 
 
 Position 
 
 Present Salary- 
 
 Salary Recommended 
 
 Those serving Those serving 
 less than one more than one 
 year conseeu- year consecu- 
 tively tively 
 
 Matron (housekeeper) ....$ 1,140 
 
 Assistant matron 600 
 
 Head orderly 540 
 
 Orderlies— 9 @ $420 . . 3,780 9 < 
 
 Head attendant (male in- 
 sane ward) ,. . . . 600 
 
 Attendants— 4 @ $420 1,680 4 i 
 
 Linen woman 420 
 
 Seamstress 360 
 
 Seamstress 120 
 
 Head laundress 420 
 
 Laundresses— 7 @ $300. . . 2,100 7i 
 
 Waitresses 300 
 
 Waitress 240 
 
 House girls— 3 @ $240 720 
 
 Chef 1,080 
 
 Second cook 720 
 
 Diet cook 300 
 
 Diet cook 240 
 
 Maid 240 
 
 Laundryman 360 
 
 Lawnman 360 
 
 Houseman 420 
 
 Houseman— 3 @ $360 1,080 3 i 
 
 Yardman in kitchen 300 
 
 Orderly in kitchen 120 
 
 Dishwasher 300 
 
 Dishwashers— 2 @ $240. . . 480 2 i 
 
 Chauffeur 720 
 
 Carpenter 1,080 
 
 Painter 540 
 
 Engineer 1,200 
 
 Engineers— 2 @ $1,020. . . . 2,040 2 < 
 
 Firemen— 2 @ $900 1,800 2 1 
 
 Telephone operators — 2 @ 
 
 $660 1,320 2 < 
 
 Total for salaries $27,720 
 
 Present yearly salary cost. $27,720 
 Maximum yearly salary 
 
 cost recommended 25,200 
 
 
 $ 720 $ 
 
 900 
 
 
 480 
 
 600 
 
 
 420 
 
 480 
 
 $360 
 
 3,240 9 @ $420 
 
 3,780 
 
 
 420 
 
 480 
 
 $360 
 
 1,440 4@$420 
 
 1,680 
 
 
 360 
 
 420 
 
 
 180 
 
 240 
 
 
 120 
 
 180 
 
 
 360 
 
 420 
 
 $240 
 
 1,680 7 @ $300 
 
 2,100 
 
 
 180 
 
 240 
 
 
 180 
 
 240 
 
 
 360 
 
 540 
 
 
 720 
 
 900 
 
 
 480 
 
 600 
 
 
 240 
 
 300 
 
 
 180 
 
 240 
 
 
 180 
 
 240 
 
 
 240 
 
 300 
 
 
 180 
 
 240 
 
 
 300 
 
 360 
 
 $240 
 
 720 3 @ $300 
 
 900 
 
 
 180 
 
 240 
 
 
 120 < 
 
 120 
 
 
 120 
 
 180 
 
 $120 
 
 240 2*@$180 
 
 360 
 
 
 600 
 
 720 
 
 
 720 
 
 900 
 
 
 480 
 
 540 
 
 
 1,020 
 
 1,080 
 
 $960 
 
 1,920 2 @ $1,020 
 
 2,040 
 
 $720 
 
 1,440 2 @ $840 
 
 1,680 
 
 $420 
 
 840 2 @ $480 
 
 960 
 
 
 $21,060 $25,200 
 
 Minimum yearly saving. $ 2,500 
 Hospital Discipline Lax 
 
114 DENVER 
 
 The hospital presents a particularly untidy and unkempt appear- 
 ance and lack of discipline and order is everywhere evident. _ Several 
 internes were seen smoking in that part of the hall where visitors are 
 received. Other internes were seen carrying lighted cigars through 
 the corridors and wards. The emergency room attendant was seen 
 smoking a pipe in the hall and in the emergency room. The chef was 
 seen smoking a pipe while preparing meals. The dishwasher was smok- 
 ing a pipe over the dishes which had just been washed. Two of the 
 hospital staff informed the investigator that they had observed attend- 
 ants stop to light their cigarettes while carrying patients on stretchers. 
 
 In the room where food was being prepared for employees, doctors 
 and nurses, a dust pan full of sweepings was lying on the floor under 
 the serving table and three uncovered garbage cans stood in the corner 
 of the room. The floor of the room was unclean and two cats were 
 wandering about. 
 
 Windows all over the hospital were dirty and apparently had not 
 been washed for several weeks. 
 
 Dust was found on ledges, Avindow sills and fixtures. 
 
 On the roof of one of the corridors four dirty, broken-down beds 
 were seen with mattresses soiled and apparently unfit for anything but 
 burning. One of the employees stated that these beds were not in use. 
 
 The room in the basement, which is occupied by employees, was 
 very dirty. Soiled clothing was lying about on beds and chairs; the 
 bed linen was dirty and ragged. 
 
 General Equipment of Hospital Inadequate 
 
 In no sense can the equipment of the hospital be said to be modern. 
 There are no elevators in the building. The investigator saw an intox- 
 icated man, who had just been brought in by the ambulance on account 
 of an injury to his head, being dragged up the stairs by two attendants. 
 Patients must be carried up the stairs and down the stairs on stretchers 
 at serious risk. 
 
 No provision is made for the fumigation or sterilization of 
 patients' clothing. Clothing when taken from patients is rolled in 
 bundles, tagged and stored in the basement until needed. The result is 
 that patients leaving the hospital are obliged to wear clothing which is 
 unclean and so wrinkled that the patient has no respect for himself or 
 the hospital. 
 
 There is only one operating room. This means that infected 
 patients must be operated on in the same room in which clean or un- 
 infected patients are to be operated on later on. 
 
 The X-ray apparatus is antiquated and the house physician states 
 that when X-ray plates of more than ordinary quality are required it 
 is necessary to send the patient in an ambulance to the office of a local 
 physician who takes the picture. The transportation of seriously ill 
 patients several miles for the purpose of having an X-ray picture taken 
 cannot be justified. 
 
SOCIAL WELFARE DEPARTMENT 115 
 
 The laboratory of the hospital is a small room about 10x15 feet in 
 size and poorly equipped. A paid pathologist has been employed for 
 the last six months and has been doing excellent work with the facili- 
 ties at hand. There is, however, inadequate room for apparatus and 
 work tables. 
 
 The kitchen, which is in the basement, is inadequately equipped. 
 There are no baking ovens, all bread being purchased from local 
 bakers. The kitchen range is in bad repair and very dirty. The 
 wooden floors are in poor condition and the walls and ceilings are 
 cracked and dirty. 
 
 The laundry equipment is in bad repair and all laundry work has 
 been discontinued on the ground that the cost of new apparatus and of 
 maintaining the laundry force would be greater than having the laun- 
 dry work done by private concerns. 
 
 Improved Ambulance Service Recommended 
 
 Ambulance service of the city and county hospital is extended 
 only to those who may be referred to the hospital by county physicians. 
 Emergency cases are brought to the hospital in police ambulances 
 which are particularly unfitted for the transportation of seriously ill 
 or injured persons. Hospital ambulance service is not a police function 
 and this method of conveying patients to the hospital should be discon- 
 tinued. According to the records of police ambulance surgeons not 
 more than six to eight runs per day are made by police ambulances, 
 while the record of county ambulance service shows only 690 calls dur- 
 ing the year 1913, or an average of about two calls per day. 
 
 The city and county hospital should take over the entire ambu- 
 lance service of the city. Two ambulances should be employed at the 
 city and county hospital to answer all calls. Two internes, especially 
 detailed to ambulance service, should be always on call. No interne 
 should be allowed to do ambulance duty until he has had six months 
 hospital experience. 
 
 Ambulance Records Valueless 
 
 Records of ambulance service are of no value whatever. The fol- 
 lowing records taken from the ambulance record book are typical and 
 show clearly how incapable of proper analysis such a record is. 
 
 2-24-14 Cronin, 3 :30 p. m. Bunson, 1952 Champa. 
 
 2-25-14 Oleson, 9 :10 a. m. Health Department, 1217 Ames. 
 
 2-25-14 Walker, 4:00 p. m. Perkins, 1018 13th St. Room Wey. 
 
 2-25-14 2512 Larimer, Hobart. 
 
 3- 4-14 Pettit, P. M. Frazier, 2036 Larimer, Hobart. 
 3-15-14 John Cobey, 7 :00 p. m. Welton, 3701 Wewatta. 
 
 4- 4-14 Bell, Lee, 9 :00 a. m. County Farm. 
 
116 DENVER 
 
 The illustrations above given illustrate the chief defects of the 
 records, namely: 
 
 1 — They are written in pencil and therefore easily altered. 
 
 2 — Names of patients are incompletely and carelessly entered. 
 
 3 — Time of departure of the ambulance only is stated. There is 
 no record of the time of receipt of the call (except on tele- 
 phone operator's slips) ; no record of arrival at patient's 
 address ; no record of time of return to the hospital. Even 
 the time of departure of the ambulance from the hospital 
 is sometimes omitted. 
 
 4 — No information is given as to reason for ambulance call. 
 
 5 — The name of the person sending in the call is sometimes not 
 completely given; sometimes it is wholly omitted. 
 
 6 — The name of the ambulance surgeon who made the call is fre- 
 quently omitted. 
 
 When an ambulance call is received the following procedure 
 should be a matter of routine. The telephone operator notes on a spe- 
 cial slip the date, the time of call, the name of the person sending in the 
 call, whether or not it is an emergency call, the full name of the patient, 
 and his address. The ambulance surgeon and the ambulance driver 
 are then notified and the operator notes upon her slip the exact time 
 of such notification. The ambulance surgeon should carry a number of 
 ambulance slips in his pocket, and as soon as the call is received he 
 should enter upon one of these slips all the information obtained by 
 the telephone operator. As soon as he has reached his destination he 
 should verify the name and address of the patient and other informa- 
 tion obtained by telephone and procure the following additional in- 
 formation : 
 
 Age — Sex — Social state 
 
 Nationality — Religion 
 
 If injury, how received 
 
 Remarks 
 
 Admitted to hospital, discharged 
 
 Disease or injury 
 
 Time of arrival. 
 
 Upon return to the hospital this slip is stamped by a time stamp 
 and returned to the clerk, who enters all the facts obtained by the tele- 
 phone operator and the ambulance surgeon in an ambulance record 
 book under the proper date: 
 
 The importance of such a record cannot be overestimated. It fre- 
 quently happens that a suit involving thousands of dollars hinges upon 
 an ambulance record ; the hospital itself may be obliged to defend itself 
 against a charge of negligence in providing ambulance service, and 
 without proper records of service it has no protection. There can be 
 no determination of the efficiency of ambulance service without these 
 records, but it is quite safe to say that where inefficiency of records 
 exists, inefficiency of service is to be found also. 
 
SOCIAL WELFARE DEPARTMENT 117 
 
 Waiting Room Needed 
 
 No waiting room is provided. Visitors are required to sit at one 
 end of the main ground floor corridor, which is also used as a lounging 
 place for internes and other employees. Smoking is not prohibited, 
 and for a visitor to be required to wait in this place, where several in- 
 ternes are sitting about smoking, cannot fail to be a source of annoy- 
 ance and discomfort to the visitor. On the upper floor of one of the 
 hospital buildings is a large room about 100x30 feet, which is used for 
 a store room. With a small outlay of money this large room could be 
 made over into living quarters for internes or other hospital employees, 
 or it could be used as a room for linen, and the space which is now 
 occupied by the linen room could be converted into living rooms. This 
 would allow the conversion of rooms now occupied by internes on the 
 ground floor into a small waiting room for visitors. 
 
 Care of Children Inadequate 
 
 The care given children in the city and county hospital is de- 
 cidedly inadequate and improper. The children's ward was visited by 
 the investigator three times in the course of one day, and in no instance 
 was a nurse found on duty. Three very dirty children were found 
 crawling about on a dirty floor. All children were untidy and appar- 
 ently poorly cared for. An unlocked refrigerator containing oranges, 
 milk and other food stood at one side of the room, and was easily 
 accessible to the children playing on the floor. 
 
 The pathologist stated that the children were not carefully ex- 
 amined before admission to the children's ward and that no vaginal 
 smears were taken from the female children prior to their admission to 
 the common children's ward. This should be a matter of routine, for 
 it frequently happens that all the children's ward may become infected 
 with vaginitis. 
 
 Care of Insane Not a City Hospital Function 
 
 At the present time there are 140 insane patients in the city and 
 county hospital. Each floor of the building occupied by the insane is 
 divided into small rooms, with two, three, and sometimes four beds in 
 a room. These rooms are cell-like and cheerless, with barred windows 
 and heavy doors. There is a small opening or peep hole in each door 
 about three inches in diameter. This building was inspected during 
 the middle of the day, when all insane were out in the corridor in care 
 of attendants. Aside from the opportunity for exercise in the corridor 
 the inmates are allowed an occasional hour or two in the hospital yard, 
 which is only a small court between buildings. The hospital for the 
 insane is to all effects and purposes a jail without the comforts and 
 conveniences which even prisoners are allowed in the county jail. 
 
 No attempt is made to segregate the inmates according to the va- 
 rious types of disease, nor is there any effort to provide suitable em- 
 ployment for those who are able to work. In all modern institutions 
 for the insane it has been found that light employment, such as basket- 
 
118 DENVER 
 
 making, chair-caning, embroidery, mending, etc., has proven to be a 
 benefit to the patient, and in many instances a source of revenue to the 
 hospital. 
 
 Internes are required to spend part of the first six months of their 
 service on duty in the insane ward. There is, however, no one in the 
 hospital who is qualified to treat or to suggest treatment of the insane 
 along modern lines. Proper treatment of the insane requires special 
 training and experience ; and most hospitals for the insane require that 
 their staff physicians shall have had eighteen months to two years pre- 
 vious hospital training. It is decidedly improper to put internes of 
 only a few months experience in charge of insane patients. This so- 
 called hospital for the insane exists solely because of the refusal of state 
 authorities to provide proper custodial care. Denver should demand 
 better service and better care for its insane patients. If this hospital 
 for the insane must be continued, on account of the failure of the state 
 authorities to provide proper care, a thoroughly trained staff should be 
 placed in charge, but there is no reason why the hospital for the insane 
 should be continued as a part of city hospital service. The state of 
 Colorado should provide proper institutions,* and this can be done only 
 through the co-operation of its citizens. 
 
 Need for Convalescent Home or Farm 
 
 In such a brief statement it is impossible to say whether the care 
 given other patients is adequate or inadequate. The social service 
 worker stated that there were approximately 50 men and women being 
 cared for in the hospital who were not properly hospital patients, but 
 not in condition to be discharged from all supervision. Such cases 
 need only good food, custodial care, and employment suited to their 
 ability and need. If facilities were provided at the county farm for 
 these patients many of them could be transferred there with benefit to 
 themselves and a saving to the city. 
 
 Care of Patients' Property 
 
 On admission to the hospital the property of patients is removed 
 from their clothing by the attendant. The house physician states that 
 there is no check upon the action of the attendants who perform this 
 office, although he says that the attendants who take charge of pa- 
 tients following their admission to the hospital have been detailed to 
 this work for many years, and that there has never been any complaint 
 that they have improperly used or handled the belongings of patients. 
 
 The present practice is for the attendant to take the property, 
 properly listed, to the nurse on duty in the ward to which, the patient 
 is sent. The nurse then verifies by the patient, if possible, the property 
 list, places it in an envelope, and sends it to the office. A card is then 
 made out, listing the property under the patient's name, with the date 
 of its receipt by the clerk. This envelope is then placed in the safe and 
 kept until the patient's discharge. 
 
 In spite of the fact that attendants may be honest, the hospital 
 •should demand for its own protection and for the protection of its 
 
SOCIAL WELFARE DEPARTMENT 119 
 
 patients that there be some cheek upon this detail. There should al- 
 ways be at least two persons in the room when the patient is undressed 
 and property removed from his clothes, and both should verify the list 
 of property and attach their signatures to the list. The nurse on duty 
 in the ward should further verify this property list and attach her sig- 
 nature also. That this precaution is not an unnecessary one requires 
 no demonstration to any one with experience in hospital service. Every 
 possible safeguard should be provided to prevent abuses which are sure 
 to exist where discipline is lax. 
 
 Improved Hospital Records Recommended 
 
 Patients are admitted to the hospital upon order of the city and 
 county physicians. Patients who walk in or are brought in by the 
 police ambulances are admitted by the house physician, who makes out 
 the admission slip. This admission slip is filed in the office of the 
 clerk. » 
 
 A hospital register is kept in which the following facts are entered : 
 
 Attending physician 
 School of Medicine 
 Name 
 Number- 
 Age 
 
 Male or female 
 Nativity 
 
 Date of immigration — U. S. — Colorado 
 Time in Colorado 
 Married or single 
 Diagnosis 
 Discharged 
 Died. 
 Memorandum. 
 
 No entry is made of occupation. Names and addresses of relatives 
 are not entered here, although they are found on the admission slip 
 previously mentioned. Time spent by the patient in the hospital is not 
 stated except as indicated by the date of admission and discharge. The 
 condition of the patient on discharge as improved, unimproved, or 
 cured, the destination of the patient when discharged, and the action 
 of the social service worker with regard to the particular case are not 
 recorded upon the register. All these are important facts not only in 
 indicating the service performed by the hospital and results obtained, 
 but in furnishing a complete record of every hospital case for future 
 reference. 
 
 The use of a card index instead of the cumbersome book now used 
 is recommended. Each card record should bear a number correspond- 
 ing to a number upon the history chart. If more detailed information 
 were then required the charts could be looked up. These cards may be 
 cross-indexed according to the names of patients. 
 
120 DENVER 
 
 Case Histories Badly Kept 
 
 Case history charts are badly kept. Twelve charts were examined, 
 and in not a single instance was there a record of physical examina- 
 tion of the patient. It is vitally important for the welfare of the pa- 
 tient, and for the protection of hospital authorities, that there should 
 be a complete record of the patient's physical condition on admission. 
 No attending physician can properly outline treatment in any given 
 case unless he- has all data regarding the patient's physical condition. 
 Membei's of the interne staff should be required to make physical ex- 
 amination of all patients within 24 or 48 hours after admission. 
 
 Filing System Antiquated 
 
 When a patient has been discharged his history is sent to the stor- 
 age room in the basement, where it is placed in a letter file indexed by 
 name and year. These case histories should bear a number correspond- 
 ing to the index card in the office of the clerk. Histories should be 
 filed in vertical files according to these numbers, and each case history 
 should be in an individual jacket or cover. 
 
 Stores Records Needed 
 
 There are two store rooms, one for food supplies and kitchen sup- 
 plies, and the other for supplies of bedding, clothing, etc. These rooms 
 .are in charge of the housekeeper, who issues stores only upon requisi- 
 tion from the chef or head nurse. In the store room for food supplies 
 there is a supply clerk who is a student in medical school and who 
 gives part of his time to supervision of stores in return for mainten- 
 ance at the hospital. 
 
 There are no adequate stores records. The storekeeper keeps the 
 requisition slips on file, but she does not have any record from which 
 it is possible to tell at any time just what the exact condition of stores 
 may be. 
 
 The City and County Hospital a Fire Trap 
 
 The fire hazard at the city and county hospital needs the imme- 
 diate attention of the citizens. A fire at the city and county hospital 
 would mean a tremendous loss of life. A discussion of fire prevention 
 and protection at the city and county hospital will be found in the 
 report on the bureau of fire. 
 
SOCIAL WELFARE DEPARTMENT 121 
 
 Part V — The Office of the Market Master 
 
SOCIAL WELFARE DEPARTMENT 123 
 
 PART V— THE OFFICE OF THE! MARKET MASTER 
 
 City Markets a Profitable Institution 
 
 The sum of $3,500 was appropriated for market use in 1914, an 
 amount entirely inadequate to provide the improvements needed. Only 
 $2,782.45 was spent on markets in 1913, and this included the salary 
 of the market master at $100 per month and an inspector at $90 per 
 month. The city derived from the rental of stores and stalls $17,699.75, 
 or a net earning of $14,917.30, a far greater sum than would be needed 
 to put the city market in proper condition. 
 
 Sanitary Conditions Need Immediate Attention 
 
 The stores of the city market are in very dilapidated condition and 
 due to the lack of proper facilities for the handling and storing of per- 
 ishable food, such as are dealt with, these need a thorough renovating. 
 
 Location Inconvenient 
 
 Before any extensive improvements are made in market facilities, 
 however, the question of the location of the city market should be care- 
 fully considered. The market master in his report for 1913 states that 
 the present business transacted by the market is mainly between the 
 gardeners and wholesale buyers or between gardeners and retail deal- 
 ers. Little retail business is carried on and few housewives patronize 
 the market. The prime value of the city market is in affording citizens 
 an opportunity of buying fresh fruits, vegetables and other products 
 direct from the producer ; and yet the inconvenient location of the mar- 
 ket practically prohibits its use by the householder. Unless some con- 
 venient and central location for the one large market can be found, the 
 establishment of several smaller markets at easily accessible points is 
 recommended. 
 
 Inspector Unnecessary 
 
 There is no reason why the services performed by this inspector 
 could not be performed as efficiently by the regular food or sanitary 
 inspectors of the bureau of health, if such service is needed at all. 
 The market master is on duty in the market every day, and he should 
 be able to exercise general supervision over the entire market. Market 
 hours are from sunrise until 11 a. m., but a plan of market inspection 
 could be devised by which health inspectors would be assigned to mar- 
 ket inspection in rotation one day each week. 
 
 Improved Record of Lease Recommended 
 
 Stalls are let out at auction on the last Saturday in April, and the 
 successful bidders are required to take out leases for the six months 
 next succeeding. Rentals are paid in monthly installments. 
 
 The market master makes out two copies of the lease, one of which 
 is retained as the permanent record and the other is given to the stall 
 
124 DENVER 
 
 holder. These two copies are written out separately by the market 
 master. It is recommended that they be made out in duplicate by the 
 use of a carbon duplicating record book, so that there will be no ques- 
 tion as to the accuracy of the copy. Under the present procedure, it 
 would be possible for anyone to alter one of the copies and thus furnish 
 a basis for dispute and possible annulment of the lease. A carbon 
 duplicate would obviate the danger of any such attempt. 
 
 As each monthly installment is paid, a receipt is made out in tripli- 
 cate. One copy is given to the payer, one is sent to the auditor with 
 the market master's monthly report, and a third is kept in the receipt 
 book by the market master. Every month a report of the rent of mar- 
 ket space is sent to the city auditor. This method is a satisfactory one 
 and should be continued. 
 
 Time Records Needed 
 
 No daily records are available to show how much time is spent in 
 service by the market master and his assistant. During market hours 
 the market master and the inspector are supposed to be on duty. The 
 length of time between sunrise and 11 a. m. varies considerably in dif- 
 ferent seasons, but the market master and the inspector are paid at a 
 rate which should entitle the city to at least seven hours of service, or 
 a regular working day. Time cards should, therefore, be required of 
 these employes in order that the commissioner of social welfare may 
 know whether salary costs are justified. 
 
SOCIAL WELFARE DEPARTMENT 125 
 
 Part VI — The Office of the Pound Master 
 
SOCIAL WELFARE DEPARTMENT 127 
 
 PART VI— THE OFFICE OF THE POUND MASTER 
 
 Cost of Service 
 
 The appropriation for the dog pound for 1914 is $1,800. The dog 
 pound is conducted by a proprietor of dog kennels who receives $50 
 per month from the city for the care of the -dogs. The city pays 25 
 cents for each unlicensed dog captured, and this the pound master 
 turns over to the dog catcher or assistant to the pound master, who is 
 not otherwise paid. In 1913, according to the report of the pound mas- 
 ter, 3,176 dogs were captured. At the rate of 25 cents apiece, the dog 
 catcher received therefor $794 for his work. 
 
 More Complete Records Should be Kept 
 
 Dogs are kept at the pound for three days following the day of 
 capture. If unclaimed, they are usually put into a large, tightly sealed 
 tank and asphyxiated. This is apparently an economical and humane 
 way of disposing of the animals. If the pound master wishes, however, 
 he is allowed to sell unclaimed dogs for his own profit. The pound 
 master .stated in his annual report for 1913 that he was put to personal 
 expense of $140 during the year for improvements to the dog pound. 
 The assistant at the dog pound stated, however, that the improve- 
 ments which were made were paid for out of the money received from 
 the sale of dogs. If the revenue from the sale of dogs is considerable, 
 and there is reason to believe that it is, the city should either discon- 
 tinue the payment of a salary to the pound master or it should pay the 
 salary and require the pound master to turn over all receipts to the 
 city. 
 
 Dogs are released on the presentation of a certificate from the 
 auditor within three days from the day of capture showing that a 
 license fee of $2 for each male dog and $4 for each female dog, plus a 
 50-cent pound fee, has been paid. In 1913 Denver received $8,622 for 
 dog licenses and $28.50 for pound fees — a total of $8,650.50. It is, how- 
 ever, impossible to determine how much of this $8,622 received for dog 
 licenses was the result of impounding unlicensed dogs. Records should 
 be kept by the pound master which will show accurately how many 
 dogs were received, how many sold and the receipts from sales, how 
 many released by order from the auditor, and how many were de- 
 stroyed and the manner in which they were disposed of. 
 
 The dog pound should be self-supporting. Records as outlined 
 in the preceding paragraph would determine in all probability that the 
 appropriation of $1,800 for this service was unnecessary. 
 
 Physical Condition at the Dog Pound Commendable 
 
 No criticism can be offered as to the care and treatment of ani- 
 mals at the pound. Separate cages are provided and so arranged that 
 they may be flushed daily ; and the building and grounds are kept in 
 a thoroughly clean and sanitary condition. 
 
SOCIAL WELFARE DEPARTMENT 129 
 
 Part VII— The Office of the Coroner 
 
SOCIAL WELFARE DEPARTMENT 131 
 
 PART VII— THE OFFICE OF THE CORONER 
 
 ORGANIZATION 
 
 The commissioner of social welfare is ex-officio coroner. He has 
 delegated his powers and duties as such to a physician who acts as 
 coroner at a salary of $900 a year. 
 
 Coroner Sits at Inquests 
 
 The only function performed by the acting coroner is presiding at 
 inquests, of which there were 38 during the term of office of the pres- 
 ent incumbent since June, 1913. 
 
 Deputy Coroner an Undertaker 
 
 All of the business transacted by the coroner's office, including 
 investigations and the viewing of bodies in cases in which no inquests 
 are held, caring for and preparing the bodies' of the deceased, record- 
 ing the details in connection with the deaths, delivery of the body to 
 relatives, and disposing of incoming bodies, are included among the 
 functions of the deputy coroner, who is in the employ of a large un- 
 dertaking establishment. The deputy coroner receives no salary or 
 compensation of any kind from the city direct. 
 
 Coroner's Physician 
 
 It was formerly the practice to retain physicians on a fee basis 
 to perform autopsies, but a woman physician who is attached to the 
 county hospital as pathologist was recently appointed as coroner's 
 physician at a salary of $1,200 per year. Her functions are to perform 
 such autopsies as may be ordered by the coroner. In cases where it is 
 anticipated that it will be necessary for the coroner's physician to tes- 
 tify in court a second doctor is called in to assist at the autopsy. In 
 such cases a fee of $12.50 is paid. 
 
 No City Morgue 
 
 All bodies coming into possession of the coroner are removed to 
 the undertaking establishment of the, deputy coroner, since the city 
 maintains no public morgue. In connection with this establishment 
 the deputy coroner maintains an autopsy room and a chapel, in which 
 are held inquests, and a repository in which bodies are kept until buried 
 or delivered to relatives. 
 
 The deputy maintains his own automobile and uses the wagon and 
 employees of the undertaking establishment in the removal and pre- 
 paration of bodies. 
 
 All of the clerical work in connection with the coroner's office is 
 performed by the deputy coroner. 
 
132 DENVER 
 
 Duties of Coroner 
 
 According to the laws of Colorado, the coroner or his deputy is 
 required to investigate the death of every person dying without at- 
 tendance by a physician, and every death occurring under such cir- 
 cumstances as to afford reasonable ground to suspect that it was occa- 
 sioned by criminal means or suicide. 
 
 The investigation, according to law, takes two forms: 
 
 1 — A viewing of the body and an informal inquiry by the coroner 
 or his representative as to the probable cause of death 
 
 2 — A formal inquiry before a coroner's jury, which is termed an 
 inquest. 
 
 The first proceeding is a mere gathering of statements and an in- 
 formal determining of the cause of death by the coroner or his deputy 
 alone, while the second takes the form of a court procedure in which 
 the coroner sits as the judge and, takes evidence before a jury. 
 
 Becker's Medical Jurisprudence on Coroners 
 
 In speaking of the functions of a coroner, Becker's Medical Juris- 
 prudence has this to say : 
 
 By the common law his powers and duties are both judi- 
 cial and ministerial. In his ministerial capacity he is merely 
 a substitute for the sheriff, as when the sheriff is a party. His 
 judicial authority relates to inquiries into cases of sudden 
 death, with the assistance of a jury. 
 
 In England a coroner's court is a court of record**** 
 but in this county it may safely be said that a coroner's court 
 is not one of record, but of inferior jurisdiction. The func- 
 tions of a coroner are judicial in their character; so judicial 
 that he is protected under the principles which protect judi- 
 cial officers from responsibility for their official acts in a civil 
 action brought by a private person. Records of his proceed- 
 ings amount to entries concerning matters of public interest 
 made under the sanction of an official oath and in compliance 
 or presumed compliance of the law. 
 
 Deep interests are involved in the proper discharge of the 
 duties of coroners ; the character, liberty, and perhaps the life 
 of a citizen accused of crime on the one hand, and on the other 
 the aiding of public justice in establishing the guilt and secur- 
 ing the punishment of the actual criminal. 
 
 Thus it will be seen that the interests involved in the discharge of 
 the duties of coroners are such as to require these duties to be per- 
 formed in the most careful, conscientious and disinterested manner. 
 
 In Denver the coroner, who is a physician, takes no part whatever 
 in the preliminary investigations into causes of death and performs no 
 
SOCIAL WELFARE DEPARTMENT 133 
 
 functions until his deputy has reported to him and recommended the 
 need for an inquest before a jury. 
 
 Deputy Coroner as Undertaker an Interested Party 
 
 In the investigation of crime or suspected crime all parties taking 
 part in the investigation must be disinterested as to the outcome of 
 the investigation. To produce an honest enforcement of law, a calm 
 and judicial finding of facts, and an impartial investigation, the in- 
 vestigators must have no pecuniary or other interest in the proceed- 
 ings. Because of the organization of the coroner's office in Denver 
 the deputy coroner, who is the sole investigator up to the time an in- 
 quest is held, is a party at interest, as will be shown by the procedure, 
 and he is necessarily made so by virtue of the fact that he receives no 
 salary, that he provides the morgue, that his employees transport and 
 handle the bodies without any compensation from the city, and that 
 he performs all of the clerical work in connection with the manage- 
 ment of the office, keeping and maintaining its records, exercising all 
 of the functions of the coroner upon a purely commercial basis. 
 
134 DENVER 
 
 PROCEDURE 
 
 The procedure at present in use is as follows : The coroner re- 
 ceives notification of deaths which call for investigation sometimes 
 through the police and frequently through private citizens. In cases 
 of sudden death where the deceased died at his home, the deputy 
 coroner proceeds to the house in his own automobile, questions the fam- 
 ily or the persons in the house where the deceased was living or room- 
 ing concerning the circumstances of the death, and satisfies himself 
 as to the cause. He makes notes in an informal memorandum book 
 which he carries with him. He then and there determines the probable 
 cause of death ; at least he determines whether it will be necessary to 
 conduct a formal inquest before a jury. Except where the case pre- 
 sents a suspicion of a possible homicide, he authorizes the preparation 
 of the body for burial. According to his own statement, he then asks 
 the family or the relatives whether or not they "have an undertaker," 
 and suggests, in the event of their having none, that he represents a 
 large undertaking establishment and solicits the business for. his com- 
 pany. In cases where the family has its own undertaker he notifies the 
 undertaker mentioned and permits the burial of the body. 
 
 If the deceased has no relatives or friends present to claim the 
 body he causes it to be removed to his undertaking shop. The body is 
 then embalmed by the employees of the undertaking establishment. If 
 relatives or friends subsequently claim the body and retain the dep- 
 uty's undertaking establishment to conduct the funeral a fee of $25 
 is charged for the embalming. On the other hand, if the relatives de- 
 cide to retain some other undertaker no fee is charged for the embalm- 
 ing of the body. 
 
 Unidentified Dead 
 
 There is no rule as to how long unidentified bodies are to be kept 
 in the private morgue of the deputy coroner in anticipation of identifi- 
 cation — in one instance a body was kept for six weeks. It is naturally 
 to the interest of the deputy coroner to keep an unidentified body as 
 long as possible in the hope that a relative may claim it and retain his 
 company to bury it. If the body remains unidentified, after a thor- 
 ough description of it is taken and recorded, it is buried at the expense 
 of the deputy coroner's undertaking establishment. 
 
 In a case where a body is found upon the street the deputy fre- 
 quently permits the police to bring it in the patrol wagon to his private 
 morgue, without first having viewed the body lying where and in the 
 position in which it was found. 
 
 Method of Investigating' Accidental and Criminal Homicides 
 
 In all cases of homicide, whether accidental or criminal, an autopsy 
 and inquest before a jury are held. The procedure for the holding of 
 inquests is as follows: The deputy coroner, if in his opinion it is 
 necessary that an inquest be held, notifies the coroner. Here it will 
 be noted again that this is the only time that the coroner, who receives 
 
SOCIAL WELFARE DEPARTMENT 135 
 
 a salary of $900 a year, performs a function or is acquainted with 
 matters pertaining to his office. The coroner then states the date of 
 the inquest, which is held in the chapel of the undertaking establish- 
 ment. The deputy coroner then summons all of the witnesses, notifies 
 the district attorney, who is always represented at inquests, and retains 
 a stenographer. 
 
 Professional Jurors 
 
 A jury of six men is then summoned by the deputy coroner from 
 among about ten men in the neighborhood who sit upon nearly every 
 coroner's jury. In almost every one of the 38 cases inquired into by 
 the present coroner before juries, the jury consisted of the same mem- 
 bers. The father of the present coroner sits upon every jury, as do 
 also two other men. Thus three of the six may be said to be profes- 
 sional jurors. The only time the jury varies in its membership is in 
 eases of death as the result of automobile accidents, in which cases the 
 deputy leaves off of the jury one or two whom he knows are especially 
 prejudiced against automobiles. 
 
 Jurors Are Paid at the Rate of $1.50 per Day and Mileage 
 
 Coroner's juries are required to pass judgment in many important 
 cases, among which are those of personal injury by public service cor- 
 porations. It is, therefore, important that care be exercised in the 
 selection of these jurors in order that unbiased verdicts may be ren- 
 dered. 
 
 The fact that the deputy coroner "understands" his jurors, their 
 whims, their tendencies and their prejudices, of itself is sufficient to 
 condemn the present practice. 
 
 It may be said, and truly, that the coroner 's verdict is of little or 
 no importance, since the district attorney is represented at the inquest ; 
 and if he is not satisfied with the verdict he still has the right either 
 to file direct information or to present the case to the coroner's jury. 
 It will be remembered, however, that in civil suits arising out of acci- 
 dents in which transportation companies are a part to the suit, a dis- 
 honest coroner's verdict might have considerable weight in connection 
 with the litigation. 
 
 Stenographic Notes Filed with the Court 
 
 Stenographic notes of every inquest are taken and transcribed. 
 The stenographer is not a civil service employee, but is the personal 
 choice of the coroner. While he is retained on a "per folio basis," thp 
 coroner's office never inquires as to the number of folios contained 
 in the stenographic report, nor does the stenographer make his bill 
 upon a folio basis, but files a bill showing the total cost, which varies 
 from $10 to $25. No copy of those minutes is retained at the office 
 of the coroner. The two copies made are disposed of by sending one 
 to be filed with the findings of the jury in the West Side court, and the 
 other to the office of the district attorney. The only record kept in the 
 
136 DENVER 
 
 office is a copy of the findings of the jury. The coroner does not even 
 retain with his papers his own physician's report upon the autopsy. 
 
 Method of Handling Property 
 
 The method of handling property of the deceased is not pursuant 
 to any rule or regulation, but in accordance with the discretion of the 
 deputy coroner. 
 
 Each body is searched by an assistant of the deputy, who is an 
 employee of the undertaking company and in no way responsible to the 
 city or to the coroner. If the property taken from the body consists 
 of money or valuables, it is placed in an envelope, upon which is written 
 the name of the deceased, the place the body was found, the date, a 
 list of the property taken, and the name of the person searching. No 
 other report of the property taken from the body is made, and it is 
 not recorded in the pedigree book. Property is delivered to relatives 
 claiming the body upon presentation of letters of administration. If, 
 however, the personal property is not of any large amount, in the dis- 
 cretion of the deputy coroner, it is delivered to the relatives without 
 any letters of administration. 
 
 If the body is unidenitfied and the property taken therefrom 
 amounts to more than $40, it is delivered to the public administrator. 
 If the personal property amounts to less than $40, it is not delivered 
 to the public administrator, but he is informed of the amount and he 
 directs that this money be turned over to the undertaking establish- 
 ment to provide for the burial of the body. 
 
 Coroner's Office in Effect a Commercial Institution 
 
 Thus, it will be seen that the coroner's office is nothing more than 
 a commercial institution. Naturally, the deputy coroner, who is in 
 effect the coroner, giving his services as such to the city without com- 
 pensation, has before him constantly the necessity of making the office 
 as profitable as possible to the undertaking establishment with which 
 he is connected. To this end, the deputy coroner very frankly stated 
 that out of all of the cases handled through his office, his undertaking 
 establishment buried approximately 40 per cent of the deceased. True, 
 some of these cases were buried at a loss to the undertaking establish- 
 ment, but the company finds it sufficiently profitable to permit the 
 deputy coroner, its employee, to devote practically his entire time to 
 this work, to use the company wagon, its rooms and its employees in 
 the conduct of his office. 
 
 Coroner's Office Now Obsolete 
 
 The office of coroner is retained in many large communities pri- 
 marily because it is a constitutional office, and to effect a radical 
 change abolishing it and transferring its functions would involve a 
 change in the constitution. There is no longer a need, in large cities 
 at least, for retaining this obsolete office. Its work, no matter how 
 efficiently performed, is nothing more than a duplication. Its findings 
 
SOCIAL WELFARE DEPARTMENT 137 
 
 are not of great importance and do not in any way affect the procedure 
 followed by the prosecuting attorney except that by an acquittal the 
 coroner's jury may possibly serve to mislead a district attorney into 
 failing to prosecute a case which should have been prosecuted. Thb 
 finding of guilt by a coroner's jury is nothing more than a determina- 
 tion which has to be reached again by a court jury or through direct 
 information being filed by the district attorney. Findings of the coro- 
 ner's jury are not admissible as evidence in a trial and, as has been 
 frequently proved, the coroner's inquest, handled as it is by inexpe- 
 rienced men sitting as quasi-jurists, has so exposed the evidence in 
 murder cases as to prevent a conviction upon trial in a court of record. 
 In a case where the guilt of a defendant is more or less apparent all 
 that the coroner serves to do is to expose the evidence in possession of 
 the people. 
 
 In speaking of the coroner one authority, Gradwohl, said: "We 
 have at present an officer known as a coroner * * * performing 
 the duties of judge, advocate, physician, pathologist, bacteriologist, 
 toxicologist. It is impossible for any one man to be capable of per- 
 forming all these duties." 
 
 A grand jury in New York County recently submitted the follow- 
 ing findings with regard to the office of coroner : 
 
 We believe that the long-standing maladministration of 
 the coroner's office in this county is a cause of embarrass- 
 ment to the interests of public justice and that a more satis- 
 factory means of discharging the important functions now 
 devolved upon the coroner's office, namely, 
 
 First, investigation of sudden and suspicious death, and 
 ought to be provided by law. 
 
 Second, the examination and commitment of persons 
 charged with causing such deaths, 
 
 The latter function could be performed by the commit- 
 ting magistrates who now have concurrent jurisdiction with 
 the coroners in homicide cases, and the preliminary inquiry as 
 to the cause of death could be satisfactorily conducted by a 
 medical examiner appointed by appropriate authority. 
 
 Mr. Joseph Du Vivier, assistant district attorney for New York 
 County, hag this to say of the coroner's office in that county: 
 
 The coroner does nothing that must not be done over 
 again. No reliance can be placed on anything that he has 
 done, nor can he be trusted to do anything right. Every 
 case in which there may be criminal responsibility must be 
 watched. The body of the deceased is barely cold before the 
 experienced prosecutor begins to guard against the probable 
 mistakes of the coroner — the shifting of the furniture at the 
 scene of the crime, the unskillful handling of witnesses, the in- 
 sufficient identification of the body at the autopsy, the care- 
 less identification of the bullet or knife, or poison, or the 
 
138 DENVER 
 
 clothes worn by the deceased, the danger of newspaper pub- 
 licity, the observance of the technical requirements of ante- 
 mortem statement, the injury from unguarded and unrestrict- 
 ed cross-examination of the people 's witnesses, and the many 
 dangers in every homicide case of importance. 
 
 A committee in New York, which investigated the office of the 
 coroner in New York and in other cities, in one part of its report says 
 as follows: 
 
 The increased use of motor-driven vehicles, the construc- 
 tion of many large steel-frame buildings, the excavation of the 
 streets for transportation and other large enterprises have 
 greatly added to the risk of death not only of workingmen en- 
 gaged in them, but of citizens generally. 
 
 "With these new dangers come into being new civil liabili- 
 ties, not only on the part of persons directly or indirectly re- 
 sponsible for fatal accidents, but on the part of those third 
 parties whose business it is to assume the burden of such lia- 
 bilities and to make compensation for the loss of life — the lia- 
 bility, accident and life insurance companies. The placing of 
 the financial burden in case of death has opened up, within 
 comparatively recent years, a fruitful field of litigation. 
 
 The liability business, to be sure, has been largely dimin- 
 ished in cases involving an employer, by the passage of the 
 Workingmen 's Compensation Law, which has abolished litiga- 
 tion in most cases and has eliminated from consideration a 
 number of questions of fact by abolishing the "fellow serv- 
 ant" rule, and the doctrine of "contributory negligence," 
 when the workingman or his dependents waive compensation 
 and choose to sue for damages. But this new law takes care 
 only of employees — it makes no provision for the heirs of a 
 citizen killed by an automobile, or by a surface car, or by ma- 
 terial falling from a building or in a hundred other accidental 
 ways. 
 
 In the case of accident insurance, it is sometimes neces- 
 sary to establish the cause of death as between suicide or sick 
 ness, in order to prevent the collection of the death claim by 
 fraudulent representations. Many persons who are rejected 
 for one reason or another for life insurance, protect thejr bene- 
 ficiaries by such policies. "Under such circumstances it is ob- 
 viously to the advantage of the heirs to prove or attempt to 
 prove death by accident, and equally to the advantage of the 
 insurance company to prove the contrary. Under most acci- 
 dent policies, the benefits in case of death are double the face 
 value of the policy. 
 
 Life insurance policies are usually contestable for a period 
 of from one to three years from the date of issue and are un- 
 collectible within that period if the holder has committed 
 suicide. 
 
SOCIAL WELFARE DEPARTMENT 139 
 
 When an injustice is committed in any of these cases it 
 falls not alone upon the insurer, but, in the last analysis, upon 
 the policy holders, through the increase in the cost of insur- 
 ance, and is thus a social burden. 
 
 Abolition of Office Recommended 
 
 Since, as has been already cited, the office of coroner serves no 
 useful purpose, it is recommended that legislation be sought to abol- 
 ish it. 
 
 The function of investigating cases of sudden death should be 
 transferred to the office of district attorney, while the functions of 
 performing autopsies should be transferred to either the bureau of 
 health or the county hospital. 
 
 The only change with regard to the performance of autopsies that 
 would be necessary would be to transfer the present coroner's physi- 
 cian from the payroll of the coroner's office to the payroll of the 
 county hospital. 
 
 Under the present arrangements, as already stated, the city is 
 dependent upon a private business enterprise to supply a morgue. A 
 morgue should be established at the county hospital. This could be 
 done without much additional expense. One of the present employees 
 of the county hospital could be given an addition in salary, placed 
 under civil service, and designated "morgue keeper." The space re- 
 quired for such a morgue would not be large. 
 
 The practice of embalming bodies should be discontinued regard- 
 less of the possible expense involved, but, for legal reasons, the body 
 should be preserved with cold air. Need for cold air and an ice plant 
 at the county hospital is referred to in the report upon that hospital. 
 All that would be necessary would be to extend pipes to the room 
 occupied as the morgue. The morgue should be under direct super- 
 vision of the superintendent of the hospital, who should promulgate 
 rules and regulations concerning its management. 
 
 States., Counties and Cities Which Have Already 
 Abolished the Office of Coroner 
 
 The state of Massachusetts over thirty years ago abolished the 
 office of coroner and substituted a medical examiner, placing the crim- 
 inal investigation in charge of the district attorney. Erie County, in 
 the state of New York, has likewise created the position of medical 
 examiner and placed the criminal investigation in charge of magis- 
 trates and justices, as have also the states of Michigan, Rhode Island 
 and Connecticut. 
 
 Speaking of the Massachnusetts law, Mr. Clark Bell said: "In 
 practice this system * * * has worked with precision and with val- 
 uable results. The cumbersome and useless jury is done away with. 
 The work in its two branches, medical and legal, is done by men 
 trained in their respective professions. The many useless inquests (for- 
 
140 DENVER 
 
 merly held)- are avoided, as competent medical experts can often at 
 once pronounce the death natural or otherwise. Prompt and efficient 
 prosecutions have uniformly followed upon the medical examiner's 
 report of violence and (so far as the medical testimony is concerned), 
 have without exception resulted in conviction. The commonwealth 
 saves about one-third of the former expenses of the old system, a val- 
 uable body of medico-legal facts is gathered and preserved, and a great 
 deal of harmful and untimely matter is kept out of the newspapers." 
 
 Testimony tending to show the same results has been recorded 
 with regard to the procedure in counties of other states where the 
 office of coroner has been abolished. 
 
 Procedure Should be Changed Pending Revision of Law- 
 Pending the adoption of laws abolishing the office of coroner, the 
 procedure in coroner's cases, and the organization of the coroner's 
 office should be radically changed. 
 
 The coroner should be required to supervise the work of the office 
 and to conduct all investigations himself, even if it is necessary to in- 
 crease the salary commensurate with the amount of work. All com- 
 mercial aspects of the office should be removed, and no city employee 
 should have an interest, commercially or otherwise, in connection with 
 the performance of the duties of the office. While it is not to be in- 
 ferred, nor is it even intimated, that any practices have been in vogue 
 in connection with the administration of the office which were dishon- 
 est in their character, yet the practice of having an undertaker, finan- 
 cially interested in the procedure, as an official aid to the coroner is to 
 be condemned. Not alone is it to be condemned because it is against 
 every principle of administration, but also because it is unfair to the 
 other undertakers in the city. 
 
 It is, therefore, recommended that no employee of the coroner's 
 office be permitted to engage or be interested in any other business. 
 
 Changing the procedure in this respect will necessarily add addi- 
 tional expense to the maintenance of the coroner's office, since it will 
 be necessary to provide a method of transporting bodies and a place 
 for the holding of autopsies, and a city morgue, but certainly such 
 extra expenditures are warranted in view of the disadvantages of the 
 present system. 
 
 There is no need for a coroner's assistant or deputy. 
 
 Coroner's Juries Should Be Drawn From Regular Panel 
 
 The importance of having a fair and impartial jury pass upon 
 facts in connection with deaths due to violence has already been em- 
 phasized. It is recommended, therefore, that coroner's juries be drawn 
 through the commissioners of jurors from a regular panel, thus doing 
 away with the professional jurors. 
 
SOCIAL WELFARE DEPARTMENT 141 
 
 Method of Handling 1 and Recording Property Taken from Bodies 
 
 The method of handling property taken from bodies should be 
 definitely prescribed by rules and regulations. No body should be 
 searched except in the presence of witnesses, and all property taken 
 from the bodies should be accurately described in detail, listed, and 
 a record made in the pedigree book. The witnesses should be required 
 to sign a statement of the property removed from the body. All this 
 property should be placed in envelopes or packages, properly sealed, 
 and the seal signed by the person placing it thereon. 
 
 No property should be returned to relatives except upon an order 
 either from the public administrator or upon presentation of letters of 
 administration. The property of unidentified dead persons should be 
 delivered to the public administrator, and he should be the person to 
 pay out from the proceeds any debts incurred in connection with the 
 burial of the body. 
 
 Bodies should be viewed only by the coroner. 
 
 The practice of allowing policemen to remove bodies which have 
 not been viewed by the coroner or his physicians should be abandoned, 
 as it is often of vital importance to have competent testimony concern- 
 ing the manner in which the body was found, and indeed the very 
 position in which it rested. These facts are frequently important for 
 the coroner in determining the cause of death. 
 
142 DENVER 
 
 RECORDS AND REPORTS 
 
 The records of the coroner's office are maintained by the deputy 
 coroner. All these records should be in the custody of the coroner. 
 
 The records at present consist of 
 
 Card record of cases 
 
 Book record of cases 
 
 Receipt book and warrant book. 
 
 These card records are informal and are not kept upon printed 
 forms. The cards should have printed headings calling for a complete 
 history of the case. 
 
 Coroner Makes Report in Informal Book 
 
 The deputy coroner in making his investigation keeps a record 
 of interviews and examinations in an informal record book. This pro- 
 cedure should be abandoned, and all statements should be reduced to 
 writing on regular printed forms and filed as a part of the records. 
 The coroner should carry these forms with him at such times as he is 
 making investigations. 
 
 Police Should be Required to Make Written Reports 
 
 The police should be required to file a, written report concerning 
 every case, showing action taken by them. 
 
 Coroner's Records Incomplete 
 
 The coroner's records do not contain the report on the autopsy, 
 or the stenographic minutes of the inquest. The offices should have 
 a filing system which should include a folder for every case. This 
 folder should have in it every paper and document or a copy thereof 
 in connection with the case, including the police report, a list, of prop- 
 erty taken from the body, a receipt for the body, a receipt for the 
 property delivered, a copy of the report of the autopsy, a copy of the 
 stenographic minutes of the inquest, a statement of expenses involved 
 in the inquest, and a report as to the final disposition of the case. 
 
 Coroners Should Make Monthly Report to Health Department 
 
 The present practice is for the deputy coroner to file a death cer- 
 tificate with the bureau of health within 24 hours after the finding 
 of a body. This certificate contains no facts concerning the case be- 
 yond the mere pedigree of the person, if the pedigree is known. 
 
 The coroner should be required to file with the district attorney 
 and the bureau of health a detailed statement in connection with every 
 case. He should be required to file a monthly report with the bureau 
 of health describing in detail his activities during the month. He 
 should file a monthly report with the mayor in which should appear 
 the names of every juror serving upon inquest juries. 
 
Charts 
 
PRESENT GENERAL ORGANIZATION 
 OF THE DEPARTMENT OF SOCIAL WELFARE 
 
 / MSPECTION 
 
 DEPUTY 
 1 I NSPCCTOI? 
 
 DEPARTMENT 
 Of 
 
 SOC//TL WELF/?R£ 
 
 COMMISSIONER 
 
 SIC*— *****£— 
 
 C OtSN T Y 
 
 supervis/om or 
 
 SCHOOLS 
 
 COMMISSION OP 
 
 chiiki rrs coukcc tiom 
 
 deputy 
 
 su/>E#/irr£*a£/n 
 
 ^e#/cr sa*it**v 
 
 CI TY 
 MARKETS 
 
 ehEcutiic 
 secpctapy 
 
 fff«M»t f- 
 
 OEPARTMEN r Of 
 HEAL TM 
 
 DEPUTY 
 M*RM£ r A*»s T£R 
 
 CITY AMD COUNTY 
 HOSPITAL 
 
 OEPUTY 
 C O**'/? or*i£AL TM 
 
 /*MrrCTO# or TM£ 0£*>APT/*t£MT or H£*LTM 
 
 X. 
 
 LIBRARY 
 CONINIIS S / O/V 
 
 3u*>£ft/NT£MO£Ml 
 
 CORONERS 
 
 of pice 
 
 LIBRARIAN 
 
 ooa ROCIAIO 
 
 DEPUTY 
 CORONER 
 
 - o£ purr 
 AOUHO MASTER 
 
 /*&c*ioe/>tT or cdAfAf/fis/ow or cm*m/ty amo cow>£CTioh 
 
PROPOSED ORGANIZATION OP THE DEPARTMENT OP SOCIAL WELPARE 
 
 DEPARTMENT 0F SOCIAL rYELE/lftE 
 
 COM Ml SSIOHFf? 
 Q r 
 
 social wstr/mE 
 
 CCMM/Silfl/V 
 
 *ce*e tmry 
 
 1T£MOG*/IPM£k 
 
 BUffEAU 
 Of 
 
 CHBfilTIESlCO#*CCTlO* 
 
 DIRECTOR 
 
 0$ RECTOR 
 
 •/*/©*• OP- I 
 
 **o et. £fi* 
 
 C*t£r 
 cl£#k 
 
 J ete/TM I 
 
 ^31 
 
 o f t a 00m 
 
 coil, a ->ooe 
 
 
 c*t£f 
 INSPtCTO* 
 
 zr^ 
 
 //*S*£C to ft 
 
 t*tSP£C TOM 
 
 zr^ 
 
 vxremtoLOUt, 
 
 Mrc*£T**V 
 
 Suf*£SltfT01 
 
 SVPCfitHTBI 
 
 Si/*l#iH-rOT 
 
 ****** ! [— -«-Vii'*| I COi/^ry I u£ri "S ^J I W*f* ] 
 
 *****■/■ T 
 
 P^JH F-^1 fgprl 
 
 to- sum I I 1 1 " aa T " J 
 
 MAT KG H 
 
 Z 
 
 X"~ : '~~A 
 
 
 3^ 
 
 ™»;7l 
 
 _z: 
 
 3^ 
 
 
 SUP>£*iMT'tft 
 
 r 
 
 Murium mm 
 
 \s'£*C6 1* 
 
 • tMT£*1ti> 
 
 Chapl ami 
 
 r*tt-*mi a mr rut svr*j* 
 
PRESENT ORGRNIZRT/ON 
 DEPARTMENT OP HEAL TH 
 
 CHEMICAL 
 L/!30"/'T0/fy 
 
 MEOICAL 
 
 CITY 
 
 CHCMI 5 7" 
 
 C I T r- 
 PHYSIC/AHS 
 
 frt/L.1* 
 INSPCCTIOfJ 
 OIVIS/OKI 
 
 CH I cr 
 INSPSCTOR 
 
 Ai%J CHier 
 IMSPCC TO* 
 
 DEPARTMENT 
 or 
 HEALTH 
 
 0£*»UTY 
 C OMMISSJONCR 
 
 *C7> *•. SU**£ &iN7£r*0£r*T Of 
 
 CO<vTjtojOc» O'S* ffStr HOSPITAL. 
 
 "II O &IV* L L. OOJ> «OJ' l " , (7t 
 
 ewer cl£#k 
 
 REGISTRAR 
 
 SANtT#RY 
 O/VISlOM 
 
 CITY 
 O/SPSNSRRY 
 
 C/TY 
 A HO COUNTY 
 
 ch i e r 
 
 ■NSPECTQR 
 
 SECRETARY 
 
 A*£~RT 
 WSPECTtQN 
 OtV ISION 
 
 SuP£PINT£MDim 
 tee *ot£) 
 
 ASSISTANT 
 OfSM MAN 
 
 iffiPfC TOSS 
 
 Or* roo T 
 
 Cft/EE 
 /VVRSE 
 
 MOuSC 
 
 PHfSiCi»/V 
 
 v spec ro/ti 
 
 T7 
 
 ' l/YTEANES' 
 
 IS 
 
 CONTAGIOUS 
 a/6£/?S£ 
 HOSPITAL 
 
 CHlEE 
 
 'AJSPECTQR 
 
 BfiCTCRlOLOUCflL 
 
 O IV ISi ON 
 
 SUPLRlNTLNBfXl 
 Vpr$*rco*a. ftf4ii4_ 
 
 SMALLPOX 
 HOSP/T/1L 
 
 8fiCT£f?iOlOCiS1 
 
 zv*Eftm Ttnoem 
 
 QUARANTINE 
 
 PNO EUMlGATlNO 
 
 O'v /S / or* 
 
 QUARANTINE 
 
 Off ice rs 
 
 ch/ fr 
 
 NL/ASf 
 
 *TSS'STJt*r 
 
 chies- 
 
 iHSP£CTOP 
 
 CtHEE 
 NURSE 
 
 FIRST 
 ASSISTANT 
 
 hrtCAT 
 'NSPECTOfl 
 
 collection or 
 
 O E R o 
 RfVfMRL S 
 
 COLLECTOR 
 
 s£:cot*0 
 
 ASSISTANT 
 
 ASSISTANT 
 
 0£P#ATM£nr 
 *** TRO/V 
 
 C UP&O S 
 
 MA TRO/V 
 
 SERVICE 
 £MPC Of££S 
 
 » f*e*f°Of*S'Bl- £ TO t: o r* t** ,-**., o n e tv Ojr xOC/fVL Yf£L. msif 
 »* S/INlVftfTY /IYS£>£-CTOP 0£ T/J ILfO TO /Vt£J9T /H SP£C TIOi* Oiyi StON Af*£} 
 TO Qvs*/?A7/VTif*r Jf#0 *-U**tGJtT/r<C O'f'StON 
 
PRESENT ORGANIZATION 
 OF THE COMMISSION OF CHARITY AND CORRECTION 
 
 MUNtClRRL. 
 LOOG/HG HOUSC 
 
 SUPCR/N TENOEM T 
 
 COMM/SS/ON 
 
 O F~ 
 
 CHflRITY/lND CORRECTION 
 
 EXECUTIVE 
 SECRETARY 
 
 O UT DOOR REL l£F 
 
 COUNTY F/7RM 
 
 SUP£ff/N TENO£NT 
 Or RELIEP~ 
 
 INTERVVYS 
 
 DE TENT I ON HOM£ 
 
 SUPERINTENDENT 
 
 STENOa'PHi 
 
 V/s/rosrs 
 
 SUPERINTENDENT 
 
 flSS/STAf/T 
 SUPERINTEND! 
 
 Afuffse 
 
 COOK 
 
 noose: 
 
 KEEPER 
 
 OROE&LY 
 
 CHHPL&INS 
 
 SERVICE 
 
 EmploY£es 
 
 MUN/C/R/iL. 
 co/ri /fNO wooo Y*#o 
 
 SUPERINTENOEN1 
 
 WRTCHMRH 
 
 P&EPARCO By THE BUREAU Or MUNICIPAL RESEARCH 
 /Vf »V YORK CITY 
 
DEPARTMENT OF SAFETY 143 
 
 REPORT ON A SURVEY OF THE 
 DEPARTMENT OF SAFETY 
 
DEPARTMENT OF SAFETY 145 
 
 CONTENTS 
 
 Page 
 
 Summary of Recommendations 146 
 
 Part I — The Office of the Commissioner: 
 
 Organization 159 
 
 Appointments 164 
 
 Promotions 166 
 
 Surgical Division 168 
 
 Inspector of Amusements 171 
 
 Police and Fire Alarm Telegraph System 173 
 
 Part II— The Bureau of Police : 
 
 Organization 183 
 
 Training for Police Service ; 190 
 
 Distribution of the Force 194 
 
 delations Between Police and Other City Departments 203 
 
 Uniforms and Equipment 205 
 
 Vice Control 210 
 
 Detective Division 213 
 
 Municipal Court 224 
 
 Records and Reports 225 
 
 Part ni— The Bureau of Fire : 
 
 Organization 243 
 
 Training of Firemen 245 
 
 Distribution of the Force 247 
 
 The Prevention and Extinguishing of Fires 257 
 
 The County Farm 263 
 
 Inadequate Control and Inspection of Theatres 266 
 
 Moving Picture Shows 270 
 
 Fire Campaign Needed 272 
 
 Records and Reports 274 
 
 Part IV — The Police and Firemen's Pension Funds: 
 
 General Statement 289 
 
 Operation of the Firemen's Pension Fund, 1908—1913 296 
 
 Operation of the Police Pension Fund, 1908—1913 300 
 
 Part V— The Office of Sheriff and County Jail : 
 
 Sheriff's Office 305 
 
 County Jail 309 
 
 Records and Reports 322 
 
 i 
 
146 DENVER 
 
 SUMMARY OP RECOMMENDATIONS 
 
 This report on the department of safety is based upon an exam- 
 ination of the records, a field study of the activities of the various 
 branches of the department, an inspection of a number of public in- 
 stitutions and many buildings, and interviews with officers of the de- 
 partment. Acknowledgment is made of the co-operation of the com- 
 missioner of safety and the other officers of the department. 
 
 The following is a summary of recommendations-: 
 
 Office of the Commissioner 
 
 1 — That all subdivisions of the department of safety be officially 
 termed bureaus. 
 
 2 — That the commissioner assume direct control over the depart- 
 ment under his jurisdiction by the establishment of a 
 proper reporting system, which will bring to his desk daily, 
 in concise form, information concerning the activities and 
 operations of the various branches of the department. 
 
 3 — That the commissioner abandon the practice of acting as the 
 fire and police board. 
 
 That the law requiring appropriations for police and fire to 
 be expended proportionately among various localities be 
 repealed. 
 
 -That the council establish by ordinance the grade of civilian 
 aide, thus abolishing the rank of deputy commissioner and 
 inspector of police. 
 
 -That the civilian aide be prohibited from engaging in any 
 other occupation. 
 
 -That the section of the charter permitting heads of city de- 
 partments to appoint such employees and assistants as they 
 deem necessary, within their appropriation, and without 
 the sanction of the council, be amended so as to provide 
 that no positions can be established or additional appoint- 
 ments made except with the permission of the council (ex- 
 cept in ease of vacancies). 
 
 -That the procedure followed in the appointment of policemen 
 and firemen be changed so as to provide for a proper char- 
 acter investigation of all applicants, and that applicants 
 be subjected to a physical examination at the time of their 
 appointment. The application blank should be revised by 
 the civil service commission so as to include headings call- 
 ing for adequate information to facilitate speedy investiga- 
 tion. 
 
 -That, as a protection to the pension fund, applicants be re- 
 quired to furnish proof of age. 
 
DEPARTMENT OF SAFETY 147 
 
 10 — That the present form of efficiency reports be revised so as to 
 allow their use as a basis of proper efficiency ratings in 
 promotional examinations. 
 
 11 — That a practical test be held in connection with promotional 
 examinations in the fire bureau and that the chief serve 
 as one of the judges. 
 
 12 — That official recognition be given for acts of bravery and 
 that a board of- honor be established to determine to whom 
 such awards should be made. 
 
 13 — That the ambulance service be transferred from the bureau 
 of police to the county hospital, and that the. three drivers 
 be remanded to active service patrol. 
 
 14 — That the services of two of the three surgeons be dispensed 
 with, and that one surgeon devote his entire time as med- 
 ical aid to the police and fire forces. 
 
 15 — That the surgeons be prohibited from having any private 
 business relations with members of the police and fire 
 forces or their families. 
 
 16 — That the offices now occupied by the surgeons be abandoned 
 and a small office be provided in City Hall. 
 
 17 — That the surgeons be required to maintain a proper record 
 system. 
 
 18 — That the inspector of amusements be required to maintain 
 proper records and to file daily reports with the commis- 
 sioner of safety. 
 
 19 — That an ordinance be adopted requiring the owners of all 
 moving picture shows to file daily reports, showing the 
 titles of the films to be shown by them on the following 
 day, so as to enable the inspector of amusements to inspect 
 such films as she may deem necessary in advance of their 
 being publicly displayed. 
 
 20 — That the fire and police telegraph station be removed to a 
 fire-resisting structure, and that pending such removal a 
 fire escape be erected to make possible the escape of oper- 
 ators in the event of fire. 
 
 21 — That the city replace the automatic fire alarm system now in 
 use with a modern system, providing for automatic, semi- 
 automatic and manual transmission of alarms. 
 
 22 — That provision be made for the erection of not less than one 
 hundred fire alarm boxes, to be distributed throughout the 
 suburban sections, and that there be a redistribution of the 
 boxes now located in the mercantile district. 
 
 23 That red lights be placed above the fire alarm boxes to indi- 
 cate their location. 
 
148 DENVER 
 
 24 — That ordinary telephone wall boxes be established on patrol 
 posts for the use of the police, instead of the costly type 
 of box now in use. 
 
 25 — That the records of the fire alarm and telegraph division be 
 revised and improved. 
 
 26 — That a complaint, record and filing division be established in 
 the office of the commissioner of safety, and that all of 
 the police and fire records be placed under the immediate 
 control and supervision of the commissioner. 
 
 27 — That the secretary to the commissioner be placed in charge 
 of the complaint, record and filing division. 
 
 28 — That a definite procedure for the handling of complaints and 
 correspondence be established. 
 
 Bureau of Police 
 
 1 — That the commissioner of safety abolish the rank of inspector 
 of police. 
 
 2 — That the police captains be relieved of routine clerical work 
 and devote their entire time to the supervision of the patrol 
 force and the enforcement of discipline ; that they be held 
 strictly to account for the conditions existing on the patrol 
 posts. 
 
 3 — That the police sergeants now performing desk duty be re- 
 quired to perform active patrol duty. 
 
 4 — That provision be made for the appointment of at least four 
 additional police sergeants. 
 
 5 — That a training school for police service be established at 
 once and provision made for the proper training not only 
 of recruits, but of the present members of the force as well. 
 
 6 — That an experienced police officer be placed in charge of the 
 training school. 
 
 7 — That the course of study in the training school include in- 
 struction in detective work. 
 
 8 — That all members of the police force be furnished with printed 
 instructions concerning the procedure to be followed in 
 homicide cases. 
 
 9— That city officers be requested to lecture at the training 
 school. 
 
 10 — That military drills be conducted under the supervision of an 
 officer of the national guard. 
 
 11— That proper reports of the efficiency of policemen during 
 their probationary period be required. 
 
DEPARTMENT OF SAFETY 149 
 
 12 — That closer co-operation between the police and city depart- 
 ments be established by encouraging the policemen to re- 
 port on conditions existing upon their patrol posts which 
 may be remedied through action of other city departments. 
 
 13 — That policemen be provided with standard memorandum 
 books and required to carry them when on duty. 
 
 14 — That policemen be used to distribute communications be- 
 tween the city and taxpayers. 
 
 15 — That the appearance of the policemen be improved by the 
 adoption of a more modern style of uniform; and that a 
 more economical and efficient method of purchasing uni- 
 forms be adopted. 
 
 16 — That policemen be required to wear their full uniforms when 
 traveling to and from their homes. 
 
 17 — That policemen be prohibited from wearing, exposed, em- 
 blems of fraternal and secret societies. 
 
 18 — That the city provide policemen with standard revolvers. 
 
 19 — That policemen be required to carry their revolvers in the 
 blouse instead of in the hip pocket. 
 
 20 — That uniforms and equipment of all policemen be properly 
 inspected at each out-going roll call. 
 
 21 — That the persons not connected with the police force who 
 now hold regulation shields be required to return them at 
 once. 
 
 22 — That a new type of shield be designed and issued under 
 proper control. 
 
 23- — That the new shields have the policemen's numbers conspic- 
 uously displayed thereon. 
 
 24 — That a new design of special policemen's shields be provided 
 which will be conspicuously different in design than the 
 regulation shield. 
 
 25 — That special patrolmen be required to furnish a bond of not 
 less than $2,000, to wear a uniform different in design than 
 the regulation uniform, the design to be officially pre- 
 scribed, and that they make a weekly report. 
 
 26 — That the practice of furnishing private detectives with police 
 commissions or shields be abandoned. 
 
 27 — That the method of issuing instructions and general alarms 
 to the police force be changed so as to provide for the 
 issuance of a daily bulletin to the force. 
 
 28 — That the members of the traffic squad be properly trained in 
 their duties; and that they be required to adopt uniform 
 methods of controlling traffic. 
 
150 DENVER 
 
 29 — That the practice of requiring patrolmen to call from definite 
 signal boxes at a definite time be abandoned and that they 
 be required to call from whatever box they happen to be 
 near at the appointed time for calling. 
 
 30 — That relieving points be established on each of the posts ; and 
 that no policeman be permitted to leave his post at the 
 end of the tour until he has met his relief. 
 
 31 — That the practice of employing part time patrolmen be aban- 
 doned. 
 
 32 — That the patrol boxes in the Capitol Hill and the South Den- 
 ver sections be connected with the substations. 
 
 33 — That all unnecesary police details be abolished. 
 
 34 — That a new platoon system be installed which will provide 
 for a reserve force at all times, proper time off for the 
 policemen and a better distribution of the force. 
 
 35 — That pending the establishment of a new platoon system a; 
 reserve force be provided. 
 
 36 — That a red light system be provided for summoning police- 
 men when on patrol. 
 
 37 — That the suburban posts be patroled by mounted policemen. 
 
 38 — That the patrol posts in the congested business section be 
 lengthened so as to make possible the shortening of the 
 extraordinarily long posts in the residence sections. 
 
 39 — That a study of the patrol posts be made at once so as to 
 furnish a basis for the re-enforcement of the posts and a 
 redistribution' of the men. 
 
 40 — That the position of secretary to the chief of police be abol- 
 ished and his functions transferred to the chief clerk. 
 
 41 — That the stenographer to the chief of police be transferred 
 to the complaint, record and filing division. 
 
 42 — That the number of operators, or so-called complaint clerks, 
 be reduced to two. 
 
 43 — That Sunday morning sessions of the municipal court be held 
 . so as to relieve the bureau of police of caring for and feed- 
 ing prisoners all day Sunday. 
 
 44 — That policemen be supervised when in attendance at court 
 and that they be required to appear either in full uniform 
 or in citizens' clothes with the shield exposed. 
 
 45 — That the practice' of transporting children in a patrol wagon 
 be abandoned; and that all children be delivered to the 
 house of detention forthwith, not to the police station. 
 
DEPARTMENT OP SAFETY 151 
 
 46 — That uniformed policemen be prohibited from entering sa- 
 loons, disorderly houses and similar places for purposes of 
 enforcing the statutes except when the commission of a 
 felony is reported. 
 
 47 — That policemen be required to report in writing all places 
 upon their posts which they suspect of being used for dis- 
 orderly purposes; and that their duty with regard to the 
 enforcement of laws against gambling, prostitution and 
 illegal sale of liquor be confined to reporting suspected 
 places. 
 
 48 — That the commissioner of safety exert every effort possible 
 to suppress existing disorderly houses and wine rooms 
 through the use of specially selected members of the force. 
 
 49 — That members of the detective division confine their activi- 
 ties to the investigation of crime ; and that they be relieved 
 of all duty in connection with the suppression of vice. 
 
 50 — That provision be made for the proper training of detectives ; 
 and that they be required to specialize in the investigation 
 of serious crimes. 
 
 51 — That detectives be permitted to visit the state prison at cer- 
 tain intervals during the year to observe different types of 
 criminals under the guidance of an experienced officer. 
 
 52 — That at least two detectives remain on duty from midnight 
 until 7 :00 a. m. 
 
 53 — That pawnbrokers be required by ordinance to install a buzzer 
 connected with police headquarters with which to notify 
 the detectives when an attempt is made to pawn or redeem 
 stolen property. 
 
 54 — That the division of criminal identification be reorganized 
 and equipped with a camera, a proper gallery to be used 
 as a rogues gallery, and a finger-print system. 
 
 55 — That the operator in charge of the division of criminal identi- 
 fication be required to study methods of recording and 
 classifying finger-prints and taking Bertillon measure- 
 ments. 
 
 56 — That proper records be maintained in the division of crim- 
 inal identification. 
 
 57— That the detective division install a proper system of records 
 and reports which will provide for a card record of all 
 cases, showing the action taken upon them and the results 
 obtained. 
 
 58 — That a proper record and reporting system be installed in 
 the police bureau. 
 
152 DENVER 
 
 59 — That the bureau of police issue an annual report which will 
 accurately describe the activities of the force for the year, 
 and furnish statistics to serve as a guide to council in legis- 
 lation affecting the police. 
 
 Bureau of Fire 
 
 1 — That the commissioner of safety be advised of the activities 
 and operations of the bureau of fire through a comprehen- 
 sive daily report from the chief. 
 
 2 — That the daily meeting of district chiefs be abandoned. 
 
 3 — That the position of fire warden be abolished. 
 
 4 — That a training school for firemen be established in connec- 
 tion with the training on the fire tower. 
 
 5 — That an experienced officer be placed in charge of the train- 
 ing school. 
 
 6 — That firemen be supplied with books upon the subject of fire- 
 fighting, required to read the same and subjected to a writ- 
 ten test thereon. 
 
 ■ 7 — That additional firemen be appointed. 
 
 .8 — That an additional truck company be established in the vicin- 
 ity of South Ogden and Iowa streets. 
 
 9 — That no additional captains be appointed regardless of the 
 creation of new companies or the appointment of additional 
 men until the services of the present captains are utilized 
 in accordance with a proper distribution. 
 
 10 — That an auxiliary squad for the congested value district be es- 
 tablished, this squad to serve as an emergency crew in the 
 event of large fires or a number of fires occurring at the 
 same time. 
 
 11 — That council consider the motorization of the apparatus in 
 the suburban sections and the equipment of some of these 
 stations with triple combination motor wagons. 
 
 12 — That the trucks be provided with acetylene torches in place 
 of the present oil torches. 
 
 13 — That the glass wind shields be removed from the automobiles 
 of the chief and the deputy chief. 
 
 14 — That engine company 6 be removed to better quarters and 
 the present station abandoned. 
 
 15 — That engine company 2 be removed to better quarters and the 
 present house abandoned. 
 
 16 — That all sliding poles be equipped with automatic trap doors. 
 
DEPARTMENT OF SAFETY 153 
 
 17 — That the city pay for the laundering of the bed linen and 
 towels of firemen. 
 
 18 — That the alley in the rear of the house occupied by engine 
 company 4 be repaved. 
 
 19 — That the repair shop be required to keep job cost records. 
 
 20 — That a horseshoer be appointed and that the bureau be sup- 
 plied with a portable forge. 
 
 21 — That additional fire hydrants be installed in the suburban 
 districts as soon as possible and that fire hydrants be lo- 
 cated on all four corners of the county hospital grounds at 
 once. 
 
 22 — That street sprinklers be required to draw water from spe- 
 cially designated hydrants and that these hydrants be sub- 
 jected to frequent tests. 
 
 23 — That all overhead wires be placed underground as soon as 
 possible. 
 
 24 — That all hose be purchased upon standard specifications. 
 
 25 — That the inspection of dwellings by uniformed firemen be in- 
 cluded in the fire prevention inspections. 
 
 26 — That a vigorous fire prevention campaign be begun. 
 
 27 — That an ordinance be adopted creating a fire prevention com- 
 mission, which shall be empowered to create and enforce 
 rules and regulations governing fire prevention; this com- 
 mission to consist of the chief of the fire bureau, the com- 
 missioner of safety, the inspector of buildings and two pri- 
 vate citizens, to serve without salary. 
 
 28 — That the county hospital and the buildings located on the 
 hospital grounds be equipped with proper fire escapes, fire- 
 fighting equipment and fire doors, and that the employees 
 be schooled in fire drills under the supervision of the fire 
 bureau. 
 
 29 — That the municipal lodging house be equipped with proper 
 fire escapes, a fire gong and first aid fire equipment. 
 
 30— That the county farm be furnished auxiliary fire-fighting 
 equipment and that the building thereon in which the in- 
 mates are house be equipped with proper fire escapes. 
 
 31 — That the use of the Auditorium for the production of the- 
 atrical performances be abandoned ; that all of the scenery 
 and other inflammable materials now stored in the cellar 
 be removed at once ; that the wooden doors and wooden 
 partitions in the building be removed and replaced with 
 metal ; that the wooden obstructions in the corridors of the 
 cellar be removed: that the flimsy wooden superstructure 
 
154 DENVER 
 
 under the orchestra be removed; that all of the exit lights 
 be changed to conform with the standard exit lights re- 
 quired by all large cities in theaters, public halls, etc. ; that 
 the motors operating the moving boxes be further protected 
 by enclosing the switches in fire-resisting boxes; that the 
 scene loft be examined by competent engineers to determine 
 whether it may be safely continued in its present condition. 
 
 32 — That regular firemen be assigned to all of the theaters in- 
 stead of the house firemen now employed by the theaters, 
 and that assignments be so arranged that all members of 
 the force will have a turn in observing the theaters and 
 their construction. 
 
 33 — That all theaters be required to conduct fire drills and to fur- 
 nish the employees with printed instructions as to their 
 duties in case of fire. 
 
 34 — That one theater, which is regarded as unsafe, be closed at 
 once. 
 
 35 — That a new building code be adopted, and that the provisions 
 with regard to the construction and equipment of theaters 
 be specific and rigid in the requirements as to the safe- 
 guarding of audiences. 
 
 36 — That curtains and other drapery on the exits of the theaters 
 be removed at once. 
 
 37 — That the procedure in licensing moving picture show oper- 
 ators be revised, and that each applicant be required to fur- 
 nish his photograph, which should be placed upon the li- 
 cense. 
 
 38 — That the rules governing the construction of moving picture 
 booths be changed so as to require a very much better type 
 of booth. 
 
 39 — That no booth be permitted to be located in any part of a 
 theater or moving picture show house which is occupied by 
 the audience; and that the chief of the fire bureau be re- 
 quired to approve the location of booths before they are 
 installed. 
 
 40 — That the fire bureau begin a campaign of education by cir- 
 cularizing householders, the circulars to be distributed by 
 police officers on their respective posts. 
 
 41 — That the records of the bureau be revised. 
 
 42 — That the bureau issue a comprehensive annual report. 
 
 Office of Sheriff and County Jail 
 
 1 — That jury notices be served by members of the police force. 
 
 2— That the practice of using deputy sheriffs as bailiffs be dis- 
 continued. 
 
DEPARTMENT OF SAFETY 155 
 
 3 — That the deputy sheriff now serving as chauffeur be assigned 
 to duties consistent with his office and that the force of 
 deputy sheriffs be reduced in number. 
 
 4 — That the clerical staff be reduced to two clerks. 
 
 5 — That the office equipment include rubber stamps for endors- 
 ing return and a time clock. 
 
 6 — That the use of the automobile touring car be discontinued. 
 
 7 — That the deputy sheriffs be required to file daily reports on 
 each case assigned to them. 
 
 8 — That the under sheriff file a daily report with the commis- 
 sioner of safety, showing the business transacted by the 
 office during each 24 hours. 
 
 9 — That a fee be charged for postage used in notifying lawyers 
 of action taken on their cases. 
 
 10 — That all prisoners, upon admission to the county jail, be 
 given a physical examination by the jail physician in order 
 to protect the institution and its inmates against contagious 
 diseases. 
 
 11 — That a proper record be made of all property taken from pris- 
 oners at admission and that the prisoners be required to 
 sign a statement describing the property taken from them. 
 
 12 — That convicted prisoners be required to wear prison garb, 
 of a type that could be readily washed, but not such as 
 would be degrading. 
 
 13 — That the clothing of all prisoners be properly fumigated and 
 sterilized upon admission. 
 
 14 — That the cost of feeding prisoners be reduced by simplifying 
 the diet, and that the prisoners be fed three times a day 
 instead of twice. 
 
 15 — That prisoners be prohibited from carrying food from the 
 mess table to their cells. 
 
 16 — That the rules prohibit eonvicte'd prisoners from obtaining 
 additional meals or food other than that which is regularly 
 served by the jail. 
 
 17 — That the present practice of permitting convicted prisoners 
 to purchase extra meals from the chef be discontinued, and 
 that the chef be prohibited from having any business rela- 
 tions with prisoners. 
 
 18 — That "trusties" be served the same food as other prisoners, 
 and that the practice of permitting them to eat in the offi- 
 cer's dining room be discontinued. 
 
 19 — That a workhouse be established. 
 
156 DENVER 
 
 20 — That more rigid jail discipline be maintained. 
 
 21 — That the warden issue rules and regulations governing the 
 prisoners, which rules should prohibit card playing and 
 gambling of all kinds, and the introduction of daily news- 
 papers into that part of the jail in which convicted prison- 
 ers are detained and which would also require that pris- 
 oners bathe at definite times and retire at a definite hour. 
 
 22 — That the present visiting days be abandoned and that pris- 
 oners be limited as to the number of visitors allowed to see 
 them during their term of imprisonment; also that Sunday 
 be designated as the visiting day. 
 
 23 — That guards and other employees of the jail be required to 
 wear uniforms. 
 
 24 — That the warden conduct a daily inspection of the cells. 
 
 25 — That prisoners be furnished towels. 
 
 26 — That a wire fence be placed about the jail yard to prevent 
 the introduction of drugs, files, etc., into the jails through 
 the windows and to make possible the employment of pris- 
 oners upon the lawns and roads about the jail. 
 
 27 — That no prisoners be released without an order of court, ex- 
 cept to deputy sheriffs, and then only after the deputy has 
 entered in the records the reason for taking the prisoner 
 from the jail. 
 
 28 — That the warden file a comprehensive daily report with the 
 sheriff. 
 
 29 — That the record of prisoners include a record of the property 
 taken from prisoners and a more detailed statement con- 
 cerning the method of releasing the prisoner. 
 
 30 — That proper health records of inmates of the jail be main- 
 tained. 
 
 31 — That the warden establish an attorneys' register in which all 
 visiting lawyers shall be required to enter their names and 
 the names of the* prisoners upon whom they call. 
 
 32 — That a diary be opened in which shall be kept a record of the 
 dates upon which prisoners are due to be discharged. 
 
 33 — That the warden post in his office a bulletin which will show 
 the number of inmates, classified as to the kinds of pris- 
 oners. 
 
DEPARTMENT OF SAFETY 157 
 
 Department of Safety 
 
 Part I — The Office of the Commissioner 
 
DEPARTMENT OF SAFETY 159 
 
 REPORT ON A SURVEY OF THE DEPARTMENT OF SAFETY 
 PART I— THE OFFICE OF THE COMMISSIONER 
 
 ORGANIZATION 
 
 Commissioner of Safety the Administrative Head 
 
 The department of safety includes the former departments of fire 
 and police, the office of sheriff and the county jail. The administra- 
 tive head of the department is the commissioner of safety, who is 
 elected, as one of the five commissioners, to serve for a term of four 
 years. 
 
 The duties of the commissioner include not only the administra- 
 tion of his department, but also service in council and upon the va- 
 rious councilmanic committees. The present commissioner has been 
 in office since June, 1913. 
 
 The department of safety was created in 1913, at the time of the 
 installation of the commission form of government. The control of 
 the various subdivisions of the department, prior to the change in 
 form of government, was divided as follows: The police and fire de- 
 partments Were under a fire and police board, and the office of the 
 sheriff and the county jail were under the supervision of the sheriff. 
 
 As the change in form of government was effected through 
 amendment to the charter and not through revision, the police and fire 
 departments retain their old names, although they are in fact 
 "bureaus." In order to avoid confusion in nomenclature in this re- 
 port, the term "department" will be applied only to the department 
 of safety and the subordinate branches will be referred to as 
 "bureaus." 
 
 The commissioner of safety is assisted by the executive heads of 
 each of the bureaus, the chief of the fire bureau, chief of police and 
 under-sheriff. In his administration of the police he is assisted by a 
 deputy commissioner, who serves also as "inspector of police," a posi- 
 tion which is discussed in that part of the report devoted to the police. 
 
 The office of the department is located in City Hall. A secretary 
 is in charge of all routine work. 
 
 Commissioner Lacks Control 
 
 The commissioner receives no adequate reports concerning the 
 operations and activities of the branches of his department. He re- 
 ceives oral reports on current matters from his executive heads, but 
 no information of a nature which would enable him to judge as to the 
 efficiency of his subordinates through a comparison of their work 
 and the conditions in the city affected by the department with the 
 work of former years and prior conditions. The lack of a proper re- 
 porting system and the consequent lack of control may be said to be 
 responsible for the almost complete lack of discipline in the police 
 bureau. 
 
160 DENVER 
 
 The commissioner holds daily conferences with the deputy com- 
 missioner of police, upon whom he depends for official information 
 as to the operations of the police, but the deputy commissioner, like 
 the commissioner himself, relies upon oral reports from his subor- 
 dinates. 
 
 Thus the commissioner, although responsible for the operations of 
 this department, for the maintenance of discipline, and for an efficient 
 suppression of crime in the city, cannot from any document in his pos- 
 session ascertain: 
 
 1 — Wh ether crime is on the increase or decrease. 
 
 2 — Whether the number of arrests is greater or less than in pre- 
 ceding years. 
 
 3 — Whether the number of convictions exceeds those obtained 
 in previous years. 
 
 4 — Whether complaints are being properly investigated. 
 
 5 — Whether the number of complaints exceeds that of previous 
 years. 
 
 6 — Whether the members of the detective division are intelli- 
 gently investigating cases which come within their juris- 
 diction. 
 
 7— Whether there are few or many disorderly houses in the city. 
 
 8 — Whether the surgeons are performing their duties intelli- 
 gently and with the greatest benefit to the department. 
 
 9— Whether there is little or much sickness among the members 
 of the police force. 
 
 It is essential to the proper control of the activities of a police 
 department that the administrative head be informed currently upon 
 every phase of the work. It is not only necessary that he know the 
 number of arrests and the crimes for which they were made, but it is 
 even more imperative that he be informed as to the failures of his 
 subordinates. 
 
 He should have before him daily in concise form a true picture 
 of the crime conditions of the city and accurate information in tabular 
 form as to the operations of his subordinates, which will show not only 
 the success and failure of the police in coping with the current activ- 
 ities of criminals, but likewise comparative figures which will enable 
 him to determine whether this branch of his department is becoming 
 more or less efficient. Similar comment should be made with regard 
 to the other branches of the department of safety. 
 
 It is recommended, therefore, that the commissioner require each 
 of his executive heads to submit daily reports which will keep him 
 currently advised and enable him to compare current operations with 
 those of past years. The form and manner in Avhich this report should 
 be made out is described elsewhere in this report. 
 
DEPARTMENT OP SAFETY 161 
 
 Commissioner Occasionally Acts as a Board 
 
 Although section 11 (old section 24) of the charter transfers to 
 the department of safety all of the functions of the old fire and police 
 board, section 108 (old section 64), which provides for the creation 
 of this board, has not been repealed and it still appears in the re- 
 cently published copy of the charter (February 17, 1914). The com- 
 missioner of safety administers these departments as a commissioner, 
 but for some reason in many of the transactions concerning the bu- 
 reaus of police and fire the records show that he continues to act as 
 a board, although he sits alone. The meeting or session is recorded 
 in the minutes as a board meeting and all of the transactions are re- 
 corded in the regular manner that would be followed if an entire 
 board had taken part. It is recommended that this practice be 
 abandoned, since it serves no purpose except to confuse the records. 
 
 Section 39 (old section 346) of the charter provides that "in all 
 appropriations and expenditures of public money for fire and police 
 protection * * * the council shall set aside and expend in that 
 part of the city and county included within the limits of the munici- 
 palities annexed to the city of Denver or consolidated with the city 
 and county, its just share in proportion to the assessed valuation, as 
 near as may be, to.be distributed among the sections comprised by the 
 former municipalities in the same proportion * * *." 
 
 An examination of the records shows that this section of the law 
 is not complied with and it would appear that the requirement itself 
 is based upon a false principle. This charter provision should be 
 repealed. 
 
 Population and area of themselves do not furnish a guide as to 
 the need for police protection or as to the apportionment of the 
 moneys to be expended for such protection. Nature of population, 
 crime conditions, etc., should be the controlling influences in the 
 matter of police protection. 
 
 The same is true with regard to fire protection, except that area* 
 must be considered in distributing fire houses. Assessed valuation 
 cannot of itself be a determining factor since some valuable property 
 of fire-resisting construction which is used for purposes not of hazard- 
 ous character would need less protection than less valuable property 
 of non-fire-resisting construction which is used for purposes that are 
 hazardous. 
 
 Deputy Commissioner and "Inspector of Police" 
 
 The position of deputy commissioner and "inspector of police," 
 which is one and the same rank, was created by the commissioner of 
 safety. The title "deputy commissioner" was established by the 
 commissioner pursuant to section 316 (old section 154) of the charter, 
 which reads "heads of all departments, boards and commissions shall, 
 within their respective appropriations, employ such other assistants 
 as may be needed and pay such reasonable salaries as they may de- 
 termine." 
 
162 DENVER 
 
 The theory was that the commissioner of safety is ex-efficio police 
 commissioner and as such is entitled to the assistance of a deputy. 
 But neither the commissioner nor the deputy commissioner was able 
 to show any justification for the creation of the rank "inspector of 
 police," as part of the title of the deputy commissioner, except that 
 by adding this title the commissioner, through some interpretation of 
 the law, was enabled to give an increased salary to the present in- 
 cumbent. 
 
 Because of the confusion as to the legal status of the position it 
 is difficult to determine the duties of the so-called inspector of police. 
 There is no record in the department which discloses what they are 
 supposed to be. In fact, the only functions performed by the deputy 
 and inspector are to attend fires occasionally, to review current re- 
 ports upon police cases and to confer with the commissioner. 
 
 The civil service commission declares that there is no such rank 
 as "inspector of police," although the deputy commissioner carries 
 a shield bearing the words "inspector of police" and upon occasions 
 wears an inspector's uniform. In addition to serving as deputy com- 
 missioner and inspector of police the present incumbent is also inter- 
 ested financially in a private detective agency bearing his name. 
 
 Need for Civilian Aide 
 
 Because of the numerous and varied duties imposed upon the 
 commissioner of safety he should have a civilian aide to assist him, 
 but the position should be regularly created by council, the salary 
 fixed by law and the duties should be different from those performed 
 by the present deputy commissioner and inspector of police. The 
 section of the charter referred to above, which empowers heads of 
 departments to create grades and fix salaries, should be repealed. All 
 positions and salaries should be created by council. 
 
 The civilian aide to the commissioner should have no power of 
 ♦issuing orders or promulgating rules, nor should he be uniformed. 
 His functions should be : 
 
 1 — To make confidential inquiries into police matters which 
 require independent investigations 
 
 2 — To make independent study of improved methods in use in 
 other cities which might be adopted to advantage in Den- 
 ver and to report his findings to the commissioner 
 
 3 — 1 To make independent inspections for the commissioner and to 
 check the reports of the various subordinates 
 
 4. — To supervise the installation of new methods 
 
 A poor system is likely to be continued if there are no officers 
 who have sufficient time to supervise the installation of improved 
 methods. In many cities it has been found that unless executive heads 
 are especially efficient they are unable to install new methods if such 
 installation requires marked changes in procedure. 
 
DEPARTMENT OF SAFETY 163 
 
 5— To revise the forms and to provide the commissioner with 
 an improved system of securing information. 
 
 As is shown in this report, most of the forms now in use are 
 obsolete and do not serve the purpose for which they 'were intended. 
 Although the present deputy has been in office almost a year, he has 
 not created a single new form or record nor has he changed the pro- 
 cedure in any important detail. 
 
 Suggested Qualifications of Civilian Aide 
 
 The civilian aide, because of the confidential relation he must 
 bear to the commissioner and because he is primarily a check upon 
 the uniformed force, should be a man of the highest integrity. He 
 should be the personal appointee of the commissioner, selected on 
 merit. He should be prohibited from having any outside business 
 duties and required to give his entire time to the department. If the 
 present personnel is not such as will permit of a proper performance 
 of the duties outlined above, changes should be made to meet these 
 recommendations. 
 
 The rank of "inspector of police" is further discussed under the 
 section of this report dealing with the police. 
 
164 DENVER 
 
 APPOINTMENTS 
 
 All appointments to the bureau of police and fire are made by the 
 commissioner from an eligible list prepared as a result of a civil 
 service competitive examination. Appointments to the sheriff's office 
 are exempt for the present. 
 
 Lack of Character Investigation 
 
 The civil service commission does not conduct character investi- 
 gations of applicants, nor does the department of safety. Although a 
 rating is given for experience the civil service commission makes no 
 investigation of the statements made by applicants as to their former 
 experience. Thus, it would be possible for a man in his application 
 to state falsely that he had previously served as. a fireman or police- 
 man in some other state and to receive a higher rating for experience 
 and so secure his appointment in advance of better men who truth- 
 fully stated the nature of their former experience. 
 
 The official forms do not require the applicant to state whether 
 he has ever been arrested, although he is asked to state whether he 
 has been indicted or convicted. Thus, under the present regulations, 
 an applicant could have been arrested many times for drunkenness 
 or disorderly conduct, but the fact would not be disclosed in his ap- 
 plication. 
 
 All applicants should be required to state upon their application 
 blanks whether they have ever been arrested, if so, for what crime 
 and what disposition was made of the charge. They should be re- 
 quired to give sufficient detaile'd information to make possible an 
 investigation by the commissioner. 
 
 Nothing is more important in the interest of efficiency than that 
 policemen be of good character, and no man should be admitted to 
 the force until a thorough investigation of his character has been 
 made. Too much stress cannot be laid upon this point. 
 
 In order to make possible such an investigation, the bureau of 
 police should furnish each applicant upon the day of his written 
 examination with a printed form calling for answers to specific ques- 
 tions as to his life history. Bach applicant should be required to 
 swear to the accuracy of his answers, and a false statement should be 
 cause for rejection. Every statement should receive thorough investi- 
 gation either through the civil service commission or the police bu- 
 reau. Inasmuch as the civil service commission is not equipped with 
 a staff to conduct such investigations properly, it is recommended that 
 instead of investigating all applicants whose names are placed uoon 
 the eligible list only those about to be certified be investigated. This 
 investigation should take place immediately before their certification. 
 If an investigation is made at the time of the applicant's mental ex- 
 amination it would mean that his name might remain upon the eligible 
 list for a year before it would be reached for certification. In the 
 meantime the applicant might have so conducted himself as to make 
 
DEPARTMENT OP SAFETY 165 
 
 his appointment undesirable without the fact coming to the knowl- 
 edge of the police authorities or the civil service commission. 
 
 It is recommended, therefore, that when the bureau of police 
 applies to the civil service commission for the certification of names 
 from the eligible list, the detective division be asked to investigate 
 only those names about to be certified. The civil service commission 
 could easily check the reports of these investigations because of the 
 few names certified at any one time. 
 
 No Proof of Age Required 
 
 One of the factors in the administration of a pension fund is proof 
 as to the ages of applicants. Yet the civil service commission does 
 not require proof of age from applicants for appointment but accepts 
 their statements as they appear upon the blanks. 
 
 Each applicant for appointment should be required at the time 
 of filing application or at the time of appointment to produce a cer- 
 tified copy of either his birth certificate or his baptismal certificate. 
 If it is not possible to procure one of these documents, affidavits from 
 persons competent to swear as .to the age of the applicant should be 
 required. 
 
 Mental Test Good; Physical Exmaination Insufficient 
 
 The mental test, as shown by the questions asked in recent exam- 
 inations, should result in providing fairly intelligent policemen and 
 firemen. The medical test, according to requirements, is adequate. 
 Yet the departments are not protected against the appointment of 
 physically unfit persons. A physical examination is conducted only 
 at the time the applicant takes his mental examination. Thus, it 
 would be possible for a man to pass a physical examination at the 
 time of his mental test, receive a percentage sufficiently high to place 
 his name on the eligible list and not be certified for appointment for 
 nine months or a year thereafter. During the interval it would be 
 entirely possible for him to contract some disease which would make 
 him unfit for service and result in an early disability retirement with 
 a pension. 
 
 There is now on the force a policeman who was retired from the 
 New York police department with a pension because of tuberculosis. 
 Had the experience statement made by this policeman been investi- 
 gated the fact might have been easily brought out. 
 
 Maximum Age for Appointment to Police Force Too High 
 
 The minimum age for appointment as policeman and fireman is 
 20 years, while the maximum age for appointment to the police force 
 is 35 years and to the fire force 30 years. The experience of other 
 large cities would suggest that the maximum age for appointment to 
 the police department should be lowered to 30 years, thus making 
 uniform the age requirements for appointment and adding an element 
 of protection to the pension fund. It has been proved that it is com- 
 paratively easier to train men between the ages of 20 and 30 than 
 older men. 
 
166 DENVER 
 
 PROMOTIONS 
 
 Promotions are made pursuant to civil service regulations and as 
 a result of competitive examinations. Although in promotional exam- 
 inations a rating is given for efficiency the reports furnished the civil 
 service commission are of little value in giving an efficiency rating. 
 These reports are inadequate both as to form and manner of prepara- 
 tion. This matter is discussed elsewhere in this report. 
 
 No Practical Tests for Promotions in Fire Force 
 
 In the fire bureau the chief comes into personal contact with his 
 subordinates in a way which enables him to judge of their efficiency. 
 Efficiency in fire-fighting is difficult to establish through mental tests 
 alone, and it is recommended that in all, promotional examinations a 
 practical test be held and that the fire chief be one of the judges to 
 pass upon the ability of the men to handle apparatus and give di- 
 rections. 
 
 Board of Honor Suggested 
 
 Members of the police and fire forces who perform distinguished 
 acts of bravery do not receive official recognition. Moral and physical 
 courage may be said to be the chief qualifications of both policemen 
 and firemen. There are times in the life of every policeman and fire- 
 man when he is called upon to risk his life in order to protect the 
 lives of others and it is essential not only that bravery be encouraged 
 but that it be rewarded as well. 
 
 b' 
 
 The establishment of a board of honor is recommended. This 
 board should consist of the commissioner of safety, the president of 
 the civil service commission and the fire chief (for consideration of 
 cases affecting firemen) and the chief of police (for consideration of 
 cases affecting policemen). This board should meet at least once 
 a year. 
 
 Two gold medals should be provided to be officially known as the 
 department medals ; one to be awarded to the fireman performing the 
 most heroic act during the year and the other to be awarded upon 
 the same terms to a member of the police force. The medals should 
 become the property of the persons to whom they are awarded. To all 
 others who perform acts of bravery involving risk of life, "honorable 
 mention" should be awarded. To the men who perform duties in 
 which they exhibit extraordinary intelligence or efficiency, but with- 
 out risk of life, recognition under the heading "commendation" 
 should be awarded. The presentation of the medals should be made 
 with fitting ceremonies by the mayor. The firemen and policemen to 
 whom medals are awarded should be authorized to wear a small gold 
 star upon their uniform sleeve immediately above the service stripes. 
 The members receiving honorable mention should wear a silver star, 
 and those receiving commendation, a bronze star. 
 
DEPARTMENT OF SAFETY 167 
 
 Commanding officers should be required to report in detail upon 
 each act of bravery called to their attention. Such reports should be 
 the result of careful investigation and should contain the names and 
 addresses of witnesses and complete copies of their statements. This 
 procedure is necessary because it is frequently difficult, in making 
 awards, to determine the most heroic of several meritorious acts. 
 
 The civil service commission should establish special weights to 
 he given for each act of bravery, so that in promotional examinations 
 proper consideration may be given to the honor man of the police 
 and fire forees. 
 
168 DENVER 
 
 SURGICAL DIVISION 
 
 Three surgeons assigned to the department of safety serve as 
 ambulance surgeons in emergency cases and as disciplinarians in the 
 police and tire forces. They arrange their hours to suit their own 
 convenience, the present schedule being as follows: One remains on 
 duty from 1 :00 to 5 :00 P. M. The second remains on duty from 5 :00 
 to 7 :00 P. M., and the third from 7 :00 P. M. to 11 :00 A. M. They alter- 
 nate each week, so that every third week one of the surgeons remains 
 on duty from 7 :00 P. M. until 11 :00 A. M. As disciplinarians, they de- 
 termine whether policemen and firemen are sufficiently ill to be ex- 
 cused from duty. They attend prisoners in jail but they do not serve 
 as medical aides to the members of either of these forces. 
 
 If a member of the force becomes ill he notifies the surgeon. If 
 the surgeon has doubt as to the condition of the policeman or fireman 
 so reporting, he instructs him or his family to secure the services of 
 a physician, and the private physician then reports to the surgeon. 
 Based on the findings of the private physician the surgeon files a re- 
 port upon a small printed slip with the chief of police or fire chief, as 
 the case may be. 
 
 The departmental surgeons are not prohibited from entering into 
 business relations with members of the force or their families and they 
 perform no medical services whatever for policemen or firemen, except 
 upon payment of a fee, with the possible exception that they may 
 prescribe occasionally when a fireman or policeman visits them. 
 
 They maintain no health records of members of the forces and 
 the notification slip is so lacking in detail, both as to diagnosis and 
 treatment, that it furnishes no basis for proper health records. 
 
 Ambulance Service Should Be Transferred 
 
 As emergency doctors these surgeons respond to all calls for 
 ambulance service during their tours of duty. It is necessary to keep 
 on duty at all times not only a doctor, but also a chauffeur for the auto- 
 mobile ambulance. 
 
 Maintenance of an ambulance service is in no sense a police 
 function. In the city of Denver it is indeed a costly duplication of 
 work, since the county hospital already maintains an ambulance and 
 has sufficient internes to serve as emergency doctors. 
 
 The police ambulance when inspected was unclean, unsanitary 
 and in no wise desirable for service in transporting injured or sick 
 persons. 
 
 By transferring the ambulance service to the county hospital it 
 will be possible to remand £he three drivers to active patrol duty and 
 to dispense with the services of two of the three surgeons. There 
 should be one surgeon only, and he should give his entire time to the 
 department, not only as a disciplinarian, but also as a medical aide. 
 He should be paid for his entire time and prohibited from doing busi- 
 
DEPARTMENT OF SAFETY 169 
 
 ness with the members of either force or their families. Policemen 
 and firemen should be supplied medical assistance without any cost. 
 
 Quarters Unsanitary 
 
 The surgeons occupy two large rooms in a building immediately 
 across the street from the City Hall. One of these rooms they main- 
 tain as an emergency reception hospital; in the other they sleep when 
 on night duty. At the time of inspection both rooms were unclean 
 and unsanitary. Immediately above the table, upon which the sur- 
 geons spread out and expose their instruments and dressings, the 
 ceiling paper was torn and hanging loose. About the room were 
 accumulations of dust and dirt. The desk used by the surgeons was 
 in a condition that would not be tolerated in the office of a practicing 
 physician. 
 
 Records 
 
 The records of accident and emergency cases are improperly and 
 inadequately kept. There are scarcely any records concerning illness 
 of members of the force and the record of ambulance service is in- 
 adequate. 
 
 The following tables show the number of days lost, due to illness, 
 of policemen and firemen, covering a period of nine years: 
 
 Policemen, Firemen, 
 
 Years. Days Lost. Days Lost. 
 
 1905 104 310 
 
 1906 154 136 
 
 1907.... 301 177 
 
 1908 177 335 
 
 1909 275 275 
 
 1910 297 293 
 
 1911 218 214 
 
 1912 318 302 
 
 1913 726 775 
 
 It will be noted from the above table that the number of days in 
 1913 lost by sickness by policemen and firemen was almost double the 
 number of days lost during 1912 and during former years. This, 
 however, was largely due to the continued illness of one or two 
 members. 
 
 High Percentage of Illness During 1913 
 
 The total number of days lost during 1912 and prior years was 
 not excessive. The greater number of days lost during 1913 may be 
 due to liberal attitude toward members of the force who apply for 
 sick leave. The practice of allowing private physicians to furnish 
 certificates testifying to the illness of members of the force should be 
 discontinued and no policeman or fireman should be excused from duty 
 with pay or with half pay except after an examination by and upon 
 the certificate of a departmental surgeon. 
 
170 DENVER 
 
 Suggested Procedure 
 
 When a man reports that he is sick the surgeon should be notified 
 or the man should be directed to visit the surgeon at his office. The 
 surgeon should report upon a printed card the name of the patient, 
 the diagnosis, the prognosis, the probable cause of the sickness and 
 the time of the visit. This card should be forwarded to the office of 
 the chief of police or fire chief, as the case may be, who should review 
 the same and forward it to the office of the commissioner of safety. 
 The surgeons should be required to maintain a card record showing a 
 complete medical history of each man. Each month a report should 
 be filed with the commissioner of safety stating the number of men 
 attended, the causes of illness listed by diseases, the number of office 
 visits and the number of cases treated at home. There should also be 
 a monthly report showing the name and address, diagnosis, treatment 
 and place of treatment of every person, other than members of the 
 force, attended during the month. 
 
 The surgeons should maintain adequate records in their own offices. 
 
 Until the ambulance service is taken over by the county hospital 
 the surgeons should be required to report in detail upon every case 
 attended by them. Upon the back of this form should be a manikin 
 upon which should be indicated the part of the body injured or 
 treated by the surgeon. The report should show the time the call 
 was received, by whom sent, by whom received, the time the ambu- 
 lance arrived, the name and address of the injured person, the diag- 
 nosis, the treatment and place of treatment and the disposition of the 
 prisoner, with as complete a pedigree as is possible to obtain. 
 
DEPARTMENT OF SAFETY 171 
 
 INSPECTOR OP AMUSEMENTS 
 
 In accordance with ordinance No. 133, series of 1912, the com- 
 missioner of safety has appointed an inspector of amusements. The 
 position is held by a woman who has been in office since March 1, 
 1914, at a salary of $110 per month. 
 
 The duties of this position are not properly defined. In general 
 the inspector visits moving picture places, dance halls, etc., to detect 
 immoral pictures and films and to -prevent the admission of minors, 
 but she also performs functions other than those outlined in the 
 ordinance. 
 
 Records 
 
 The inspector of amusements receives from the license clerk a 
 list of places receiving licenses to operate a dance hall or moving 
 picture show. She maintains an informal record of inspection in a 
 bound book, but she does not make a daily report of her work to the 
 commissioner of safety. This book and the list of licensed places are 
 her only records. The inspector should keep a card record of all 
 licensed dance halls, moving picture shows, theaters and common 
 shows. Upon these cards she should note the date of each inspection 
 and the result of the inspection. The card should contain printed 
 headings calling for the name and address of the owner, the location 
 of the place, the kind of a show operated, whether moving picture, 
 dance hall, etc., the number of the license, the date issued and the 
 seating capacity. These cards should be made out by the license 
 clerk each time a license is issued and forwarded to the inspector for 
 her files. Upon the back of the card should be printed headings call- 
 ing for information concerning future inspections. 
 
 Reports of Arrests at Show Places 
 
 The rules of the department of safety should provide that police 
 headquarters should furnish the inspector of amusements with a de- 
 tailed report of every arrest made at show places. It should set forth 
 the cause thereof and also whether the arrest was due to the fault of 
 the management or was the result of a disturbance on the premises. 
 Such information should be entered upon the card record by the 
 inspector in order that she may have a complete history of each 
 licensed place to serve as a basis for judgment as to the need of con- 
 tinued inspection and the advisability of opposing the issuance of a 
 license when application is made for a renewal. 
 
 Patrolmen should be required to report any matters which they 
 observe in connection with the management of show places and their 
 reports should be forwarded to the inspector. 
 
 Inspection Blanks Suggested 
 
 There should be special inspection forms having questions printed 
 thereon, the answers to which should be filled in by the inspector of 
 
172 DENVER 
 
 amusements at the time of making an inspection. These reports should 
 be filed and classified as to the kind of license. The inspector should 
 file a daily time sheet showing the names of the places visited, the 
 time of the visit, the time consumed in making the inspection and the 
 results of the inspection. Upon this report the inspector should also 
 state the number of complaints received, classified as to cause of com- 
 plaint and the result of the investigation of same. 
 
 Card Eecord of Complaints Should Be Maintained 
 
 The inspector should maintain a card record of citizens' com- 
 plaints received and the action taken thereon. 
 
 Moving Picture Houses Should Be Required to File Daily Reports 
 
 The control exercised over moving picture shows would be 
 greatly increased if the manager of each moving picture house were 
 required by ordinance to file a daily report with the inspector stating 
 the title of the films to be exposed on the following day and the num- 
 ber of tickets sold to minors or for minors. This would not be difficult, 
 since most moving picture houses charge five cents for minors and ten 
 cents for adults, having a different colored ticket for children. By 
 requiring the owners of the moving picture shows to file a list of the 
 films to be exposed on the following day the inspector would be able 
 to check these lists with the list of condemned pictures sent out by 
 the national board of censors. The title might suggest that a film 
 should be viewed by the police before being shown. By requiring 
 the owners to file a statement as to the number of minors admitted, it 
 would be possible to assemble proper statistics. This ordinance would 
 also make possible the creation of records of the moving picture films 
 shown in the city and provide a means of exercising censorship. The 
 report should be filed sometime in the afternoon, so as to enable the 
 inspector to make her tabulation and to serve notice upon the owners 
 of her intention to view the films. 
 
DEPARTMENT OF SAFETY 173 
 
 POLICE AND FIRE ALARM TELEGRAPH SYSTEM 
 
 The fire alarm telegraph system and the police signal box system 
 are under the jurisdiction of a superintendent, who is assisted by an 
 assistant superintendent, three operators and six linemen. The assist- 
 ant superintendent also serves as a lineman. The present superin- 
 tendent is a practical electrician of many years' experience. 
 
 The fire alarm system consists of a ten-circuit slate switchboard 
 of the Gamewell make, a ten-circuit non-interfering automatic repeater 
 and individual punch registers for each district. The system is auto- 
 matic and of an old type. The police signal box system is also of 
 Gamewell make. 
 
 Quarters in Danger of Fire 
 
 The fire alarm switchboard, the central station of the police 
 signal system and the commercial telephone board are all housed in 
 a room on the third floor of City Hall. There are from four to five 
 persons, two of whom are girls, working in this room during the day. 
 
 Notwithstanding the fact that the entire fire alarm system is 
 dependent upon the safety of the central station, the switchboard and 
 the controlling factors of the system are housed in a room which is a 
 veritable invitation to destruction by fire. A fire occurring in this 
 room would not only paralyze the entire alarm system of the city, but 
 also completely cut off all means of escape for the four or five persons 
 employed therein. The failure of the city to provide a fire escape 
 upon the outside of the building at this point is little short of criminal. 
 The electric wiring in and about the room and, indeed, the entire sec- 
 tion of the building, is hazardous. 
 
 To realize the importance of the fire alarm system one must under- 
 stand that time in the delivery of alarms must be measured by frac- 
 tions of a second. A minute's delay may result in a conflagration. 
 The loss to the city in the event of a fire in this room would be many 
 times greater than the cost of transferring this system to a fire- 
 resisting structure. 
 
 Some years ago a fire did occur in this section of the City Hall. 
 The danger of a serious fire is now even greater than it was at that 
 time because the large space used as a gymnasium at that time was 
 protected from the rest of the building by a brick wall. An opening 
 has since been made leading into the main part of the building and in 
 the space which was occupied by the gymnasium small wooden parti- 
 tioned rooms have been constructed. 
 
 Equipment Antiquated 
 
 The equipment provides for no adequate system of manual dis- 
 tribution of alarms, nor does it provide for a proper test of the alarm 
 boxes. The city should as speedily as possible replace the automatic 
 system in use and install a modern fire alarm system. Such a system 
 should provide facilities for an automatic, semi-automatic and manual 
 transmission of alarms. 
 
174 DENVER 
 
 The box circuits, ten in number, are so overloaded as to make 
 them unreliable. To add more circuits would be practically impos- 
 sible, and if it were possible it would but tend to make the system 
 still more unreliable. With a properly equipped manual system and 
 a separate joker system additional circuits could be installed from 
 time to time and the department would have a proper method of 
 transmitting telegraphic orders to the entire service without interfer- 
 ing with the box alarm system. 
 
 Insufficient Fire Alarm Boxes 
 
 The city has been greatly increased in area by the consolidation 
 of the various suburbs; vacant sections have been built up and resi- 
 dential sections have been invaded by business houses, but the fire 
 alarm system has not been extended to meet the demands of present 
 conditions. Denver, which has an.area of almost 60 square miles and 
 a population of over 230,000, has but 184 city owned fire alarm boxes. 
 In addition there are 46 privately owned boxes. That the city has not 
 increased the facilities for transmitting alarms of fire in proportion 
 to the needs of the community is indicated by the fact that in ten 
 years but 14 city owned fire alarm boxes have been placed in service. 
 
 Of these 
 
 2 were 
 
 erected 
 
 in 
 
 1905 
 
 1 was 
 
 
 ? » 
 
 1906 
 
 " 
 
 
 M 
 
 1907 
 
 3 were 
 
 
 J J 
 
 1908 
 
 4 " 
 
 
 J J 
 
 1909 
 
 1 was 
 
 
 > J 
 
 1910 
 
 3 were 
 
 
 )> 
 
 1911 
 
 was 
 
 
 J > 
 
 1912 
 
 " 
 
 
 1 1 
 
 1913 
 
 " 
 
 
 7 y 
 
 1914 
 
 Except in the congested value district where the boxes are located 
 on alternate corners the distribution of the boxes may be said to be 
 poor, while in the outlying districts there is practically no protection 
 whatever. There is need for not less than 100 boxes to be distributed 
 throughout the suburban section and some of the boxes in the mer- 
 cantile district should be redistributed. 
 
 None of the boxes is equipped with a red light to indicate its 
 location. The boxes are now being painted and the supporting poles 
 are being painted red to indicate the location of the boxes. 
 
 Wherever a street light is located adjacent to a fire alarm box it 
 should have a red globe, or at least half red, so as to indicate the 
 location of the fire box. In the suburban section, particularly red 
 lights above the boxes are needed for night service. 
 
 Battery Boom 
 
 The batteries are located in a room adjoining central station and 
 are supported upon glass rails and porcelain insulators on wooden 
 
DEPARTMENT OF SAFETY 175 
 
 racks. The batteries were in good condition and the room was clean 
 and orderly with adequate ventilation. 
 
 Police Signal System 
 
 There are 120 police signal boxes owned by the city and six 
 privately owned. These boxes are of Gamewell type, with the usual 
 mechanical equipment. These boxes cost the city $140 apiece and $2 
 a year rental for the telephone. The use of the complicated and costly 
 signal hox is unnecessary, since the ordinary telephone in a small box 
 would serve just as well. The boxes could be placed on the walls of 
 buildings, thus eliminating the cost of poles. The efficiency of this 
 system is further, discussed in the part of this report dealing with 
 the police. 
 
 Records and Reports 
 
 The records of the superintendent are in accordance with those of 
 the approved type in most large cities. They are well maintained and 
 most of them are the creation of the superintendent himself. Control 
 over the supplies used in connection with his work is effective. In 
 addition to the records now maintained it is recommended that a log 
 book be established to be kept by the operators ; also that the superin- 
 tendent file a comprehensive daily report with the chief. An improved 
 wire-trouble record book should be established, and job cost accounts 
 for repair and original installation work should be installed. It is 
 further suggested that the operators be provided with proper printed 
 forms upon which to report "water shut-offs, " street closings and 
 important wire troubles. 
 
 Departmental Records and Files 
 
 Although the bureaus of police and fire are under the direction 
 of the commissioner of safety their records are maintained independ- 
 ently. There is no central record and filing division and consequently 
 no control over the records by the commissioner. The records of the 
 department of safety which are filed and maintained in the commis- 
 sioner's office are kept in a vault in which are also filed records and 
 documents of the excise department. 
 
 Records are scattered throughout the department. Reports con- 
 cerning the police are located in the detective division, in the chief's 
 office and in the commissioner's office, while the records concerning 
 the fire bureau are filed, some in the office of the chief and others in 
 the office of the commissioner. 
 
 Central Complaint, Record and Filing Division Suggested 
 
 The establishment of a complaint, record and filing division for 
 the department of safety is recommended. 
 
 Because of the peculiarity of the service performed by the sher- 
 iff's office and the statutes covering the position it is not deemed wise 
 that the records of this office be disturbed. 
 
17G DENVER 
 
 Because of the scattered condition of the records and the un- 
 systematized methods of administration, the chief of police finds it 
 necessary to have the services of a secretary and a stenographer, while 
 in the detective division it is necessary to have the services of a clerk. 
 
 There is no need for a secretary to the chief of police, nor is there 
 any need for any clerical aid in the police office. The clerical work, 
 the maintenance of records and the filing of documents and papers 
 should be under the supervision of the commissioner of safety. This 
 plan would serve to increase the efficiency of the department by estab- 
 lishing centralized control of the records and it would also make it 
 possible to perform the work more efficiently with at least two clerks 
 less than are now employed. 
 
 Secretary to the Commissioner Should Be in Charge 
 
 All correspondence and complaints should be handled by this 
 division and all records and documents filed therein. The commis- 
 sioner should assign the clerk in charge of this division to the handling 
 of all mail for the department. The room now occupied by the clerks 
 and the secretary or the room occupied by the commissioner of excise 
 should be assigned to the proposed division, which should have the 
 following equipment: 
 
 1 — Small machine for opening mail. 
 
 2 — Time clocks and numbering stamps for recording the time of 
 receipt and the numbering of each incoming communica- 
 tion. 
 
 3 — Pneumatic tube or a similar system for the distribution of 
 papers to the various divisions. 
 
 -1 — Necesary quota of typewriting machines. 
 
 5 — Standard steel vertical file units, correspondence size, which 
 are made in sections of ten drawers. 
 
 All communications and documents should be filed flat and not 
 folded as at present. 
 
 Method of Handling Complaints and Correspondence 
 
 Communications from all sources, official or non-official, received 
 by mail, messenger, personal call or telephone, if not already in writ- 
 ing, should be reduced to writing immediately upon receipt and trans- 
 mitted to this division for registration and distribution. It should 
 be the duty of the clerk in charge of this division to handle all in- 
 coming communications. No mail should be delivered by the letter 
 carriers direct to officials in the building, but all mail addressed to 
 the department or its members should be retained at the postoffice 
 and a mail department bag obtained. This bag should be in charge of 
 the secretary. The secretary should have one key and a second key 
 should be kept at the postoffice. The messenger should deliver the 
 
DEPARTMENT OF SAFETY 177 
 
 mail bag directly to the clerk's desk, where the mail would be handled 
 as follows: 
 
 Opened 
 
 Numbered serially 
 
 Referred 
 
 Briefed 
 
 Acknowledged 
 
 Distributed. 
 
 Mail of a personal character should be delivered intact to the 
 officers addressed. If the matter therein is found to be of an official 
 character the communication should be returned and treated in the 
 regular manner. 
 
 The "referring" of - communications in many cases is a routine 
 matter which can be done without any particular difficulty by the 
 clerk. In other than routine cases the clerk should submit the papers 
 to the commissioner, who should indicate thereon the person by whom 
 investigation should be made. In all cases the referring should be 
 done before the communication is recorded in order that a "brief 
 sheet" may be made before being handed to the typist who is to pre- 
 pare the complaint. Upon this brief sheet should appear a synopsis 
 of the complaint, omitting the name of the complainant. This brief 
 sheet should be numbered to correspond with the number placed upon 
 the original letter of complaint. The original communication should 
 never leave the filing division; the brief sheet should be sent to the 
 officer or bureau to investigate. 
 
 It is believed to be unwise, in referring complaints to the police, 
 to furnish the officers with the names or addresses of the persons 
 complaining. The practice suggested precludes the possibility of com- 
 plainants being annoyed by hostile policemen. It also encourages 
 citizens to keep the commissioner informed of matters which should 
 be called to his attention. 
 
 Brief sheets should be made out in duplicate, the original to be 
 sent out for investigation and the copy to be filed in pending files, 
 there to remain until reports satisfactorily disposing of the complaint 
 are received. 
 
 All complaints pending investigation should be filed chronolog- 
 ically in a pending file. The rules of the department should provide 
 that all persons to whom complaints are referred for investigation 
 should report within 48 hours after receipt the action taken upon 
 them. 
 
 One of the important objects of this method of handling com- 
 plaints is to insure a constant follow-up on the investigation and re- 
 porting of complaints. 
 
 In all cases where reports are delayed a formal notice should be 
 issued by the clerk at stated intervals, calling to the attention of the 
 person to whom the complaint was referred that a report on the in- 
 vestigation had not been made. 
 
178 DENVER 
 
 As soon as incoming communications are distributed acknowledge- 
 ment of communications should begin. All outgoing mail of the vari- 
 ous branches should be transmitted to this division to be sealed and 
 stamped, thus making it possible to maintain an accurate stamp ac- 
 count for the entire department. 
 
 All Reports Should Be Carefully Reviewed 
 
 All reports should be carefully reviewed by the respective chiefs 
 and their approval indicated by a signature. Upon receipt in the 
 complaint, record and filing division they should be reviewed by the 
 officer in charge. 
 
 Immediately after the inspection of a complaint steps should be 
 taken to furnish the complainant with a brief synopsis of the report. 
 All the papers should then be filed. Care should be taken to keep the 
 commissioner of safety advised of all serious complaints and the re- 
 ports of the investigations and of repeated complaints against any 
 one premises. 
 
 Piling System 
 
 The files of this division should be divided into two sections as 
 follows : 
 
 1— Police. 
 
 a — For complaints — vice and general 
 
 b — Personal files to include all papers relating to members 
 of the uniformed force or employees to be filed alpha- 
 betically by the name of the individual. 
 
 In this file each member of the police force should have a separate 
 folder under his own name. In each folder would be kept every docu- 
 ment, letter and paper in connection with a policeman during his 
 entire career. Thus, it would be possible for the commissioner at any 
 time to secure information concerning any member of the force. 
 
 2— Fire. 
 
 a — Complaints 
 
 b— Personal files to include all papers relating to members 
 of the uniformed force or employees to be filed alpha- 
 betically by the name of the individual. 
 
 In this file each fireman should have a separate folder under his 
 own name. In each folder would be kept every document letter and 
 paper in connection with a fireman during his entire career. 
 
 Method of Obtaining Papers from the Files 
 
 ^IJ 6 ^ 8 sl i? uld squire that all papers and documents be for- 
 warded to the filing division as promptly as possible. A form of 
 requisition should be adopted and no papers removed from the files 
 
DEPARTMENT OF SAFETY 179 
 
 except upon requisition signed by an officer in charge. The requisi- 
 tion should state specifically the papers desired and the name of the 
 person desiring their use. 
 
 A receipt should be required for all the papers taken from the 
 files. Large red cards to be known as ' ' out ' ' cards should be provided 
 and when papers are removed from the files the serial numbers of the 
 documents so removed should be placed on an "out" card and this 
 placed in the files from which the papers have been taken. The 
 requisition should be filed in a pending file and not removed until the 
 papers are returned and placed back in their position in the files. 
 Then the original requisition should be filed permanently. 
 
DEPARTMENT OF SAFETY 181 
 
 Part II — The Bureau of Police 
 
DEPARTMENT OP SAFETY 
 PART II— THE BUREAU OF POLICE 
 
 183 
 
 ORGANIZATION 
 
 The organization of the bureau of police is as follows : 
 1 Inspector . -. .Salary $3,000 per year 
 
 1 Chief 
 
 1 Deputy chief . . . . 
 
 2 Captains . 
 
 2 Desk sergeants 
 
 8 Patrol sergeants 
 
 3 Surgeons 
 
 1 Inspector of amusements 
 
 18 Detectives 
 
 1 Jailor 
 
 124 Patrolmen, first grade 
 
 10 Patrolmen, second grade 
 
 17 Patrolmen, third grade 
 
 40 Patrolmen, fourth grade 
 
 7 Patrolmen, part pay , 
 
 7 Patrolmen, part pay. ... . > 
 
 2 Patrolmen, provisional 
 
 1 assistant superintendent of telegraph. . . 
 
 3 Linemen ,..,.., 
 
 3 Operators 
 
 3 Telephone operators (complaint clerks) . 
 
 2 Matrons 
 
 1 Janitress 
 
 1 Secretary and custodian 
 
 1 Stenographer 
 
 2 Clerks 
 
 1 Chauffeur 
 
 2 Chauffeurs .' 
 
 3,600 
 2,400 
 2,100 
 115 per month 
 115 
 115 
 110 
 110 
 115 
 
 95 
 
 90 
 
 85 
 
 80 
 
 40 
 
 20 
 
 80 
 115 
 
 95 
 
 95 
 
 70 
 
 85 
 
 50 
 115 
 100 
 
 80 
 100 
 
 85 
 
 265 
 
 Executive Head 
 
 Because of the confusion as to the legal status of the position of 
 "inspector of police," which rank is held by the deputy commissioner, 
 it is difficult to determine whether the chief of police or the inspector 
 is the executive head of the police bureau. 
 
 Just what functions the inspector performs as such could not be 
 determined from the records or from interviews with the present in- 
 cumbent and with members of the force. The orders which he pro- 
 mulgates are issued independently of the chief of police in many cases. 
 
 Notwithstanding the fact that the chief of police had been the 
 recognized executive head until the creation of the position of in- 
 spector no written order has ever been served upon the force defamng 
 
184 DENVER 
 
 the authority and responsibility of the inspector. As a result the chief 
 of police is now unable to determine his own duties and authority. 
 
 Whatever may have been the reason for the establishment of the 
 position of deputy commissioner, there can be no reason for having 
 two heads of the police force. As the rank of inspector has never been 
 established by ordinance it is recommended that the commissioner of 
 safety abolish it. 
 
 Until the creation of the position of inspector the chief of police 
 was the uniformed head of the force and the detective division was 
 also under his jurisdiction, subject to the authority of the commis- 
 sioner. 
 
 The strained relations between the deputy commissioner and the 
 uniformed head of the force are so well known to the force in general 
 and 'particularly to the subordinate officers as to be destructive of 
 discipline. 
 
 Secretary to Chief and Custodian 
 
 The secretary to the chief of police receives $115 per month. As 
 secretary he dictates the outgoing correspondence of the chief to a 
 stenographer. He prepares the annual report, issues various kinds of 
 permits for the chief, and serves as custodian of property clerk. He 
 has charge of requisitions. 
 
 It is recommended elsewhere in this report that a complaint, 
 record and filing division be established and that all correspondence 
 of the department of safety be handled through this division. When 
 this plan is adopted .there will be no necessity for the chief having a 
 secretary and this position should be abolished. 
 
 Chief Clerk Should Be Property Clerk 
 
 As property clerk the secretary is supposed to guard all of the 
 property coming into the possession of the police (such as property 
 taken from prisoners, property found, or stolen property recovered). 
 He does not receive all such property, however, for in many eases 
 the property is kept in the detective division. He maintains no prop- 
 erty records, and at the time of this survey he could not from any 
 record or document tell the amount of property then in custody of 
 1 he police. His only records of such property were the tags upon the 
 packages or envelopes in which the property was placed. 
 
 The clerk in charge of the complaint, record and filing division, 
 as suggested, should be designated as custodian, or property clerk. As 
 such he should have control over all property coming into the custody 
 of the police and maintain proper records of the same. The rules 
 should require that policemen and detectives deliver such property to 
 the clerk as soon after recovery as possible (except property taken 
 from prisoners whose cases are disposed of on the day following their 
 arrest or a short time thereafter). The property should be receipted 
 tor, recorded in a book specially provided for this purpose, marked 
 
DEPARTMENT OP SAFETY 185 
 
 and placed in a vault under the direct charge of , the property clerk. 
 No property should be taken from this vault. except by the property 
 clerk, who should take a receipt for same, making proper record of 
 the receipt, and exercising due diligence to determine that the person 
 receiving the property is the rightful owner or his representative. 
 
 No Nee:I for Chief Having Stenographer 
 
 Although the chief is provided with a stenographer, the present 
 incumbent performs most of the stenographic work for the depart- 
 ment of safety as well. He maintains the correspondence files in the 
 chief's office and also performs clerical work in connection with the 
 issuance of dog licenses. This stenographer should be transferred to 
 the office of the commissioner to serve in the complaint, record and 
 filing division. His title should be changed to one which would de- 
 scribe his functions. 
 
 No Need for Three Complaint Clerks 
 
 There are three telephone operators serving on eight-hour shifts 
 who operate the small switchboard in the office of the chief. They are 
 called complaint clerks because they receive citizens' and patrolmen's 
 complaints. There is no need for the third operator who is on duty 
 after midnight. The volume of business of the department over the 
 telephone between midnight and early morning does not warrant 
 keeping an operator on duty at the switchboard. Most telephone com- 
 munications after midnight are transmitted from the patrol boxes to 
 the operator in the telegraph division. The board could easily and 
 efficiently be handled by the officer on desk duty in the chief's office. 
 
 Deputy Chief in Charge of Detective Division 
 
 The next ranking officer to the chief is the deputy chief, who is 
 the active head of the detective division. His functions are described 
 in the section of this report headed Detective Division. 
 
 Captains Do Not Supervise Properly the Patrol Force 
 
 The rank next to the deputy chief of police is that of captain. 
 There are two captains ; one of whom remains on duty during the day, 
 while the other serves during the night. The night captain is in full 
 command in the absence of the chief. 
 
 The captains are supposed to patrol the city during four hours of 
 each day. They turn out the platoons and read the orders of the day 
 to the force. The patrolmen, according to the rules, are required to 
 report all suspected disorderly premises on their posts and to enter 
 upon their monthly reports the number of such places reported. Al- 
 though many disorderly houses and disorderly wine rooms were ob- 
 served, the reports from the patrol force for the month of March, 
 which 'numbered 48 of the platoon performing duty between 11 p. m. 
 and 7 a. m., do not refer to disorderly premises. Furthermore, the 
 captains who are supposed to perform patrol duty and to observe the 
 
186 DENVER 
 
 conditions on the patrol posts did not prefer charges against any mem- 
 ber of the force during this time. 
 
 The captains spend too much time at police headquarters and con- 
 sequently fail to supervise the patrolmen adequately. According to 
 the deputy commissioner and inspector of police, patrolmen occasion- 
 ally report the existence of disorderly places directly to him over the 
 telephone but he makes no record of such reports. Because of the ab- 
 sence of any proper reporting system it is scarcely possible to hold 
 the captains strictly responsible for the conditions on the patrol posts. 
 
 The captains should be relieved of all routine clerical work. They 
 should devote their entire time to the enforcement of the rules and to 
 the supervision of the patrol force. They should be held strictly re- 
 sponsible by the chief for the conditions existing on the patrol posts. 
 When on patrol they should be required to call in over the boxes from 
 time to time. When they leave to perform patrol duty they should 
 enter in the desk blotter in their own handwriting the time they leave 
 and the purpose for which they leave. 
 
 Insufficient Number of Sergeants 
 
 The sergeant is the next ranking officer to the captain. There 
 are ten sergeants. The sergeants turn out with each of the three 
 platoons leaving the central station. Two sergeants perform desk 
 duty at the central station and two at the sub-stations. The two at 
 the sub-stations do not in any manner supervise the patrol, and the. 
 two at the central station perform merely clerical functions. 
 
 The laxity of discipline among members of. the patrol force and 
 the slovenly manner in which they patrol indicate a lack of super- 
 vision. 
 
 While the number of complaints made against policemen for de- 
 linquencies should not necessarily be taken as an indication of efficient 
 supervision by sergeants, yet unless the force by observation proves 
 to be most efficient, scarcity of complaints may be said to be an indi- 
 cation of inefficiency on the part of the sergeants. During the last 
 five years there were but 55 members of the force tried for delinquen- 
 cies. All of these complaints did not originate with the sergeants, 
 however, some having been made by citizens and other city officials. 
 
 The following table shows the number of complaints received and 
 the action upon them during the last five years : 
 
DEPARTMENT OF SAFETY 
 
 187 
 
 Rank 
 
 Charges Preferred 
 
 Dis- Rein- 
 missed stated 
 
 Fined 
 
 Patrolman. 
 Patrolman. 
 Patrolman. 
 Patrolman . 
 Patrolman . 
 Patrolman. 
 Patrolman . 
 Patrolman . 
 Patrolman. 
 Patrolman. 
 Patrolman. 
 Putrolman . 
 Sergeant. . . 
 
 1908. 
 
 . Condtict unbecoming an officer. 
 .Conduct unbecoming an officer. 
 .Conduct unbecoming an officer. 
 
 .False arrest 
 
 .Drinking on duty 
 
 .Conduct unbecoming an officer. 
 
 .Drinking on duty 
 
 .Conduct unbecoming an officer. 
 
 .Abusing prisoners 
 
 . Non-payment of debts 
 
 .Drinking on duty 
 
 .Drinking on duty 
 
 .Conduct unbecoming an officer. 
 
 15 days pay 
 
 Patrolman. 
 Pali'olman. 
 Patrolman. 
 Patrolman. 
 Patrolman. 
 Patrolman. 
 Patrolman. 
 Patrolman. 
 P.-ttrolman. 
 Patrolman . 
 Patrolman . 
 Sergeant. . . 
 
 1909' 
 
 .Drinking on duty 1 1 
 
 .Drinking on duty 1 
 
 . Drinking on duty 1 
 
 .Cowardice and disturbance 1 
 
 . Drinking on duty 1 
 
 .Frequenting saloons 
 
 .Frequenting saloons 
 
 .Abusing city officer 1 
 
 .Incompetency 1 
 
 .Conduct unbecoming an officer 
 
 .Drinking on duty 1 
 
 . Drinking on duty 
 
 5 days pay 
 5 days pay 
 
 3 days pay 
 15 days pay 
 
 1910 
 
 Pairolnian . . Drinking on duty 1 
 
 Patrolman. .Drinking on duty 1 
 
 Patrolman . . Abusing his wife 1 
 
 Patrolman. .Neglect of duty 30 days pay 
 
 Patrolman. .Drinking on duty 1 1 • • -, 
 
 Patrolman. .Profane language and drinking (case not tried) 
 
 Patrolman. .Drinking on duty. 1 
 
 Patrolman. .Gambling on duty 10 days pay 
 
 Patrolman . .Unlawful transactions 1 
 
 Patrolman. .Grafting 1 
 
188 
 
 DENVER 
 
 Rank 
 
 Charges Preferred 
 
 Dis- Rein- 
 . missed stated Fined 
 
 Patrolman . 
 Patrolman. 
 Patrolman. 
 Patrolman . 
 Patrolman. 
 Patrolman . 
 Patrolman. 
 Pa tool man. 
 Sergeant. . . 
 
 Sergeant. . . 
 Patrolman. 
 Patrolman. 
 Patrolman. 
 Patrolman. 
 Patrolman . 
 Patrolman. 
 Patrolman . 
 Patrolman. 
 Patrolman . 
 
 Patrolman. 
 Patrolman. 
 
 1911 
 
 .Brutal treatment of prisoners 5 days pay 
 
 Violating rules of department 1 
 
 .Insulting lady •• 1 
 
 . Assaulting a citizen 1 
 
 . Exceeding official authority 1 
 
 .Neglect of duty 1 
 
 .Drinking on duty 1 
 
 .Neglect of duty 1 
 
 .Accused of being drunk Case dismissed 
 
 with reprimand 
 1912 
 
 .Assaulting prisoner 1 1 
 
 . Grafting 1 
 
 . Insubordination 1 
 
 .Drunkenness 1 
 
 .False arrest 1 
 
 . Grafting 1 
 
 . Grafting 1 
 
 . Neglect of duty 1 
 
 .Refusing to pay debts 1 
 
 .Discharge of firearms without pro- 
 vocation 1 
 
 .Drunk and fighting 1 
 
 . Neglect of duty 1 
 
 1913 
 
 Patrolman . . Assault without provocation 1 
 
 Patrolman. .Drunkenness and non-payment of 
 
 debts 1 
 
 Patrolman. .Drunkenness 1 
 
 Patrolman. .Conduct unbecoming an officer. ... 1 
 
 Patrolman. .Creating disturbance and drunk. . . 1 
 
 Patrolman. .Drunk and insurbordination 1 
 
 The entire supervision of the patrol force is through six sergeants, 
 which means but two sergeants supervising the whole city during each 
 tour of duty. 
 
 It is practically impossible for two sergeants to supervise compe- 
 t I'litly the patrol force, and there is no other method of proper super- 
 vision than by sergeants constantly patrolling and observing condi- 
 tions. Therefore, the need for changing the functions of some of the 
 sergeants and appointing additional sergeants is apparent. ' The func- 
 tions of sergeant of police, which is the next ranking officer to patrol- 
 
DEPARTMENT OF SAFETY 189 
 
 man, should be confined to the supervision of patrol, and they should 
 have no other duties or responsibilities. 
 
 Since prisoners are not arraigned before a superior officer, but are 
 taken directly to the jail, the functions of the sergeants on desk duty 
 at the central station become purely clerical and could be just as effi- 
 ciently, and more economically, performed by civilian clerks — thus re- 
 storing to patrol duty the two sergeants assigned to desk duty at this 
 station. 
 
 As stated elsewhere, the two sergeants assigned to desk duty at 
 the sub-stations should be restored to patrol duty. This would increase 
 the number of sergeants on patrol to ten instead of six. 
 
 Since the temptation to policemen to shirk work and to leave their 
 patrol posts is greater during the late tour, from 11 p. m. to 7 a. m., 
 and since active patrol is more essential during this period, the amount 
 of supervision required is necesarily greater. Therefore, the number of 
 sergeants patrolling on the late tour should be greater than the num- 
 ber patrolling during the day time. There is need for at least four 
 additional sergeants, and their appointment should be made imme- 
 diately. 
 
 The sergeants should be required to keep a card record at police 
 headquarters which would show the number of complaints made by 
 them against delinquent patrolmen and the disposition in each case. 
 
190 DENVER 
 
 TRAINING FOR POLICE SERVICE 
 
 Patrolmen Receive No Training 
 
 That there is a lack of discipline among the patrolmen is ^iot sur- 
 prising, since they receive no training for their work. Appointment 
 to the force carries with it immediate assignment to duty. Policemen 
 are required to carry a revolver without as much as one lesson in tar- 
 get practice. They are required to enforce laws, many of which they 
 never heard of, without any understanding either of the law or the 
 methods of enforcing it. 
 
 The absence of training always brings with it a lack of discipline. 
 Many policemen were observed on patrol with their hands in their 
 pockets, and many were lounging in doorways ; at least six were seen 
 standing at cigar stands in pool and billiard rooms, and few were ob- 
 served who- were not in conversation either with citizens or with other 
 officers. This is not surprising, since the police department places men 
 upon the force, and assigns them to duty, without a single day's in- 
 struction in the methods of patrol or discipline required. Thirty-two 
 patrolmen were observed on the night tour at various times, and only 
 three were observed "trying doors." Three patrolmen were asked the 
 location of one of the leading office buildings; two of them found it 
 necessary to refer to a directory, while the third indicated a location 
 two and a half blocks out of the way. It should be said in favor of the 
 policemen that in every instance they were courteous and good hu- 
 mored. 
 
 That there is a lack of discipline among the patrolmen and that 
 they are slovenly in their methods of patrol, while primarily due to a 
 lack of training, is also made possible because of a lack of proper super- 
 vision of patrol. In two sections of the city, South Denver and Capitol 
 Hill, there is no supervision of patrol whatever. 
 
 The only pretense at instructing the patrolmen in their duty is 
 that new men are assigned to do duty with an older patrolman for the 
 first few days after appointment, but no written reports are made con- 
 cerning their efficiency during the probationary period. 
 
 The old police policy, that "a policeman learns from experience," 
 has long since been proved to result only in police inefficiency and 
 police failures. The policeman who has not been given an opportunity 
 to acquire even a superficial knowledge of the duties required of him 
 cannot be held strictly to account for his shortcomings. It is equally 
 unreasonable to expect a policeman to enforce the laws and ordinances 
 unless he has some idea of what those laws and ordinances are. The 
 policeman who has received no instruction as to court procedure and 
 no training in the manner in which he should conduct himself when in 
 court can scarcely be held to account for his failure to secure convic- 
 tions. 
 
 The policeman whose prisoner escapes because he is unable to 
 control him, or the policeman who injures a prisoner in his effort to 
 control him, cannot be held responsible in the absen-e of a svstem of 
 
DEPARTMENT QP SAFETY 191 
 
 training in the humane handling of prisoners. To expect a policeman 
 to use a revolver in any emergency, without a single lesson in target 
 practice, is illogical. Hence, one should not wonder that the police- 
 men still regard their functions as little more than those of night 
 Avatchmen, since their duties have not been outlined properly and ex-' 
 plained to them. 
 
 In every city where the policemen receive no training an erroneous 
 conception has developed as to the proper duties of policemen. In 
 many European cities, and particularly in Germany, where proper 
 methods of trainnig are in use, the police officer recognizes that he is 
 not merely a peace officer or watchman, but also a factor in carrying 
 out the social service program of municipalities. This is now becoming 
 the tendency in America. 
 
 Due to the absence of a proper understanding of the functions of 
 policemen, the attempt has been made in Denver, as in other cities, 
 to determine the efficiency of patrolmen by the number of arrests 
 they make, when this in fact is no test of efficiency. 
 
 Training School for Police Service Recommended 
 
 It is recommended that members of the force be given proper train- 
 ing for their work. This can only be done by establishing a training 
 school for police service. "While there is no room in the City Hall for 
 the establishment of such a school, arrangements could easily be made 
 with the board of education to obtain the use of one of the public 
 schools, after school hours, and the Auditorium could be used for the 
 drilling of the men. 
 
 The school should be under the charge of an experienced police 
 officer, assisted by a drill master. The force is fortunate in having in 
 its membership such an experienced officer whose training especially 
 fits him for the work of organizing and conducting such a school. The 
 present deputy chief in the course of many interviews during the sur- 
 vey, showed conclusively his qualifications for such work. Many times 
 dur'ing his career, as shown by the records, he has urged the formation 
 of just such a school. 
 
 In such a school proper records should be maintained of punctual- 
 ity, appearance, attention, discipline, efficiency in report writing, pro- 
 ficiency in the use of grammatical English, and in answering oral ques- 
 tions in class, ratings in written tests of police duty, laws and ordi- 
 nances and proficiency in the humane handling of prisoners, as well 
 as proficiency in pistol practice of probationary patrolmen. This school 
 should be used to determine fitness for police duty as well as for in- 
 struction. The course should include instruction for a period oi from 
 30 to 90 days in the following : 
 
 Field work 
 
 First aid to the injured 
 English report writing 
 Ethics and conduct 
 Practical civics 
 
192 DENVER 
 
 Sharpening powers of observation 
 The powers and duties of a policeman 
 Possibilities for social service work by policemen 
 Rules and regulations of the department 
 The penal laws of the state and the ordinances of the city- 
 Pistol practice 
 Military drills 
 
 Humane handling of prisoners 
 Criminal identification methods. 
 
 Probationary Patrolmen Should be Assigned to Work 
 with Experienced Men 
 
 During the course of study the recruits should be given consider- 
 able field experience by assignment to duty in different sections of the 
 city with experienced police officers, especially designated because of 
 their good record, thus subjecting them to as large a variety of police 
 experience as possible during their probationary period. They should 
 be required to. report in writing to the school upon their experience 
 in the field, and upon such report they should receive a rating. Not 
 only /should the school be open to all members of the force, but special 
 classes for the older members should be organized. 
 
 Course Should Include Training for Detective Work 
 
 In no branch of police work is scientific training more essential 
 to efficiency than in detective work. It is now recognized the world 
 over that as criminals specialize in their work and become more scien- 
 tific, the need for specialization and scientific training of detectives 
 becomes more imperative. Because of the skill with which the criminal 
 of today operates, the large city can no longer hope to safeguard its 
 citizens through the use of the old type of ' ' plainclothesman. ' ' 
 
 The detective must be more than a patrolman without a uniform. 
 The members of the detective division receive no more training than 
 do those of the regular patrol force, their only training being informal 
 talks with the deputy chief. "While it is important- for the policeman 
 to know how to apprehend a criminal, it is just as important for him 
 to know what evidence to secure, how to prepare his case for court, 
 how to secure a confession in such a manner as to make it admissible 
 as evidence in court, how to preserve evidence, how to make memor- 
 anda at the time of arrest which will be admissible as evidence in 
 court, and how to examine prisoners. In homicide cases this is par- 
 ticularly important. Without such training neither a patrolman nor a 
 detective can perform efficient service. 
 
 It is a frequent mistake to disregard the importance of the uni- 
 formed patrolman in connection with the apprehending of criminals 
 and the detection of crime, the belief being that such work is primarily 
 detective work, hence the patrolman's education in criminology is neg- 
 lected. 
 
 It is the experience of police officers all over this country that the 
 blunder of the untrained uniformed policeman who first arrived at the 
 
DEPARTMENT OF SAFETY 193 
 
 scene of crime has often resulted in the failure either to capture the 
 criminal or to make possible his conviction. Thus, it is urged that 
 every member of the force be given adequate training so that all of 
 Denver's policemen will be qualified to perform detective duties. 
 
 Members of Force Should Have Printed Instructions as to Procedure 
 in Homicide Cases 
 
 The commissioner of safety should request the district attorney 
 to prepare a set of instructions to the force as to the procedure in ob- 
 taining necessary evidence in homicide cases, method of preserving the 
 evidence, examination of prisoners and witnesses, recording of infor- 
 mation, statements or confessions of prisoners apprehended in connec- 
 tion with a crime, etc. These instructions should be printed and a 
 copy furnished every member of the force. 
 
 Lectures by City Officers 
 
 For purposes of minimizing the cost of conducting a training school 
 and increasing its eficiency, city officers competent to instruct the 
 police should be requested to lecture in the school. Thus the lectures 
 on first aid to the injured should be given by the police surgeon; the 
 district attorney should be requested to assign an assistant to lecture 
 upon the criminal statutes, their enforcement, the laws of evidence, and 
 methods of court procedure ; the Bertillon operator should be required 
 to lecture upon methods of criminal identification, and to give prac- 
 tical "demonstrations in the taking and recording of Bertillon measure- 
 ments, observing facial characteristics of criminals, and the taking and 
 classifying of fingerprints; one of the officers of the national guard 
 should be asigned to conduct the military drills; the city attorney 
 should be requested to lecture upon the ordinances and the various 
 public works officers should be requested to instruct the patrolmen 
 how to make proper observations and reports concerning street con- 
 ditions which should be called to the attention of other city depart- 
 ments; the health department should assign a doctor to instruct the 
 patrolmen as to methods of making sanitary inspections with regard to 
 the sale of food, etc. 
 
 Efficiency of Recruits and of Probationers Should be Reported 
 
 The instructor in charge of the school should file a written report 
 with the commissioner of safety upon the efficiency of the recruits at 
 the end of their course. This report should be based upon the result 
 of written tests and observations of the patrolman in the field. 
 
 The commanding officers should be required to make a written 
 report upon the efficiency of all patrolmen while on probation. This 
 report should be the result of conscientious observation by command- 
 ing officers of the work of the patrolman on his post. The report, in 
 conjunction with the report of the instructor of the training school, 
 should be reviewed by the commissioner of safety and the chief of 
 police, and these reports should be the determining factor in deciding 
 whether the man is fit to continue in the service. 
 
194 DENVER 
 
 DISTRIBUTION OF THE FORCE 
 
 The police force is divided into a uniformed patrol division and a 
 detective division. The total number of employees is 264, of whom 
 1C are civilians. The patrol force is divided into three platoons per- 
 forming duty as follows : 
 
 First platoon . •. 7 a. m. to 3 p. m. 
 
 Second platoon 3 p. m. to 11 p. m. 
 
 Third platoon 11 p. m. to 7 a. m. 
 
 There are one central and two sub-stations. The central station 
 details are as follows : 
 
 First detail 40 patrolmen 
 
 Second detail : . . .43 patrolmen 
 
 Third detail 24 patrolmen 
 
 There are detailed to the South D'enver sub-station one sergeant, 
 one acting sergeant and 14 patrolmen, and to the Capitol Hill sub- 
 station one sergeant, one acting sergeant and 16 patrolmen. 
 
 Eight patrolmen are assigned to duty in the outlying sections, as 
 follows : 
 
 At Barnum 1 from 10 a. m. to 6 p. m. 
 
 At Globeville 2 1 from 3 p. m. to 11 p. m. 
 
 1 from 11 p. m. to 7 a. m. 
 
 At Elyrea .2 1 from 3 p. m. to 11 a. m. 
 
 1 from 11 p. m. to 7 a. m. 
 
 At Harmon 1 from 3 p. m. to 11 a. m. 
 
 At Berkeley 2 1 from 3 p. m. to 11 a. m. 
 
 1 from 11 p. m. to 7 a. m. 
 
 Thirty-nine patrolmen are detailed to duties other than actual pa- 
 trol. The entire uniformed patrol service, including six sergeants, is 
 159. The details of patrolmen to duties other than patrol are as fol- 
 lows: 
 
 12 to traffic duty 
 2 as acting sergeants 
 
 2 to the detective bureau 
 6 to house duty — reserves 
 
 6 as patrol wagon conductors 
 
 1 chauffeur on patrol wagon 
 
 1 chauffeur on chief's car 
 
 3 chauffeurs on ambulance 
 
 1 to clerical duty in detective division 
 
 1 assigned to city herder 
 
 2 as turnkeys in the jail 
 1 to the juvenile court 
 
 1 to the city market. 
 
 39 
 (Note. — The difference between the number of policemen detailed 
 and the number on actual patrol is accounted for by "sick leaves" and 
 absences. This distribution is as of May 7, 1914.) 
 
DEPARTMENT OF SAFETY 
 
 195 
 
 The additions to the force during the past seven years are shown 
 by the following table : 
 
 5 
 
 CD CD CO CD CD CO 
 M I— ' h- ' l-i I— ' O 
 #>■ CO SO M © CO 
 
 to to to CO b3 l-i 
 
 14^ CO to l-i l-i CO 
 U\ j<l JN3 jfk _CO OS 
 "w ~00 "b lo ~CO ~CO 
 
 co oo i-i -a qd en 
 
 CO CJl l—i CO l—i CD 
 
 * # * * 
 
 cny\woioiw 
 
 -a -a ~q _-q -0 ~q 
 
 QD OO CO CD QD 00 
 
 l-i MO O OO 
 
 l-i M h-i O O O 
 CO CO to CO CO CO 
 
 © O O O O CO 
 l-i CO CO to CO to 
 
 MMMMMO 
 I— i I— i I— i l-i h-i 
 
 oo oo oo m co co 
 
 CO CD CD 00 CO -3 
 
 rf*. ui l-i co -3 tf>- 
 
 CO CO CO CO CO CO 
 CO CO CO CO CO CO 
 CO CO CO CO CO CO 
 CO CO co to to CO 
 h-i l-i l-i l-i l-i l-i 
 CO CO CO to CO CO 
 MPMOOO 
 CO CO CO o O O 
 bOWMMHH 
 
 CO CO 
 
 O co 
 O #> 
 
 88 
 
 oo 
 
 88 
 
 CO CO 
 
 o o 
 o o 
 
 o 
 , o 
 o o 
 
 b © 
 o o 
 
 8888 
 
 ■€& 
 CO CO 
 C75 OS 
 CJl Ol 
 
 b~ 
 o ■_ 
 o o 
 
 b '< 
 o 
 
 Year 
 
 Population 
 
 Area 
 
 (Sq. miles) 
 
 Inspector 
 
 Chief 
 
 Deputy Chief 
 
 Captains 
 
 Sergeants 
 
 Jailers 
 
 Custodian 
 
 Stenographer 
 
 Detectives 
 
 Patrolmen 
 
 Part-Pay Patrolmen 
 
 Linemen 
 
 Operators 
 
 Surgeons 
 
 Matrons 
 
 Janitress 
 
 Chauffeurs 
 
 Amusement Inspector 
 
 Complaint Clerks 
 
 Provisional Clerks 
 
 Appropriations 
 
196 DENVER 
 
 Denver, with a population estimated at 245,000, distributed over a 
 total area of nearly 60 square miles, has a police force which has not 
 been developed either in efficiency or in numbers of men to a degree 
 commensurate with the needs of the city. While it is admitted, based 
 upon the numbers of policemen in cities of equal population, that the 
 patrol force is not sufficient to patrol efficiently all of the streets, it 
 is nevertheless recommended that no additional patrolmen be ap- 
 pointed at this time. Neither area nor population necessarily furnish 
 a complete basis upon which to estimate the number of men necessary 
 to furnish police protection. Character of population and statistics 
 of crime are two important factors to be considered. From the records 
 of the department as at present maintained, neither of these factors 
 could be determined in a way which would make possible an estimate 
 at this time as to the number of patrolmen needed in the city. Policing 
 a city and protecting its citizens is not entirely a matter of numbers 
 of policemen, but rather of the kind of policemen and the efficiency 
 of those employed for this work. 
 
 An increase in the force would be no guarantee of increased police 
 protection. Because of the lack of training of the present members 
 and the corresponding lack of discipline., and because of the inability 
 of the administrative heads to determine an equitable distribution of 
 the force, from the statistics available, it is recommended that no in- 
 creases in the patrol force be granted until provision is made for the 
 training of the present force. 
 
 No Supervision of Patrol Force Attached to Sub-Stations 
 
 There are no sergeants detailed to supervise the patrolmen at- 
 tached to the two sub-stations. There is a sergeant in charge of each 
 of these stations, who is assisted by a patrolman serving as acting ser- 
 geant. Their supervision of the patrol force consists merely in "turn- 
 ing out" the men for duty and keeping records of the time of the men 
 under their command. Their services are purely of a clerical nature. 
 Although they are responsible, or supposed to be, for the discipline 
 of the patrolmen under their charge, they have no means of knowing 
 whether the patrolmen are properly performing their duties. 
 
 The patrolmen attached to these stations report to headquarters 
 directly through patrol boxes, which are not connected in any way 
 with the sub-stations. 
 
 The reason for the failure to supervise the patrol force in those 
 sections, as stated by the commissioner and the chief, is there is an in- 
 sufficient number of sergeants. 
 
 There is need for the immediate appointment of additional ser- 
 geants, but the absence of these sergeants is not entirely responsible 
 for the failure to supervise the patrol in a more efficient manner than 
 has been done, for the sergeants performing desk duty at these sub- 
 stations could use their time to better advantage by patrolling their 
 districts than by sitting in the sub-stations. 
 
DEPARTMENT OF SAFETY 197 
 
 It is therefore recommended that the sergeants in the sub-stations 
 be relieved of clerical work and that patrolmen be assigned to perform 
 the clerical duties and the sergeants to patrol. 
 
 The patrol boxes in these sections should be connected with the 
 sub-stations. 
 
 Uimecesary Details Reduce the Patrol Force 
 
 Because of the absence of a properly constituted platoon system 
 six policemen are detailed to what is called house duty, on eight hour 
 shifts, two on each tour. 
 
 Six patrolmen are also detailed on eight hour shifts as conductors 
 of the patrol wagon. Thus the reserve for the entire city on each of 
 the three tours consists of four policemen. 
 
 The assignment of the six men to house duty weakens the patrol 
 force by six and does not provide for a sufficient reserve. They should 
 be remanded to active patrol duty and a reserve force created. 
 
 There is no occasion for having six policemen assigned as con- 
 ductors on the patrol wagon. One policeman to respond to calls for 
 the wagon is all that is necessary. In cases where a number of pris- 
 oners are to be transported, the arresting officer should accompany 
 the wagon to the station house. His post should be covered in the 
 meantime by the patrolman on the adjoining post. Three of these 
 policemen should be returned to active patrol duty. 
 
 The assignment of one policemen as city herder is scarcely justi- 
 fied by the existing conditions. 
 
 The officer detailed to the city market should be returned to 
 patrol duty because there is insufficient work for him during the few 
 hours that the market is open. The city market master is himself a 
 special policeman, and he could be assisted during the rush hours by 
 the patrolman regularly assigned on that post, who should be in- 
 structed to give the market place special attention. 
 
 As already stated, the three chauffeurs on the ambulance should 
 likewise be returned to patrol duty and the ambulance transferred to 
 the county hospital. 
 
 The policeman assigned to the juvenile court should be recalled, 
 as the functions now being performed by him could well be performed 
 by the probation officers attached to the court. 
 
 Patrol System Defective 
 
 While it is essential that the streets be properly patrolled, it is 
 equally important that an adequate reserve force be available for use 
 in an emergency. So important is this that it is the practice in most 
 large cities for police chiefs to keep constantly in front of them upon 
 their desks a chart showing the location and number of men in reserve. 
 The patrol system in use in Denver does not provide for an adequate 
 
198 DENVER 
 
 reserve. The little reserve force that is kept available is maintained 
 at the expense of the regular patrol service. No platoon or patrol sys- 
 tem is efficient unless it provides for an adequate reserve force at all 
 hours of the day. 
 
 The present patrol system requires patrolmen to patrol contin- 
 uously for eight hours each day, and does not provide for a day off. 
 In this respect it is particularly unfair to the policemen and to the 
 citizens as well, since eight hours continuous patrol is not conducive to 
 efficient patrol. 
 
 As a matter of fact, walking along the pavement with the arms 
 hanging free is not as easy as it looks. It is more fatiguing physically 
 than almost any kind of work. A brisk walk is less tiring than a slow 
 walk. Add to this foot-soreness from the pavements, the monotony 
 of the same post day after day, the passing of novelty as the post be- 
 comes more familiar, the occasional need for quick action, and the re- 
 striction of speech, and then on the other hand the numerous conven- 
 ient resting places, warm and dry in the winter, cool and shady in the 
 summer — all tempting a man from duty — and it can be seen that police 
 patrol work is not as easy as it might seem. 
 
 No tour of patrol should exceed six continuous hours, while the 
 ideal is four hours. 
 
 The distribution of the force according to the present system pro- 
 vides for the greatest number of men on duty between 3 p. m. and 
 11 p. m., and the smallest number between 11 p. m. and 7 a. m. Police 
 experts agree that the distribution of the force on patrol should be 
 as follows : 
 
 20 per cent of the force on patrol at day time 
 40 per cent of the force on patrol at night time 
 20 per cent of the force always on reserve 
 20 per cent of the force off duty. 
 
 A study of the criminal activities shows that the most active crim- 
 inal hours are between 10 p. m. and 6 a. m. During the time between 
 3 p. m. and 11 p. m., when the greatest number of policemen are on 
 patrol in Denver, there is considerable self-protection in the fact that 
 most of the citizens are up and around, and the main thoroughfares are 
 well lighted, thus reducing the need for increased police protection 
 during these hours. But from 11 p. m. until 7 a. m., during which time 
 the city sleeps, there is the greatest need for police potection, not only 
 against criminal activities, but against fire and disaster as well. 
 New Platoon System Should Be Provided 
 
 A new platoon system should be provided at once. In arranging 
 the tours of duty, provision should be made for the following: 
 
 1 — The least number of men on patrol from 7 a. m. to 3 p. m. 
 
 2 — The greatest number of men on patrol from 11 p. m. to 7 a. m. 
 
 3 — A reserve at all hours of the day, consisting of not less than 
 20 per cent of the total patrol force 
 
DEPARTMENT OF SAFETY 199 
 
 4 — Twenty-four consecutive hours off duty at least once in five 
 days for each patrolmaD 
 
 5 — Tours of duty not to exceed six continuous hours of patrol 
 
 6 — A five day cycle, so that platoons will alternate every five days. 
 
 In determining the number of hours each patrolman should work 
 in a week, reserve duty should be considered as half working time, in- 
 asmuch as all policemen should be required to sleep during their tour 
 of reserve. 
 
 Pending the creation of such a platoon system, the reserve force 
 should be made up from the entire force, each group of policemen 
 serving a definite number of hours each month on reserve. 
 
 Comfortable sleeping quarters should be provided for the use of 
 the men, and there should be a large gong in the rooms for the purpose 
 of summoning them when needed. 
 
 In this way the force could be divided for assignments to reserve 
 duty into a definite number of groups, and each group could remain 
 on-reserve one night, which would simply mean sleeping at the station 
 instead of at home. This would not work any hardship on the men, 
 but it would provide temporarily for a reserve force. 
 
 No Way of Reaching Policemen on Patrol 
 
 To emphasize the need of an adequate reserve force, it should only 
 be necessary to state that there is no means at present by which police 
 headquarters can summon men in the event of an emergency. It is 
 now necessary to wait until the patrolmen call up through the patrol 
 boxes on their half -hour calls, and then direct them to the scene of the 
 trouble, which may be a great distance from their patrol box. 
 
 The installation of a few red lights, centrally located in the city 
 and in the outlying sections, which could be lighted from the telegraph 
 operator's desk, would be of great assistance in the event of an emer- 
 gency. The lights could be arranged so that they could be seen at 
 considerable distance, and the rules should provide that when police- 
 men see the light burning they should go immediately to a patrol box 
 for instructions. This recommendation does not carry with it the idea 
 that every patrol box should be equipped with a red light, or that any 
 expensive signal system should be installed. 
 
 Need for Mounted Squad 
 
 The posts in the outlying sections of the city are unnecessarily 
 long. They could unquestionably be considerably shortened by a re- 
 arrangement of the posts, even without the appointment of additional 
 patrolmen. The posts in the suburban districts should be covered by 
 patrolmen on horseback. 
 
 Patrol Posts 
 
 The patrol posts of the city vary in length from two to fifty-six 
 blocks. 
 
200 DENVER 
 
 There are in all 43 night posts, 52 evening posts and 32 morning 
 posts. 
 
 The majority of the patrol posts in the congested business section 
 do not exceed four blocks in length. 
 
 These posts have not been studied or rearranged in many years, ex- 
 cept that an additional post is occasionally created when additional 
 patrolmen are appointed. Because of the system of keeping records, 
 it would be scarcely possible, without an extensive study of crime con- 
 ditions, to discuss the wisdom of the present distribution of posts ; but 
 there is no necessity for two or three block posts in the congested busi- 
 ness section, where there are well lighted and busy thoroughfares, 
 while in outlying sections of the city posts are two miles long. 
 
 It is recommended that a study of patrol posts be made with a 
 view of reapportionment. 
 
 Method of Issuing- General Orders to the Force Inefficient 
 
 The present method of issuing new rules, general orders, alarms 
 for missing and wanted persons, and other instructions to the force is 
 to read them to the patrol force at each outgoing roll call. The patrol- 
 men are rot required to make notes either of orders or of the descrip- 
 tion of missing and wanted persons. If the policemen are to be ex- 
 pected to comply with the rules, nothing is more important than that 
 they know and understand them. They cannot be expected to know 
 the rules under the present system, nor can they be expected to re- 
 member the lengthy descriptions of persons wanted. Thus it serves 
 no purpose to go through the form of reading the instructions and 
 other matters to the force unless the members are required to make 
 written notes. 
 
 It is therefore suggested that all special, general and other orders, 
 and general alarms for missing and wanted persons be mimeographed 
 and a copy furnished each member of the force. This should take the 
 form of a daily bulletin to the force. 
 
 When persons called for on previous alarms are arrested, notice 
 should be given to all members of the force, so that they may remove 
 the name from their lists. 
 
 The daily bulletin should also include a tiotice of commendation 
 of particular officers for making good arrests, and punishments meted 
 out to delinquent policemen. 
 
 Traffic Squad Not Properly Supervised 
 
 Twelve patrolmen are assigned to traffic duty at certain busy 
 crossings. No two of the traffic men observed use the same system of 
 opening and closing streets, nor do they stand in a similar position. 
 Some use a cane to signal, others raise the hand, and others use both 
 arms. Some were observed nodding the head and waving a news- 
 paper. The traffic men were carefully observed during the busy hours, 
 and many of them were noticed, on several occasions, standing in con- 
 
DEPARTMENT OF SAFETY 201 
 
 versation with citizens on the crossing for a period' which would indi- 
 cate that the conversation was not upon police business. 
 
 There is no supervision of the work of the traffic men, which may 
 account for the lack of discipline observed. 
 
 The members of the traffic squad should be given instruction in 
 the regulation of traffic, and required to adopt uniform methods of 
 opening and closing streets. None of the traffic men should be allowed 
 to carry canes, and only the hand should be used to direct traffic. The 
 use of a whistle as an aid is frequently found to be effective, although 
 it is not entirely necessary if the traffic officer understands his duty. 
 
 Under no circumstances should traffic policemen be permitted to 
 hold conversations on the crossings. If a crossing is not sufficiently 
 busy to require every moment of the traffic officer's time, it should 
 be abandoned as a traffic post. 
 
 Patrolmen Are Required to Call from Signal Boxes at Definite Times 
 
 Patrolmen are required to call in from their posts from the signal 
 boxes every thirty minutes. They are required to call from a definite 
 box at a definite time. This method of supervising patrol has been 
 condemned by police experts, for having the policemen call from a 
 definite box at a definite hour serves to keep the criminal element on 
 his post informed -as to his movements. 
 
 The proper method of supervising patrol is through patrol ser- 
 geants. The patrol box should be used primarily for keeping the patrol 
 force in touch with headquarters rather than for supervising patrols, 
 Police sergeants only too frequently fail to understand that supervision 
 of patrol does not end with merely seeing to it that the patrolman is 
 on his post. Supervision of patrol means studying and observing the 
 conditions existing on the patrol post and determining the efficiency 
 of the patrolman in suppressing certain conditions and promptly re- 
 porting others. The mere pulling of a box every half hour will cer- 
 tainly not serve to show whether the policeman is properly patrolling. 
 It has often been proved that when a policeman is required to be at 
 a certain point on his post at a definite time he will frequently neglect 
 his work, and instead of conscientiously patrolling and observing con- 
 ditions, he is constantly seeking to "make" his box at the appointed 
 hour. 
 
 It is necessary that the policeman call in from his post at appointed 
 times, but not from definite parts of his post. 
 
 No Relieving Points Provided 
 
 The effort of the chief of police should be never to leave a patrol 
 post uncovered. To do this no policeman should ever leave his post 
 at the end of his tour of duty until he has been properly relieved. 
 The practice, at present, is for the policeman to start for the station 
 house at the end of his tour of duty, regardless of whether his relief 
 has reported. It is recommended that the chief establish relieving 
 
202 DENVER 
 
 points on each post, and issue an order that no policeman may leave 
 his post until he has met his "relief" at the relieving point. If his 
 relief is late in arriving the patrolman should call for instructions from 
 the nearest patrol box. 
 
 Part Time Patrolmen Should be Abolished 
 
 There are fourteen "part pay" patrolmen, seven at $20 a month 
 and seven at $40 a month. The part pay patrolman is a night watch- 
 man, who patrols certain neighborhoods, obtaining from each of the 
 property owners whose property is guarded a monthly fee. These men 
 are not selected through civil service examinations, and, although they 
 receive salary from the city, they are nothing more than private watch- 
 men. 
 
 One of these men receives $40 a month for "being on call" to 
 search for automobiles which have been stolen. This practice should 
 be abandoned, and the rank of part pay patrolman abolished. These 
 watchmen are interested only in the property of the persons who pay 
 them a monthly fee. They perform no police functions except those of 
 night watchmen. It is unwise to permit the city to enter into contracts 
 or to retain policemen on a part time or part pay basis. 
 
 The sections patrolled by these night watchmen are in many cases 
 patrolled by regular members of the force, and those sections which 
 are not should be included in the patrol posts of the' regular members. 
 
DEPARTMENT OF SAFETY 203 
 
 RELATIONS BETWEEN POLICE AND OTHER CITY 
 DEPARTMENTS 
 
 Although the rules require that policemen report all matters ob- 
 served upon their respective posts which might require the attention 
 of other city departments, an examination of the records showing the 
 number of such reports received through the patrol force indicates that 
 the rule is neither observed nor enforced. During the three months 
 preceding this survey there were but nine reports relating to sidewalk 
 and street conditions made by policemen, although there were more 
 than double this number made by citizens. The rules require the 
 patrolmen to report such conditions by telephone. The operator, also 
 called complaint clerk, makes an entry in an informal record and noti- 
 fies the departments concerned. 
 
 In rating policemen for efficiency no consideration is given to the 
 work of the patrolmen in observing conditions and reporting upon the 
 same on their posts. Hence the policemen are neither compelled nor 
 encouraged to observe and report upon the conditions found by them 
 on their posts. 
 
 While it has been recognized that the policeman should be a re- 
 porter of conditions, and that because of his constant walking back 
 and forth over a given territory day in and day out with no other 
 duties than to observe, no one is better qualified to observe conditions 
 and report upon them than is the policeman. Yet in but few cities in 
 the United States is this done intelligently. The ambition of every 
 police force should be to create a friendly feeling between the citizens 
 and the policemen and proper understanding by the public of the 
 functions of the police, and thus raise the dignity of the force in the 
 estimation of the public. To do this it is necessary that the policeman 
 be properly trained to observe and report upon conditions, that he be 
 encouraged by proper reward through efficiency ratings for intelligent 
 reporting, that he be made to understand that efficiency in police work 
 does not necessarily mean the making of many arrests, and that he be 
 thrown into contact with the public upon his post in such a way as to 
 establish a feeling of respect and friendliness rather than hostility. 
 
 Reports of Policemen Should Be Properly Reviewed and Followed Up 
 
 To encourage policemen to report properly conditions observed by 
 them and to bring about a proper system of reporting would be of little 
 value either to the city or to the policemen unless reports are properly 
 reviewed and acted upon. The principal need for the successful ad- 
 ministration of municipal government is the scientific collection of in- 
 formation as to conditions in all branches of government, the review 
 of this information, and co-operation by all city departments to bring 
 about action which will remedy the conditions reported upon. 
 
 The policeman who reports a broken sidewalk three or four differ- 
 ent times and finds ultimately that no action is taken to remedy the 
 condition will soon lose his enthusiasm and neglect to report in the 
 
204 DENVER 
 
 future. The policeman who reports the violation of an ordinance only 
 to find that the branch of the city government whose function it is to 
 prosecute neglects to act will soon lose his faith in the other branch of 
 the government. 
 
 Thus, to make the policemen of the city of Denver alert, efficient 
 and useful "eyes and ears" of the city government, it is necessary 
 that the commissioner of safety impress upon council the need of co- 
 operation of all of the city departments. 
 
 Policemen Should Be Used to Deliver Communications Between City 
 and Taxpayer 
 
 To establish a proper feeling between the citizen and the police- 
 man they should be brought into closer contact. Hence the visit of 
 the policeman to a household on his post should not necesarily mean 
 "trouble" to the householder. 
 
 This contact will be brought about and result not only in economy, 
 but likewise in a better understanding of the functions of the police, 
 if the various city departments would use the service of the police in 
 distributing literature, pamphlets and communications to the tax- 
 payers. For example, if the commissioner of weights and measures 
 desired to send a message to the housewives warning them of some 
 newly discovered dishonest practices, it would only be necessary for 
 him to put his message in the form of a printed pamphlet, turn same 
 over to the chief of police, who would have them distributed to the 
 householder by the patrol force; or if the fire chief desired to notify 
 property owners of the location of fire boxes and warn them against 
 practices tending to increase fire risk, he would do likewise ; while the 
 police department itself from time to time could through its policemen 
 circularize the householders, advising them of practices encouraging 
 thefts and burglaries. 
 
 Policemen Should Be Required to Carry Memorandum Books 
 
 In order that the policemen may be encouraged to report matters 
 observed by them, they should be required to carry a uniform memo- 
 randum book, which should be supplied them by the department. The 
 force at present is not required to carry suck books, and many of the 
 policemen do not. One outgoing platoon was inspected for memoran- 
 dum books, as was also one platoon on return roll call. There were 
 19 policemen who had no memorandum books at all, while many others 
 presented Dote books in which they recorded their personalmatters, 
 and still others showed books which were practically of no use as police 
 records. It is recommended that uniform loose leaf memorandum 
 books be issued to the patrol force and that the rules require that 
 they be carried by policemen when on duty. 
 
DEPARTMENT OP SAFETY 205 
 
 UNIFORMS AND EQUIPMENT 
 Policemen Slovenly in Their Appearance 
 
 The present uniform is untidy and gives the policeman a slovenly 
 appearance. The coat is buttoned only at the top and thus exposes 
 the vesH The coat being constantly thrown open also provides tempta- 
 tion for the policeman to put his hand in his pocket. The type of cap 
 used is not of military design, but resembles closely the caps worn in 
 most cities by street car conductors. The summer hat is a gray helmet. 
 The rules do not require that the policemen wear the same kind of 
 gloves, collars and neckties, the result being that many different styles 
 are worn. One outgoing platoon inspected showed three separate and 
 distinct types of uniform in service at one time. Some of the force 
 wore long heavy overcoats, others wore coats which button at the top, 
 remaining open at full length, while still others wore the old metropol- 
 itan dress coat. 
 
 Members of the traffic squad wore a different uniform from the 
 other policemen in that it was light brown in color and cut similar to 
 the army fatigue uniform. Some of the traffic men carried canes 
 while others did not. 
 
 General neatness and sprightly appearance of the force plays an 
 important part in police work. If the policeman is to have the respect 
 of the citizen, his general appearance must be neat, he must be prop- 
 erly uniformed and alert when on patrol. 
 
 The rules and regulations should require that all policemen be 
 properly uniformed, and that while in uniform, whether on duty or 
 excused and on their way home, their uniform coats remain buttoned. 
 
 The policemen upon going to and from their homes wear their 
 civilian hats but retain their uniforms to avoid paying carfare. Po- 
 licemen should be required to wear their uniforms going to and from 
 their homes because through this practice the city gets the benefit of 
 their service en route to their homes; they should also be prohibited 
 from wearing other than the uniform hat. 
 
 Method of Purchasing Uniforms Defective 
 
 The present method of securing uniforms for policemen is not 
 economical and it fails to provide for uniformity of grade, quality, 
 color or cut of uniform. An outfit costs about $85, and policemen are 
 permitted to purchase their uniforms wherever they choose. Because 
 of the low salary paid policemen, it is recommended that the city sup- 
 ply the policemen with their uniforms and equipment. The uniforms 
 should be purchased and manufactured upon contract. 
 
 If, however, the city feels unable to purchase the uniforms, it is 
 recommended that it supervise the manufacture and purchase of all 
 uniforms. A plan successfully tried in other cities is hereby recom- 
 mended for the consideration of the commissioner. 
 
206 DENVER 
 
 First the commissioner should decide the number of uniforms the 
 patrolman should wear in a year. Good practice would require a sum- 
 mer and a winter uniform each year and a middle-weight spring dress 
 coat every two years. Having decided upon the number, he should 
 secure estimates as to the cost of supplying the same. Definite dates 
 should be set for the supply of the summer and winter uniforms, and 
 each year the force should be required to purchase them at such time. 
 
 To pay for the same the total cost of the uniforms per man should 
 be divided by 24, and 1/24 of the cost deducted from each man's pay 
 at each pay day. For example, if the total cost were $50 per year, 
 $2.50 would be taken from the pay check of the patrolman. 
 
 The purchase of uniforms by policemen has been found to work a 
 hardship upon them in most all cities in this country. Most European 
 and Canadian cities supply the patrol force with their uniforms and 
 equipment without cost. The patrolmen of London and the cities of 
 Canada are perhaps the best clothed police officers in the world. 
 
 One of the reasons that the purchasing of uniforms becomes a 
 financial hardship to the patrolmen is the constant change of style by 
 new commissioners. 
 
 The advantages of the system suggested above are: 
 
 That it would be more economical to have all of the uniforms made 
 by one company and under contract 
 
 That by requiring the policemen to purchase a new summer and 
 winter uniform each year a cheaper and yet serviceable cloth 
 could be used in the manufacture, thus reducing the cost 
 
 That all of the policemen would be wearing uniforms of the same 
 age 
 
 That it would provide ample opportunity, without inflicting a 
 hardship on the men, for commissioners to change the style 
 of uniform from time to time 
 
 That it would provide an easy method of payment by the police- 
 men which would become so automatic as to result in prevent- 
 ing the policemen from going into debt and becoming victims 
 of loan sharks 
 
 That it would provide for a uniformity of grade, color and quality 
 of the cloth and cut of uniform. 
 
 Policemen Wear Fraternal Emblems Exposed 
 
 Although the rules do not permit members of the force to wear 
 emblems of fraternal societies on the coat lapel, the majority of the 
 policemen wear an emblem as a watch charm. The uniform coat re- 
 mains open and consequently these fraternal society emblems are ex- 
 posed. While it is recommended that this style of uniform be aban- 
 doned, it is also urged that pending the change of uniform the com- 
 missioner issue a general order prohibiting all members of the force 
 
DEPARTMENT OF SAFETY 207 
 
 from wearing exposed emblems of fraternal or secret societies. 
 
 Policemen Should Carry Regulation Revolvers in Blouses 
 
 The rules require that all policemen shall carry a revolver when 
 on duty. Policemen are required to furnish their own revolvers but 
 there is no rule requiring that all of the revolvers shall be of a 
 standard make. 
 
 An inspection of two platoons proved that the policemen carry a 
 great variety of revolvers, both as to make and calibre. Many of the 
 revolvers found in use were of the cheapest variety. 
 
 A policeman's revolver and cartridges should be a part of his 
 equipment, furnished him without cost by the city. The revolver 
 should remain the property of the city, and if lost by the policeman 
 as the result of his own carelessness, should be replaced by him at his 
 own expense. There should be a monthly inspection of revolvers, and 
 care should be taken to see that they are kept clean and in proper con- 
 dition. To do this it is necessary that each revolver should be taken 
 apart. This should be done by each policeman himself. 
 
 If the city will not furnish the policemen with revolvers, the com- 
 missioner of safety should at least insist upon the use of a standard 
 type. The department should then purchase the revolvers and sell 
 them at cost to the policemen, thus slightly reducing the cost. The 
 numbers of the policemen should be engraved on the handles of their 
 revolvers. 
 
 The present practice of carrying the revolver in the right hip 
 pocket should be abandoned, and the regulations should require that 
 the revolver be carried in a holster in the blouse on the left side so as 
 to be available in emergency. It was noted that some of the members 
 of the force were carrying their revolvers in accordance with this 
 suggestion. 
 
 Roll Call Inspection of Uniforms 
 
 The inspection of the patrol force at outgoing roll call is ineffi- 
 cient. The roll calls observed did not have as a part of their pro- 
 cedure the careful inspection of the uniforms and equipment of the 
 force. The rules should prescribe a definite procedure for roll calls 
 which would include a proper inspection of the uniforms and equip- 
 ment by the sergeants before the captain or lieutenant begins the roll 
 call. This inspection cannot be made efficiently by merely standing in 
 front of the platoon and calling for "keys and whistles." The inspec- 
 tion should be made in accordance with the regular army manual, and 
 the sergeant should personally inspect the uniform and equipment of 
 each policeman. At this inspection each patrolman should be required 
 to show his memorandum book, fire alarm and patrol box keys, 
 whistle- and revolver. No man should be permitted to leave head- 
 quarters for patrol duty .unless he is neat and tidy in appearance and 
 his equipment complete. 
 
208 DENVER 
 
 Many of the policemen wore their caps tilted to one side and were 
 chewing gum or tobacco. The rules of the department should prohibit 
 such practices. 
 
 Use of Helmets Should Be Abandoned 
 
 In most large cities the gray summer helmet has been abandoned 
 and a dark blue military cap has been substituted. The helmet in use 
 is of the oldest uniform fashion. Its original use as a headgear for 
 policemen was based upon the theory that it was a protection in times 
 of trouble, but experts on police matters have long since abandoned 
 this notion. The cap is much more dignified and in keeping with the 
 rest of the uniform. The present winter cap should be changed and 
 a more dignified military cap substituted. 
 
 Unwise Distribution of Special Police Commissions and 
 Department Shields 
 
 Section 113 (old section 69) of the charter authorizes the com- 
 missioner of safety to appoint special patrolmen with or without pay. 
 Pursuant to this section the department has issued to persons other 
 than the regular members of the force 476 special police commissions. 
 Three different kinds of shields have been issued to persons holding 
 these commissions, (1) a badge different in shape and design from that 
 of the regulation shield and marked "special policeman," (2) the 
 regulation patrolman's shield of the same type and design as is worn 
 by the regular police force, (3) a badge of the regulation shape and 
 design but with different wording, as for example, "Union Depot 
 Police." 
 
 One hundred and one persons holding police commissions carry 
 the regulation department shield. Of this number 24 are employees of 
 the street railway company, nine are private detectives in the employ 
 of the detective agency operated by the deputy commissioner, eight 
 are employees of theaters, four are employees of hotels, nine are pri- 
 vate detectives employed by various agencies and others are city em- 
 ployees and newspaper reporters. 
 
 One of the officers of the street railway company carries a regula- 
 tion detective shield, as does also the superintendent of a private de- 
 tective agency. 
 
 Although two employees of a hotel hold department commissions 
 and regulation shields, a third shield was issued to the hotel itself, and 
 the department does not even know in whose possession this shield is. 
 
 Lack of Control Over Its Badges 
 
 Not only have shields been given to persons who are engaged in 
 work which would make their carrying special commissions and de- 
 partment shields undesirable, but an examination of the records and 
 an inventory of the shields show many shields unaccounted for. 
 
DEPARTMENT OF SAFETY 209 
 
 So many shields are missing and unaccounted for and so many are 
 held by persons other than members of the force that it is recom- 
 mended that the department change the design of the shield, call in 
 all the old shields, and in the future refuse commissions to any person 
 other than those intended ' to have them by the section of the law 
 authorizing the commissioner to make such appointments. The num- 
 ber on the present shield is inconspicuous. The new shield should have 
 the number sufficiently large as to be conspicuous. 
 
 Special Patrolmen Should Have Distinctive Uniforms 
 
 The shields and uniforms of the special patrolmen "should be of a 
 design vastly different from the regulation shield and uniform. All 
 persons to whom special commissions are given should be required to 
 furnish a bond in a sum not less than $2,000, and unless excused by 
 the commissioner of safety should be required a wear a uniform, the 
 design of which should be prescribed by the rules. No private de- 
 tectives should be furnished department shields or issued police com- 
 missions. 
 
210 DENVER 
 
 VICE CONTROL 
 
 Until a year ago houses of prostitution were tolerated in what was 
 known as the "segregated district." Under a former administration 
 it was decided to abolish this district and to enforce the laws against 
 maintenance of disorderly houses and houses of prostitution, and under 
 the direction of the commissioner of police all of the houses in the 
 segregated district were vacated and a policy of suppression was 
 adopted. So far as the records show these houses were never reopened 
 as houses of prostitution, and the policy of the present administration 
 is represented to be that of suppression. The police records do not 
 show the existence of one suspected disorderly house or house of prosti- 
 tution in the city. 
 
 Patrolmen Do Not Report Suspected Places 
 
 The patrolmen, according to the rules, are required to report at 
 once any premises which they suspect of being operated or maintained 
 as a disorderly house or house of prostitution. An examination of the 
 records reveal only three reports, and the records do not even show 
 the location of these three premises, but merely the number reported. 
 
 It would appear from the records, therefore, that Denver is free 
 from commercialized prostitution and that the former segregated dis- 
 trict is completely suppressed. 
 
 "While no moral survey was conducted, the fact is that very many 
 of the houses within the former segregated district are now being con- 
 ducted as houses of prostitution. 
 
 Interviews with police officers made it very clear that, although 
 the policy of the department is represented to be suppression, it is 
 understood that disorderly places are not to be reported. 
 
 No police officers within the last year have been charged with 
 neglect of duty for failure to report. Further than this, the statements 
 of these police officers are supported by the fact that the police bureau 
 does not maintain even a list of suspected places. 
 
 Although the law specifically states that wine rooms shall not sell 
 liquor to women, and the intent of the statute is apparently to prohibit 
 the existence of saloons with back rooms and adjoining premises for 
 the frequenting of prostitutes for the purpose of soliciting, a number 
 of places were observed where this statute was openly violated and 
 without interference. 
 
 The deputy commissioner stated that policemen do occasionally 
 report to him personally over the telephone the existence of disorderly 
 houses or places of prostitution, and that he supervises the investiga- 
 tion of these reports, but he added that in such cases he does not make 
 any written records. 
 
 Investigations of complaints of this character are made by mem- 
 bers of the detective division. 
 
DEPARTMENT OF SAFETY 211 
 
 Uniformed Patrolmen Allowed to Enter Saloons 
 
 Not only are members of the detective division used to enforce 
 the laws against prostitution, gambling and the illegal sale of liquor, 
 but the uniformed patrolmen are likewise required to enforce these 
 laws. Thus, it is not at all uncommon to see a uniformed policeman 
 walking through a saloon or wine room under instructions from head- 
 quarters to observe conditions. 
 
 In one disorderly place visited, which was a wine room within the 
 fullest meaning of the statute, there was not only a special officer who 
 wore a regulation department shield, but also a uniformed polieeman 
 standing about, although prostitutes were openly soliciting from tables 
 and there was not even a pretense at compliance with the law. 
 
 Uniformed Men Should Not Be Permitted to Enter Saloons Except 
 When the Commission of a Felony Has Been Reported 
 
 Neither the members of the detective division nor the uniformed 
 patrolmen should have any duties with regard to the enforcement of 
 the laws against prostitution and gambling nor the illegal sale of liquor 
 beyond reporting to their superior officers places suspected of being 
 operated in violation of law. No policeman in uniform should ever be 
 permitted to enter a saloon except to quell a riot or to arrest for a 
 felony. 
 
 The suppression of vice and the enforcement of the laws with 
 relation to it has resulted in demoralizing the police service and break- 
 ing down the efficiency of the department in other directions. There- 
 fore special care must be exercised in the selection of the men who 
 must come in contact with the classes engaged in these special forms 
 of commercialized vice. Hence, it is unwise to permit the patrol force 
 to come into contact with the owners of these places, but they should 
 be held strictly to account for reporting in writing the existence of 
 such places or places suspected of being operated as such. Reports 
 should be forwarded through the immediate superior officer to the 
 chief, who should compile a consolidated report and furnish the same 
 to the commissioner of safety. 
 
 Failure to report such places should be cause for immediate sus- 
 pension and subsequent dismissal from the force. 
 
 Special Men Should Be Assigned to Enforce These Laws 
 
 Since the policy of the present administration is supposed to be 
 that of suppression, every effort should be made by the commissioner 
 of safety to bring about the immediate suppression of the existing 
 disorderly houses, wine rooms and houses of prostitution. For this 
 purpose he should assign to his own office a staff of policemen selected 
 because of their honesty and ability to investigate and to enforce 
 the laws. 
 
212 DENVER 
 
 Every complaint should be forwarded immediately to the. com- 
 plaint, record and filing division, and forwarded to the members of 
 this staff for investigation and action. 
 
 The chief should be required under the rules to file a weekly re- 
 port with the commissioner, showing a list of suspected premises re- 
 ported during the week. 
 
DEPARTMENT OF SAFETY 213 
 
 DETECTIVE DIVISION 
 
 The detective division is in charge of the deputy chief of police. 
 There are 18 policemen assigned to detective duty as detectives and 
 two as acting detectives. Appointment to this division is made from 
 among the members of the force in the discretion of the commissioner 
 of safety. Detectives are placed on probation for two months before 
 final appointment. The term of the assignment depends upon the char- 
 acter of service to be performed. Detectives may be remanded at any 
 time to patrol duty. Assignment to this division carries with it an 
 increase of salary to the amount of $110 per month. The detectives 
 travel in pairs. 
 
 Detective Duty Not Confined to Investigation of Crime 
 
 Members of the detective division are used in the enforcement of 
 the laws against gambling, prostitution and excise. Contact with 
 saloons or disorderly houses by detectives is not conducive to effi- 
 ciency. Detectives should be free to investigate crime and apprehend 
 criminals and they should be relieved of any duties in connection with 
 the enforcement of the laws except where felonies have been com- 
 mitted. Disorderly and gambling houses should be suppressed through 
 the agency of the patrol force as a reporting body and through spe- 
 cially assigned plain clothes men, operating under the direct instruc- 
 tions of the chief and the commissioner. 
 
 Detectives Do Not Specialize in the Investigation of Crime 
 
 Except that two detectives are assigned continuously to the in- 
 vestigation of pawnbrokers and two others to the investigation of junk 
 shops and second-hand dealers, no members of the division are required 
 to specialize in the investigation of the "more serious crimes, such as 
 homicide and burglary. Not only are there no detectives specializing 
 in the investigation of these crimes, but none of the detectives receive 
 any training for their work. 
 
 No policeman should be assigned to the division unless he has been 
 trained properly in methods of criminal identification, the taking, re- 
 cording and classifying of finger prints, the rules of evidence and court 
 procedure and the proper methods of examining criminals. 
 
 In conjunction with the course of study, provision should be made 
 for the detectives to make a certain number of visits a year to the 
 state prison, there to observe under the guidance of an experienced 
 officer different types of criminals. 
 
 Police "Failures" Emphasize Need for Training 
 
 The need for specialization and training for detectives was em- 
 phasized by the failure to cope with the crime conditions and the op- 
 eration of burglars, as is shown by an examination of the records 
 covering a period of one year from April 1, 1913, to April 1, 1914. This 
 examination revealed the fact that out of a total of 864 burglary cases 
 
214 DENVER 
 
 reported there were about 194 arrests, or 22 per cent, and out of a 
 total loss of $37,562.92 represented in these burglaries there was re- 
 covered $13,724.40, or 36 per cent. Fifty-two attempted burglaries 
 were reported for which there were no arrests. Out of 1,056 larcenies 
 reported, representing a total loss of $34,690.20, there were but 112 
 arrests, or 10 per cent, and $11,176.70 recovered. 
 
 The following table, prepared from the records of the depart- 
 ment, shows the results of the investigation of crime for the year 
 
DEPARTMENT OF SAFETY 
 
 215 
 
 Lost and Stolen Goods (one year— April 1, 1913, to April 1, 1914) 
 
 ►9 
 
 o 
 
 
 cc^03fdC- | t- | >>iuwtr l t- | t- | |>w 
 
 o 
 o 
 
 l-S 
 CD CD 
 
 cd 
 
 BPj cl, o o .. 
 i I Q O Q 
 — pi rt B B B 
 U.tJ W V! Vj vj 
 
 CO 
 
 
 jo H» 
 », g 
 
 erg 
 S. 
 
 i— -*T3 
 
 cd cd 
 
 * 3 
 o 
 B 
 
 2 s 
 
 & . 
 
 hi 
 
 to 
 
 CO 
 CO 
 CO 
 
 to 
 
 "bo 
 -a 
 
 b 
 
 co 
 
 Cn 
 CO 
 CO 
 
 to 
 
 o 
 bo 
 
 -€» 
 
 CO 
 
 to 
 
 CO 
 00 
 
 -a 
 
 CO 
 (NO 
 
 -3 
 
 -J 
 
 bo 
 
 tO M tO h-i O GO 
 
 om cotoi-'cn©h-»coocn-acncnCT> 
 
 ^tocoaocji-ioococn^ajcocoaicort^ 
 
 On j_i 00 h-ij-i CO J35JN3J-' 
 
 b b> b ~#- b "en "*>• "*»■ "co 
 
 COCDOOCTiCJlff-f-'CO 
 
 ^'pboNibubbi 
 
 ©OOOCn©OC>© 
 
 CO I-* hf*. • 
 
 ^i-'Coocorf'-C'rss- 
 
 CO on CO l-» CO tO CO , 
 
 co p -a i&.h-L <p o , 
 CO b en © CO 'co © b ■ 
 
 on o 
 
 © © co 
 *" © to 
 to b en 
 
 J" 1 s*' 
 
 h-*"^ cn~cn 
 
 -JOIMO 
 
 bwob 
 
 en©©©©©©© 
 
 to to CO . 
 
 j^ to p p . 
 
 to -J en © to Wi en -J • 
 
 ^ to 
 
 -3 —1 M 
 
 CO 
 
 ^cojo^enj-qjfi. 
 
 "en "en "to b "o 
 as -3 en to to 
 co p en m p 
 
 © go bo © to 
 
 00)0100 
 
 to • 
 
 l-» tO tO *■ • 
 
 O M D3 -) M ■ 
 
 M £>■ CO tO . 
 
 © to ;<! to ; 
 
 o '^ w b i» ■ 
 
 jf^-j— 'j— ' 
 
 to"Mi-"en"h-' 
 -^ ><*. to -a 
 
 © "*3 — J © 
 
 O -a en o O 
 
 -j to co 
 j-i ^ m to , 
 
 OM-J-ib' 
 
 -J h-» co m» co h* ■ 
 
 oo h f».i-i*>.coeni-'h-'ocoa>tocotf»-cO' 
 
 cocoenent-'toi-' m* to coco co m , 
 
 OOMOOMOJOKI COCnpptOp, 
 
 to co b b en bo b b o co © so b to as ■ 
 
 ■€& 
 co 
 -J 
 
 "en 
 as 
 to 
 to 
 to 
 
 en 
 
 to 
 to 
 
 en 
 
 ■» 
 
 -3 
 
 CO 
 
 © 
 
 co 
 as 
 
 to 
 
 to 
 
 to 
 
 3 
 
 CD 
 
 T3 »> 
 
 ° ^ s» P 
 
 rt- CD CO 
 
 o 
 
 g a 
 
 <! 
 
 CD 
 
 -5 3 
 
 1 &*§ o 
 
 <° CD tr' CD • 
 
 1 M.!t O 
 
 » CS » Hj 
 
 ° CD CDTO g ^ 
 ?0 m 7- Ms ' 
 
 o o r+,S n 
 
 < co o °5 cc 
 
 CD B> rt- » B 
 
 >"S M P 3 O rt- 
 
 (• (t H H)' 
 
 CO, , 
 
 o S &> c? 
 
 M- M C5 ""* 
 
 Sf S-S,b 
 
 M- 05 ™ <^ 
 
216 DENVER 
 
 There Are No Detectives on Duty After Midnight 
 
 Although there are patrolmen on duty after midnight, none of the 
 members of the detective division is on duty. Burglaries reported at 
 the sub-stations after midnight are not reported to headquarters until 
 the following morning. This practice should be abandoned and at least 
 two members of the detective division should be on duty all night and 
 the desk sergeants or acting sergeants at the sub-stations should be re- 
 quired to report burglaries to the detectives on^night duty as soon as 
 they receive the complaint. 
 
 No "Buzzers" at Headquarters Connected With Pawnshops 
 
 Pawnshops are required by law to file daily reports, listing thereon, 
 with a description, all property pledged with them during the preced- 
 ing 24 hours. These report sheets are collected and reviewed by the 
 two detectives assigned to this work. Watch numbers are compared 
 with the watch numbers appearing on the list of stolen property, but 
 the pawnshops Eire not equipped with an electric button connected with 
 the detective division so as to notify the detective division promptly 
 and without arousing the suspicions of persons pledging or redeeming 
 stolen property. 
 
 Each pawnbroker should have installed a button connected with 
 headquarters, which should be placed under the counter so that when 
 a person presents stolen property for pawn or redeems property which 
 has been "ordered held," the pawnbroker by pressing this button could 
 notify the police. 
 
 While the system in operation for checking the pawnshops with 
 the stolen list is fairly good, it should be supplanted by the card sys- 
 tem, known as the Boston system. Under the present system to trace 
 a watch it is necessary to review all of the daily pawnshop sheets for 
 years back, while by means of the Boston system discovery of an at- 
 tempt to pawn a stolen watch would be almost automatic. 
 
 Daily "Line-Up" 
 
 There is a daily line-up of prisoners conducted in the jail and the 
 practice of inviting the uniformed officers to this line-up is to be 
 commended. 
 
 Bureau of Criminal Identification Improperly Organized 
 
 The bureau of criminal identification is in charge of a member of 
 the detective division, who devotes his entire time to it. No Bertillon 
 measurements are taken or recorded, since the chief and deputy chief 
 have decided that this system of identifying prisoners is "no good " 
 The department formerly took and recorded Bertillon measurements of 
 criminals. The detective in charge has substituted for the Bertillon 
 system his own description of the prisoners. 
 
DEPARTMENT OF SAFETY 217 
 
 No Rogues' Gallery 
 
 The old rogues' gallery was abandoned because it was poorly con- 
 structed and improperly equipped. 
 
 The bureau does not own a camera and in consequence is forced 
 to have prisoners photographed by an outside photographer whose 
 studio is located two and a half blocks from headquarters. Three 
 prims are made of each picture taken, at a cost of 25 cents per print. 
 One of these pictures is pasted in a book called "Perfect Criminal Rec- 
 ord Book," the second is sent to a paper called the "Detective," while 
 the third is kept in the office of the chief. 
 
 The pictures are filed in the record book in the order in which 
 prisoners are taken into custody. Thus, as a substitute for the rogues' 
 gallery this procedure is wholly impracticable. To seek to identify 
 through this book a person suspected of having committed a crime it 
 would be necessary to examine every picture in the book and all of 
 the books. 
 
 The department should purchase a camera and the operator in 
 charge of the division should photograph the prisoners, develop the 
 plates, print the pictures and file them in a properly organized rogues' 
 gallery. The old gallery which was abandoned should be reconstructed 
 and all of the pictures placed in it classified as to type of criminal, such 
 as burglars, pickpockets, con men, bunco-steerers, murderers, etc., and 
 sub-classified as to facial characteristics. Having the photographs 
 taken by an outside photographer not only increases the cost, but it 
 is also unsafe to take all prisoners to this studio, located as it is at a 
 distance from headquarters, since it requires additional handling of 
 prisoners in the streets. 
 
 No Fingerprint System 
 
 No fingerprints of prisoners are taken. The detective in charge of 
 the bureau has never received any instructions in methods of criminal 
 identification, nor does he know how to take or classify fingerprints. 
 
 No records from other cities are sought and there are no data con- 
 cerning criminal records available for ready reference. 
 
 That no proper files are kept and information concerning criminal 
 activities cannot be said to be due to the lack of time, since some idea 
 of the amount of work performed by the detective in charge can be 
 had from the following table showing the number of persons photo- 
 graphed within the past five years : 
 
 Average 
 per day. 
 
 1909 298 .82 
 
 1910 167 .45 
 
 1911 96 .26 
 
 1912 258 .70 
 
 1913 416 1.14 
 
 Total for five years 1,235 
 
218 DENVER 
 
 Bureau Should Be Reorganized 
 
 The bureau of criminal identification should be reorganized and an 
 improved method of recording and filing descriptions of prisoners 
 installed. The Bertillon system of criminal measurements should be 
 restored. The man in charge should be entitled "Bertillon Operator" 
 and he should be especially trained for his work. He should be selected 
 through a competitive civil service examination. Fingerprints should 
 be taken of all criminals, vagrants and women convicted of public pros- 
 titution. They should be properly classified and filed. The operator 
 should also be required to instruct all of the detectives at the training 
 school in the methods of photographing fingerprints and of classifying 
 and filing them. 
 
 The present quarters are inadequate. The newly organized bureau 
 should be located on the top floor of the building and equipped with a 
 dark room in which to develop the plates. 
 
 The present practice of sending a copy of each photograph to the 
 paper know as the "Detective" should be discontinued and pictures 
 should be sent out only to the national bureau at Washington and to 
 cities willing to pay for them, except to advirtise the fact that a cer- 
 tain person is wanted by the police of Denver, in which case, instead 
 of a photograph, a printed reproduction of the photographs should 
 be used. 
 
 A complete Bertillon card record system should be installed at 
 once. The operator should also be required to clip all current publica- 
 tions containing articles concerning the activities of criminals and to 
 file them, properly indexed and cross-indexed. He should be required 
 to file a weekly report with the chief, a copy of which should be for- 
 warded to the commissioner of safety, showing the number of persons 
 photographed, classified as to types of criminals, number of pictures 
 received from other cities and files, number of pictures furnished other 
 cities, number of persons identified from pictures already in the gal- 
 lery, and all other information which would serve to keep the chief 
 and the commissioner properly advised. 
 
 Records and Reports of Detective Division 
 
 The present system of filing reports in the detective division is 
 wholly inadequate and not in accordance with the best practices. Some 
 idea of its complexity can be had when it is known that it took a com- 
 petent investigator 11 days to tabulate the results of investigations of 
 complaints of lost and stolen goods for a period of one year, as shown 
 by the accompanying table. 
 
 That the division had no statistics as to the work being performed 
 by the men, much less statistics of a comparable nature, indicates at 
 least a failure to supervise the work of the detectives. Without a 
 proper system of reporting and a current tabulation of results, making 
 possible a comparison with past conditions and results, competent 
 .supervision would scarcely be possible. If there had been' proper rec- 
 ords this tabulation could have been produced by the officials in charge 
 
DEPARTMENT OF SAFETY 219 
 
 of the division within a very few moments, since the compilation under 
 a cumulative system is automatic. 
 
 New System of Records Should Be Installed 
 
 It is recommended that a system of records and reports be in- 
 stalled which will be easy of reference and yet furnish a means of pre- 
 serving a complete record of every complaint and the action taken upon 
 it. Such a system would supply the administrative and executive heads 
 with a basis not only for determining the efficiency of the staff but 
 likewise for ascertaining the crime conditions of the city. To do this 
 the system of records and reports must reveal the failures of the police, 
 as well as their successes. This the present system does not do. For 
 the commissioner to be able to determine the efficiency of his police 
 force he must have records before him which will keep him informed 
 as to the number of complaints received and the action taken upon 
 them, not only for the current month and year, but for other months 
 and years as well. Thus the records of the division should be as 
 follows : 
 
 1 — A detective's Complaint Book, in which should be kept the 
 record of every complaint made to the bureau requiring 
 detective attention. Each page of this record should be 
 numbered and should provide printed headings calling for 
 the following information: 
 
 The number of the complaint 
 
 The date and time complaint was received 
 
 The name and address of the person making the com- 
 plaint 
 
 A statement of facts as to the matter complained of 
 
 The number of the beat and the name of the patrolman on 
 duty at the time of the occurrence 
 
 The name of the officer receiving the complaint 
 
 The name of the detective or detectives assigned to the 
 case and the time they began work upon it 
 
 Adequate space should be provided for the report of the in- 
 vestigation. If the complaint is in letter form, it should be 
 copied into the record and the original letter forwarded to 
 the record and filing division. 
 
 No other matter should be recorded in this book and care 
 should be taken to see that each complaint is properly num- 
 bered. Beside the number should be a code letter indicat- 
 ing the character of the complaint, such as "R" for robbery, 
 "P" for pickpocket, "M" for murder. 
 
 This book should be indexed with the name of the complain- 
 ant and under his name the crime complained of, and the 
 place where a person is charged with the crime. 
 
220 DENVER 
 
 Only cases requiring detective attention should be entered in 
 this book, thereby differentiating between the detectives' 
 complaint book just described and the citizens' complaint 
 book described in another section of this report. 
 
 2 — Detective's Assignment Book, indexed under the name of the 
 detective. This book should show the number of the case, 
 a brief statement to indicate the character of the investiga- 
 tion, the time and date assigned, and the time when assign- 
 ment is completed, with a brief statement of the results. 
 Thus it would be possible for the chief or the deputy chief 
 to turn to this record at any time and find recorded the 
 number of cases pending, the number of cases in the hands 
 of the various detectives, and the number of cases closed. 
 No such information as this is now available. 
 
 3 — Record of Arrest, corresponding to the record of arrest rec- 
 ommended for use in connection with the station house. 
 Each arrest made by detectives or acting detectives should 
 be entered in this book, the headings and the entries in 
 which should correspond exactly to those suggested for the 
 record of arrest book for the uniformed force. This record 
 should be wholly independent of the record of arrest main- 
 tained by the sergeant at the desk. 
 
 4 — Property Stolen and Recovered Book, in which a record should 
 be made under proper headings, showing all property re- 
 ported stolen, the value of same, and the number of the case 
 in the detective bureau. Headings should be provided call- 
 ing for information as to the recovery of the property, show- 
 ing clearly the manner in which it was recovered, such as 
 found, in pawnbroker's, in custody of prisoner, etc. This 
 record should not contain any entries concerning property 
 other than stolen or recovered stolen property. The book 
 should be recapitulated at the end of each month, thus 
 showing in tabular form the amount of property reported 
 stolen during the month, the amount recovered by the de- 
 tective division, and the amount recovered through any 
 other source. 
 
 5 — A Desk Blotter, identical with the desk blotter maintained .by 
 the sergeant in the station house, which is fully described 
 in another part of this report, should be kept in the office of 
 the detective division by the detective sergeant. In it 
 should be recorded chronologically all matters as they 
 transpire during the day. This blotter should be kept 
 posted during the night by the detective on night duty. 
 
 6 — A Card Record of Complaint. Upon receipt of a complaint 
 requiring detective attention, a detective should be assigned 
 at once. After recording the information furnished by the 
 complainant and as soon thereafter as possible, a prelimi- 
 nary investigation should be made. As soon as the detective 
 
DEPARTMENT OP SAFETY 221 
 
 returns to headquarters, he should be required to fill out a 
 complaint card. These cards should be printed forms 
 llx8i/ 2 inches in dimension, with headings calling for the 
 following information : 
 
 Complaint number (Same number as in detective's com- 
 plaint book) 
 
 Name of complainant 
 
 Classification of crime 
 
 Place of occurrence 
 
 Time and date of occurrence 
 
 Time and date reported 
 
 Details of complaint 
 
 Description of persons wanted in connection with crime, 
 with their name, address, alias, age, height, weight, 
 color of eyes, color of hair 
 
 Arrest and disposition, providing space for an accurate 
 description of the person arrested for the crime and 
 recording the final disposition of the case 
 
 Under the heading "Final Disposition" should be re- 
 ported when convicted or acquitted, and, if convicted, 
 the sentence imposed 
 
 On the reverse side of this card there should be captions 
 calling for a description of the property reported stolen. 
 
 Each complaint should be given the same number as the num- 
 ber it receives in the detectives' complaint book and all 
 subsequent references to the case should be by the complaint 
 number. 
 
 These cards should be filed in the detective division, indexed 
 by a cross reference card system to the name of the com- 
 plainant and the name of the person complained of. They 
 should be filed, classified as to crimes complained of, and 
 sub-classified alphabetically. 
 
 If an arrest is made in a case within 24 hours, a report of the 
 arrest should be entered on this card. Reports of subse- 
 quent investigations should be made out upon a second card 
 to be known as a progress or supplemental card, which card 
 should be of a color different from that of the original com- 
 plaint card but of the same size. The headings on this card 
 should call for: 
 
 The complaint number 
 
 Record of final action under headings of "Disposed Of," 
 ' ' Unfounded " and " No Results ' ' 
 
222 DENVER 
 
 Under the heading "Important Developments" should be 
 left sufficient blank space to report the details of im- 
 portant developments and the progress of investiga- 
 tions. 
 
 The bottom of the card should provide headings calling 
 for information , concerning arrest and disposition, if 
 any. 
 
 On the reverse side should be entered a statement, day by 
 day, of the action taken by the detectives investigating 
 
 the case, so that upon these two cards, or as many 
 progress cards as are necessary, would be contained a 
 complete history of the complaint and of the action 
 taken upon it. 
 
 Most of these cards should be signed by the detective assigned 
 to the case and the detective sergeant after reviewing them. 
 
 7 — Case Closed Cards. No case should be closed where an in- 
 vestigation stopped without an order from the deputy chief 
 or the detective sergeant. The order should be in writing 
 and upon ,a card which will provide headings calling for 
 definite reasons for closing the case. The procedure will be 
 for the detective working on the case to write upon the card 
 his recommendations for the closing of the case and his 
 reasons for presenting it to the deputy chief for his ap- 
 proval. When signed by the deputy chief the card should 
 be filed with the original complaint and supplemental cards. 
 
 8 — Detectives' Daily Reports. Each detective should be required 
 to make a daily report stating the time he reported for duty, 
 the cases he worked on indicated by number, and a brief 
 description of his activities in each case, stating the names 
 of persons interviewed and such other information as to 
 enable the deputy in charge of the division to judge of the 
 efficiency of the detective. The time spent in court should 
 be shown on this sheet with a record of the title of the case: 
 These time sheets should be forwarded daily for review to 
 the office of the chief and to the commissioner of safety and 
 then sent to the record and filing division to be filed under 
 the name of the detective. 
 
 9 — Daily Consolidated Reports. Each morning the deputy com- 
 missioner should furnish the chief with a consolidated re- 
 port showing the activities of the division for the preceding 
 24 hours, this report should show under proper printed 
 headings : 
 
 The number of complaints received during the 24 hours 
 classified as to time complained of 
 
 Total number of complaints under each of the crimes 
 complained of to date doing the current month 
 
DEPARTMENT OF SAFETY 223 
 
 Total number of complaints under the same headings 
 received up to the same period of the preceding year. 
 
 The number of arrests classified as to crimes and the num- 
 ber of convictions classified as to crimes 
 
 The number of detectives present 
 
 Number of those absent and the reason therefor 
 
 Total number of hours spent by members of the detective 
 division in the investigation of specific cases 
 
 Total number of hours in court 
 
 Total number of hours devoted to "free-lancing" or gen- 
 eral work 
 
 Number of arrests made by each detective classified as 
 to crimes 
 
 Total amount of property reported stolen 
 
 Total amount of property recovered. 
 
 This consolidated report should show also under like headings, 
 all the information called for on the daily consolidated re- 
 turn for the uniformed force. 
 
 This report should be made out in duplicate and the original 
 forwarded to the commissioner of safety. 
 
 10 — "Weekly Consolidated Reports. Each Monday morning the 
 chief should receive from the deputy a weekly consolidated 
 report which should contain a recapitulation of all of the 
 data contained on the daily consolidated reports. This re- 
 port should be made out in duplicate, the original being for- 
 warded to the commissioner of safety and filed in his office. 
 
 11 — A Telephone Record should be kept showing all messages, in- 
 coming and outgoing. This book should correspond to the 
 telephone record for use of the lieutenant and the chief's 
 office and the rules of entry suggested for these books 
 should also apply. 
 
224 DENVER 
 
 MUNICIPAL COURT 
 
 No Sessions of Court on Sunday 
 
 The municipal court is held in the City Hall each morning except 
 Sunday. As there is no session of the court on Sunday it is necessary 
 to provide the prisoners arrested on Saturday night with three meals 
 on Sunday. The business of the police could be greatly facilitated if 
 Sunday morning sessions of the municipal court were held. 
 
 Women Prisoners Are Arraigned With Men 
 
 Women prisoners are arraigned in the police court at the same 
 time as are the men prisoners. This practice should be abandoned and 
 all cases in which women are the defendants should be heard in the 
 matron's room immediately adjoining the court room. 
 
 Police Officers Untidy When In Court 
 
 The police officers observed in the court room were untidy in their 
 appearance and undignified in their conduct about the court room. 
 Some policemen were observed testifying with their coats unbuttoned, 
 chewing, and in anything but in a dignified and direct manner. Other 
 patrolmen were seated on a table by the side of the justice and many 
 were engaged in conversation. 
 
 The rules should require that the policemen appear in court in full 
 uniform or in citizen's clothes with their shields exposed. 
 
 Juveniles 
 
 Notwithstanding the statutes, lost children are frequently taken 
 to police headquarters in patrol wagons and lodged in jail in charge of 
 the matron. For this purpose the matron has one part of her cell room 
 which she devotes exclusively to children. 
 
 No child should ever be taken in the patrol wagon for any reason, 
 and no child should ever be delivered to the jail, but should be sent 
 directly to the detention home. 
 
DEPARTMENT OF SAFETY 225 
 
 RECORDS AND REPORTS 
 
 A study of the records of the bureau of police shows that the 
 system of recording, reporting and filing is most inefficient. The 
 records do not make possible intelligent statistical compilation for 
 ready reference. While the activities of the bureau are recorded in a 
 general way it is impossible to establish readily from the records facts 
 about the bureau which should be matters of current review. Although 
 the records maintained by the detective division are the result of in- 
 telligent thought and are well maintained the records concerning the 
 uniformed force are for the most part antiquated. The records which 
 should be maintained by the detective division separately and inde- 
 pendently have already been described. The records considered in this 
 section are those which are maintained or should be maintained in con- 
 nection with the management of the uniformed force and the office of 
 the bureau. 
 
 The rules should specify the records to be maintained, the reports 
 to be filed, and the manner of preparing and controlling them. They 
 should require the filing of current reports with the commissioner. 
 
 Consolidated Morning Return 
 
 Each morning the chief should forward to the commissioner a de- 
 tailed report of the activities of the force for the preceding 24 hours. 
 This report should be known as the ' ' daily consolidated return. ' ' The 
 headings should provide for the recording of the following information : 
 
 The date, day of the week. 
 
 The number of men present on each of the three platoons and 
 the number of officers by rank. 
 
 The number and name of persons absent and the cause of ab- 
 sence under the following classifications: 
 
 Detailed 
 "With leave 
 Without leave 
 Sick 
 Suspended. 
 
 The total number of posts day and night. 
 
 Number patrolled, number not patrolled. 
 
 Number of persons aided with description of the manner 
 aided, classified as to sex, as follows: 
 
 Number sick 
 
 Injured 
 
 Rescued drowning 
 
 Suicide 
 
 Found dead 
 
 Pound drowned 
 
 Lost children found 
 
 Foundlings. 
 
226 DENVER 
 
 Disposition in all aided eases should be shown under proper 
 headings. 
 
 All arrests, classified as to offenses and sub-classified as to 
 felonies, misdemeanors and juvenile delinquents showing 
 the number of male and female arrests under each of these 
 sub-classifi cations. 
 
 The number of complaints received, classified as to subjects 
 complained of, such as : 
 
 Burglaries 
 Murders 
 Hold-ups 
 Pocketpicking cases. 
 
 The number of persons reported missing 
 
 The amount of property reported stolen 
 
 The amount of property recovered 
 
 Number of convictions, classified as to crime 
 Sentences imposed. 
 
 In the tables showing the number of arrests, the number of com- 
 plaints received, and the amount of property reported stolen, the 
 figures for the same day of the preceding year should also be shown. 
 On the back of this report under the heading "remarks" should appear 
 a statement as to any important happening during the preceding 24 
 hours, such as accidents, loss or injury to property, etc. ' Attached to 
 this report should be the daily return from the detective division 
 already described. 
 
 Surgeon's Monthly Report 
 
 The surgeons render no report to the commissioner. They should 
 be required to furnish a monthly report in accordance with the sug- 
 gestions contained in this report, under the heading "surgeons." 
 
 Monthly Report of Action On Complaints 
 
 The commissioner at present receives no information concerning 
 either the number of complaints received or the results obtained upon 
 information. The chief should furnish the commissioner with a month- 
 ly report showing the action taken upon complaints. This report should 
 show the number of complaints received during the month, classified 
 by subjects, and the action taken upon them. Care should be taken in 
 this report to indicate clearly whether the action was taken upon the 
 complaints received during the month or whether it was taken upon 
 complaints previously received. 
 
 Monthly Report On Police Conditions 
 
 All the information contained upon the daily consolidated returns 
 should be recapitulated at the end of each month and furnished the 
 
DEPARTMENT OP SAFETY 227 
 
 commissioner on , the first day of the month. The form of this report 
 should be such as to permit of binding in a convenient size and the 
 present form should be abandoned. 
 
 On the monthly report should be shown the additional table cover- 
 ing every phase of police work. For example, there should appear on 
 this report the number of lights reported out, the number of fires 
 atttended by the police, the number of fires discovered by the police, 
 the number of alarms turned in by the police, the number of street 
 pavements reported broken, the number of sewer manhole covers re- 
 ported broken, the number of complaints received against members of 
 the force, the number of deaths, resignations, retirements and dismis- 
 sals, the quantity and value of property found by police, the amount 
 thereof returned to owners and the disposition of the remainder, etc. 
 
 Citizens' Complaint Book Should Be Established at Once 
 
 Except that in the sub-stations an informal record of complaints 
 received from citizens is maintained, there are no proper records of 
 citizens' complaints and the action taken upon them. 
 
 In order to furnish the information called for by the headings on 
 the consolidated return it will be necessary to establish additional 
 records and to perfect some of the records already maintained. To this 
 end a citizens' complaint book should be established at once. Every 
 complaint made at the station or sub-station, whether oral or in writ- 
 ing, should be recorded in the citizens ' complaint book. The pages in 
 this book should be numbered and it should be indexed both by name 
 of the complainant and the subject complained of. The names of the 
 officers assigned to investigate the complaint and the result of their 
 investigation should be entered under proper headings. The original 
 letter of complaint, with a copy of the report thereon, should be for- 
 warded to the office of the commissioner of safety. 
 
 Complaints requiring detective attention, such as robberies and 
 hold-ups, should only be entered in brief and marked referred to the 
 detective division. The complaint in detail should be entered in the 
 citizens' complaint book. 
 
 It should be the rule that all complaints be handled either through 
 the detective division, the uniformed patrolmen or the special squad 
 attached to the commissioner's office. Therefore the records of the 
 same should appear in some one of these three records. At the end of 
 each month the complaints should be recapitulated showing complaints 
 classified as to subjects and the results of investigations, as complaints 
 unfounded, arrests made, nuisances abated, etc. Complaints which 
 have been referred to the detective division for investigation should 
 not be included in the recapitulation, as these will be shown in the 
 recapitulation of the detective division complaint book. 
 
 Record of Arrests 
 
 The present record of arrests is inadequate in that the pedigree of 
 the prisoner does not include his address or any facts concerning cause 
 
228 DENVER 
 
 for the arrest. In this book is also kept a record of lodgers and of 
 persons aided. The book is kept improperly in that the cases are not 
 numbered or classified. 
 
 No police record is more important than the record of arrests. 
 The pedigree of the prisoner should include his address and there 
 should be entered in each case the history of the arrest and subsequent 
 proceedings. The book should also include a heading calling for the 
 name and address of complainant. No other records should be kept 
 in this book. 
 
 In the second column under the heading "No." beside the number 
 of the arrest, a symbol should be entered to indicate the class of the 
 case as follows : 
 
 " M ' ' — misdemeanor 
 "P"— felony 
 "J" — juvenile delinquent 
 "V"— vagrant. 
 
 At the end of the month the arrests recorded in this book should 
 be recapitulated so as to show the number of males and females, the 
 occupation, and ages of prisoners, the number of arrests for felonies, 
 misdemeanors, juvenile delinquency, etc., etc. 
 
 Desk Blotter Should Be Established. 
 
 No chronological history of the proceedings of the police bureau 
 is kept, and many proceedings which should be a matter of record are 
 not recorded at all. Therefore it is recommended that the rules require 
 that a desk blotter be maintained. In this book should be kept a com- 
 plete comprehensive history of the bureau. It should be the only book 
 in the bureau referred to as "the blotter," all other books being 
 known as records. The entries made in this book and the manner of 
 making them should be governed by specific rules. The pages should 
 be numbered and the rules should require that the blotter contain the 
 following : 
 
 1 — A record of all business affecting the department or any mem- 
 ber of it entered therein chronologically 
 
 2 — Record of service performed by each member of the department 
 (except the detective division) with the time and location of 
 the service 
 
 3 — In the captains' and the sergeants' handwriting the time at 
 which they arrive at the station or sub-station, the time they 
 leave and the purpose of leaving 
 
 4 — Delinquencies of members of the command 
 
 5 — An itemized list of the property coming into the temporary 
 possession of the command or any member of it (not to in- 
 clude property taken from the prisoners), a record of the 
 circumstances under which it was found, the name and 
 
DEPARTMENT OF SAFETY 229 
 
 address of the person who found it, the name and address of 
 the owner, if known, and the disposition of it 
 
 6 — A record of all complaints other than letters of complaint which 
 otherwise would be entered in the citizens' complaint book, 
 and matters requiring police action and the action taken 
 thereon 
 
 7 — A record of subpoenas received or served upon members of the 
 force 
 
 8 — All matters reported by members of the command affecting any 
 duty performed by any of them. 
 
 Every member of the command should be accounted for in the roll 
 call of the platoon or detail to which he is attached, and his presence 
 or absence should be noted in the desk blotter. The following abbrevia- 
 tions are suggested for making entries in the desk blotter : 
 
 Surg. 
 
 Surgeon. 
 
 Capt. 
 
 Captain. 
 
 Lt. 
 
 Lieutenant. 
 
 Sgt. 
 
 Sergeant. 
 
 Ptl. 
 
 Patrolman. 
 
 Dect. 
 
 Detective. 
 
 Att. 
 
 Attendant. 
 
 Mts. 
 
 Matron. 
 
 Plat. 
 
 Platoon. 
 
 Act. 
 
 Acting. 
 
 Comd. 
 
 Commanding. 
 
 Mt. 
 
 Mounted. 
 
 P.P. 
 
 Patrol post. 
 
 O.D. 
 
 On duty 
 
 O.R. 
 
 On reserve. 
 
 D. D. 
 
 Desk duty. 
 
 P.Wg. 
 
 Patrolwagon. 
 
 S. B. 
 
 Signal Box. 
 
 M. 
 
 Male. 
 
 F. 
 
 Female. 
 
 In recording assignments to duty the names of the patrolmen 
 should be entered on a line with their respective posts or duties oppo- 
 site each name, space being left at the right of post designation for 
 remark. Under the heading "Remarks" notations of absences and 
 changes of assignments to duty should be made. 
 
 A red line should be drawn the length of the page, allowing two 
 inches of margin on the left side. The entries should be made chrono- 
 logically as they occur, with the time of the entry written in red ink 
 in the margin. Under the time should be entered, also in red ink, a 
 marginal notation as to the subject of the entry. For example, if the 
 entry be to the effect that the captain left to patrol the precinct, the 
 words "Cap. 0. P." should appear in red ink in the margin under the 
 time; or if the entry be one relating to a fire the word "Fire" should 
 
230 DENVER 
 
 appear in red ink. The same applies to such entries as roll call, acci- 
 dents, etc. 
 
 The rules should prohibit erasures in this and in every other record, 
 and prescribe that in case of error a red line be drawn through the 
 erroneous entry and the correction written beside it and initialed by 
 the officer making the correction. If the entries for a day extend only 
 to the middle of the page, the page should be properly closed so as to 
 prevent the making of additional entries later. 
 
 A similar blotter should be maintained at each of the sub-stations. 
 
 Record of Aided Cases 
 
 Such accidents as are reported upon by the police are recorded in 
 an informal book kept for this purpose. There is no index and the 
 description in connection with the eases is wholly inadequate. The 
 book has no printed headings. Because of litigation arising out of 
 street accidents constant demands are made upon the police of most all 
 cities for certified copies of the police records as to the accidents. 
 Therefore, the records of aided cases should be compiled in such a 
 manner as to facilitate ready reference. 
 
 A special record book, to be known as the "record of aided cases," 
 should be opened. In this book should be entered a complete and de- 
 tailed account of all persons receiving aid through the bureau of police. 
 The record in each case should include the name, age, address, color, 
 nationality, and special condition of the person aided, and a detailed 
 statement of facts in connection with the case. It should also include 
 the names and addresses of witnesses, and in brief any statement made 
 by them. 
 
 The pedigree of persons who receive lodging at the station house 
 should be regarded as proper entries for the record of aided cases. In 
 making entries of lodging cases, additional information should be 
 recorded under proper headings, such as — 
 
 Number of other times aided by department of police 
 
 Number of persons dependent upon lodger for support 
 
 Length of time out of employment 
 
 Occupation 
 
 By whom last employed. 
 
 This book should have proper printed headings. Each case en- 
 tered should be numbered consecutively, beginning the first case with 
 number "1" in the series to which it belongs and identifying it by the 
 initial letter of the series, as — 
 
 "A" Accident cases 
 "L" Lodgers 
 "P" Prisoners. 
 
 Telephone Record 
 
 Notwithstanding the fact that much of the business of the bureau 
 of police is conducted over the telephone, no telephone record is main- 
 
DEPARTMENT OP SAFETY 231 
 
 tained in any of the subdivisions or in the main office. It is therefore 
 recommended that a telephone record be opened in the office of the cap- 
 tain, the chief's office,, and the detective division, and that every in- 
 coming and outgoing message be recorded. The rank, surname, and 
 command of persons receiving and transmitting the message, and the 
 surname and official designation of the persons under whose direction 
 it was sent should be recorded, the time of completing the conversation 
 to be considered as the time of the message. 
 
 Card Records which Should Be Maintained. 
 
 The office of the commissioner should be equipped with a card 
 record system to include in separate files records of the following : 
 
 Members of the force 
 Licensed premises 
 Arrests 
 Persons Aided 
 Arrests, intoxication 
 Lodgers. 
 
 Card Register of the Force 
 
 A book register of the force, which is very complete with regard 
 to the information concerning members, is maintained in the office of 
 the chief. This, however, is a record of appointments to' the force and 
 not a complete record concerning the history of each policeman while 
 on the force. The register of the force should be maintained upon 
 cards. These cards should show for each member the date of appoint- 
 ment to the force, the first assignment, name, age, residence, house 
 telephone number, whether married or single, number of children and 
 former occupation. They should contain a complete history of each 
 policeman from the day he enters the force until he ceases to be a 
 member. 
 
 Licensed Places Record 
 
 A card record should be maintained of every licensed business 
 which in any way comes under the jurisdiction of the police. The card 
 should show the name, address, character of business, the number and 
 kind of licenses issued, and the date of issuance. Arrests of licensed 
 persons or arrests upon licensed premises should be entered on these 
 cards so as to show the history of the place to serve for future 
 reference. 
 
 Arrest Card 
 
 The present index to the arrest book is not in such form as to make 
 ready reference possible. The information concerning each arrest, in 
 addition to the record of arrests, should be placed upon cards. These 
 cards should be filled out by the jailer to whom the prisoners are de- 
 livered. The printed slip now used for sending the pedigree of prison- 
 ers from the jail to the desk sergeant should be supplanted by a card 
 
232 DENVER 
 
 having printed headings calling for a complete history of the case. 
 Instead of filling out the printed slip now in use, the jailer would fill 
 out the card with pen and ink. After being copied into a record of 
 arrest this card would be retained at the sergeant's desk until after 
 the session of court in the morning, when the disposition of the case 
 would be posted upon it. It should then be sent to the office of the 
 commissioner of safety and there filed alphabetically. In cases where 
 the defendant is held over for court, final disposition of the case when 
 received from the courts should be entered upon these cards. Thus, 
 in the office of the chief there would be a complete record of every 
 arrest made, with detailed information concerning them alphabetically 
 arranged. No great labor would be involved and the only change from 
 the present procedure would be having a card instead of a thin sheet 
 of paper and posting the final disposition upon this record. Thus, in 
 preparing the records for the annual report, instead of showing under 
 the heading of disposition, boimd over and held for trial, the final 
 disposition there would appear in all cases. 
 
 Aided Card 
 
 A card containing printed headings identical with those of the 
 jailer in the record of aided cases would be filled out for each case and 
 forwarded to the office of the commissioner, where it would be filed 
 alphabetically. 
 
 Intoxication Cards 
 
 In addition to the regular arrest card suggested, in each ease of 
 arrest for public intoxication, a separate card known as the "intoxica- 
 tion card" should be made out. Under the present system of recording 
 the inebriety pedigree of prisoners, for instance, it would be impossible 
 to assemble any statistics for a study of inebriety in the city of Denver. 
 It is the practice to discharge from custody without arraigning in court 
 prisoners arrested charged with intoxication involving no breach' of 
 the peace or other crime. In view of the effort being made throughout 
 the country to make a scientific study of the causes and methods of 
 treatment of inebriety cases it is essential that cities lend every aid by 
 preparing card statistics upon the subject. 
 
 For this purpose it is suggested that the intoxication card be 
 adopted. This record should include the following information con- 
 cerning each prisoner arrested for intoxication, or disorderly conduct 
 and intoxication : 
 
 Name 
 
 Address 
 
 Age 
 
 Sex 
 
 Birthplace 
 
 Birthplace of father 
 
 Married or single 
 
 If married, number of children and their ages 
 
 If single, persons dependent upon prisoner for support 
 
DEPARTMENT OP SAFETY 233 
 
 Condition of prisoner when brought into station house as to 
 
 degree of intoxication 
 Short history of cause for arrest 
 "Whether arrested before 
 If so, how many times 
 Occupation 
 Salary received 
 Employed or unemployed 
 If unemployed, how long 
 Education. 
 
 Under this heading the prisoner should be required to 
 state definitely whether his education covered common 
 school, high school or college course. 
 
 At what age prisoner first took intoxicating drinks. 
 1 At what age prisoner began to drink excessively. 
 "What form of intoxicating liquor the prisoner is in the habit 
 
 of drinking. 
 Whether the prisoner has ever taken any special drink cure, if 
 
 so, when and what treatment ? 
 Whether prisoner has ever been convicted of a crime, if so, 
 
 how much time was spent in jail? 
 Disposition of case. 
 
 This card record should not be made out until the prisoner is suf- 
 ficiently sober to answer questions intelligently. He should then be in- 
 terrogated prior to his arraignment in court, and if he refuses to 
 answer, the magistrate should be so advised and requested to have the 
 information obtained. 
 
 In cases which are disposed of by the deputy chief or the chief 
 without arraignment in court, this information should be secured be- 
 fore the prisoner is discharged from custody. 
 
 These cards should be filed alphabetically and an annual report 
 based upon the statistics assembled thereon should be made. 
 
 Lodging Card 
 
 A record of persons given lodging at the police station is kept in 
 the record of arrests. In order that the city may have complete statis- 
 tics concerning the unemployed and those applying for lodging at the 
 station house it is recommended that a card record of such cases be 
 maintained. The card should call for detailed information concerning 
 the history of the applicant for free lodging and should have printed 
 headings as follows : 
 
 Name 
 
 Age 
 
 Address 
 
 Length of time in city 
 
 City of actual residence of the applicant 
 
234 DENVER 
 
 Under what circumstances did the applicant come to Denver — 
 Promise of employment — visit — or to make residence ' 
 
 Occupation 
 
 When last employed i 
 
 By whom last employed 
 
 Length of time in last position 
 
 Salary 
 
 Where born , 
 
 Citizen or alien 
 
 Married or single 
 
 Number of persons dependent upon the applicant for support 
 
 Whether applicant uses intoxicating liquors to excess 
 
 Whether applicant has ever been convicted of a crime 
 
 Time spent in prison, if any 
 
 Whether applicant learned his trade in prison 
 
 Cause of present unemployment 
 
 Education, none, common school, high school, university ' 
 
 At what age applicant first went to work" j 
 
 Whether applicant was an orphan when first employed * 
 
 When last given free lodging 
 
 Name and address of children whom applicant believes could 
 give him aid. 
 
 These cards should contain an accurate description of each lodger. 
 They should be kept on file in the captain's office and used by the desk 
 officer to determine whether an applicant has previously received lodg- 
 ings. In case an applicant appears to have applied frequently for lodg- 
 ings his case should be investigated or he should be charged with 
 vagrancy and committed, according to the result of such investigation. 
 
 All lodgers should be required to do general cleaning about the 
 jail for at least an hour before they are discharged. 
 
 Vacant House Notices 
 
 The patrol force should be notified of houses vacant on their posts 
 and a specially printed card should be provided for this purpose. A 
 book to be known as the "Vacant House Record" should be established 
 in which should be entered the location of the house, the date the 
 bureau was notified, the name of the person notifying and the date the 
 information was furnished to the police officer. 
 
 Annual Report 
 
 The annual report of the bureau shows the total number of arrests, 
 classified as to causes of arrest, with tables showing the sex, age, occu- 
 pation, nativity and disposition of the prisoner in each case; a table 
 showing the stock impounded; a table showing the amount of stolen 
 property recovered; a report of the city jailer as to the number of per- 
 sons placed in his custody, the amount of fines collected by him and 
 the disposition of the prisoners delivered to other authorities; execu- 
 tions received; a report of the police matron, corresponding to that 
 filed by the jailer ; a report of the police surgeons showing the total 
 
DEPARTMENT OP SAFETY 235 
 
 number of cases handled, classified as to fatal accidents, police officers 
 treated, etc. 
 
 The annual report, however, fails to be of any administrative 
 value, for while it purports to represent the activities of the police it 
 merely describes the successful termination of cases and does not tell 
 anything as to crime conditions. It fails to point out the one essential 
 detail in judging police efficiency, that being the number of complaints 
 received, classified as to crimes. Thus, all that one could learn from 
 the annual report, in effect, is the number of arrests and the causes 
 with the disposition thereof. 
 
 The report is further defective in that it has no comparative 
 tables; it contains no financial statement showing the cost of policing 
 the city, and it makes no reference to such matters as appointments, 
 transfers, promotions, retirements, dismissals, etc. 
 
 Complete Detailed Report Recommended 
 
 That the annual report fails to show a true picture of the crime 
 conditions is not surprising, since it would be practically impossible to 
 compile a satisfactory report from such records as there are at present. 
 With the system recommended in this report, properly supervised, it 
 would be possible to issue an intelligent and comprehensive annual 
 report. 
 
 Based on the records the annual report should contain adequate 
 statistics of police activity arranged in tables which would be of real 
 value in determining the efficiency of the force, showing the crime con- 
 ditions of the city, furnishing a guide to council in the matter of enact- 
 ing ordinances affecting the police and the suppression of crime and 
 presenting a true picture of the activities of the bureau not only by a 
 statement of fact for the year reported upon, but by comparisons with 
 former years. 
 
 The report should be divided into sections as follows : 
 
 1 — A section devoted to the welfare of the force. In this section 
 should appear tables showing: 
 
 Number of appointments 
 
 Transfers 
 
 Promotions 
 
 Deaths 
 
 Dismissals 
 
 Trials upon charges and dispositions 
 
 Reinstatements 
 
 Number of days of absence of policemen due to illness 
 
 Prevailing causes of illness 
 
 Sanitary condition of station houses 
 
 2 — A section showing the financial condition of the bureau. In 
 this section there should be tables showing : 
 
 Total amount of money appropriated, year by year, for the 
 past five years 
 
236 DENVER 
 
 Expense tabulated as to salaries, repairs and supplies, new 
 equipment, feeding of prisoners, printing, procuring of 
 evidence, maintenance of horses and automobiles and 
 other expenditures 
 
 Revenues from license fees, sale of condemned equipment 
 and policemen's fines 
 
 3 — A section giving statistics as to repairs and supplies prepared 
 in tabular form as to — 
 
 Repairs. 
 
 Character, amount and value of new equipment purchased 
 
 Supplies 
 
 4 — A section showing the activities of the force. This section 
 should be divided into two parts^ namely, detective division 
 and uniformed force 
 
 a — Under the heading "detective division" the fullest de- 
 tailed statistics possible should be furnished in tab- 
 ular form as to the following : 
 
 (1) Complaints received requiring detective atten- 
 
 tion, showing the number investigated, the 
 number unfounded, the number upon which 
 arrests were made, those upon which no 
 action at all was taken, and the number up- 
 on which no results were obtained after 
 action had been taken 
 "pending " 
 
 (2) Arrests for felonies made by members of the 
 
 detective division classified as to crime, 
 showing the number of males and females, 
 and the disposition of the cases under the 
 headings "convicted," "acquitted" and 
 
 (3) Arrests for misdemeanors. The same classifi- 
 
 cation as for felonies should be used 
 
 (4) Separate tables showing arrests upon war- 
 
 rants, pick-ups and those brought back from 
 other cities 
 
 (5) Number of murders committed and reported 
 
 each year for the five preceding years, with 
 the number of arrests and dispositions stated 
 in the same table. 
 
 (6) Cases of burglary and house-breaking report- 
 
 ed. This table should show how the burg- 
 lary wf>i effected under a form heading, 
 such as false keys, breaking doors insecurely 
 fastened, etc., and the hours between which 
 the burglary was believed to have been com- 
 
DEPARTMENT OF SAFETY 237 
 
 mitted, the total value of property stolen, 
 the total value of the property recovered, 
 the number of cases in which no ultimate 
 loss occurred, number of cases in unoccupied 
 houses, and the number of eases in which 
 violence was used. 
 
 (7) Number of arrests and investigations made by 
 each member of the detective division, clas- 
 sified as to crime and place under proper 
 headings. 
 
 b — Under the heading "uniformed force," the fullest de- 
 tailed statistics should be furnished in tabular form 
 as to the following: 
 
 (1) Complaints received and investigated by the 
 
 uniformed force, showing the number in- 
 vestigated, the number unfounded, and the 
 number upon which arrests were made, 
 those upon which no action at all was taken, 
 and the number upon which no results were 
 obtained. 
 
 (2) Arrests for felonies made by the members of 
 
 the uniformed force, classified as to crime, 
 showing the number of males and females, 
 and the disposition of the cases under the 
 headings "convicted," "acquitted" and 
 "pending." 
 
 (3) Arrests for misdemeanors. The same classifi- 
 
 cation and headings as for felonies should 
 be used. 
 
 The report should contain a separate table of arrests classified 
 by crimes, in which should be noted all arrests made by 
 motorcycle men, together with the disposition of same. All 
 of these tables should show the total number of arrests under 
 the same heading for each of the preceding five years. 
 
 5 — A section showing in tabular form persons aided by the bureau 
 of police. This table should show the number of male and 
 female persons to whom assistance has been given. By per- 
 sons aided is meant injured persons sent to the hospital, miss- 
 ing persons found, dead bodies sent to the morgue or home, 
 children found by the police, foundlings taken care of, etc. 
 
 The headings for this table should include — 
 
 Assault 
 
 Accidental injury 
 Attempted suicide 
 Found dead 
 Found drowned 
 
238 DENVER 
 
 Insane 
 
 Rescued from drowning 
 
 Sick 
 
 Suicide 
 
 Persons missing 
 
 Number reported missing 
 Number located by police 
 Number otherwise found 
 Number still missing 
 
 Lost children — 
 
 Number reported lost 
 Number found by police 
 Number reported found 
 Number still missing. 
 
 Foundlings — 
 
 Number found by police 
 
 Number brought to the station house. 
 
 Lodgers — 
 The side columns should contain the following headings: 
 
 Male 
 
 Female 
 
 Total 
 
 Claimed 
 
 Taken home 
 
 Taken to hospital 
 
 Attended at station house 
 
 Prisoner 
 
 Taken to morgue 
 
 Restored to parents. 
 
 6 — A section showing general crime statistics. This section should 
 contain in tabular form the fullest statistics as to the follow- 
 ing: 
 
 a — Arrests for intoxication: Headings for this table should 
 be so arranged as to show in separate columns the num- 
 ber of arrests between 1 a. m. and 6 a. m., 6 a. m. and 
 1 p. m., 1 p. m. and 7 p. m., 7 p. m. and 1 a. m. on each 
 day of the week. Additional headings based on the in- 
 formation contained on the intoxication arrest cards 
 should be incorporated in a table. A distinction should 
 be made between arrest for intoxication and disorderly 
 conduct involving a breach of the peace. 
 
 Because of a lack of statistics concerning arrests, 
 it will be impossible in the next annual report to show 
 arrests for more than one offense by the same person. 
 Columns, however, under the headings, first, second, 
 
DEPARTMENT OF SAFETY 239 
 
 third and fourth arrests should be incorporated in the 
 table, and the information under these headings based 
 upon the statements of the prisoners as to the number 
 of former arrests. In subsequent years, however, the 
 information under these headings should be based upon 
 the department's own statistics. 
 
 b — Arrests for disorderly conduct and prostitution. These 
 tables should show the nationality and sex of all pris- 
 oners, classified as to crime. The information in this 
 table should be in accordance with the forms already 
 suggested. 
 
 c — Arrests for juvenile delinquency. This table should show 
 the number of children arrested for juvenile delin- 
 quency of various ages, classified as to the nature of 
 offense. " It should show the disposition of each case 
 under the following headings: 
 
 Tried 
 
 Convicted 
 
 Acquitted 
 
 Discharged 
 
 No complaints taken 
 
 Paroled 
 
 On bail 
 
 Detained in charitable institutions 
 
 Sent to reformatory school 
 
 Forfeiture 
 
 Death of defendant. 
 
 A — Sentences of persons imprisoned and fined. This table 
 should show the amount of fines tabulated in amounts 
 from $5.00 to $1,000.00, with side columns for terms of 
 imprisonment from five days to over ten years. 
 
 e — Terms of imprisonment, tabulated to show prison sen- 
 tences imposed, from five days to life, classified as to 
 crime. 
 
 f— Arrests for intoxication, disorderly conduct and prostitu- 
 tion on holidays. 
 
 g— Disposition of all arrests, classified as to offense, showing 
 total number of arrests made for each crime, records of 
 convictions and acquittals (with sub-classifications as, 
 to convictions by plea of guilty, or by trial and acquit- 
 tals by direction, by verdict), or discharged (sub-classi- 
 fied as to discharges by magistrates, or grand jury, by 
 dismissal of indictment, or on own recognizance), and 
 cases pending, subdivided as follows: 
 
 In jail 
 
 On bail 
 
 Under parole and forfeiture. 
 
240 DENVER 
 
 h — Persons convicted of offenses, classified according to age 
 and sex. 
 
 i — Record of weapons confiscated, classified as- to — 
 
 Revolvers 
 Shotguns 
 Stilettos 
 Swords. 
 
 7 — Signal Service. — Under this heading should be given statistics 
 as to the number of incoming and outgoing telephone calls 
 over the department wires as well as through the municipal 
 board, and all recommendations as to improving the tele- 
 phone service. 
 
 8 — Recommendations — Under this heading should be noted all rec- 
 ommendations concerning the force a*nd its management. 
 
DEPARTMENT OF SAFETY 241 
 
 Part III — The Bureau of Fire 
 
DEPARTMENT OF SAFETY 243 
 
 PART III.— THE BUREAU OF FIRE 
 ORGANIZATION 
 
 The organization of the bureau of fire is as follows : 
 
 Salary per month 
 
 1 Chie f $300.00 
 
 1 Deputy chief 200.00 
 
 4 Assistant chiefs 175.00 
 
 20 Captains 115.00 
 
 22 Lieutenants 105.00 
 
 9 Engineers 105.00 
 
 10 Stokers (2 provisional) 97.50 
 
 98 Firemen (first grade) 95.00 
 
 18 Firemen (second grade) 90.00 
 
 24 Firemen (third grade) 85.00 
 
 15 Firemen (fourth grade) 80.00 
 
 2 Fire wardens 95.00 
 
 1 Superintendent of lines 115.00 
 
 1 Lineman 95.00 
 
 1 Machinist 115.00 
 
 2 Operators 95.00 
 
 229 
 
 Three firemen of the first grade and one operator are detailed as 
 fire wardens. 
 
 Two firemen of the second grade are detailed as operators. 
 
 One fireman of the first grade is detailed as carpenter. 
 
 One fireman of the first grade is detailed in machine shop. 
 
 One fireman of the first grade and one of the second grade are 
 detailed as linemen. 
 
 One fireman of the first grade is detailed as messenger to the com- 
 missioner of safety. 
 
 Chief Executive Head 
 
 The fire bureau is organized in accordance with the approved plans 
 adopted in most large cities. It is supervised by a chief, whose control 
 over the force is emphasized by the excellent discipline maintained. 
 The efficiency of the bureau as a fire-fighting organization, due to the 
 adoption of progressive methods, has resulted in a comparatively low 
 fire loss. Although the bureau is well organized and its members are 
 given Considerable training, its efficiency is reduced because of the 
 lack of fire prevention law. 
 
 No Written Report Furnished Commissioner 
 
 Although the chief confers daily with the commissioner of safety, 
 he does not submit any written reports which would keep the com- 
 
244 DENVER 
 
 missioner properly advised of the activities of the fire bureau. 
 
 As the administrative head, the commissioner is reauired to direct 
 and advise in the management of the fire bureau 5 rermired to dir i s 
 necessary that he have before him each day a cotf ™™-™£ ]£ dir ,rt ' 
 describing in a concise and detailed manner the opej rerlT1 i r ed to dir rce 
 showing their successes and their failures as well. * rermired to dir 
 
 . j rermired to dir. , 
 
 It is therefore recommended that the chiei tile 5 rermired to dir ltn 
 
 the commissioner, the form of which will be foum rermired to dirche 
 
 section of this report discussing records and report? rermired to dir 
 
 j rermired to dir 
 
 „.,„,,.. „ _. ..,„,.- , T « rermired to dir 
 
 Daily Meeting of District Chiefs Unnecessary 
 
 Each morning the district chiefs report to the office of the chief 
 for instructions and conference. This daily conference brings the dis- 
 trict chiefs from their districts unnecessarily. While it is wise for the 
 chief to confer occasionally with his assistants, it is unnecessary that 
 these conferences be held daily, and it is recommended that they be 
 discontinued. If the chief desires to confer with any one of his chiefs, 
 it is easy for him to summon the one desired to his office. All other 
 matters should be made the subject of written orders and reports, and 
 not of conference. 
 
 There are two regularly appointed fire wardens and four firemen 
 assigned to duty as fire wardens. One is detailed to visit each of the 
 seven large theaters daily and collect the reports of the house firemen. 
 Another supervises and inspects the smaller moving picture houses. 
 Another devotes his time to collecting data concerning insurance upon 
 premises where fires have occurred; while the remaining three make 
 special investigations upon the order of the chief with regard to viola- 
 tion of ordinances and refusals to comply with orders. Three of the 
 four firemen assigned to warden duty are men whose services could not 
 be utilized in connection with fire-fighting work. , 
 
 The duties performed by the fire wardens are for the most part 
 duplication of the inspection work performed by the regular firemen 
 attached to the fire stations. The number of fires is not sufficient to 
 warrant the use of the entire time of one fireman in collecting insur- 
 ance data. The time of a fireman should not be used in collecting re- 
 ports from the theater firemen, who should be required to file these 
 reports themselves. If the ordinance governing theaters were strictly 
 complied with, the theaters would be guarded by members of the force 
 whose salaries would be paid by the theatrical managers. That three 
 of these firemen are physically unable to perform duty in connection 
 with fire-fighting is no excuse for continuing these unnecessary posi- 
 tions. Incapacitated firemen should be retired and their places filled 
 by active firemen. It is therefore recommended that the position of 
 fire warden be abolished. 
 
DEPARTMENT OF SAFETY 245 
 
 TRAINING OF FIREMEN 
 
 Men Trained on Tower 
 
 The bureau maintains a training tower in the corporation yards 
 immediately across from fire headquarters. This tower is used for the 
 training of all members of the force during the summer months. It is 
 put into service, weather permitting, about May 1, and continues in 
 use as long as the weather permits. 
 
 Training consists largely in the use of ladders, but attention is 
 given to hose service as well. There are no daily drills at the fire 
 houses. No lectures are given to members of the force, and recruits 
 coming into service during the months in which the tower is not in use 
 receive no special training except through advice and instructions 
 from the officers and other members of the company to which they 
 are assigned. 
 
 The fire loss of the city and the general discipline of the men do 
 not especially indicate any absence of training, nor did the men ob- 
 served in service at fires appear to be poorly trained, yet their effi- 
 ciency could be greatly increased if training and instruction were con- 
 tinued throughout the year. 
 
 "While the training tower affords a method of instructing the men 
 in the practical side of fire-fighting and in giving them experience in 
 ladder climbing, etc., it cannot take the place of a training school for 
 fire service. It should be merely a part of the equipment of such a 
 school. 
 
 Training School Should be Established 
 
 Council should provide for the establishment of a training school 
 for firemen. This school should give courses not only for newly ap- 
 pointed firemen, but for the present members of the force as well. 
 
 The course of study should include, in addition to the practical 
 instructions now given, lectures and instructions upon 
 
 1 — Administration 
 
 a — Discipline (respect for authority) 
 b — Reports and records 
 c — Responsibility for city property 
 d — Rules and regulations 
 
 2 — Physical drill 
 
 a — Setting-up exercises 
 
 b — Physical appearance of the force 
 
 c — Dangerous fires in general 
 
 d — Precautions to be taken in emptying burning buildings 
 
 e — General fire-fighting 
 
 f — Care of apparatus and equipment 
 
 g — Combustibles and explosives 
 
246 DENVER 
 
 h — Sprinklers and standpipe 
 
 i — Conservation of property in burning buildings 
 j — Auxiliary fire appliances, including special additional ap- 
 pliances 
 
 k — Water pressure systems 
 
 1 — Different building constructions 
 
 m — Duties of firemen in theaters and public assemblies 
 
 n — Fire prevention 
 
 o — Records and reports 
 
 p — General discipline. Conduct in the trial room as wit- 
 nesses charges ; speeificatons, etc. 
 
 Training School Should be in Charge of an Experienced Officer 
 
 The bureau is fortunate in having an assistant chief who is ex- 
 perienced in the instructing and training of men. A class should be 
 formed for the captains, who should be required to conduct drills and 
 to lecture to members of their commands. Not a day should go by 
 without the. firemen receiving some instructions in the line of their 
 duties. 
 
 During severe weather, when it is impossible to conduct outdoor 
 drills with the apparatus, instruction should go on inside of the fire 
 houses taking the form of lectures and instruction in subjects which 
 can be taught easily within doors, such as — 
 
 1 — Tying of knots in the handling of ladders, lines of hose and 
 
 other equipment 
 2 — Emergency repairs to hose (the use of jackets, etc.) 
 3 — The use of wire cutters, hooks, picks, door openers, etc 
 4 — Connecting lines of hose 
 5 — Carrying of injured and suffocated persons' 
 6 — First aid to the injured. 
 
 By this it is not meant to imply that the present fire-fighting force 
 is not receiving instructions. These recommendations carry with them 
 the thought of utilizing the many hours of idle time of the firemen. 
 They should be furnished books upon the subject of fire-fighting and 
 required to read them. "Written tests should be held occasionally and 
 the men rated according to the results thereof. 
 
DEPARTMENT OP SAFETY 247 
 
 DISTRIBUTION OF THE FORCE 
 
 The city is divided into five fire districts. One is in charge of the 
 deputy chief, and the others are in charge of assistant chiefs. 
 
 There are 18 fire stations, housing companies as follows : 
 
 9 engine companies 
 
 6 truck companies 
 
 9 engine (hose) companies. 
 
 There are two new stations which will be ready for occupancy as soon 
 as the apparatus arrives. This will make a total of 20 fire stations. 
 
 The distribution of the fire houses may be said to be good. The 
 members of the force are distributed as follows: 
 
248 
 
 DENVER 
 
 
 fl 
 
 Ph 
 
 CD 
 
 O 
 
 o 
 
 o 
 
 CO 
 
 « 
 
 1 &H 
 
 00 
 
 --§ 
 
 a as 
 
 O "-H 
 
 * 9 
 
 06 O 
 O o 
 *flrd 
 
 a 
 
 o 
 bo 
 ca 
 
 CD 
 
 ^2 
 
 a cs 
 
 ,; b 
 
 2oW 
 
 a a> 
 
 CD O 
 
 9 " 
 
 'So 
 
 C3 
 CD 
 
 o CO 
 
 §3 
 I- 
 
 eg ^ 
 
 CD 
 CD W 
 Hi O 
 ° rfl 
 
 a -2 * .a 
 
 fl 
 CD o ® 
 
 3 «s a 
 
 f 3 fe r 
 
 H !S ^ 
 
 Ph fflW 
 ,* M *i 
 
 ran™ 
 >-H,flh3 
 
 bo' 
 
 cs a 
 
 a cd 
 
 S £ 
 cd e 
 
 CO 5 CD 
 O £ CO 
 
 cd 
 
 cd 
 =D~.S 
 
 Prfl 
 CD O 
 
 03 
 O 
 rfl 
 
 cd 
 +^ 
 N 
 
 CD 
 
 3 <u 
 
 .2 <^ 
 
 i> p +j 
 
 pi 
 
 fl fl Of 
 
 O O w 
 
 bo bo £ 
 
 CO cd 
 
 £ 
 
 CD CD P< 
 
 una 
 o o jr 
 -flrfl 3 
 
 S-i 
 CD 
 CO 
 
 o 
 o 
 
 =4-1 
 I 
 
 LO 
 CO 
 
 fl 
 
 o 
 bo 
 cO 
 
 CD 
 !> . 
 
 S^ 
 
 >H CO 
 
 60 rj 
 
 CD +J 
 
 _, cd 
 
 fl if 
 bOr£ 
 5 fl 
 
 fe cd 
 
 13 
 
 fl 
 cd 
 
 r-l^-fl 
 
 cd' cd S 
 fl.S'S 
 
 C- CD 
 
 .a .a A~ 
 
 a bo p 
 
 CD CD CO 
 05 B3 P 
 
 m A H 
 
 S CD CD CD 
 
 £ S-c f-1 W 
 
 £<|<jrfl ^^CGCQjg 
 
 o o 
 
 *« o 
 
 b-^.a 
 ^■sg bo 
 
 CD 
 
 rfl 
 
 CD 
 
 fl 
 O 
 
 cd 
 fl 
 
 ■pH 
 
 a 
 
 O 
 CD 
 
 ?H 
 O 
 
 fl " 
 
 o 
 
 fl 
 
 -4J 
 
 CD 
 CD 
 
 > 
 U 
 CD 
 
 CD 
 fl 
 
 •I— I 
 
 N> 
 O 
 CD 
 
 CO 
 
 cd 
 
 o 
 
 U /■ 
 
 OT 
 
 :w 
 
 . s 2 .2 
 
 fl o o oa 
 o bjo ." 
 bo cd i-i a 
 
 fe n a 
 
 ■^ CD O o 
 CD " bo o 
 
 CQ fl 
 
 P o 
 
 O ffl 
 
 ^ cd 
 
 a « = 
 
 cd cd ,fl 
 
 fl 
 
 1 
 
 3 ^ 
 
 Ph 
 
 fl 
 
 o 
 
 to 
 
 CO 
 
 cd cn 
 
 CD 
 > 
 
 Co 
 
 a 
 s s 
 
 * fl S 
 
 a +J fl 
 
 ^fl <£> 
 
 . • +3 CM 
 
 F* <m eg 
 
 cd 
 
 CD 
 
 M 
 a 
 
 m 
 
 03 
 
 CD 
 
 CO 
 
 fl 
 cd 
 
 02 
 
 fl 
 o 
 
 T3 
 fl 
 cd 
 
 cr> 
 
 CO 
 
 3 ^" 
 
 CD 
 
 i02 
 
 ^«2 § 
 
 ^ fl -^ 
 
 Ph ft Ph 
 
 _j •!-» cd 
 
 fl^^ 
 
 .I * i 
 
 feH t- CO 
 
 1=5 Th CO 
 
 m 
 
 o 
 
 ^3 
 
 ^ 
 
 CD 
 
 6 
 
 p 
 
 cd 
 
 T3 
 
 
 02 
 
 cd 
 
 rfl 
 
 
 ^ 
 
 ^d 
 
 cr> 
 
 CO 
 
 03 
 
 ^ ^ 
 
 .fl 
 
 -t-J 
 
 32 fl 
 
 Jh « 
 
 ^ M 
 
 +i PS 
 
 fl ni 
 
 O o 
 
 C» p p 
 
 rp fl <D<H 
 
 CO SCO 
 
 CO 
 
 fl 
 
 o 
 
 cd 
 I — I 
 
 o 
 
 B 
 cd 
 
 CD 
 
 CO 
 
 CO 
 
 CO 
 CO 
 
 o 
 I— I 
 
 T3 
 fl 
 cd 
 
 T3 
 bo 
 
 o 
 
 rfl 
 fl 
 
 o 
 CO 
 
 a 
 
 00 CO CO 05 
 
 H^ CO CO Cd a. 
 
 Si 
 CD 
 
 o 
 
 s 
 
 o 
 
 <M CM (M 
 
 CM CM CM CM 
 
 >> 
 fl 
 
 cd 
 
 tH 
 
 CM CO t*4 
 
 io 
 
 CO 
 
 t- 
 
 o 
 
 00 OJ iH 
 
 CD 
 
 CD CD CD 
 
 CD 
 
 CD 
 
 CD 
 
 CD CD CD 
 
 ft 
 
 fl 
 
 .fl.fl.fl 
 
 fl 
 
 fl 
 
 P 
 
 _fl_fl.fl 
 
 a 
 
 '3d 
 
 bo bo'bo 
 
 'So 
 
 • P— 1 
 
 be 
 
 bo 
 
 'Sb'So Sb 
 
 o 
 
 a 
 
 fl fl fl 
 
 fl 
 
 fl 
 
 P 
 
 fl fl a 
 
 o 
 
 H 
 
 WPhH 
 
 w 
 
 Eh 
 
 w 
 
 WPhW 
 
 CM CM 
 
 ■ CO 
 
 ve>«s 
 
 
 
 ! u 
 
 ^ fe 
 
 
 
 . CD 
 
 . 13 
 
 cu w 
 
 
 
 ■ nd 
 
 ^2 
 
 
 
 • cd 
 
 ■►3 
 
 cd * 
 
 
 
 rH rrt CM rrt T3 W •* 
 -- 1 P^ fl fl^" 
 CD Cd CD Cd ^ CD CD 
 
 .a^.a^^.a.a 
 
 bo o bt o g &o bo 
 fl o p o o fl p 
 
 u 
 
 CD 
 
 13 
 
 13 
 cd 
 
 "- 1 fl 
 
 cd cd 
 
 'So o 
 a o 
 
 <M 
 
 CD 
 
 a 
 'Sb 
 fl 
 
DEPARTMENT OF SAFETY 
 
 249 
 
 1 
 I 
 
 c3 
 
 o 
 
 a 
 
 o 
 
 ■■§ 
 
 a 
 
 •rH 
 
 s 
 
 o 
 
 o 
 
 +j p 
 o bo 
 
 q R & 
 5F > <" 
 
 03 2 CO 
 
 * t£ 
 
 p. 
 
 
 u 
 
 
 
 ID 
 
 
 CD 
 
 
 
 13 
 
 
 13 
 
 
 
 TJ 
 
 
 13 
 
 
 
 03 
 
 
 03 
 
 
 
 r— 1 
 
 
 l—l 
 
 
 
 T5 
 
 
 TJ 
 
 
 
 a 
 
 
 a 
 
 
 
 cO 
 
 
 03 
 
 
 
 ^ 
 
 
 ^ 
 
 
 
 o 
 
 
 o 
 
 
 
 o 
 
 
 o 
 
 
 
 ■rt 
 
 
 & 
 
 
 t— I 
 
 
 
 
 
 GJ 
 
 a 
 
 
 o3 
 
 
 CD 
 
 'B 
 
 
 -r-t 
 
 Ph 
 
 
 rq 
 
 m 
 
 
 <u 
 
 
 £ 
 
 03 
 
 
 CO 
 
 
 ■+-» 
 
 
 += 
 
 
 CD 
 
 O 
 
 
 o 
 
 
 o 
 
 o 
 
 
 o 
 
 
 -a 
 
 in 
 
 
 in 
 
 
 a 
 
 oo 
 
 
 L^ 
 
 
 £ 
 
 et) 
 
 
 o 
 
 
 CO 
 
 > 
 
 
 > 
 
 
 p. 
 
 oi 
 
 
 cO 
 
 
 u 
 
 Si 
 
 1A 
 o 
 
 Ph 
 
 
 13 
 
 o3 
 
 pi 
 
 co 
 
 pi 
 
 c 
 
 a) 
 
 Ph 
 
 a) 
 
 Ph 
 
 cO 
 
 CC 
 
 h-^ 
 
 t/2 
 
 
 -a 
 
 
 
 o 
 
 •l-H 
 
 u 
 
 o 
 >-3 
 
 CO 
 
 13 
 2 
 
 co o 
 
 &0 
 
 13 
 
 cO 
 
 CO Ph 
 ,-H o 
 
 CD O 
 OQ 
 .!E 
 
 Oi3 
 
 " CM 
 
 si 
 
 > 
 
 "cO 
 
 m 
 
 >M £ 
 
 pi 
 
 o 
 
 CO 
 US 
 
 Ph 
 
 cO 
 
 w 
 
 i3 
 
 pq 
 
 m 
 
 a 
 
 
 -^ 
 
 CO 
 
 +j~ 
 
 CD 
 
 CO 
 
 13 
 
 pi 
 o 
 
 ,£1 
 Ph 
 
 CO 
 
 s 
 
 O 
 
 a 
 
 cO 
 
 o 
 
 13 
 
 ^ 
 
 q 
 
 i_> 
 
 PI 
 
 CO 
 
 m 
 
 Ph 
 
 o 
 
 X 
 
 
 O 
 
 1-3 
 
 .3 -d 
 
 4J H-> 
 
 PS 
 o 
 
 CC 
 
 CD TP 
 
 CM CO 
 
 O CM 
 
 (M CM 
 
 CO <# 
 
 U 
 
 § CM CM 
 
 ST 1 
 
 s 
 
 I 
 
 CD CD 
 
 q q 
 
 •l-H -l-H 
 
 MM 
 
 13 
 
 CD 
 
 CD 
 CO 
 
 •^ 
 
 be <u 
 
 CM CM 
 tH CM 
 
 „ CQ 
 
 H CM ^ 
 
 CD 
 
 "3 ^ 
 CO O) 
 
 .a'S 
 
 Ph 
 CD 
 TJ 
 
 13 
 cO 
 1-3 
 
 o 
 o 
 
 w 
 
 w 
 . 
 
 . o 
 
 . o 
 
 o M 
 
 O f» 
 
 S3 is 
 
 +j pi 
 q a 
 
 pi cO 
 
250 DENVER 
 
 Too Many Captains 
 
 There are four enine hose companies, 3, 7, 16 and 17, which have 
 but three men, and two engine companies, 10 and 18, which have but 
 four men, but in each case there is a captain and a lieutenant. 
 
 Engine company 10 is housed with hook and ladder company 6, 
 which has a separate set of officers. Both the engine company and the 
 hook and ladder company should be in command of one captain. 
 
 It is apparent that captains were appointed out of proportion to 
 the number of firemen appointed and regardless of the actual need for 
 such officers. _ There are at least five captains too many. While it is 
 not urged that the excess captains be reduced in rank, it is recoitf 
 mended that no additional promotions be made to the rank of captain 
 until the services of the five excess captains are utilized to better ad- 
 vantage. 
 
 Need for Additional Firemen 
 
 Although the force has been over-officered for a number of years, 
 it has not been strengthened by the appointment of firemen in propor- 
 tion to the needs of the community. 
 
 The following table shows the increases in the force for the past 
 seven years : 
 
DEPARTMENT OP SAFETY 
 
 251 
 
 not^'Biadojddy 
 lsinii[oi3j\[ 
 
 sjo^aadQ 
 
 ngraaniq 
 
 santrj; jo ^dng 
 
 nanuappBr]; 
 
 nauiadij 
 
 siaaiiiSug |nB|STSsy 
 
 sjaariiSn^ 
 
 sniB^dBQ 
 sjirt^sissy 
 
 
 O 
 
 J9R0 
 
 (S8[tUI -bg) 
 
 ■B8jy 
 
 uoi^Bpadoj 
 
 JB9^_ 
 
 © O O © © © O 
 
 o o © © o o o 
 
 ddo'sdod 
 o o o o o o o 
 © o_ ©^ q ©^ o ©^ 
 
 in m" in" o" cm" oo" <m~ 
 
 (Ot-t-HNHO 
 CM CM CM CO CO CO CO 
 
 ■ee- 
 
 <o to to to to (D ttl 
 
 CO CO CO CO CO CO CO 
 CM CO CO CO <M CO CO 
 
 o cm m Ttn tH co co 
 
 Hri(M(M(Mmr)( 
 
 (M g: Ci o ci ai 6 
 
 iH T-H tH 
 
 OOHHOrao 
 
 (M OJ N H Ol O 1M 
 CM tH CM CM rH <M C\I 
 
 ooaoccoio 
 
 (MNHNHHN 
 
 ■* co w in 10 th Tf 
 
 O O O © O tH tH 
 
 HrirtHlMriH 
 CO CO CO CO CO CO CO 
 
 t> t-' t-' t- t- t> t-' 
 
 in in 10 in 10 in in 
 
 4r to vF * 
 
 aicsHmHinm 
 m in co t- r-t co cm 
 oqaqco o^to, co^ in_ 
 co" co" co' ^h" of c-" in" 
 
 CO CO r-i iH CM CO ^H 
 tH iH CM CM CM CM CM 
 
 COffiOHNM^ 
 O O i-\ i— I rd rH i-i 
 
 as a o oi a) o oi 
 
 Note. — In the above list of wardens and operators it will be noted 
 that four of the wardens and two of .the operators are firemen detailed 
 to this service. 
 
 ♦Estimated. 
 
252 DENVER 
 
 It will be observed that notwithstanding the increase in the pop- 
 ulation in the city of Denver from 133,859 in the year 1908 to approxi- 
 mately 245,000 in the year 1914, the number of firemen, exclusive of 
 officers, has only been increased by 38. It will also be noted that in 
 1908, when the number of firemen was but 110, there were 20 captains 
 and 22 lieutenants, which indicates that officers were appointed in 
 excess of actual needs and without regard to the number of firemen. 
 
 Because of the irregular distribution of population the problem 
 of distributing firemen and fire stations is different from that in most 
 other cities. It makes necessary additional stations, and it makes it 
 difficult to furnish support and reinforcements to the companies in 
 the outlying sections. 
 
 Need for the Establishment of a Truck Company 
 
 Engine company 16, located on South Ogden and Iowa streets, is 
 dependent for support upon engine company 13, which is over a mile 
 away, and hook and ladder truck 3, located at West Third and Chero- 
 kee streets, over two and a half miles away. 
 
 As both the truck and engine are horse drawn and the roads are 
 especially bad, even in good weather, the need for furnishing support 
 to this company is apparent. 
 
 A truck company, equipped with a city service truck, should be 
 established in this section at once. 
 
 Need for an Auxiliary Squad 
 
 Because of the distances between fire stations, it would be espe- 
 cially difficult to protect certain sections of the city in the event of a 
 large fire by "moving in" the apparatus from the outlying districts. 
 
 The force must always be prepared to speedily assemble large 
 numbers of men and sufficient apparatus in the event of two large 
 fires at the same time. It must be prepared also to respond to alarms 
 in other sections of the city. Under the present arrangement the 
 bureau is not equipped to meet these conditions as readily as would be 
 the case if an auxiliary squad were established in the congested value 
 district. Such a squad should be supplied with automobile apparatus, 
 and meal hours should be arranged so that the men would be present 
 in their quarters at those hours when the surrounding companies are 
 undermanned. If this were done it would be possible to dispatch the 
 auxiliary squad in emergencies to almost any part of the city. 
 
 Apparatus in Good Condition 
 
 "While no technical inspection of the steamers was made, all of 
 the apparatus and equipment of the department was observed som" 
 in service in the field. Except that there is need for additional' chem- 
 ical and truck service, the apparatus and equipment may be said to be 
 modern and efficient and well maintained. All of the apparatus in- 
 spected showed evidence of proper care. 
 
DEPARTMENT OF SAFETY 253 
 
 Need for Motorization of Apparatus Apparent 
 
 Long runs in fire service mean delay in getting into action at 
 fires. Delays mean increased fire loss and increased danger of a con- 
 flagration. To shorten the runs either additional companies should 
 be established or the apparatus should be motorized. The runs cannot 
 be shortened through the establishment of additional companies, b.it 
 the delivery of apparatus to fires can be accelerated by the motoriza- 
 tion of much of the apparatus. To this end it is recommended that 
 council consider equipping the suburban companies with triple com- 
 bination motor wagons. 
 
 Because of the bad condition of the roads in some sections of the 
 city it would not be practicable to install motor apparatus. 
 
 Acetylene Torches Should be Purchased 
 
 Oil torches are now used at night fires. They should be replaced 
 by acetylene torches, which are much more efficient and almost as 
 economical. The bureau should also have oxy-acetylene torches for 
 the purpose of cutting steel bars. 
 
 Glass Wind Shield Dangerous 
 
 In the interest of safety the glass wind shields on the automobiles 
 used by the chief and the deputy chief should be removed, and mica 
 shields should be substituted. The chief's car should be stripped of 
 everything tending to retard its speed or to make it cumbersome. 
 
 Sanitary Condition of Houses Excellent 
 
 All of the fire houses were examined, and with the exception .if 
 two they were found to be in excellent condition. The dormitories in 
 all of the houses were well ventilated, clean, orderly and well kept. 
 The horse stalls were well arranged, clean and orderly. The cellars, 
 with the exception of one, which is occasionally flooded, were clean, 
 orderly and well kept. Practically all of the houses were equipped 
 with shower baths and ample lavatories. 
 
 Engine Company 6 Station Should be Abandoned 
 
 Engine company 6 and truck 1 are housed in the rear of the City 
 Hall. This building should be abandoned as soon as possible, since 
 its location for service as a fire house is especially dangerous. Ap- 
 paratus responding to alarms from this house and the chief's car leav- 
 ing the garage, which is attached to the house, are in constant danger 
 of collision with other vehicles. This danger exists, notwithstanding 
 the gong and the sign on the side street. 
 
 The house occupied by engine company 2 is in exceedingly bad 
 condition from the point of view of both construction and sanitation. 
 Arrangements should be made as soon as possible to move this com- 
 pany to better quarters. 
 
254 DENVER 
 
 The sliding poles are not protected by automatic traps. The open- 
 ings in the floors of the dormitories, made necessary by sliding poles, 
 create drafts and they are of more or less danger unless properly pro- 
 tected. Automatic traps connected with the alarm system should be 
 installed. 
 
 Firemen Required to Pay for Their Laundry 
 
 Roller towels, although not permitted to be used in public places, 
 were found in use in most all of the fire houses. The firemen should 
 be supplied with individual towels. 
 
 The members of the force are required to pay for the laundering 
 of their bed linen and towels. As the firemen are required to live at 
 the fire houses, the city should provide them with as many comforts 
 of home life as is possible. Therefore, the city should supply bed 
 linen, towels, etc., and provide laundry service without cost to the 
 firemen. 
 
 Alley Should be Paved 
 
 The alley in the rear of the house occupied by engine company 4, 
 through which the apparatus must be driven on return from fires, 
 should be repaved and made available for use. 
 
 Repair Shop is Efficiently Conducted 
 
 The bureau maintains its own repair shop, in which minor repairs 
 to automobiles and apparatus are made. This shop is under the direc- 
 tion of an experienced mechanician, who maintains proper control- 
 over his supplies. The mechanician is enthusiastic in the performance 
 of his work, but he does not keep adequate records. It is recommended 
 that a job cost account be maintained, that no repairs be made except 
 on a written order upon a printed form, which form should be pro- 
 vided with headings calling for information as to the elements of 
 the cost. Included in the statement of cost should be the time of the 
 mechanician and his helper and an itemized list of the supplies used. 
 
 Department Horseshoer Recommended 
 
 The horseshoeing for the bureau, which costs on an average $2,800 
 per year, is done by a private firm. The list of firms to whom the 
 horses must be taken is furnished by the commissioner of supplies. 
 
 The bureau already maintains a machine shop, and it would seem 
 to be advisable that it have its own horseshoer as well. It should also 
 own a portable forge. When a fire horse is being shod, the horse as- 
 signed to the forge should take the place of the horse being shod, so 
 that in the event of an alarm there would be no delay in the delivery 
 of apparatus. 
 
 The horseshoer could also serve as assistant in the machine shop. 
 
 Horses 
 
 The total number of fire horses owned by the city is 80.. They 
 are of good stock and well kept, and those observed in service ap- 
 
DEPARTMENT OF SAFETY 255 
 
 peared to be properly trained. The bureau maintains a hospital and 
 retains the service of a veterinary on a fee basis. According to the 
 records, there is little injury and sickness among the horses. The 
 hospital stable, which is operated in connection with truck 6 house, 
 was clean and orderly. Four horses are kept on reserve. 
 
 Streets in Bad Condition 
 
 The system of lighting street car crossings with red signals oper- 
 ated by the alarm system is to be commended, but because of the un- 
 usually bad condition of most of the streets, the delivery of apparatus 
 in response to alarms is greatly handicapped. While the red lights 
 afford some protection to the apparatus at street crossings near the 
 fire houses, the fact that street cars do not stop on the near side of 
 the street serves as a disadvantage. This could be remedied by an or- 
 dinance requiring that all street cars stop on the near side of street 
 intersections. 
 
 Insufficient Hydrant Service in Suburbs 
 
 The pressure service maintained in the outlying sections of the 
 city is not adequate for fire service, and the number of hydrants in 
 these sections is also insufficient. The continuance of the controversy 
 between the city and the water company is interfering with the water 
 service for fire-fighting purposes. Additional hydrants should be in- 
 stalled at once in the vicinity of the county and Steele hospitals. 
 
 Street sprinklers are permitted to draw water from any of the 
 hydrants. As a result of carelessness in the handling of the couplings 
 the thread is frequently destroyed in parts. When the firemen have 
 to use the hydrants they find it difficult to connect. The commis- 
 sioner of safety should confer with the head of the street cleaning 
 department to agree upon certain hydrants in each section which 
 should be used by the sprinklers. These hydrants should be subjected 
 to frequent tests so as to prevent possible delay in the event of fire. 
 
 Work of Extinguishment Handicapped by Overhead Wires 
 
 ' The firemen are frequently handicapped in extinguishing fires 
 because of overhead wires on many of the streets and alleys, particu- 
 larly the alleys. Council should consider the advisability of requiring 
 all wires to be laid underground. 
 
 Hose Purchased on Dealer's Specifications 
 
 Hose is purchased through the department of supplies upon the 
 dealer's specifications, but not upon standard specifications. It is sub- 
 jected to a proper test, however, and it is well cared for. The amount 
 of hose purchased during the last five years and the prices paid are 
 shown by the following table : 
 
256 DENVER 
 
 Price 
 Brand per foot Total 
 
 Peerless 90 cents $ 2,700 
 
 Marathon 90 cents 2,700 
 
 Glenwood Jacket 90 cents 2,700 
 
 Sampson 90 cents 1,350 
 
 Peerless 90 cents 90O 
 
 Emperor 85 cents 850 
 
 Boston Fire Jacket 90 cents 1,350 
 
 Sovereign 88 cents 1,320 
 
 Thorobred 84 cents 840 
 
 Dragon 85 cents 850 
 
 Sovereign 90 cents 2,250 
 
 Underwriters 90 cents 1,350 
 
 Glenwood Jacket 90 cents 900 
 
 Titan 82 cents 820 
 
 Diamond 95 cents 950 
 
 Eureka ,. . .100 cents 1,000 
 
 Gray King 80 cents 800 
 
 Ideal 100 cents less 10 
 
 percent 900 
 
 $24,530 
 
 The city now pays $1 per foot for fire hose. The department of 
 supplies advertises for bids but does not issue standard specifications. 
 The only specifications issued are those describing the size of the hose 
 and the general kind of hose desired, such as canvas covered, rubber 
 lined, to stand a certain pressure, and to be guaranteed for a number of 
 years. The department is about to purchase 10,000 feet of hose. 
 
 All hose should be purchased upon standard specifications, which 
 will permit of public bidding. The question of whether the present 
 price is excessive or proper is not involved. 
 
 In the city of New York it was maintained for a number of years 
 that only a certain kind of fire hose gave satisfaction, but as the method 
 of purchasing this hose did not satisfy the comptroller's office stan- 
 dard specifications were drawn and the hose companies were invited to 
 bid. As a result, the city is now paying 68 cents per foot for hose which 
 is declared to be of a very good grade. 
 
 Number 
 
 Year 
 
 of feet 
 
 1910 
 
 3,000 
 
 1910 
 
 3,000 
 
 1910 
 
 3,000 
 
 1912 
 
 1,500 
 
 1912 
 
 1,000 
 
 1912 
 
 1,000 
 
 1912 
 
 1,500 
 
 1912 
 
 1,500 
 
 1912 
 
 1,000 
 
 1912 
 
 1,000 
 
 1913 
 
 2,500 
 
 1913 
 
 1,500 
 
 1913 
 
 1,000 
 
 1913 
 
 1,000 
 
 1913 
 
 1,000 
 
 1913 
 
 1,000 
 
 1913 
 
 1,000 
 
 1913 
 
 1,000 
 
DEPARTMENT OP SAFETY 257 
 
 THE PREVENTION AND EXTINGUISHING OF FIRES 
 
 Fire-fighting must always be an important part of the work of a 
 fire department, but fire prevention is equally as important, and its im- 
 portance is being more generally recognized. 
 
 The failure to enforce adequate fire prevention measures in Den- 
 ver is by no means due to lack of energy on the part of the fire chief 
 or to a desire on the part of the uniformed force to neglect this most 
 important function. On the contrary, the bureau is endeavoring to min- 
 imize the fire hazard as much as is possible under existing laws No 
 amount of inspection work will serve the needs of the situation, unless 
 the fire bureau is given greater powers. 
 
 Inspections by Uniformed Force- 
 
 Fire prevention inspections are made by members of the uniformed 
 force. Each assistant chief supervises this work in his respective dis- 
 trict. The firemen report in writing upon specially prepared inspec- 
 tion blanks, which are made out in duplicate ; one copy being kept in 
 the possession of the district chief and the other being filed at head- 
 quarters. These reports are indexed and cross indexed as to streets, 
 names of property owners, apartment houses, etc. The inspections are 
 confined to buildings which present a special risk and are not extended 
 to dwellings. There are two reasons ; first, insufficient men to conduct 
 the inspection, and, second, the absence of proper laws which would 
 make possible the enforcement of orders. 
 
 The inspection of dwellings is especially important, since, careless- 
 ness is even more likely to be found in dwellings than in large indus- 
 trial plants. 
 
 The chief should make an effort at once to conduct a house-to- 
 house inspection in each of the fire districts. 
 
 An examination of the inspection blanks shows that the firemen 
 use considerable care, not only in making their inspection but also in 
 reporting upon them. 
 
 Imperative Need for a Vigorous Fire Prevention Campaign 
 
 There is need for a proper fire prevention ordinance and the cre- 
 ation of a fire prevention commission to carry on a vigorous fire pre- 
 vention campaign. An inspection of a number of public buildings and 
 the theaters as well as city and county institutions showed this need 
 to be imperative. 
 
 City Worse Offender 
 
 In the matter of carelessness in regard to fire prevention in build- 
 ings and the absence of adequate fire escapes and exits, the city is per- 
 haps the worse offender. At many of its institutions in which are 
 housed many persons the city fails to protect the lives of the inmates. 
 In the matter of providing means of escape, it is criminally negligent. 
 
 "While the city permits its own buildings to be literal fire traps it 
 is indeed difficult for the fire chief and the building inspector to enforce 
 
258 DENVER 
 
 fire prevention regulations in private buildings. Notable among the 
 institutions and buildings owned and controlled by the city and which 
 are not properly protected against fire are the county hospital, the mu- 
 nicipal lodging house, the Steele hospital, the county farm and the audi- 
 torium. 
 
 The County and City Hospital 
 
 The county and city hospital, which is under the control and man- 
 agement of the department of social welfare, was inspected on April 22, 
 1914, under the guidance of the fire chief, a deputy chief, and one of 
 the doctors attached to the institution. The buildings were constructed 
 and equipped under the supervision of the board of county commis- 
 sioners, prior to the commission form of government. 
 
 The buildings occupied as the county and city hospital are divided 
 into three main wings; one housing wards 1 and 2; another housing 
 wards 3 and 4, and a third housing wards 5 and 6.' The other buildings 
 on the grounds are the nurses ' home, a laundry, a garage, an insane pa- 
 vilion, and a boiler room and kitchen. 
 
 The nurses' home is a three-story brick building of inferior con- 
 struction formerly used as a part of the hospital. There are about 25 
 rooms, many of which are connected by wooden doors. The trim, floors 
 and staircases are all of wood, all old and dried up. 
 
 The wiring throughout the building is exposed and of an inferior 
 type. In each of the rooms there are from two to three drop lights, all 
 installed in such way as to create a hazard. 
 
 There are sleeping accommodations for 54 persons, and during each 
 night, not less than 40 women are asleep in the building. 
 
 Except that on one side of the building there is an old wooden 
 porch, there is no means of escape from the upper stories except by 
 way of' one staircase three feet wide. On each staircase, the floor pro- 
 jects to a point scarcely six feet from the tread directly beneath it. 
 which in case of panic would unquestionably result in injury to those 
 using the staircase. 
 
 There is no means of awakening the nurses in the event of fire, ex- 
 cept by knocking at each of the doors. There is but one hand fire ex- 
 tinguisher on each floor. These are not regularly inspected, and one 
 was found to be empty upon a recent inspection by the fire bureau. 
 There are no hose, hooks, fire buckets or other kind of first aid equip- 
 ment in the building. It is the opinion of the fire chief and the deputy 
 chief in charge of the district that in the event of a fire in this part of 
 the grounds it would be scarcely possible to prevent a loss of life. 
 
 This building should be equipped at once with balcony fire escapes, 
 lights indicating their location, protected wiring, additional fire extin- 
 guishers and first aid equipment, and an electrical gong with fusible 
 links. The building should also be equipped with a sprinkler system. 
 
 The insane pavilion in which are housed many insane men and 
 women is a two-story, non-fire-resisting brick building of inferior con- 
 struction, without fire escapes. 
 
DEPARTMENT OF SAFETY 259 
 
 Because of the necessity of restraining the inmates, it is necessary 
 to bar the windows and to keep all of the doors locked. In case of 
 fire there is no way of taking out the inmates except through the main 
 doorway. 
 
 In the basement of this building are stored hundreds of voting ma- 
 chines encased in wooden boxes. There is no sprinkler system in the 
 house, and all of the hose connections at the stand pipes have been ren- 
 dered useless by the removal of the valve, which was made necessary 
 because some of the inmates caused considerable water damage by oper- 
 ating the valves. Thus the building is without any first aid equipment. 
 Attached to the basement ceiling is a heavy electric motor which has ex- 
 posed wires. It is no longer used and should be removed. A sprinkler 
 system should be installed in this building at once, and balcony fire es- 
 capes placed about the building, so as to make possible removing the 
 inmates in the event of fire. 
 
 Although all of the buildings are of two and a half stories, very 
 old, and of inferior brick construction, with wooden floors, staircases 
 and trim, there are no fire escapes with the exception of two small, iron 
 platform fire escapes on the newest building. These are improperly 
 constructed because the turns on the platforms are so sharp as to make 
 it difficult to remove a patient on a stretcher. There is insufficient 
 hose, and the hose used is so small as to be useless. There is need for 
 additional fire extinguishers, water buckets, and first aid equipment. 
 All of the present hose should be removed and the stand pipes equipped 
 with standard connections and hose approved by the fire chief. All of 
 the stand pipes should be equipped with outside Siamese connections, 
 thus making it possible in the event of a fire for the fire force to pump 
 water through the stand pipes. 
 
 Balcony fire escapes along each side of the building and upon each 
 floor could be used both as a means of escape for the patients and as 
 porches for the use of convalescents. 
 
 The boiler room and kitchen are housed in one building. Less than 
 11 feet from the. opening of the furnace, is a room in which is stored a 
 large quantity of different kinds of oil and some loose wood and timber. 
 Near the door of this room is a five-gallon tank of kerosene oil: The 
 floor in front of the oil room slopes downward toward the opening of 
 the furnace, so that oil leaks would naturally drain toward the furnace. 
 At the time of the inspection one of the nurses had just received a quan- 
 tity of kerosene oil in an open receptacle. Had she slipped or dropped 
 the receptacle holding the oil an explosion would have followed. There 
 has already been a fire, which did considerable damage, in the rear of 
 this boiler room. 
 
 In the kitchen there are two large ranges, but the floor is of wood 
 and the room is generally arranged in a manner to increase the fire 
 risk. The fire force has already been called to fight a fire in this part 
 of the building. 
 
 Four of the buildings on the grounds have shingle roofs, while one 
 is covered with an asbestos roof and the others have slate roofs. Not- 
 withstanding the presence of the shingle roofs, there is no screen in the 
 large smoke stack which frequently pours forth hot soot and sparks. 
 
260 DENVER 
 
 In the yard there is a children's pavilion, which is usually covered 
 with a canvas awning. The soot from this chimney has on more than 
 one occasion set fire to this awning. By the side of this play pavilion 
 there is a hydrant. Because of the danger of fire the fire chief recom- 
 mended that a hose be laid near this hydrant so that it might be avail- 
 able for use at a moment's notice. 
 
 A suitable coupling was placed on the hydrant, but the hose was 
 not kept ready for use by the side of the hydrant as was intended. 
 
 For the purpose of distributing heat through the various buildings 
 there is a series of underground tunnels connecting the buildings. None 
 of these tunnels are equipped with fire doors, so that a fire getting un- 
 der headway in any one of these buildings would travel rapidly through 
 the tunnels and enter the other buildings. The most dangerous of these 
 tunnels is the one connecting the boiler room with the nurses' home. 
 It would be next to impossible to prevent a fire in the boiler room from 
 traveling to the basement of the nurses' home. If it is necessary that 
 these tunnels remain, they should be equipped at once with heavy doors 
 operated by fusible links. 
 
 Wooden-covered passageways, which connect some of the build- 
 ings, create an added hazard. They should be removed and fire-resist- 
 ing passageways substituted, with fire doors on each and operated by 
 fusible links. 
 
 On the east side of the county hospital, the entire length of the 
 block, is an old dried-out wooden fence and grandstand of a baseball 
 park, which creates another hazard. If this grandstand should take fire 
 when the wind was blowing in the direction of the hospital, sparks fall- 
 ing upon the shingle roofs'would place the institution in great danger. 
 
 Not only is the institution not equipped to remove the patients 
 speedily in the event of fire, but it is wholly inefficient in equipment for 
 fighting incipient fires and aiding the regular fire force in fighting fire. 
 The buildings are so situated as to make impossible placing apparatus 
 within the grounds. There is no part of the grounds into which a truck 
 could be drawn so as to provide adequate ladder service. The build- 
 ing has no auxiliary equipment of its own, such as portable hose reels, 
 portable chemical tanks, etc. It has no fire brigade of its own, and con- 
 ducts no fire drills among its employees. In order that incipient fires 
 may be promptly extinguished, or fought pending the arrival of the 
 firemen, a proper auxiliary first aid service should be installed. The 
 employes should be organized into a fire brigade, and fire drills con- 
 ducted regularly. Every employe in the building, including the doctors 
 and nurses, should have a thorough understanding as "to what should be 
 done in the event of fire. 
 
 Proper fire gongs and sprinkler systems should be installed. 
 
 Inadequate Hydrant Service 
 
 While there are three city hydrants on the street bordering the 
 south end of the hospital, there are no hydrants at the north end. A 
 fire occurring in the buildings on the north end of the grounds would 
 require the firemen to get their water from the hydrant at the other end 
 of the building. This would greatly reduce the water pressure because 
 of the distance the hose would have to be stretched. The nearest hy- 
 
DEPARTMENT OF SAFETY 261 
 
 drants to this part of the ground are 2:50 feet way. Directly across 
 from the north end of the hospital are the buildings of the Steele hos- 
 pital for contagious diseases. There are no hydrants near these build- 
 ings. 
 
 Hydrants furnishing adequate water service should be located on 
 all four corners of the hospital grounds. 
 
 Steele Hospital 
 
 The Steele hospital buildings have shingle roofs, no fire escapes, 
 and no hydrants nearer than 250 feet on one side and 500 feet on the 
 other side. It has no fire alarm box and no auxiliary equipment. There 
 are no fire escapes on any of the buildings, and the wings are connected 
 by a covered wooden passageway. While these buildings are arranged 
 in such manner as to make it possible to remove the patients they are 
 inadequately protected against fire. 
 
 Municipal Lodging House 
 
 The municipal lodging house, which is under the control and man- 
 agement of the department of social welfare, is located at 1307 Larimer 
 street in a building which the city leases. This building is three stories 
 high and of brick joist non-fireproof construction. The two upper stor- 
 ies contain sleeping rooms, dining room, an office and a lounge room. 
 
 The first floor of the building, which has a 50-foot front, contains 
 two stores, which are occupied by a popcorn manufacturing company. 
 Jn one there are two large cook stoves of the cauldron type; the other 
 store is used as a storeroom. The wooden stairway leading to the lodg- 
 ing house runs directly between the stores. This staircase is continued 
 to the cellar, where old boxes, etc., are stored. 
 
 The only emergency means of escape is an iron balcony fire escape, 
 six feet long and three feet wide, which is located at the rear of the 
 building. The means of approach to this fire escape on both floors is 
 through a small room. Immediately above the doors leading into one of 
 these rooms there is a small electric light Avith a red globe marked 
 "EXIT," while to the side of the door of the other room there is an 
 electric light cvered with a piece of red cloth but no sign. The means 
 of egress to the fire escape on both floors is through windows. The well 
 of the fire escape is located within a foot of the wall of the building im- 
 mediately in front of the window. There is no light on the outside of 
 the building. The ladder going from the well of the top fire escape to 
 the landing of the first fire escape is almost vertical and the steps are 
 scarcely a half inch in width, and the same in depth. It could scarcely 
 be said to be even a good ladder, much less a stairway. The ladder 
 leading from the first fire escape to the yard ends at a height of six 
 feet above the ground, lnasimich as the persons using this lodging 
 house, averaging about 30 per night, and sometimes running as high as 
 71, are under-nourished and for the most part aged or infirm, this type 
 of fire escape and ladder is not only useless but unsafe. It would be al- 
 most impossible for a robust person to in time of emergency, use this 
 ladder with any amount of speed or safety. 
 
262 DENVER 
 
 The windows leading to the fire escape should be replaced by- 
 doors, and the balcony should be made to extend the full width of the 
 building. Two balcony fire escapes should be erected on the front of 
 the building, and all of the fire escapes on the first floor should be 
 equipped with drop ladders capable of extending to the ground, the lad- 
 ders in all cases being of the stair type with a tread not less than four 
 to six inches wide. If the building is to be continued in use as a lodg- 
 ing house, it should be made to conform with the same requirements as 
 any commercial house. 
 
 There is no emergency first aid fire equipment, nor is there any 
 means of awakening the lodgers in the event of fire. A large electrical 
 gong connected throughout the building with fusible links should be in- 
 stalled, and the building equipped with a sprinkler system and first aid 
 equipment. 
 
 Proper red lights should be placed above the door and the sign 
 should read "To Fire Escape" instead of "EXIT." On each floor a 
 red light should "be placed over the stairway leading to the street. This 
 light should be encased in a glass frame having the word "EXIT" 
 upon it. 
 
 Smoking should be permitted only in the main lounging room on 
 the second floor. 
 
 The wood work immediately back of the two stoves in the kitchen 
 should be incased in sheet metal. 
 
 Electric lights should be placed on the outside of the building in 
 the rear immediately over the doors leading to the fire escape, and 
 these lights should be kept burning during the night. 
 
DEPARTMENT OF SAFETY 263 
 
 THE COUNTY FARM 
 
 The county farm is located about 16 miles from the city of Denver. 
 It is situated at a point where it would be practically impossible to ren- 
 der any service, in the event of fire, through either the fire force of the 
 city, or of any neighboring township. The farm is under the manage- 
 ment and control of the department of social welfare. 
 
 There is an administration building and three ward buildings, all 
 of two-story brick construction, in which are housed the inmates. There 
 is but one fire escape, and that is on the wing, which is not yet com- 
 pleted. The fire escape is practically useless, however. It is too small 
 and it is equipped with an ordinary iron ladder, thus making it impos- 
 sible to carry down the inmates of the infirmary upon stretchers. All 
 of the inmates are aged, and many are infirm. 
 
 There is no auxiliary fire equipment, such as a hand hose reel, or 
 hand or portable chemical tank. A number of powder fire extinguish- 
 ers are distributed throughout the building^ but no hand chemical ex- 
 tinguishers. There is no fire gong by which to awaken the inmates in 
 the event of a fire. 
 
 The Auditorium 
 
 Although the auditorium, which is under the control of the depart- 
 ment of finance, is of fire-resisting construction, practically every door 
 in the building is of wood. The exit lights consist of single red incan- 
 descent lights encased in ground glass globes, upon some of which ap- 
 pears the word "EXIT." These exit lights are wholly insufficient, and 
 not at all in keeping with the modern method of indicating fire exits 
 or fire escapes. Their efficiency is almost completely destroyed when 
 red lights are also used throughout the building as a means of decora- 
 tion. Every exit in the Auditorium should be marked in accordance 
 with the most improved type of glass transparency. 
 
 At great expense, and likewise at great risk, the building was so 
 constructed as to permit of its use as a modern theater and opera house 
 as well as an arena, and for this purpose half of the house is equipped 
 with theater equipment, while the other part is arranged as an arena. 
 To permit of its use as a modern theater it was necessary to provide 
 a scene loft for the manipulation of modern scenery. In this loft hangs 
 almost 100 tons of weight. To provide a modern stage, a portable 
 proscenium arch was installed, which hangs in the scene loft when not 
 in use. This arch for the main part is of metal fire-resisting construc- 
 tion. To raise this arch from the stage to the scene loft a hoisting 
 machine and motor weighing 40 tons was installed in the scene loft. 
 This has been rendered useless, for when the two moving boxes are 
 brought out to complete the proscenium wall there is no means of pre- 
 venting fire, smoke, or gases from reaching the auditorium, because the 
 whole upper portion of these boxes or walls is of Irish linen mounted 
 upon wooden frames. 
 
 As a means of protection against fire reaching the auditorium a 
 modern asbestos curtain was installed at great expense. Although this 
 curtain is controlled by counter balance weights, it is impossible under 
 
264 DENVER 
 
 ordinary circumstances to lower and raise it. But even if this were 
 possible, the curtain would serve little or no purpose, because a fire 
 starting on the stage would find its way to the auditorium by way of 
 the flimsy linen walls of the moving boxes. The city's obligation to the 
 audiences is even greater than is that of an owner of a private theater. 
 Not only should the city furnish ample protection against disaster and 
 loss of life due to panic, but it should set an example to the entire the- 
 atrical interest of the city. It must expect no more from the privately 
 owned theater than it offers in its own auditorium. It would be far 
 better to abandon the use of the theatrical equipment of the Audi- 
 torium than to continue its use under present conditions. The loss 
 of life in theaters has primarily been caused by suffocation from gases 
 and by stampedes. 
 
 Although the city ordinance requires, and properly so, that the 
 asbestos curtain in theaters shall be lowered and raised before and at 
 the end of each performance, it is impossible to comply, with this ordi- 
 nance in the city's own theater. 
 
 Panic in theaters can be caused more easily by the presence of smoke 
 in the auditorium than, from almost any other cause. Notwithstanding 
 this fact, four carloads of combustible scenery are stored in the base- 
 ment of the Auditorium immediately beneath the parquet floor. Under 
 each seat in the orchestra or parquet are two holes in the rise, which 
 open into small elbows leading through the parquet floor to the base- 
 ment. Thus a fire in the basement underneath the parquet floor would 
 cause smoke to ascend through these holes to the auditorium. It is 
 even questionable whether the construction of the floor of the parquet 
 would be able to resist the amount of heat that would be caused by the 
 burning of this quantity of scenery. 
 
 In another section of the basement 5,000 wooden chairs are stored 
 immediately under the dance floor. Next to this section the wooden 
 surface covering' for the race course is stored in a manner which would 
 not be tolerated in any privately owned building. Under another por- 
 tion of the dance floor there are 1,000 ballot boxes, all filled with paper 
 ballots. In another section of the basement there are old unused ballot 
 boxes and flimsy scenery. 
 
 The efficiency of the fire-resisting walls which surrounded the 
 interior of the basement has been destroyed by cutting in passage- 
 ways, which have been mounted with wooden trim and fitted with 
 wooden doors. 
 
 The possibility of speedy action by the fire force in the basement 
 has been destroyed by the erection of wooden partitions at intervals in 
 the corridors, thus compelling the firemen to fight their way through 
 what should be an open corridor. 
 
 The protection against fire on the main floor of the Auditorium is 
 greatly interfered with because of the erection of a thin wooden hat 
 and cloak rack. It would have been more efficient and certainly as 
 economical to have installed a metal shelving. 
 
 In the basement are located two motors which operate the moving 
 boxes. Part of each motor has been encased in a metal box, while the 
 powerful main switches, which are mounted upon wooden beams, are 
 left unprotected. 
 
DEPARTMENT OP SAFETY 265 
 
 The doors on the Curtis street side of the main lobby are of wood 
 construction. They are not arranged so as to facilitate speedy exit 
 from the building. On the outside of this entrance are three large iron 
 poles upon which to attach the canopy in stormy weather. These poles 
 should be removed, as they form an obstruction. The canopy could 
 just as easily be suspended from the permanent metal and glass canopy 
 of the building. 
 
 All of the exits are draped with velvet curtains suspended from 
 brass poles, a practice condemned throughout the country by all ex- 
 perts. No exit should be draped. While no technical inspection of 
 the machine loft was made, the attention of the city government is 
 called to the extreme weight suspended from two steel trusses in the 
 scene loft, and it is urged that the advisability of continuing this risk be 
 considered by competent engineers. A fire occurring upon the stage 
 would be directed to the scene loft by the immediate opening of the 
 stage vent. This. would release at once much of the weight now hang- 
 ing in that loft, which would fall to the stage below. The dome is put 
 together with solder, with the idea that under extreme heat the solder 
 would melt and the sections of the dome fall to the roof. Expert en- 
 gineering advice should be sought to determine whether under extreme 
 heat the dome would not crash in upon the stage. 
 
 The entrance from the orchestra pit to "under stage" is equipped 
 with a portable wooden staircase. 
 
 Upon a visit to the Auditorium while it was being used for a large 
 public dance, one of the main exits from the first gallery was found 
 bolted and locked. 
 
266 DENVER 
 
 INADEQUATE CONTROL AND INSPECTION OF THEATERS 
 
 There are seven large theaters in the city which operate movable 
 scenery and have regular performances. Some of these theaters are 
 occasionally used exclusively for moving pictures. There are fifty-six 
 houses, varying in capacity from 300 to 2,000, that are showing moving 
 pictures. 
 
 All theaters and houses showing moving pictures are licensed by 
 the excise commissioner. 
 
 When a building is constructed, the plans are examined and the 
 construction work inspected by the department of "property, the fire 
 bureau having no jurisdiction. Houses already built, but which are 
 about the to be converted into theaters or moving picture shows, are 
 likewise examined by the commissioner of property and not by the fire 
 bureau. 
 
 The inspection of theaters by the fire bureau is conducted and re- 
 ported upon in the same manner as is the inspection of other buildings. 
 
 Application for renewal of licenses by theaters does not require 
 that the department of property or the fire chief reinspect and approve 
 as to construction and equipment. 
 
 Each theater has a house fireman, who wears a bureau uniform 
 and badge. These firemen are the employees of the management, al- 
 though they must be selected with the approval of the commissioner of 
 safety. 
 
 The house firemen are required to be at the theater thirty minutes 
 in advance of the rise of the curtain. They are not required to carry 
 electric pocket torches ov lanterns, although some of them do. They 
 are required to file a daily report, with the fire bureau, showing the 
 result of their inspections. These reports are made upon printed 
 blanks, requiring answers to 17 questions. 
 
 Section 424 of Ordinance No. 31, Series of 1905, reads as follows : 
 
 Stationary Firemen 
 
 Section 424. The manager of each theater and assembly 
 hall will be required to have one (1) fireman on the stage at 
 all times during performances. This fireman's salary will be 
 paid by the city and county of Denver, but the money to be 
 refunded by the theater or assembly hall owners or managers. 
 
 It is apparent from the language of the ordinance that regular 
 city firemen should be assigned to the theaters, and not persons se- 
 lected by the owners of the theaters. The ordinance would be properly 
 •complied with if the fire chief should assign firemen from his own 
 force, alternating the men from' day to day or from week to week, so 
 as to give each fireman ample opportunity to study the construction 
 of the theaters, in addition to providing a proper check on the inspec- 
 tion work of the theaters. 
 
DEPARTMENT OF SAFETY 267 
 
 Notwithstanding that section 423 of the same ordinances requires 
 that "The manager of each theater and assembly hall shall instruct 
 the employees in fire drill, and same shall be subject to inspection by 
 the fire and police board, the fire chief or some one named or ap- 
 pointed by them," in not one theater examined were fire drills con- 
 ducted, although each theater had a house fireman. It is only since 
 October that the theaters have even had a house fireman. 
 
 Each day one of the six fire wardens visits each of the seven the- 
 aters and collects the reports. He is supposed to observe conditions 
 and to report to the chief any matters in connection with the theaters 
 which come to his notice. It was evident from observations made 
 during the survey that the fire warden performs this duty in a per- 
 functory manner, and that he does not properly call to the attention 
 of the chief matters coming to his notice. In two theaters portable 
 moving picture booths of an inferior type of construction were located 
 in a dangerous position with relation to the audience ; one had no flue 
 opening to the outer air, and both had been erected and put in opera- 
 tion without the knowledge or permission of either the fire chief or 
 the department of property. In another theater a long runway lead- 
 ing from the stage over the orchestra seats to the rear of the theater 
 had been erected and used during performances without the knowledge 
 either of the department of property or the fire chief, although it was 
 of such a character that it might have served to impede the progress of 
 an audience in attempting to leave the theater in time of panic: This 
 same theater had large wooden stairs occupying the entire stage, thus 
 creating an extra hazard, without either the permission or the knowl- 
 edge of the fire chief. It is not contended that either of these condi- 
 tions was especially dangerous, although they did create an extra 
 nazard. They are mentioned merely to show that the wardens and the 
 house firemen do not report to the chief the conditions which should 
 be called to his attention. Neither the runway nor the staircase in the 
 one theater, nor the portable moving picture booths in the other two 
 theaters should have been erected without the permission of the depart- 
 ment of property, the city electrician and the fire chief, and permis- 
 sion should have been given only as the result of an inspection. 
 
 Theater Which Should be Closed 
 
 Pour of the seven theaters are of modern fire-resisting construc- 
 tion, built with due regard for the protection of their patrons, except 
 that in one of them the dressing rooms are not equipped either with 
 a means of exit for the actors or with first aid equipment. Although 
 this part of the theater is three stories in height, the only means of 
 exit is by way of a winding staircase, which is but three feet wide. 
 The cutting through of one of the walls at the end of the hall on the 
 second floor of this building, leading to the iron fire escape which 
 serves the balcony of the theater, would remedy this condition. 
 
 One theater was found to be in such condition as to make it posi- 
 tively unsafe for use. This theater has a seating capacity of almost 
 1 500 with a gallery capable of holding 400. The interior construction, 
 including the proscenium arch, the gridiron, the fly galleries and all of 
 
268 DENVER 
 
 the floors, is of wood, and at the time of inspection the part of the 
 cellar of the theater immediately under the parquet floor was con- 
 gested with rubbish. A few weeks before the inspection 23 loads of 
 rubbish were removed. 
 
 Although there are five perforated pipes immediately above the 
 proscenium arch, there is no sprinkling system and no water curtain. 
 The stage is equipped with an asbestos curtain raised by hemp rope, 
 and not set into grooves. The dressing rooms in the basement are of 
 flimsy, wooden construction, and improperly ventilated. The dome 
 immediately above the auditorium is of wooden • construction. This 
 theater is located in an office building, the stores of which on two 
 sides are rented for purposes such as restaurants and saloons, having 
 kitchens in the basement. 
 
 Building Code Defective 
 
 Many conditions which tend to make the theaters unsafe are due 
 to the absence of any proper law or ordinance governing the construc- 
 tion, equipment and operation of theaters and other places of amuse- 
 ment. 
 
 Exits are commonly draped with velvet curtains hanging upon 
 rings from brass poles. The lights used to indicate the exits are not 
 of a standard type. The form of light used in some theaters is merely 
 a red incandescent bulb, while in others the bulb is covered with a 
 globe of ground glass upon which is cut the word "Exit." 
 
 The efficiency of the asbestos curtains as a means of preventing 
 dmoke, gases and fire from reaching the audience is completely de- 
 stroyed because they are not set into grooves and do not fit snugly 
 to the floor of the stage. 
 
 Not only the stages, but also the dressing rooms,- property rooms, 
 and carpenters' shops are unprotected by sprinkling systems. 
 
 The part of the building code governing the construction, equip- 
 ment and operation of theaters is wholly defective in that it is not 
 specific in its language or adequate in its requirements. An example 
 will be found in Section 395, headed, "Proscenium Wall and Curtain." 
 The part of this section relating to the fire curtain is as follows : "The 
 main curtain opening shall have an iron or asbestos curtain, and all 
 other openings in this wall shall have fireproof doors." This section 
 contains no specifications as to the grade or quality of the asbestos, 
 the manner of construction or hanging, the speed with which a curtain 
 shall be operated, or as to the placing of the same within steel or metal 
 grooves ; in consequence a theater owner can erect any kind of asbestos 
 or iron curtain he may choose without regard to its quality. 
 
 The code requires a water curtain, which is nothing but a per- 
 forated pipe across the head of the proscenium arch, and accepts this 
 in lieu of a complete sprinkling system. 
 
 Although the second paragraph of this section gives the fire 
 bureau authority to compel the installation of automatic sprinklers 
 
DEPARTMENT OF SAFETY 269 
 
 under the stage and in the dressing rooms, carpenter shop, paint stores 
 and property rooms, none of the theaters examined was so equipped, 
 although all were in need of such equipment. 
 
270 DENVER 
 
 MOVING PICTURE SHOWS 
 
 Moving picture shows are licensed by the excise commissioner. 
 The operators of moving picture machines are licensed by the city 
 electrician, according to the following procedure : The prospective 
 operator appears in person at the office of the city electrician, and 
 makes application orally for an operator's license. No printed form 
 of application is provided, nor is the applicant required to furnish any 
 definite information concerning his history, either as to character or 
 experience. He is then subjected to written test, being required to 
 answer a series of questions which are already prepared in typewritten 
 or mimeograph form. flaving passed this test, he is required to file 
 a bond in the amount of $100. He is then directed to the office of the 
 city treasurer where, upon payment of his license fee, he is licensed. 
 
 No photograph of the applicant is required, and no photograph is 
 placed upon his license. It is possible, therefore, for one person to 
 transfer his license without the knowledge of the authorities. There 
 are no requirements as to the posting of the license in the operating 
 booth, nor are any special qualifications required. One of the ques- 
 tions asked in the examination is, "How long have you been an oper- 
 ator?" to which the prospective operator answers merely the number 
 of days, months or years. 
 
 No investigation is made to determine whether the operator has 
 been previously licensed and has his license revoked for cause. A man 
 may have been an operator in another city and had his license revoked 
 for a cause which should serve to prevent his re-entering that occupa- 
 tion, yet Denver would have no knowledge of it. 
 
 It is difficult to prosecute unlicensed operators, because the re- 
 quirements are so inadequate. No person should be licensed to operate 
 a moving picture booth unless he has furnished the city electrician 
 with sufficient facts concerning himself to enable the city electrician 
 to investigate his character. If the applicant has served as operator 
 he should be required to furnish a reference from each of his former 
 employers, or at least, sufficient information to make it possible to 
 ascertain the cause of his having left their service. In addition to a 
 written test, all applicants for license should be submitted to a prac- 
 tical test. 
 
 No Inspection of Moving Picture Booths 
 
 Moving picture booths are constructed, maintained and operated 
 pursuant to a set of regulations which are not sufficiently specific to 
 afford proper protection to audiences by way of a secure and fire- 
 resisting construction. It would be difficult, under the existing regu- 
 lations, for the fire chief or his four wardens to prosecute the owner 
 of any theater or moving picture show for having a poorly constructed 
 and unsafe booth, for almost any box made of sheet metal and having 
 a vent to outer air would meet with the requirements. It is recom- 
 mended that a more stringent ordinance be adopted which shall spe- 
 cifically state the type of construction required, the size of all open- 
 
DEPARTMENT OP SAFETY 271 
 
 ings and the method of opening and closing them, the character and 
 amount of fire extinguishing aids, such as boxes of sand, hand chem- 
 ical extinguishers, etc., that should be in each booth, the number of 
 persons permitted to operate in such booth .at one time, in accordance 
 with its dimensions, and the size and location of the booth. The erec- 
 tion of any such booth in a part of the house where the audience may 
 have access to it or be seated about it should be prohibited. 
 
 To erect a moving picture booth, according to the ordinance, it is 
 necessary that an application for a permit be made to the department 
 of property. The form of application is the regular form used for all 
 building permits. The filing of the application is the securing of the 
 permit, and the securing of the permit is the construction of the booth, 
 without interference or inspection. Although the department of prop- 
 erty depends upon the fire wardens to inspect, it does not notify the 
 fire chief when such permits are issued. Thus, the fire department 
 learns of the construction of these booths when the fire wardens find 
 them upon their routine inspections. 
 
 Inspection for construction is necessarily inadequate and unde- 
 sirable, since the fire wardens have had no training for the work and 
 no technical knowledge of building construction. The fire bureau 
 should have nothing to do with the construction of these booths. It 
 should merely pass upon their location- and the fire-fighting equipment 
 installed. 
 
 Although the law requires the wiring in theaters and moving pic- 
 ture shows should not be changed or altered without inspection by the 
 city electrician and a permit for such change, moving picture booths 
 are erected, and the wiring is done without inspection or permit, except 
 in case of a newly constructed theater. 
 
 The wiring of a moving picture booth in a theater is a matter of 
 importance. Operators all over this country have been detected in 
 practices which are not in accordance with either the underwriters' 
 code or good practice. Therefore, no moving picture booth should be 
 permitted to be operated without proper inspection of the wiring. 
 
272 DENVER 
 
 FIRE CAMPAIGN NEEDED 
 
 The conditions found in two theaters and in many of the public 
 buildings, and the failure of the city to take the necessary precautions 
 with regard to moving picture booths and their equipment, added to 
 the fact that in the entire city there are but 35 buildings equipped 
 with sprinkler systems, and that there is an almost total absence of 
 automatic gas "shut offs, " emphasize the need for the prosecution of a 
 fire prevention campaign. 
 
 Fire Prevention Commission Should be Created 
 
 To conduct such a campaign, citizen co-operation is necessary. 
 Hence a campaign of education should be inaugurated at once. House- 
 wives contribute greatly to the fire waste of the city through lack of 
 intelligence in matters pertaining to fire prevention. Therefore, it is 
 essential that they be circularized and warned against common prac- 
 tices which increase the risk of fire and that they be told how to handle 
 incipient fires. 
 
 Such a campaign should be under the direction of a fir^e prevention 
 commission,' which should be created by ordinance. The commission 
 should consist of the commissioner of safety, the fire chief, the com- 
 missioner of property and two private citizens, serving without salary. 
 Council should adopt an ordinance empowering the commission to 
 establish a set of rules and regulations upon the subject of fire pre- 
 vention. Council should instruct the subordinate heads of the various 
 city departments to co-operate with the commission in the enforcement 
 of its rules, and all of the inspectors of the department of health and 
 other departments, who are constantly making routine inspections, in- 
 cluding the patrol force of the police department, should be required 
 to report to the fire prevention commission any matters coming to their 
 attention or observed by them which appear to create a hazard. 
 
 The ordinance creating the commission should give full power to 
 the members and their legal representatives to enforce preventive 
 measures. They should include power to : 
 
 1 — Inspect any building, structure, place or premises 
 
 2 — Remedy any condition found in violation of law, or rules and 
 regulations in respect to fires or the prevention of fires 
 
 3 — Require that a report be made within 24 hours after every fire 
 by the owner or lessee of the apartment or premises in 
 which a fire occurs. The importance of this power would 
 be realized when it is known that a large percentage of the 
 fire insurance claims are paid in cases where the fire de- 
 partment was not in attendance and was never notified of 
 the fire or the cause thereof. Thus, a large field for in- 
 vestigation as to the causes of fire is untouched because the 
 owners of property are not required to report 
 
DEPARTMENT OF SAFETY 273 
 
 4 — Require the installation of an automatic fire alarm system, 
 gas shut offs, sprinkler system, and other fire-extinguish- 
 ing equipment, and adequate and safe means of exit 
 
 5 — Require that any building or structure which is inadequately 
 protected against fire be vacated 
 
 6 — Require regular fire drills in factories, stores, schools, hos- 
 pitals and asylums 
 
 7 — Require that licenses be demanded of all persons engaged in 
 the sale, transfer or storage of combustibles and inflam- 
 mables, and that the installation of all tanks and other re- 
 ceptacles holding combustibles or inflammables be properly 
 inspected 
 
 8 — Promulgate rules and regulations governing the handling of 
 combustibles and inflammables 
 
 9 — Declare a building to be a nuisance when it is deficient an fire 
 extinguishing equipment or used in a manner to create a 
 menace to life or property 
 
 10 — Compel the owners of hazardous buildings to place them in a 
 condition of safety. 
 
 The fire chief should be the executive officer of the commission, 
 and as such he should be empowered to enforce all of the orders of the 
 commission. 
 
 Police Should be Used as an Aid 
 
 The chief of the fire department should cause to be printed a 
 placard advising householders of the location of the nearest fire box 
 and describing common practices which increase the danger of fire. 
 The householders should also be advised that if the fire alarm box is 
 too far distant to be convenient, they can send in an alarm over the 
 telephone by merely informing the operator that there is a fire, with- 
 out furnishing the telephone number of the bureau. These placards 
 should be distributed among the policemen on their respective posts. 
 All the orders of the commission should be served by the uniformed 
 policemen. 
 
274 DENVER 
 
 RECORDS AND REPORTS 
 
 The records of the bureau of fire are in general accordance with 
 the approved type of records in use in other large cities. 
 
 No Health Records of Members of the Force Maintained 
 
 No health records of members of the force are maintained except 
 the notification of the surgeons, which are of little or no record value. 
 The records which should be kept by the surgeons are discussed in 
 another section of this report. 
 
 Consolidated Morning Return 
 
 The chief makes no written reports to the commissioner of safety, 
 nor does he file with the commissioner individual fire service reports. 
 
 Since the commissioner is the administrative head of the bureau, 
 and as' such responsible for its efficiency, it is essential that he receive 
 adequate information currently concerning the activities of the bureau 
 in order that he may intelligently direct its operation. He should re- 
 ceive a daily consolidated report which would furnish him with the 
 following information concerning activities of the force for the pre- 
 ceding 24 hours: 
 
 Total number of alarms 
 
 Total number of alarms to same date of preceding year 
 
 Box Telephone Still 
 
 Cause of alarms 
 
 Fire Accident Unnecessary False 
 
 Number of fires 
 
 Number of fires to same date of preceding year 
 
 Loss represented by fires 
 
 Total fire loss to same date of preceding year 
 
 Total strength of force 
 
 Number absent 
 
 Names of absentees and causes of absence 
 
 Number absent from companies responding to alarm 
 
 Number of hose bursts 
 
 Total number of hose bursts for the year to date 
 
 Remarks 
 
 Under the heading "remarks" the chiefs should report any un- 
 usual occurrences, accidents to the men or apparatus, loss of apparatus 
 at tires, or any other information which would be of assistance to th«t 
 commissioner. 
 
DEPARTMENT OF SAFETY 275 
 
 Fire Service Report Should be Revised 
 
 "While the present fire service report contains headings calling for 
 much information, it does not provide for sufficient detail concern- 
 ing the operation of the force at the fire. Reports when submitted 
 should be placed in a bound book instead of folded and filed. 
 
 The fire service report received by the chief should be filed by 
 the assistant chief and it should be independent of the individual com- 
 pany report. It should provide for the following information : 
 
 Number of alarms sent in. 
 
 Duration of fire Hours Minutes 
 
 Location of fire 
 
 Date 
 
 Day of week 
 
 Time alarm was received 
 
 Time of signal out 
 
 Fire company to arrive 
 
 Time of arrival 
 
 Alarm received by box signal number 
 
 Alarm received by telephone by telegraph bureau 
 
 Alarm received from outside telephone (orally or in any other 
 manner) 
 
 Alarm communicated by , f 
 
 Cause of alarm Fire Unnecessary False 
 
 alarm Other cause 
 
 Description of building 
 
 Stories high 
 
 Material built of 
 
 Fire proof Semi-fire proof Non-fire proof 
 
 Character of building Tenement Private dwell- 
 
 ing Factory Loft building etc. 
 
 Size 
 
 Name of owner 
 
 Address of owner 
 
 Name of occupant of part of building affected by fire 
 
 Names of other occupants and floors occupied 
 
 Part of building where fire originated 
 
2 7 6 DENVER 
 
 Fire extended to 
 .With whom insured 
 
 Amount of insurance Building Contents 
 
 Estimated loss Building Contents 
 
 Probable cause of fire 
 Apparatus responding to alarm 
 First alarm 
 
 Engine company Truck company Chemical 
 
 number Fuel wagon 
 
 Second alarm 
 
 Engine company Truck company Chemica: 
 
 number Fuel wagon 
 
 Third alarm 
 
 Engine company Truck company Chemical 
 
 number Fuel wagon 
 
 Fourth alarm 
 
 Engine company Truck company Chemical 
 
 number Fuel wagon 
 
 Number of men on fire grounds Chief officers 
 
 Company officers Men 
 
 Time second alarm was ordered 
 
 Time and by whom sent in and from what box 
 
 Time of each subsequent alarm and by whom ordered and by 
 whom sent in and from what box 
 
 Remarks 
 
 On the reverse of this form space should be provided for a record 
 of all officers present at the fire, arranged in order of rank. This 
 record should show the time the officers left, as well as the time they 
 arrived. The lower half of the form should be devoted to a complete 
 and detailed description of the methods used in extinguishing the fire, 
 whether by chemical, water line, or other means. Under the heading 
 "remarks" should appear a detailed description of any accidents, 
 rescues, or any other incidents in connection with the fire. 
 
 The service report should be made out in triplicate by the assistant 
 chief first to arrive at the fire, or by the assistant chief in whose dis- 
 trict the fire occurs. One copy should be forwarded to the fire chief, 
 the original forwarded to the commissioner of safety, and the other 
 copy kept on file at the office of the assistant chief. The form should 
 not exceed 8x11 inches, and it should be so arranged as to permit of 
 binding. 
 
DEPARTMENT OF SAFETY 277 
 
 Upon the original copy, which will be filed with the commissioner, 
 there should appear at the' top printed headings to be filled in by the 
 chief, as follows : 
 
 Number of fires to date 
 
 Number of false alarms to date 
 
 Total number of fires during the preceding year 
 
 Total number of false alarms during preceding year 
 
 Total number of fires to corresponding date of preceding year 
 
 Total number of false alarms to corresponding date of pre- 
 ceding year 
 
 Individual Company Fire Report 
 
 Each company should he required to file a report upon each fire 
 upon a specially printed card instead of the form now used. The cards 
 should not exceed 'b}/'^> x h inches, and they should have among other 
 headings the following: 
 
 Report of fire number during the year 19. ... . 
 
 (The number of the fire should be written in at the office 
 of the chief and not by the company) 
 
 Engine company number Truck company number 
 
 Fire number Attended by this company during 19. . . . 
 
 Date 
 
 Day of week ■< 
 
 Report of fire at number Street 
 
 Alarm received by telegraph Telephone Local 
 
 Time alarm was received 
 
 Time (if engine company) consumed in reaching and coupling 
 to hydrant 
 
 Time delayed 
 
 Cause of delay 
 
 The hydrant was found in condition and was used 
 
 with pounds for hours minutes and 
 
 with pounds of water pressure for hours 
 
 minutes 
 
 Number of gallons of water used 
 
 Reported to and were ordered by 
 
 Number of minutes consumed in getting a stream on the fire 
 
 Amount of delay, if any, and the reasons 
 
278 DENVER 
 
 The pipe was taken to and stream was kept there 
 
 hours and minutes, then taken to for 
 
 hours and minutes, then taken to for hours 
 
 and minutes 
 
 The supply of water was 
 
 The company was out of quarters hours minutes 
 
 The company was used at the fire hours minutes 
 
 The average pressure on line was pounds and the hose 
 
 pressure was pounds feet of hose in the 
 
 line nozzles inches 
 
 Number of feet of ladder used 
 
 Number of searchlights used 
 (if a truck company) 
 
 On the reverse of this report there should appear headings call- 
 ing for remarks concerning the bureau's property lost, found or de- 
 stroyed, accidents, etc. There should also appear a list of the officers 
 and men of each company who did not appear at the fire, and the 
 reason for their absence. This report should be signed by the com- 
 manding officer of the company and forwarded to the assistant chief, 
 who should review the report and sign it before forwarding it to the 
 office of the chief. 
 
 Special Report for Bursting Hose 
 
 Special printed forms should be provided upon which to report 
 "bursting hose." This report should contain a detailed statement con- 
 cerning the hose damaged, the date the hose went into service, the fire 
 at which the break occurred, and, when possible, the cause of the 
 break, such as increased pressure, falling heavy weights, run over by 
 apparatus, etc. This slip should also be used for reporting upon hose 
 destroyed in burning buildings. The record contained on this slip 
 should be entered in the hose record described elsewhere in this report. 
 
 Proper Time Sheets 
 
 Each commanding officer should be required to keep a time sheet 
 for the members of his command upon printed forms showing: 
 
 Each roll call during 24 hours 
 
 Names of absentees 
 
 Duration of absence 
 
 Cause of absence 
 
 Time consumed by firemen for meals 
 
 Time consumed at fires 
 
 Time on watch 
 
 Details 
 
DEPARTMENT OF SAFETY 279 
 
 This report should be filed before nine o'clock in the office of the 
 assistant chief, where it should be reviewed for accuracy and signed 
 and forwarded to the office of the chief for use as the basis for the 
 consolidated daily return. 
 
 Upon this report should also be recorded facts in connection with 
 any injury to property of the bureau. Thus, by 10 o'clock each morn- 
 ing the chief should have before him a detailed report concerning the 
 activities of the entire force for the 24 hours ending at 9 a. m. of the 
 current day. The rules should prescribe that any absence during the 
 day should be reported immediately by telephone to the chief. 
 
 This report should be properly filed, and the service report from 
 which the payroll is prepared should be compiled each month from the 
 information contained on these daily time sheets. 
 
 Station Log Book 
 
 The log book in use at the fire stations is adequate, and in most 
 cases neatly and properly maintained. For purposes of ready refer- 
 ence, it could be improved by making the left margin of each page 
 one and a half inches wide and requiring that all entries be prefaced 
 by a marginal note in red ink indicating the subject of the 'entry. For 
 example, if the entry be a record of a fire alarm, the word "alarm" 
 should appear in the margin ; if it be a record of a roll call, the word 
 "roll call" should appear; if it be a record of the visit of the chief to 
 the fire station, "chief engineer's visit" should appear. 
 
 The rules should also provide that where the entries for the day 
 end in the middle of a page, the page should be properly closed by a 
 red line running horizontally across the page and an oblique line from 
 the left end of the horizontal line to the lower right corner of the page. 
 A new page should be begun each day. 
 
 Annual Report of No Administrative Value 
 
 The annual report, because of the absence of detailed information 
 concerning the activities of the force, comparative tables, and a finan- 
 cial statement, is of little value to the mayor and council, or indeed 
 to the commissioner of safety, as a basis upon which to determine the 
 efficiency or inefficiency of the bureau. While it contains figures- 
 showing the total fire loss and the number of fires, and figures showing 
 the methods used in extinguishing fires by groups, it fails to show 
 the individual fire loss, which information is of great importance in 
 determining the efficiency of the bureau. No information is contained 
 in the report as to any activity in fire -prevention work, and no recom- 
 mendation is made for legislation providing for fire prevention in- 
 spection. 
 
 Probable Causes of Fires Not Mentioned 
 
 In enacting laws and ordinances governing fire protection, it is 
 essential that council and the legislature have available statistics as 
 to the character of buildings in which fires occur, the probable causes 
 
280 DENVER 
 
 of fires, the hours in which fires occur, and the locality. There are 
 no tables in the annual report which would furnish, any information 
 upon these subjects. 
 
 It is recommended, therefore, that the bureau of fire issue an an- 
 nual report which would not only furnish a means for determining the 
 efficiency or inefficiency of the force, but also serve as a guide to 
 council in the matter of enacting ordinances affecting the bureau and 
 to the board of estimate in matters affecting its appropriations. It is 
 essential that the report contain a comprehensive financial statement 
 which would show in tabular form the unit cost of furnishing fire pro- 
 tection, the \.er capita fire loss, the money appropriated for the bureau, 
 disbursements classified as to salaries, repairs, supplies, equipment, 
 maintenance of horses and apparatus, etc., year by year for the past 
 five years. Such a table would furnish an adequate basis of compari- 
 son as to cost and fire loss. No table in the report should fail to show 
 a comparison with previous years. 
 
 A section of the report should be devoted to the force, in which 
 should appear, among others, tables showing the number of: 
 
 Appointments 
 
 Transfers 
 
 Promotions 
 
 Ketirements 
 
 Deaths 
 
 Dismissals 
 
 Trials upon charges and dispositions 
 
 Reinstatements 
 
 Days lost by firemen due to illness 
 
 Prevailing causes of illness 
 
 Days lost by firemen due to injuries received in the perform- 
 ance of duty 
 
 Commendations awarded to firemen 
 
 Sanitary condition of the fire houses 
 
 The report should show in tabular form complete statistics of fires, 
 including the number of fires confined to the points of starting, con- 
 fined to the building, extending to other buildings, extinguished with- 
 out engine stream, extinguished by chemicals, extinguished with one 
 stream, two streams, three streams, etc., and as much detailed informa- 
 tion concerning the method of extinguishment as possible. There 
 should be a table showing the number of fires month by month be- 
 tween the hours of 6 a. m. and 6 p. m. and between 6 p. m. and 6am 
 The number of fire prevention inspections month by month, and the 
 result of such inspections as to orders issued, violations found orders 
 
DEPAKTMENT OF SAFETY 281 
 
 complied with, prosecutions brought, fines collected, and conditions 
 remedied, should be shown in another table. The character of build- 
 ings in which the fires occur, classified as to tenement, flat, dwelling, 
 factories, loft buildings, freight depots, and sub-classified as to stories 
 of buildings and type of construction, whether brick, frame, steel, fire- 
 resisting, semi-fire-resisting, or non-fire-resisting, should be indicated. 
 The character of the business conducted in the part of the building 
 in which fire occurred should be shown in this table, care being taken 
 to indicate any hazardous condition in connection with the business 
 occupying the premises. For example, if the business be a grocery 
 store, it is necessary to know whether the store had a kerosene oil tank. 
 The probable causes of the fires should be reported. In describing the 
 methods used in fighting fires, the actual number of men engaged at 
 each fire should be shown. Fires in which the loss is high should be 
 described in detail, as should also any loss which is the result of delay 
 and care should be taken to report accurately and honestly upon the 
 cause for the delay, such as bursting hose, lack of water pressure, de- 
 fective hydrants, etc. 
 
 Efficiency Records Inadequate 
 
 The efficiency records now maintained do not serve the purpose 
 for which they were intended; first, because of the form used, and 
 second, because of the manner in which they are kept. 
 
 It is recommended that the present form of efficiency records be 
 abandoned and a new form established. It is frequently urged that it 
 is especially difficult to give efficiency ratings to firemen except as 
 based upon their work at fires, and that such a system as is suggested 
 would not be equitable, inasmuch as some companies respond to more 
 alarms than others. But equitable efficiency ratings can be given to 
 firemen regardless of the number of alarms to which they respond, and 
 work at fires should represent only a part of the activities upon which 
 they are rated. In awarding efficiency ratings attention should be 
 given to the following matters : , 
 
 Punctuality, in reporting from meals, in responding to alarms, 
 in reporting for work after furloughs, etc. 
 
 General appearance at all times 
 
 Proficiency in report writing 
 
 Proficiency in drills 
 
 General discipline about the fire house 
 
 "Willingness to perform extra duty 
 
 Intelligence in prevention inspections 
 
 Eagerness to learn the most improved methods of fire-fighting 
 by reading current publications, by studying the card de- 
 scriptions of the property in the district and by becoming 
 familiar with the location of the fire hydrants 
 
 Efficiency in fire-fighting in the handling of apparatus 
 
282 DENVER 
 
 To determine the efficiency of firemen in the matters referred to 
 above, with the exception of his work at fires, each captain should 
 conduct frequent tests. He should observe the conduct of the men 
 about the fire, house and should encourage his men to read current 
 publications upon fire-fighting and to study improved methods of fire 
 extinguishment. Many hours of leisure time now occupied by the 
 firemen in matters which do not increase their ability to fight fires 
 would be devoted to self improvement. If this plan were carried out 
 the problem which confronts most fire chiefs as to what to do with 
 the leisure time of the firemen would be easily solved, and- solved in 
 the interest of efficiency. The captains should be required to lecture 
 to the men of their commands a certain number of hours each week 
 and to examine them upon the subjects of their lectures. 
 
 The captains could greatly assist in the work of fire extinguish- 
 ment by explaining to their men the structural conditions of the large 
 buildings in their districts, taking for each lecture a building which 
 has been visited by each man in the company. He should describe 
 in detail the location of the fire escapes, the hatchways, extra heavy 
 weights, sprinkler shut offs, gas shut offs, and discuss methods of 
 extinguishment which should be used in the event of a fire. The cap- 
 tains should examine the men to determine whether each has received 
 full benefit from the lectures. 
 
 Efficiency Records Should Serve as a Means of Discipline 
 
 Efficiency records would provide a means of disciplining mem- 
 bers of the force for minor infractions of the rules which would not 
 warrant placing the firemen upon trial. Indications of stubbornness 
 or unwillingness not amounting to insubordination would serve to 
 reduce the fireman's rating for the month. , 
 
 Records of Complaints 
 
 There is no book record of complaints made either by the fire- 
 men upon inspection or by the fire warden. Such a book, called the 
 "citizens' complaint book," should be opened at once. In this book 
 should be entered the date the complaint was received, by whom 
 made, character of the complaint, by whom investigated, and the re- 
 sult of the investigation. If a reinspection is made, the date of such 
 reinspection, the result, and by whom made, should also be entered. 
 
 No Record of Places Licensed to Handle Explosives 
 
 As, suggested elsewhere in this report, there is need for the estab- 
 lishment of rules and regulations governing sale, storage and trans- 
 portation of explosives and combustibles. It is essential that the bureau 
 be familiar with the location of all extra-hazardous places and that it 
 exercise proper control and supervision over them. For this purpose 
 not only should fire headquarters have a complete record of all prem- 
 ises licensed to handle combustibles, but likewise each fire station 
 should have a list of such places as are located within the district. 
 
DEPARTMENT OF SAFETY 283 
 
 A card record should be established of all persons or premises li- 
 censed to sell, store, handle, transport or manufacture explosives or 
 combustibles. Upon these cards should appear detailed information 
 concerning the premises, showing clearly the amount of explosives or 
 combustibles permitted to be stored thereon and the amount the owner 
 contemplates storing, with a sketch of the part of the building in which 
 explosives or combustibles are stored. A copy of these cards should 
 "be supplied to the assistant chief in whose district the place is located 
 and to the captain of the fire companies in the district. 
 
 The cards should be indexed and classified as to kinds of business, 
 such as dry cleaners, garages, blasters, powder plants, etc. 
 
 Records of Moving Picture Shows, Theaters, Etc. 
 
 In no respect are the records more deficient than with regard to 
 moving picture shows and theaters. This does not mean that the chief 
 and his assistants are not familiar with the interior of these places, 
 because, in justice to the officers, it must be said that they showed 
 familiarity with such places. But for purposes of preserving the 
 records the bureau should have complete information at headquarters 
 concerning these places. 
 
 Card records should be maintained at the office of the commis- 
 sioner of safety, the chief of the bureau and each fire station, showing 
 every theater, moving picture show, dance hall, boxing club, or other 
 place where large numbers of people congregate and where panic 
 might be expected in the event of a fire. These records should give 
 an acrarate description of the premises, indicating the number and 
 type of exits, the location of stand pipes, fire escapes, sprinkler, gas 
 and electric shut-offs, etc. In addition there should be in the office of 
 the chief complete floor plans of such buildings, upon which should 
 be plainly indicated the position of each stairway, lobby, corridor, pas- 
 sage, hall and exit door, including the basement from the street front 
 to the extreme rear portion, and the open court or exits therefrom; the 
 position of every water and gas pipe and of every electric wire so far 
 as possible ; the position of every water main, tank, stand pipe, hydrant 
 and sprinkler pipe with the lines connecting each separate system of 
 piping and electric wires clearly indicated. An index of such line 
 should be given on each plan. These plans should be made on tracing 
 linen, and drawn to a scale of not less than eight feet to the inch. The 
 adoption of an ordinance compelling the filing of such plans is recom- 
 mended. Plans should be filed flat, and any alterations or amend- 
 ments thereto made subsequent to the filing of the original plan should 
 be reported and the plan amended accordingly. 
 
 Fire Hydrant Reports 
 
 In order that the firemen may be familiar with the fire hydrants, 
 the inspection of hydrants should be a part of the duties of the uni- 
 formed force. This inspection, however, need not interfere with the 
 inspection of the employees of the water company, but should be made 
 in co-operation with them. Each month the assistant chief should se- 
 
284 DENVER 
 
 cure from each captain a report showing the number and location of 
 hydrants inspected in his district, the person by whom inspected, and 
 the results. If any trouble is discovered in the course of an inspection, 
 a report should be filed immediately. The captains should also be re- 
 quired to make recommendations as to the need for additional hydrants 
 in their districts. 
 
 Report on Drills at Fire Stations 
 
 Each captain should be required to file a weekly report with the 
 chief stating : 
 
 Number of drills conducted by him at the fire house 
 
 Length of time devoted to each drill 
 
 Class of drill conducted, described in detail 
 
 The number and names of men absent during drills 
 
 Number and subject of the lectures given 
 
 Number of examinations or tests held 
 
 Hose and Equipment Records 
 
 While the chief maintains an informal record concerning the sup- 
 plies and apparatus purchased, it would be wise to establish a formal 
 hose and apparatus record. In this book should be kept a record of 
 date of purchase, brand, size, from whom purchased, price paid, and 
 to which company assigned. A record of breaks or destruction of any 
 hose or apparatus, any repairs made, and the cost thereof, should also 
 be maintained. 
 
 Force Records 
 
 The force records maintained at the office of the chief are in 
 accordance with approved methods. The personal card should be 
 made out in triplicate, however, one to be kept on file in the office of 
 the chief, the second to be kept on file in the office of the commis- 
 sioner of safety, and the third to be delivered to the fireman and 
 handed by him to the captain of the company to which he is assigned. 
 All three of these cards should be kept posted to date. 
 
 Record of Gasoline, Tires, Etc. 
 
 Although a monthly record is maintained of the gasoline, oil and 
 other supplies for the automobiles, there are no cost records maintained 
 for each car. The chauffeur of each automobile should be required to 
 file a daily report showing the following : 
 
 The number of miles traveled as shown by reading of the 
 speedometer at 8 a. m. each morning 
 
 The amount of gasoline used 
 
 The amount of oil used 
 
DEPARTMENT OF SAFETY 285 
 
 The destination of each trip, showing whether it was upon the 
 alarm of fire, inspection trip, etc., etc. 
 
 The date tires were put into service 
 
 Any repairs to the car, classing such as "tire trouble," 
 "engine trouble," etc. 
 
 A copy of this report should be filed with the commissioner of sup- 
 plies to enable his office to keep a check on the tires and supplies used, 
 and to estimate the cost per mile of automobile service. 
 
DEPARTMENT OP SAFETY 287 
 
 Part IV — The Police and Firemen's 
 Pension Funds 
 
DEPARTMENT OF SAFETY 289 
 
 PART IV.— THE POLICE AND FIREMEN'S PENSION FUNDS 
 GENERAL STATEMENT 
 
 Both Pension Funds Unsound Financially and Administratively 
 
 The firemen's and policemen's pension funds are unsound from a 
 financial viewpoint in that no adequate provision for meeting future, 
 as well as present, pension obligations have been made, as is explained 
 in detail in the succeeding pages of this analysis. But the financial 
 stability of the funds, important as it may be, is not the only question 
 to be considered. 
 
 Pensions are an additional expense in operating a department, and 
 if no benefit is derived in the way of maintaining a high standard of 
 efficiency in the service, such expense is unwarranted. To the extent 
 "of the employees' contributions to the fund the provisions of the pen- 
 sion funds should also operate equitably as between individual em- 
 ployees. 
 
 Present Plan Discourages Loyalty to the City's Interests 
 
 The entrance regulations prescribing age limits of 20 to 30 years 
 for firemen make it possible for healthy men 50 years old to retire on 
 half pay for life after a service of between 20 and 30 years. Most of 
 such men will have reached the highest point of efficiency and useful- 
 ness. Assuming that one of the most important purposes of a pension, 
 plan is to retain capable men in active service, the present method is 
 radically wrong and seems to be based solely upon the sentimental idea 
 that men who have loyally given their service to the city for a long 
 period of years should be properly rewarded by a pension. 
 
 No doubt recognition for long and continuous service should be 
 made, and if the city wishes to have an efficient force it is to its in- 
 terest to do so. At the same time the fact that a man has been loyal 
 to the city's service for 20 consecutive years should not prevent the 
 city from encouraging him to remain loyal and to continue in the serv- 
 ice until he becomes incapacitated on account of advanced age. 
 
 The Longer the Service the Smaller the Reward 
 
 Under the present system the maximum pension is given to a fire- 
 man after 20 years' service if he is 50 years old. Additional service 
 does not entitle him to more pension, and a man who remains in the 
 department after complying with the retirement requirements loses 
 financially. Assuming that the same amount of pension is given to a 
 healthy man of 50 and to one who is 60 years old, the former has the 
 advantage not only of more pension payments, but also of having the 
 possibility of adding to his income through private employment. 
 
 Loosely Defined Disability Provisions Dangerous 
 
 The present law is vague as to what constitutes disability. It is 
 also vague as to what constitutes disability "in performance of duty." 
 
290 DENVER 
 
 The interpretation of these terms is left to the discretion of the admin- 
 istration, and whether an employee should be retired for disability 
 depends upon the viewpoint taken by the members of the pension 
 board. 
 
 The law allows the retirement of firemen at age 50 after 20 years 
 of service, regardless of physical condition, while the retirement of 
 policemen may be made only when an officer is physically unfit for the 
 performance of duty. Notwithstanding these limitations placed on the 
 provisions for policemen, there were on December 31, 1913, as many 
 policemen (12) on the retired roll as there were firemen, although both 
 funds have been in existence the same number of years. 
 
 Evidences of Impending Bankruptcy 
 
 On pages 298 and 301 tables are given showing the comparative re- . 
 ceipts and disbursements of the firemen's and policemen's pension 
 funds for the years 1908 to 1913. Attention is called to the fact that 
 the annual demands for pensions grow more rapidly than the receipts 
 from the various legal sources of the funds. 
 
 While the annual income from various sources has so far proved 
 adequate to allow the payment of maturing pension obligations, the 
 expenditures are rapidly catching up with the receipts, as shown by 
 the following percentages: 
 
 Firemen's fund in 1908, 21 per cent; in 1913, 55 per cent. 
 
 Policemen's fund in 1908, 31 per cent; in 1913, 76 per cent. 
 
 The future experience is easy to foresee. The growth of the pen- 
 ison roll is irresistible, as it is based on a natural law. For a long 
 period to come more pensions will be granted than'will terminate on 
 account of death of present pensioners. The larger part of the income 
 being stationary, the disbursements will in a few years catch up with 
 the receipts and march ahead of them until the accumulations of the 
 fund in past years have been exhausted. 
 
 Two Methods of Meeting Cost of Pensions 
 
 1 — The "cash disbursement" plan — This requires only that the 
 pension payments be currently provided for as they mature. 
 
 2 — The ''reserve" plan — The amounts necessary to be set aside 
 during the active service of employees to provide for their 
 pensions when they retire are accumulated at interest and 
 form a reserve fund out of which the pension disbursements 
 may be made as they become due. 
 
 Under either plan it is essential that the cost of pensions should 
 be known and the income of the fund adjusted to such cost. The main 
 distinction between the two plans is that in the first the interest factor 
 is disregarded, while in the second it is applied. 
 
DEPARTMENT OF SAFETY 291 
 
 Cost of Pensions Under "Cash Disbursement" Plan 
 
 The cost of pensions to firemen and policemen of Denver are esti- 
 mated for the purpose of illustration under the following assumptions : 
 
 Firemen Policemen 
 
 Average entrance age 25 Average entrance age. . 30 
 
 Average retirement age 50 Average retirement age 55 
 
 Average annual salary $1,140 Average annual salary $1,140 
 
 Average annual pension - 570 Average annual pension 570 
 
 Average aetice service 25 yrs Average active service 25 yrs. 
 
 Average expectation of life Average expectation of life 
 
 after retirement at age after retirement at age 
 
 50 16 yrs. 55** 14 yrs. 
 
 (As determined in the case Average cost of pension pay- 
 
 of New York police- ments, $570 for 13.67 
 
 men*) years $7,980 
 
 Average cost of pension pay- 
 ments, $570 for 15.62 
 years ..$9,120 
 
 * If the American experience mortality tahle were to be used, the 
 expectation of life at age 50 would be 20.91 years, and correspondingly 
 increase estimated cost of pension. 
 
 ** The expectation of life at age 55, based on the American ex- 
 perience mortality, would be 17.40 years. 
 
 Under the foregoing assumptions, each pension involves the pay- 
 ment of — 
 
 a — $9,120.00 in the case of a fireman 
 b — $7,980 in the case of a policeman 
 
 These total pension payments, if distributed over 25 years' active 
 service of the employee, would indicate the following pension pro rata 
 for each year of active service : 
 
 a — $365.00 in the case of a fireman 
 b — $319.00 in the case of a policeman 
 
 The above amounts represent the following percentages of the 
 active pay of $1,140 per year: 
 
 a — 32 per cent in the case of a fireman 
 b — 28 per cent in the case of a policeman 
 
 Unsatisfactory Condition of Fund When Estimated on the 
 Theory of a "Cash Disbursement" Plan 
 
 When a pension plan is operated on the ' ' cash disbursement ' ' plan 
 the pension demands are small in the beginning. They constantly in- 
 crease, however, for more pensioners are put on the roll than are 
 dropped on account of death. If it were assumed that the quota of the 
 men and salary rates as well as the pension conditions were to remain 
 
292 DENVER 
 
 unchanged, the annual demands of the fund would gradually become 
 normal, and eventually form a certain uniform percentage of the salary 
 roll. If every fireman and policeman who entered the service were to 
 retire under indicated assumptions, then the annual pension payments, 
 which at present are only 5.36 per cent of the annual salary roll of fire- 
 men and 5.25 per cent of that of policemen, would grow in the course 
 of the next 25 to 35 years (when the financial load on the fund will 
 be approximately normal) to form about 32 per cent and 28 per cent 
 of the respective payrolls. 
 
 The above rough estimate is made under assumptions which were 
 necessitated through lack of any available data as to actual entrance 
 and retirement ages, actual mortality experience, etc. It does not take 
 into consideration — 
 
 a — That the firemen's pensions are continued at a reduced rate to 
 widows and children after the death of a pensioner 
 
 b — That $100.00 is paid to the dependents of each deceased fire- 
 man for funeral expenses 
 
 c — That the dependents of either a fireman or a policeman de- 
 ceased Avhile in active service are allowed a mandatory pen- 
 sion for life 
 
 d — That a number of employees will be retired after short periods 
 for disability which, although incapacitating them for serv- 
 ice, will not materially affect their longevity 
 
 The above and numerous other causes would tend to increase the 
 pension cost per active employee. On the other hand, a number of 
 employees will leave or be dismissed from service without receiving 
 pensions. The gain to the fund from the resulting forfeitures in all 
 probability will not offset the extra cost of "disability" and "depend- 
 ent" pensions. It would be conservative to state that the annual pen- 
 sion demands will increase at an accelerated rate until they will form — 
 
 a — 35 per cent of the annual salary roll of the firemen, or about 
 $88,458, instead of the present 5.36 per cent or $13,536.61 
 
 b — 30 per cent of the annual salary roll of the policemen, or about 
 $77,925, instead of the present 5.25 per cent or $13,640.80 
 
 Cost of Pensions Under "Reserve" Plan 
 
 Using the same assumptions as in the case of the "cash disburse- 
 ment" theory, and applying the interest factor of four per cent com- 
 pounded annually, the following reserves *should be on hand for each 
 retiring employe at the date of retirement : 
 
 a — Firemen — $6,642 — which amount, if invested at four per cent 
 compound interest, will be sufficient to pay $570.00 annually 
 for 16 years, or a total of $9,120.00. 
 
 b — Policemen — $6,021 — which amount, if invested at four per cent 
 compound interest, will be sufficient to pay $570.00 annually 
 for 14 years, or a total of $7,980.00 
 
DEPARTMENT OF SAFETY 293 
 
 Contributions Required Annually Under "Reserve" Plan 
 
 In order to accumulate during the active service of employees the 
 necessary reserve out of which their pensions may be paid during the 
 period of retirement, the following amounts and percentages of the 
 active salary of each average employee must be set aside each year and 
 invested at four per cent compounded annually: 
 
 a — Firemen — $153.00 per annum per employee should be set aside 
 in order to accumulate a reserve of $6,642.00 at the date of 
 retirement, or 13.4 per cent of his average assumed salary of 
 $1,140.00. 
 
 b — Policemen — $139.00 per annum per employee should be set aside 
 in order to accumulate a reserve of $6,021.00 at the date of 
 retirement, or 12.2 per cent of his average assumed salary of 
 $1,140.00. 
 
 Since the gain to the fund through forfeitures caused by employees 
 leaving the service without pensions will not offset the loss caused by 
 the extra cost of pensions to dependents, etc., the above quoted per- 
 centages should be increased as follows : 
 
 a — Firemen — 15 per cent of the salary, or $171.00 per annum. 
 
 b — Policemen — 13 per cent of the salary, or $148.00 per annum. 
 
 *Attention is called to the fact that in the calculation of annuities 
 involving the interest factor, "expectation of life" is not used as a 
 basis. For the purpose of this estimate, however, which is intended 
 merely to give an idea of the accumulating power of the interest fac- 
 tor, the use of the ready available "expectation of life" figures is 
 deemed appropriate. 
 
 It may be assumed that the above amounts, if set aside and in- 
 vested at four per cent compounded annually, will be sufficient to 
 accumulate the necessary reserves at the date of retirement. 
 
 Firemen's Fund Short About $500,000 When Estimated 
 on Theory of ' ' Reserve ' ' Plan 
 
 As stated before, the income of the firemen's fund should form 
 about 15 per cent of the annual payroll. 
 
 The receipts in 1913, excluding the interest on invested surplus 
 (see page 297) were composed of the following items : 
 
 1 — $13,040.40 contributed by city or 5.2 per cent of the payroll 
 
 ($252,738.) 
 
 2 — $ 2,527.38 contributed by employees or 1.0 per cent of the pay- 
 roll ($252,738.) 
 
 3—$ 3,017.50 donations, etc., or 1.2 per cent of the payroll ($252,- 
 738.) 
 
 $18,585.28 total receipts or 7.4 per cent of the payroll. 
 
294 DENVER 
 
 The above figures show that the present income of the fund is en- 
 tirely inadequate for the accumulation of reserves which would be suf- 
 ficient to pay future pensions. In order to be "deficit proof," the in- 
 come of the fund should form about 15 per cent of the payroll or ap- 
 proximately $37,900. 
 
 Such annual income, however, should be invested at interest and 
 held in reserve in order to pay pensions to the employees in whose be- 
 half the amounts were accumulated. It is evident, therefore, that this 
 income should not be encroached upon to meet the current payments 
 on pensions heretofore granted. Neither should it be used to cover the 
 shortage resulting from insufficient contributions made in the past in 
 behalf of present employees. There should be a separate reserve fund 
 available for the purpose of meeting "accrued" liabilities. 
 
 The "reserve" fund in 1913 amounted to $115,696.50, which is 
 entirely insufficient to guarantee payment to the 30 pensioners now 
 on the rolls. The greater proportion of the annual receipts of the fund, 
 which should have been set aside during the past years of active serv- 
 ice of the present employees, has been used in paying pensions to those 
 retiring in the past. Venturing a rough estimate, there should have 
 been a reserve on hand of between $400,000 and $500,000, which, invest- 
 ed at four per cent interest, together with the annual contributions of 
 15 per cent of salaries of the present employees in the future, would be 
 sufficient to pay their pensions when they become due. This would 
 mean that the amounts set aside for those entering the service from 
 now on should be held in reserve until they begin to retire. ' 
 
 Policemen's Fund Short About $600,000 When Estimated 
 on Theory of "Reserve" Plan 
 
 The receipts of this fund in 1913, excluding the interest on the in- 
 vested surplus (see page 301) were as follows : 
 
 1— $11,033.25 contributed by city or 4.2 per cent of the payroll 
 
 ($259,750.) 
 
 2 — $ 2,597.50 contributed by employees or 1.0 per cent of the pay- 
 roll ($259,750.) 
 
 3 — $ 147.35 donations, etc., or 0.1 per cent of the payroll ($259,- 
 750.) 
 
 $13,778.10 total receipts or 5.3 per cent of the payroll 
 
 ($259,750.) 
 
 If the condition of this fund is viewed from the standpoint of pro- 
 viding reserves, the amount needed to set aside each year, as stated,, 
 should be about 13 per cent of the payroll in order to pay the benefits 
 of the present scheme. This means that the future annual contribu- 
 tions from all sources should amount to about $33,768 per annum as- 
 suming that neither the present quota of men nor their salaries shall 
 be raised. 
 
DEPARTMENT OF SAFETY 295 
 
 As in the case of the firemen's fund, the policemen's "reserve" 
 fund, which in 1913 amounted to $76,728.79, is inadequate by from 
 $500,000 to $600,000 to provide for pension payments to the present 38 
 pensioners and to such of their dependents as are entitled to receive 
 pensions, and also to represent the cumulated reserves of the present 
 248 policemen for all the years of their service prior to the present date. 
 
 Specific MunicipaLRevenues Undesirable as Income of Fund 
 
 The unwholesome condition of both funds as analyzed simply em- 
 phasizes the principle that the receipts for a pension system must be 
 actuarially adjusted to future pension payments and cannot be safely 
 drawn from an entirely foreign fund. It also accentuates the poor pol- 
 icy of setting aside specific municipal revenues to meet pension de- 
 mands. They are as actuarially unrelated as any two facts taken at 
 random. 
 
 The pension system of a municipality should be supported either 
 by the men directly through individual contributions adjusted to indi- 
 vidual pensions, by grants from the public treasury, or by a combina- 
 tion of the two methods. Other sources of income apparently shifting 
 the burden from both the taxpayers and the recipients, which may have 
 been advisable when pensioners had to fight hard for recognition, 
 should be discarded today and a complete revision of the entire system 
 effected. 
 
 What Should Be Done to Put the Funds on a Better Basis 
 
 Even a cursory examination makes it evident that both pension 
 schemes in question have been undertaken without actuarial advice. 
 The only reason that there are now resources in reserve instead of defi- 
 cits is that the funds have not been in operation sufficiently long to de- 
 velop their weaknesses. 
 
 It is of primary importance, therefore, that a scientific examina- 
 tion be made, the extent of accrued liabilities determined, and adequate 
 provisions made for meeting them as they become payable. 
 
 The present unsatisfactory pension provisions should be revised 
 and a reorganized scheme applied to new entrants in the service. To 
 insure permanency of the retirement policy the calculations of new ben- 
 efits and required income should be made scientifically and the future 
 operation of the fund analyzed by means of periodical actuarial valua- 
 tions as is the custom in some of the foreign countries where long ex- 
 perience has taught the wisdom of "an ounce of prevention." 
 
296 DENVER 
 
 OPERATION OF THE FIEEMEN'S PENSION FUND, 1908-1913 
 
 Benefits 
 
 The firemen 's fund was established in 1904 for the payment of pen- 
 sions to firemen, their widows and children as well as lump sum bene- 
 fits in the event of death of an active or retired member of the force. 
 
 Pensions to Members 
 
 1 — "Service" pensions — one-half average salary for one year pre- 
 ceding retirement. Granted on request at age of 50 after 20 
 years' service 
 
 2 — "Disability" pensions 
 
 a — One-half final salary at any age or after any period of 
 service if permanently disabled in the performance of 
 duty 
 
 b — Full salary not exceeding one year at any age or after any 
 period of service if temporarily disabled in the perform- 
 ance of duty 
 
 Pensions to Dependents 
 
 1 — To widows — A pension of $360 per annum to widows of de- 
 ceased active and retired firemen. Pension mandatory and 
 paid for life or until remarriage 
 
 2 — To children— A pension of $72 per annum for each child of de- 
 ceased active and retired firemen. Pension mandatory and 
 paid until age of 14 years 
 
 Lump Sum Benefits 
 
 1 — A sum not exceeding $100 is paid to the dependents of a de- 
 ceased active or retired fireman 
 
 2 — A sum not exceeding $50 is paid for the expense of attendance 
 of firemen at the funeral 
 
 Administration 
 
 The fund is administered by a board of trustees composed of the 
 mayor, the president of the fire and police board, the chief of the fire 
 department, the city auditor, and the city treasurer. The city treas- 
 urer is also the treasurer of the fund. 
 
 Income 
 
 The income of the fund is derived from the following sources : 
 
 Employees' Contributions 
 One per cent of salary 
 
DEPARTMENT OP SAFETY 
 
 297 
 
 City, Indirect 
 Disciplinary deductions from salaries of firemen 
 
 City, Direct 
 
 Tax levy of one cent on each $100 of taxable property when 
 fund is below $300,000 
 
 Other Sources 
 
 Donations, rewards 
 
 Interest on invested funds 
 
 Annual Receipts by Sources, 1908-1913 
 
 
 
 City tax levy 
 
 
 
 
 
 
 and 
 
 Donations and 
 
 . 
 
 
 
 Employees 
 
 disciplinary 
 
 receipts from 
 
 
 Total 
 
 Tears 
 
 1% of salaries 
 
 deductions 
 
 annual ball 
 
 Interest 
 
 Receipts 
 
 1908 
 
 $2,039.45 (a) 
 
 $11,890.26 
 
 $ 685.00 
 
 $2,272.08 
 
 $16,886.79 
 
 1909 
 
 2,089.50 (b) 
 
 12,225.53 
 
 600.00 
 
 3,081.80 
 
 17,996.83 
 
 1910 
 
 2,013.20 (b) 
 
 13,025.20 
 
 970.00 
 
 4,208.18 
 
 20,216.58 
 
 1911 
 
 2,252.35 (b) 
 
 13,360.83 
 
 400.00 
 
 4,721.19 
 
 20,734.37 
 
 1912 
 
 2,381.55 (b) 
 
 13,137.79 
 
 131.00 
 
 5,717.18 
 
 21,367.52 
 
 1913 
 
 2,527.38 (b) 
 
 13,040.40 
 
 3,017.50 
 
 6,003.95 
 
 24,589.23 
 
 (a 
 
 ) Actual amount 
 
 
 
 
 (b) From total "salary deductions" reported $200 per annum 
 was estimated as disciplinary deductions and included in 
 next column 
 
 Annual Disbursements, 1908-1913 
 
 Years 
 
 Pensions 
 
 and 
 Receipts 
 
 Admin. Exp. 
 and 
 
 Miscellaneous 
 
 Total 
 Disburse- 
 ments 
 
 1908 $ 3,270.35 
 
 1909 4,220.00 
 
 1910 I 5,302.00 
 
 1911 6.557.57 
 
 1912 10,973.95 
 
 1913 13,470.86 
 
 $276.78 
 
 $ 3,547.13 
 
 221.57 
 
 4,441.57 
 
 478.12 
 
 5,780.12 
 
 309.62 
 
 6,867.19 
 
 198.51 
 
 11,172.46 
 
 65.75 
 
 13,536.61 
 
298 DENVER 
 
 Comparative Growth, of Receipts and Disbursements, 1908-1913 
 
 Disbursements 
 
 Per cent Annual 
 Tears Receipts Amount of Receipts Surplus 
 
 1908 $16,886.79 $3,547.13 21% $13,339.66 
 
 1909 17,996.83 
 
 1910 20,216.58 
 
 1911 .*. 20,734.37 
 
 1912 21,367.52 
 
 1913 24,589.23 
 
 4,441.57 
 
 25 
 
 13,565.26 
 
 5,780.12 
 
 29 
 
 14,436.46 
 
 6,867.19 
 
 33 
 
 13,867.18 
 
 11,172.46 
 
 52 
 
 10,195.06 
 
 13,536.61 
 
 55 
 
 11,052.62 
 
 Amount of Fund at the End of the Years 1907-1913 
 
 1907 $ 39,250.26 
 
 1908 52,589.92 
 
 1909 : 66,145.18 
 
 1910 80,581.64 
 
 1911 94,448.82 
 
 1912 104,643.88 
 
 1913 115,696.50 
 
 Growth of Pension Roll, 1908-1913 
 
 
 Pensioners 
 
 on Roll, December 31 
 
 Tears 
 
 Total 
 
 Members Widows Children 
 
 1908 
 
 14 
 
 3 
 
 6 
 
 5 
 
 1909 
 
 14 
 
 4 
 
 6 
 
 4 
 
 1910 
 
 17 
 
 6 
 
 7 
 
 4 
 
 1911 
 
 21 
 
 9 
 
 8 
 
 4 
 
 1912 
 
 28 
 
 12 
 
 11 
 
 5 
 
 1913 
 
 30 
 
 12 
 
 13 
 
 5 
 
DEPARTMENT OF SAFETY 299 
 
 Comparative Growth of Salary and Pension Rolls, 1908-1913 
 
 
 w 
 
 
 
 
 
 
 a; 
 
 
 
 
 
 
 a> 
 
 
 
 
 
 
 2 
 
 
 
 
 o 
 
 
 "o. 
 
 
 
 
 
 
 g 
 
 
 Sh 
 
 
 a 
 
 
 © 
 
 
 o 
 
 
 Ph 
 
 
 > 
 
 
 =4-1 
 
 > 
 
 o 
 u 
 
 > 
 
 
 +j 
 
 
 
 >> 
 
 '-£ 
 
 
 o 
 
 
 -+J 
 
 a 
 
 o 
 
 
 CB 
 
 
 03 
 
 a 
 
 oj 
 
 
 =4H 
 O 
 
 
 =4-1 
 O 
 
 03 
 
 O 
 
 
 Sh 
 
 s* 
 
 -t-j 
 
 ^-^ 
 
 ■^ ~ 
 
 
 O 
 
 0) 
 
 fH 
 
 
 c s 
 
 m 
 a) 
 
 s 
 
 s 
 
 3 
 
 o 
 
 > 
 •r-f 
 -t-< 
 
 5 ^ 
 o ° 
 
 i* 
 
 £ 
 
 £ 
 
 Pn 
 
 < 
 
 <; Pn- 
 
 
 
 Pensioners 
 
 
 Pension Roll 
 
 1908. 
 
 ..193 
 
 14 
 
 7 
 
 $203,945.00 
 
 $ 3,547.13 1.74 
 
 1909. 
 
 ..192 
 
 14 
 
 7 
 
 208,950.00 
 
 4,441.57 2.13 
 
 1910. 
 
 ..207 
 
 17 
 
 8 
 
 201,320.00 
 
 5,780.12 2.87 
 
 1911. 
 
 ..207 
 
 21 
 
 10 
 
 225,235.00 
 
 6,867.19 3.05 
 
 1912. 
 
 ..200 
 
 28 
 
 14 
 
 238,155.00 
 
 11,172.46 4.69 
 
 1913. 
 
 ..216 
 
 30 
 
 14 
 
 252,738.00 
 
 . 13,536.61 5.36 
 
 Increase 1 
 
 913 
 
 
 
 
 
 over 19 
 
 08.12% 
 
 114% 
 
 
 24% 
 
 282% 
 
 (a) Estimated on basis of amounts of 1% salary deductions of 
 firemen turned over to the fund during the corresponding 
 years 
 
300 DENVER 
 
 OPERATION OF THE POLICE PENSION FUND, 1908-1913 
 
 Benefits 
 
 The police pension fund was established in 1904 for the payment 
 of pensions to disabled policemen and their dependents. 
 
 Disability Pensions to Members 
 
 1 — One-half average salary for one year preceding retirement at 
 any age or after any service for permanent disability in the 
 performance of duty 
 
 2 — One-half average salary for one year preceding retirement to 
 members 60 years or more of age and after 20 years' service 
 if found unfit for the performance of duty. 
 
 Pensions to Dependents 
 
 Pensions are paid only to the dependents of policemen who die 
 from injuries in the performance of duty while in active service as fol- 
 lows: 
 
 1 — To the decedent's mother. ., ,.$ 72 per annum 
 
 2 — To the decedent's father 72 per annum 
 
 3 — To each child under the age of 14 72 per annum 
 
 4 — To the widow until she remarries. ..,.., -360 per annum 
 
 The aggregate of the above pensions is limited to one-half average 
 salary for one year preceding the death of the policeman. 
 
 Administration 
 
 The fund is administered by the board of fire and police commis- 
 sioners. The city treasurer is also the treasurer of the fund. 
 
 Income 
 
 The income of the fund is derived from the following sources: 
 
 Employees' Contributions 
 One per cent of salary 
 
 City, Indirect 
 
 Dog licenses ; 50% of automobile licenses ; proceeds of un- 
 claimed property; disciplinary deductions from salaries of 
 policemen; police court fines 
 
 City, Direct 
 An annual appropriation of a "reasonable" sum 
 
 Other sources 
 Donations and gifts ; 50% of rewards to policemen 
 Interest on invested funds 
 
DEPARTMENT OF SAFETY 
 
 Annual Receipts by Sources, 1908-1913 
 
 301 
 
 
 
 City— Direct 
 
 
 
 
 
 
 appropriation 
 
 
 
 
 
 
 and Donations 
 
 
 
 
 Employees — ■ 
 
 miscellaneous 
 
 and 
 
 
 Total 
 
 Tears 
 
 1% of salaries revenues 
 
 rewards 
 
 Interest 
 
 Receipts 
 
 1908. . 
 
 ...$2,074.25 
 
 $ 8,678.30 
 
 $ 30.00 
 
 $1,732.71 
 
 $12,515.26 
 
 1909.. 
 
 . .. 1,990.34 
 
 10,221.80 
 
 322.50 
 
 2,250.26 
 
 14,784.90 
 
 1910. . 
 
 . .. 2,120.95 
 
 10,059.85 
 
 382.00 
 
 3,341.49 
 
 15,904.29 
 
 1911.. 
 
 . . 2,374.45 
 
 9,166.95 
 
 330.00 
 
 3,318.88 
 
 15,190.28 
 
 1912.. 
 
 . . . 2,295.00 
 
 9,323.50 
 
 136.25 
 
 3,877.19 
 
 15,631.94 
 
 1913.. 
 
 . . .. 2,597.50 
 
 11,033.25 
 
 147.35 
 
 4,161.85 
 
 17,939.95 
 
 Annual Disbursements, 1908-1913 
 
 Tears 
 
 Miscellaneous Total Dis- 
 Pensions Expenses bursements 
 
 1908 
 
 $ 3,790.00 
 
 $150.59 
 
 $ 3,940.59 
 
 1909 
 
 5,481.88 
 
 89.17 
 
 5,571.05 
 
 1910 
 
 6,628.00 
 
 465.34 
 
 7,093.34 
 
 1911 
 
 7,540.25 
 
 69.08 
 
 7,609.33 
 
 1912 
 
 8,069.30 
 
 13.33 
 
 8,082.63 
 
 1913 
 
 13,548.55 
 
 92.25 
 
 13,640.80 
 
 Comparative Growth of Receipts and Disbursements, 1908-1913 
 
 Tears 
 
 Receipts 
 
 Disbursements 
 
 Per cent Annual 
 "Amount of Receipts Surplus 
 
 1908 ..$12,515.26 $3,940.59 31 $8,574.67 
 
 1909 14,784.90 5,571.05 38 9,213.85 
 
 1910 15,904.29 7,093.34 45 8,810.95 
 
 1911 15,190.28 7,609.33 50 7,580.95 
 
 1912 ... 15,631.94 8,082.63 52 7,549.31 
 
 1913 17,939.95 13,640.80 76 4,299.15 
 
302 DENVER 
 
 Amount of Fund at the End of the Years 1907-1913 
 
 1907 $30,699.91 
 
 1908 39,274.58 
 
 1909 , 48,488.43 
 
 1910.... §7,299.38 
 
 1911 64,880.33 
 
 1912.. 72,429.64 
 
 1913 76,728.79 
 
 Growth of Pension Roll, 1908-1913 
 
 Pensioners on Roll, December 31 
 Tears Total Members Widows Children 
 
 1908 
 
 17 
 
 1 
 
 10 
 
 6 
 
 1909 
 
 22 
 
 1 
 
 12 
 
 9 
 
 1910 
 
 24 
 
 1 
 
 15 
 
 8 
 
 1911 
 
 24 
 
 2 
 
 15 
 
 7 
 
 1912 
 
 37 
 
 10 
 
 17 
 
 10 
 
 1913 
 
 38 
 
 12 
 
 17 
 
 9 
 
 Comparative Growth of Salary and Pension Rolls, 1908-1913 
 
 
 o 
 
 
 
 
 
 o 
 
 
 ft 
 
 
 CD 
 
 
 
 
 
 a 
 
 
 u 
 
 
 
 ccj 
 
 
 OJ 
 
 
 o 
 
 i — i 
 
 
 ft 
 
 
 <d 
 
 > 
 
 
 CD 
 > • 
 
 o 
 
 
 CD 
 > 
 
 
 
 
 
 
 
 
 
 o 
 
 
 
 <x 
 
 
 O 
 
 
 cs 
 
 
 cs 
 
 Ph 
 
 
 a 
 
 
 o 
 
 
 o 
 
 *c? 
 
 
 o 
 
 
 u 
 
 u 
 
 
 v — ' 
 
 -*-■> 
 
 +^> 
 
 03 
 
 CD 
 
 
 a 
 
 o> 
 
 a 
 
 f3 
 
 PI 
 
 CD 
 
 
 a 
 
 a 
 
 
 
 O 
 
 a 
 
 
 t* 
 
 £ 
 
 z 
 
 Pn 
 
 < 
 
 < 
 
 P* 
 
 
 
 Pensioners 
 
 
 Pension Roll 
 
 1908... 
 
 .216 
 
 17 
 
 8 
 
 $207,425.00 
 
 $ 3,940.59 
 
 1.90 
 
 1909... 
 
 .234 
 
 22 
 
 9 
 
 199,034.00 
 
 5,571.05 
 
 2.80 
 
 1910. . . 
 
 .234 
 
 24 
 
 10 
 
 212,095.00 
 
 7,093.34 
 
 3.34 
 
 1911... 
 
 .241 
 
 24 
 
 10 
 
 237,445.00 
 
 7,609.33 
 
 3.20 
 
 1912... 
 
 .249 
 
 37 
 
 15 
 
 229,500.00 
 
 8,082.63 
 
 3.52 
 
 1913.,. 
 
 .248 
 
 38 
 
 15 
 
 259,750.00 
 
 13,640.80 
 
 5.25 
 
 Increase 1913 
 
 
 
 
 
 
 over 1908 
 
 1.15% 
 
 125% 
 
 
 25% 
 
 246% 
 
 
 (a) Estimated on basis of amounts of 1% salary deductions of 
 policemen turned over to the found during the correspond- 
 ing years. 
 
DEPARTMENT OP SAFETY 303 
 
 Part V — The Office of Sheriff and County Jail 
 
DEPARTMENT OF SAFETY 305 
 
 PART V. THE OFFICE OF SHERIFF AND COUNTY JAIL 
 SHERIFF'S OFFICE 
 
 Commissioner of Safety, Ex-Officio Sheriff 
 
 The commissioner of safety is ex-officio the sheriff. He delegates 
 his powers and functions as to the management of this office to an un- 
 der-sheriff. "With the adoption of the commission form of government, 
 the office of sheriff, which was formerly a county office, became a part 
 of the city government. Its functions, however, which were to serve le- 
 gal processes, enforce orders of the courts, and supervise the county 
 jail, were in no wise changed. Although under the supervision of the 
 commissioner of safety the office and its management are independent 
 of the department of safety and are conducted in accordance with the 
 procedure followed when the sheriff was a county officer. 
 
 All employees of the sheriff's office, including the under-sheriff, 
 are on a salary basis and all fees are turned into the city treasury. 
 
 The office is divided as to functions into three branches; civil, 
 criminal and the county jail. 
 
 The sheriff's office and the county jail are conducted independent- 
 ly of each other, but both are supervised by the under-sheriff. 
 
 Eleven Deputy Sheriffs 
 
 For the service of processes and the execution of court orders the 
 sheriff 's office is provided with the following staff : . 
 
 1 chief clerk 
 
 2 deputy chief clerks 
 1 stenographer 
 
 1 chief deputy 
 10 deputies 
 
 The deputies are assigned to duty as follows : 
 
 The chief deputy assisted by two other deputies is in charge of the 
 criminal branch of the office ; one deputy serves as chauffeur of a tour- 
 ing car maintained by the sheriff's office ; one deputy is assigned to the 
 juvenile court; and the remaining six deputies are engaged chiefly in 
 the service of civil process, except that during four months of the year 
 when two extra criminal parts of the county court are in session two of 
 these deputies serve as bailiffs. 
 
 The six deputies engaged in the service of civil processes are not 
 assigned to duty in- districts ; they receive assignments as the services 
 come into the office, under the direction of the under-sheriff. 
 
 Character of Work Performed 
 
 " The civil branch of the office is devoted to the service of civil pro- 
 cess', the'conducting of auction sales of personal-and real property iip"6n 
 
306 DENVER 
 
 writs of execution, and the service of jury notices. The criminal 
 branch of the office is engaged in the transportation of prisoners and 
 the service of warrants, extraditions, capias, mittimus, and subpoenas 
 for the criminal court. 
 
 Fifty Per Cent of "Service" Jury Notices 
 
 During the month of November, 1913, the entire staff of eleven 
 deputies handled 1351 services, or an average of a little over four per 
 day. During the month of>September, 1913, the entire number of serv- 
 ices handled by these deputies was 1066 or an average of three per day. 
 In addition to serving these processes some of the deputies were en- 
 gaged in the courts in connection with criminal eases. Of the total of 
 2417 during these two months, 1021 were notices of jury duty. Thus, 
 nearly half of the services handled by the sheriff's office are sum- 
 monses for jury duty. 
 
 Jury Notices Could Be Served by Police Force 
 
 There is no legal reason why jury notices could not be served by 
 members of the police force. The difference, according to the law, 
 would be that the policeman would be required to make an affidavit of 
 service. The change would be comparatively easy and it would cer- 
 tainly result in just as efficient service. A printed affidavit could be 
 attached to the jury notice to be signed and sworn to before a notary 
 public. A policeman would be even more likely to effect a service than 
 would a deputy sheriff who might have to make several visits be- 
 fore finding a person who could legally accept service of a jury notice. 
 A policeman on one tour of duty failing to effect service could turn 
 over the jury notice to his relief. 
 
 If this were done about half of the work of the civil branch of the 
 sheriff's office could be performed without extra cost. to the city. 
 
 Although the statutes provide that the courts can appoint bailiffs 
 to be paid out of the fees of the court or out of their own appropria- 
 tion, at least three deputy sheriffs are assigned during the year to per- 
 form the duty of bailiffs. The salary of a deputy sheriff is $1,500 a. 
 year while the statutory salary of the bailiff is $900 per year. The 
 sheriff should not assign deputies to perform duties as bailiffs and the 
 deputy now assigned to the juvenile court should be withdrawn. The 
 process of that court should take the same course through the sheriff's 
 office as do all other legal process. 
 
 There is no reason for having a deputy sheriff serve as a chauffeur 
 for the under-sheriff. 
 
 By transferring the service of jury notices to the police, having the 
 courts appoint bailiffs and transferring the deputy sheriff now serving 
 as chauffeur to active work the force of deputy sheriffs could be great- 
 ly reduced at a saving to the city. - 
 
 While it would be possible to reduce the number of deputies if the 
 above changes were made, it is not intended to intimate that the depu- 
 
DEPARTMENT OF SAFETY 307 
 
 ties are not at present performing their duties properly. An examina- 
 tion of the records and the procedure shows that the deputies at pres- 
 ent are diligent in the service of process and that the supervision of the 
 office by the under-sheriff is effective. 
 
 Office Staff Should Be Reduced 
 
 To docket and record the services handled in the office of the sher. 
 iff, three clerks and one stenographer are employed. The summons 
 clerk records all summonses, citations and subpoenas and the chief 
 clerk and the deputy all executions, attachments, replevins, original 
 suits, etc. The stenographer typewrites copies of returns, services and 
 processes. The chief clerk also conducts auction sales of real prop- 
 erty. 
 
 The amount of business transacted at the sheriff's office does not 
 warrant the services of three clerks and a stenographer. All of the pro- 
 cesses could be docketed and recorded by two clerks, one of whom 
 should be a typist. One clerk, serving as entry clerk, should receive 
 every document coming into the office. The second clerk and typist 
 should keep the books and attend to the returns. There is no need for 
 the services of a stenographer, since all of the typewriting necessary in 
 the office is copy work. 
 
 Office Should Have Rubber Stamp for Endorsing Returns 
 
 Processes which under the law are required to have the time of 
 receipt shown upon their face are endorsed in ink ; other papers are not 
 marked with the time of receipt. The office should be equipped with 
 a time clock stamp and every paper should have the time of receipt 
 stamped upon the face of it. Returns are endorsed in typewriting. 
 Considerable time could be saved by providing the office with a series 
 of rubber stamps with which to stamp the return endorsement on the 
 process. 
 
 No Need for Touring Car 
 
 Because the sheriff's office has no prisoners' van for the transport- 
 ing of prisoners a touring car is maintained. This automobile, how- 
 ever, was not purchased by the present under-sheriff, but was inherited 
 by this administration. There is no need for continuing to use this 
 touring ear, however, since the department of safety maintains a seven- 
 passenger touring car which could be used by the sheriff's office as 
 well. The one automobile could perform all the services required by 
 the entire department of safety. It is therefore recommended that the 
 sheriff discontinue the use of this touring car. 
 
 Records Well Maintained 
 
 The records of the office are maintained in accordance with the 
 practice in most properly equipped sheriff's offices. 
 
308 DENVER 
 
 Sheriff Receives No Reports 
 
 The deputy sheriffs do not file daily reports showing their activ- 
 ities nor does the under-sheriff file a report with the commissioner of 
 safety advising him of the operation of the office of sheriff. 
 
 The deputy sheriffs should be required to file reports upon every 
 process delivered to them for service. These reports should be pre- 
 pared upon specially printed cards and filed with the under-sheriff 
 each morning. The under-sheriff should file a daily report with the 
 sheriff showing the number of process received, the amount of fees 
 collected, the number of services by each of his deputies, the number of 
 deputies absent and the causes for their absence, and a complete de- 
 tailed report of the business transacted by the office during the pre- 
 ceding 24 hours. This report should be independent of the report on 
 the county jail. 
 
 Fee for Postage Should Be Charged 
 
 Lawyers requiring written notice of returns should be required to 
 pay postage for same. When papers are received lawyers should be 
 asked whether they desire to be notified by mail of the action taken by 
 the sheriff's office upon the process and if they so desire, a fee should 
 be charged. The office should have regular printed forms upon which 
 to notify the lawyers. 
 
DEPARTMENT OF SAFETY 309 
 
 COUNTY JAIL 
 Organization 
 
 The administrative head of the county jail is the commissioner of 
 safety, serving ex-officio as sheriff. In the supervision of the jail, how- 
 ever, he delegates his powers to the under-sheriff. 
 
 The executive head of the jail is the warden, who is in immediate 
 charge of the institution. He is appointed by the commissioner of 
 safety to whom he is responsible, although he reports directly to the 
 under-sheriff. The warden is assisted in his management of the jail 
 by one clerk, 12 jail guards, one chef, one matron, one engineer and 
 two assistant engineers. 
 
 Three Classes of Prisoners 
 
 The county jail receives and detains three classes of prisoners, fed- 
 eral, bound over and persons committed to serve specific terms. 
 
 All prisoners taken into custody by the United States authorities 
 are remanded, pending their trial, to the county jail. The federal gov- 
 ernment pays for the board of these prisoners at the rate of 60 cents 
 per day. 
 
 All prisoners awaiting trial in the city of Denver are remanded to 
 the county jail where they are referred to as "bound over" cases. 
 
 Convicted Prisoners 
 
 Prisoners convicted in the justices' and municipal courts and in 
 some cases in the district court, are committed to this jail to serve sent- 
 ences of from four days to one year. The average term is about one 
 month. 
 
 Persons convicted but whose cases are upon appeal are likewise 
 committed to the county jail. There are at present in the jail two men 
 convicted of murder whose cases are on appeal. One of these men has 
 already been detained almost three years. In the same class with the 
 federal prisoners are prisoners detained for other jurisdictions, such as 
 Jefferson County, etc. In such cases the city is paid at the rate of 35 
 cents a day to cover the expense of feeding these prisoners. 
 
 Thus, in addition to serving as a detention jail for housing pris- 
 oners awaiting trial, the county jail is also a prison. Therefore, its 
 functions are twofold, since the treatment of persons awaiting trial and 
 convicted persons must necessarily be different. All prisoners are sub- 
 stantially treated alike, except in the case of federal prisoners who re- 
 ceive different food, are restricted as to visitors and are not used as 
 "trusties." 
 
 No Medical Inspection of Prisoners When Admitted 
 
 Prisoners are received upon all days of the week. Accompanying 
 each prisoner must be a commitment signed by a justice. The prisoners 
 
310 DENVER 
 
 when admitted are searched and all of their property is taken from 
 them. A physician makes a daily visit to the prison and prescribes for 
 prisoners who are found to be ill, but prisoners are not examined at the 
 time of their admission. Thus, it would be possible for a prisoner suf- 
 fering from a contagious or infectious disease to start an epidemic 
 throughout the jail and require the institution to be quarantined. 
 
 Most of the prisoners are admitted between 11 and 1 o'clock. 
 While it may not be practicable to conduct a physical examination of 
 all prisoners at the moment they are admitted, it, however, would be 
 possible to confine all incoming prisoners in one part of the prison and 
 to require the physician to make his visits to the jail before 1 o'clock 
 and then to examine the new prisoners. In the event of prisoners being 
 admitted later in the day the physician could be summoned to examine 
 them before they were assigned to cells. 
 
 Methods of Handling Property Not in Accordance with Best Practices 
 
 Property taken from the prisoners is handled as follows : 
 
 All money is delivered to the clerk who places it in the safe 
 and makes a pencil record of the same upon an envelope. 
 Upon this envelope he enters the name of the prisoner, the 
 amount received and the date received. He does not deliver 
 any receipt to the prisoner, nor is any entry made in a book 
 record. The prisoner is not required to sign a statement 
 showing the amount of money taken from him 
 
 Other property taken from the prisoners is placed in a small 
 canvas bag, tagged with the name of the prisoner. Unless 
 such property includes jewelry or other valuables, no record 
 is made on the tag or upon any other record. If the prop- 
 erty does include jewelry the only record made is in the 
 form of a list upon the tag. No detailed description of the 
 property, such as the number of the watch case, etc., is made. 
 
 The method of handling the money belonging to prisoners is espe- 
 cially defective since it does not furnish protection either to the pris- 
 oner or to the jail authorities. It is a common practice for the prisoners 
 to have money delivered to the clerk of the jail for their use. In such 
 case the clerk makes a pencil note of the amount received upon the 
 envelope of the prisoner, but he issues no receipt nor does he make any 
 record in any book. Prisoners desiring to draw upon their fund sign 
 written orders upon the warden which are delivered to the clerk who 
 pays out the money. In such cases the clerk then makes another pencil 
 entry upon the envelope showing the amount and date drawn. 
 
 Thus, it would be possible for a prisoner to instruct a visitor to 
 leave, say $50, with the clerk for the use of the prisoner. If the person 
 so instructed were dishonest he could deliver but $1, and declare to 
 the prisoner that he had delivered $50. The clerk would be without 
 any evidence to disprove the statement of the visitor, while the visitor 
 would likewise be without evidence of delivery. It would then be the 
 visitor 's word against the word of the clerk of the prison. 
 
DEPARTMENT OF SAFETY 311 
 
 It is recommended that all property taken from prisoners be prop- 
 erly recorded and that the prisoner be required to sign a statement as 
 to the property taken from him. Persons leaving money or valuables 
 for prisoners should receive a detailed receipt for same. * 
 
 Prisoners Are Permitted to Wear Their Own Clothing 
 
 The chance of infecting the jail with contagious diseases is exceed- 
 ingly great since all prisoners, except those known to be addicted to 
 the use of drugs, are permitted to wear their own clothing. While 
 prisoners detained pending trial should not be placed in prison garb, at 
 least all prisoners who have been convicted and who are serving time 
 should be furnished a complete prison garb of uniform type and easy 
 to clean. Their own garments should be removed at the time of admis- 
 sion and fumigated in the same manner as is done in most hospitals. 
 
 \ 
 * During the course of the survey the attention of the warden was 
 called to the defect in this practice and it was immediately 
 changed to meet the recommendation made. 
 
 It is neither recommended nor suggested that the prisoners be 
 placed in striped suits or any other degrading type of garment. The 
 recommendation is made not only as a protection against disease and 
 uncleanliness but as a disciplinary measure as well. 
 
 Even prisoners who are detained pending trial, if their own gar- 
 ments are unclean, should be required to wear the prison garb at least 
 until their clothing has been sterilized. 
 
 Cost of Feeding Prisoners Excessive 
 
 The cost of feeding prisoners, at the time of the survey, was ap- 
 proximately 19 3 /o cents per day. The food served compared with the 
 menus of other county jails and prisons may be said to be anything but 
 prison fare. 
 
 Each prisoner, with the exception of the federal prisoners, receives 
 on an average per day : 
 
 1 pound of meat 
 
 1 " " bread 
 % " " potatoes 
 
 *4 " " green vegetables 
 
 2 ounces of corn meal 
 
 1 gill of pure syrup 
 
 2 pints of coffee 
 
 Some idea of the kind of meals served can be secured from the 
 following menu : 
 
 Sunday 
 Breakfast: 
 
 White meal mush and syrup 
 
 8 ozs. of bread and coffee with milk 
 
312 DENVER 
 
 Dinner: 
 
 Soup 
 
 Corn beef and cabbage 
 
 Dill pickles, potatoes and 8 ozs. of bread 
 
 Monday 
 Breakfast : 
 
 Cornmeal mush and syrup 
 
 8 ozs. of bread and coffee with milk 
 
 Dinner: 
 
 Soup 
 
 Stewed beef with vegetables 
 
 Beans, potatoes and 8 ozs. of bread 
 
 Tuesday 
 Breakfast : 
 
 Stewed prunes 
 
 8 ozs. of bread and coffee with milk 
 
 Dinner : 
 
 Soup 
 
 Irish stew and dressing 
 
 Sliced beets in vinegar, potatoes and 8 ozs. of bread 
 
 Wednesday 
 Breakfast : 
 
 White meal mush and syrup 
 Bread and coffee with milk 
 
 Dinner : 
 
 Soup 
 
 Stewed beef with vegetables, lima beans, potatoes and 8 ozs. 
 of bread 
 
 Thursday 
 Breakfast : 
 
 Stewed figs 
 
 Bread 8 ozs. and coffee with milk 
 
 Dinner : 
 
 Soup 
 
 Mutton stew with dumplings, stewed carrots, potatoes and 8 
 ozs. of bread 
 
 Friday 
 Breakfast : 
 
 Cornmeal mush and syrup 
 
 8 ozs. bread and coffee with milk 
 
DEPARTMENT OF SAFETY 313 
 
 Dinner : 
 
 Soup 
 
 Irish stew, mashed turnips, potatoes and 8 ozs. of bread 
 
 Saturday 
 
 Breakfast : 
 
 Stewed peaches 
 
 8 ozs. of bread and coffee with milk 
 
 Dinner : 
 
 Soup 
 
 Stewed beef with dumplings, Mexican beans, potatoes and 8 
 ozs. of bread 
 
 The following is an average menu of the food served to "trusties" 
 (prisoners who work about the jail) : 
 
 Breakfast : 
 
 Hash, mush and syrup or stewed fruit 
 Bread, coffee, milk and sugar 
 
 Dinner : 
 
 Supper: 
 
 Soup 
 
 Roast beef or mutton with brown gravy 
 
 Potatoes, coffee, bread and pie 
 
 Steak, chops or stew, with fried potatoes 
 Bread, coffee, milk and sugar 
 
 The trusties are not served individual portions and they are per- 
 mitted to eat as much as they desire. 
 
 The following is the average menu of the food served the federal 
 prisoners : 
 
 Breakfast : 
 
 Steak, chops, Hamburger steak or cornbeef hash with fried 
 
 potatoes 
 Mush and syrup or stewed fruit, bread, coffee, milk and sugar 
 
 Dinner: 
 
 Soup 
 
 Mutton with brown gravy, mashed or browned potatoes, veg- 
 etables, bread and coffee 
 
 Supper: 
 
 Steak, chops or stew, with fried potatoes, bread and coffee 
 Green vegetables are also served to all prisoners. 
 
314 DENVER 
 
 The average menu served all prisoners for dinner on Thanksgiving 
 and Christmas day is — 
 
 Soup 
 
 Roast turkey and dressing, cranberry sauce and giblet gravy 
 celery, beets in vinegar, mashed potatoes, mince pie, assort- 
 ed cakes, fruit, coffee and cream and sugar 
 
 Prisoners Allowed to Take Food to Their Cells 
 
 In addition to the food served at regular meal times, prisoners are 
 permitted to take food to their cells to eat at their leisure. 
 
 Prisoners are also permitted to purchase for their own consump- 
 tion such groceries, without restriction, as they are able to buy. This 
 is bad practice for it serves to destroy discipline and makes absolute 
 cleanliness impossible. 
 
 In the Allegheny County jail, located in Pittsburgh, Pa., prisoners 
 are fed three times a day at an actual cost of approximately 6Vk cents 
 per day. The food is wholesome and nutritious but it is served in 
 smaller quantities than is the practice in the Denver County jail. The 
 menu for a week in the Allegheny County jail is made up somewhat as 
 follows : N 
 
 Sunday 
 Breakfast : 
 
 Bread and coffee 
 
 (for workers or trusties, bread, coffee and potatoes) 
 
 Dinner : 
 
 Bread and soup 
 
 Supper: 
 
 Raisin bread 
 
 Monday 
 Breakfast : 
 
 Bread and coffee 
 
 (for workers or trusties, bread, coffee, potatoes and Ham- 
 burger steak) 
 Pinner: 
 
 Bread and soup 
 
 Supper: 
 
 Hamburger steak and bread 
 
 Tuesday 
 
 Breakfast: 
 
 Bread and coffee 
 
 (for workers or trusties, bread, coffee, Hamburger steak 
 and potatoes) 
 
DEPARTMENT OP SAFETY 315 
 
 Dinner: 
 
 Bread and soup 
 Slipper: 
 
 Hamburger steak and bread 
 
 Wednesday 
 Breakfast: 
 
 Macaroni, bread and coffee 
 Dinner: 
 
 Bread and soup 
 Stopper: 
 
 Bread and stewed peaches 
 
 Thursday- 
 Breakfast : 
 
 Bread and coffee 
 
 (for workers or trusties, bread, coffee, macaroni and Ham- 
 burger steak) 
 Dinner : 
 
 Bread and soup 
 Supper: 
 
 Hamburger steak and bread 
 
 Friday 
 Breakfast : 
 
 Bread,*coffee and potatoes 
 Dinner: 
 
 Bread and soup 
 
 Supper: 
 
 Bread and syrup 
 
 Saturday 
 Breakfast : 
 
 Bread and coffee 
 
 (for workers or trusties, bread, coffee, macaroni and Ham- 
 burger steak) 
 Dinner: 
 
 Bread and soup 
 Supper: 
 
 Hamburger steak and bread 
 
 All prisoners in this jail desirous of working are assigned to duties 
 about the jail so that the majority of the prisoners receive the meals 
 for workers or trusties. Prisoners are permitted to eat as much bread as 
 they choose and the soup is made from good meat and fresh vegetables. 
 
316 DENVER 
 
 While the above menu is not recommended as an ideal prison fare, 
 the fact remains that it is nutritious and the prisoners to whom it is 
 served were found to be in good physical condition. 
 
 Prisoners Allowed to Purchase Extra Meals From Chef of Jail 
 
 It has been the practice to permit all prisoners who desire to obtain 
 meals other than those served by the jail to purchase the same from 
 the chef of the jail at a cost of $1 per day. According to the state- 
 ment of the warden and of the chef himself, the materials are purchased 
 outside of the jail and cooked in the prison kitchen. This privilege is 
 extended not only to persons awaiting trial but also extended to con- 
 victed prisoners. This practice is to be condemned. In the case of con- 
 victed prisoners it tends to weaken discipline. In the ease of other 
 prisoners it permits the chef, who is a salaried employee of the county, 
 to carry on private business in a public institution. The county is pay- 
 ing the chef for his whole time. There was no evidence that the stores 
 of the institution are affected by this, and the chef was able to present 
 grocers' and butchers' bills to show that he had made independent pur- 
 chases in connection with these transactinos. 
 
 Prisoners Could Be Properly Fed for Less Money 
 
 While prisoners committed to jail should be furnished with whole- 
 some and nutritious food it is not wise to provide the comforts and con- 
 veniences of home life, since, aside from the expense involved, depriv- 
 ing the prisoner of table delicacies is one of the few means to punish 
 prisoners at the disposal of the authorities of short term jails. 
 
 It is recommended, therefore, that the meals served in the county 
 jail consist merely of sufficient wholesome and nutritious food to keep 
 the prisoners in proper physical condition. This could be done at less 
 cost than l!) 1 /^ cents per day. * 
 
 Trusties Should Receive Same Food as Prisoners 
 
 Only 35 of the prisoners are provided with any work. The others 
 have no proper means of exercising, and consequently do not need the 
 amount or kind of food that is necessary for men who are required to 
 work in the open air. 
 
 It will be noted from the menu that the trusties are fed three meals 
 a day and meat at each meal. They are also furnished table delicacies 
 in the form of dessert. In other words, they are given all they desire to 
 eat, and served at a special table in the kitchen. In addition to this 
 they receive tobacco without cost. 
 
 Trusties perform such work as window-cleaning, baking, kitchen 
 work, etc. They have special cells apart from the other prisoners and 
 they are permitted to go about the jail without restrictions. The trus- 
 ties are sufficiently favored in return for the work performed without 
 giving them any different food than is furnished other prisoners. 
 
 It is recommended, therefore, that the trusties be fed as are all 
 prisoners, and that they be required to eat in the general mess with the 
 other prisoners. 
 
DEPARTMENT OP SAFETY 317 
 
 No prisoner should be permitted to carry food to his cell, and all 
 prisoners should be restricted as to the amount and kind of groceries 
 which they may purchase from outside the jail. The practice in most 
 well-governed prisons is to permit prisoners to receive one order of 
 groceries a week, and these groceries must be limited to ordinary neces- 
 sities and to small quantities. 
 
 If the prisoners were fed three times a day, instead of twice, as 
 they should be, depriving them of carrying food to their cells would 
 not work a hardship. The heavy meal, at which meat is furnished, 
 should be served in the middle of the day, instead of in the evening. 
 
 Chefs Should Be Prohibited from Having any Business Relations 
 with Inmates 
 
 The practice of permitting prisoners to board in the jail at the rate 
 of $1 per day should be discontinued at once. Committed prisoners, of 
 course, should not be allowed food other than that served by the prison, 
 with the exception of some additional groceries, as already stated. 
 Prisoners awaiting trial are entitled to different treatment. Conse- 
 quently, if they desire food other than the county serves and are able 
 to pay for it, they should be permitted to send outside of the jail for it. 
 For this purpose the county should contract with a restaurant to supply 
 such meals as "bound over" persons desire to buy. Such a restaurant 
 should be required to pay for the privilege of serving the jail, and the 
 contract should give the city the right at any time to cancel it upon 
 evidence that the contractor has sent into the jail drugs or any pro- 
 hibited articles. 
 
 Absence of Prison Discipline 
 
 Inasmuch as no provision is made to provide work for convicted 
 prisoners which would occupy their time and serve as a disciplinary 
 measure, the warden is unable to maintain strict discipline among the 
 prisoners. Except that the prisoners are required to conduct them- 
 selves in an orderly manner there are no rules governing their conduct. 
 The consequence is that from the time they arise in the morning until 
 they retire in the evening, which time is optional with themselves, 
 prisoners are permitted to occupy themselves as they see fit. Card 
 playing and ordinary discussions are among the most common forms of 
 pastimes. As many as six prisoners were observed in a game of cards 
 for matches. "While there was no evidence that the prisoners were 
 actually gambling for money, it would scarcely be possible to prevent 
 gambling for money inasmuch as a prisoner might lose in such a game 
 and order a transfer of the amount of his loss from his funds to the 
 winner. 
 
 Many of the cells are decorated with pictures of all kinds which 
 have been pasted upon the walls by prisoners. 
 
 "What discipline is maintained is through the aid of what is known 
 as a "kangaroo" court. Each division of the jail elects its own sheriff 
 and judge, who are responsible to the warden for the discipline of their 
 respective divisions. 
 
318 DENVER 
 
 A Workhouse Badly Needed 
 
 The county jail as conducted today, except that it deprives the 
 prisoner of liberty, is neither a reformatory nor a penal institution. 
 Prisoners are not subjected to discipline such as would tend to remind 
 them that they were confined in a jail, since there are no rules govern- 
 ing their conduct. They are permitted to wear their own clothing, they 
 are well fed, and they are allowed such amusements as they can arrange 
 for even to the extent of a night meal. There is no rule against obtain- 
 ing magazines and daily newspapers, nor is there any rule requiring 
 prisoners to bathe at definite hours nor retire at a specified time. 
 Prisoners are not permitted to remain in bed during the day, however, 
 except upon order of the jail physician. 
 
 These conditions point to the need of a work house. Some provi- 
 sion should be made at once for providing work for the inmates of the 
 county jail. The proposed rock pile in the yard of the jail would 
 scarcely serve the purpose, although it would at least furnish some 
 occupation for the prisoners. 
 
 The jail could operate a laundry, and do the laundry work for 
 some of the city institutions. In the county jail of Allegheny County, 
 there is maintained a laundry which not only washes all of the linen 
 and clothes for the jail, but also does all the laundry work for the 
 juvenile detention house and washes the towels for the public buildings. 
 During the year 1913, with an average of 12 prisoners working in the 
 laundry, over 250,000 pieces of clothing were laundered and on an 
 average of 1,000 towels a day. The cost of the installation would not 
 be excessive. The equipment of the laundry of the Allegheny County 
 jail consists of one mangle, two washing machines, one extractor, one 
 tumbler, and five ironing boards. All of the machinery is operated by 
 electricity. The laundry is supervised by one jail guard. The machin- 
 ery necessary to conduct a laundry is so simple that it does not require 
 skilled laborers. 
 
 Too Many Visiting Days 
 
 Prisoners are permitted to receive visitors, without restriction as 
 to number, on Tuesdays and Fridays from 9 a. m. to noon and from 2 
 p. m. to 4 p. m. In addition to the regular visiting days, prisoners may 
 receive visitors at any time upon passes which are furnished by the 
 under-sheriff. Federal prisoners, however, are not permitted to receive 
 visitors except upon passes from the federal authorities. 
 
 The presence of visitors not only inconveniences the jail author- 
 ities, but also reduces the punishment intended to be imposed upon the 
 prisoners. Sunday, which is the logical visiting day, is given over to 
 church services. By having visiting days during the week and prohibit- 
 ing visitors on Sundays, a hardship is imposed upon the families of the 
 prisoners, since it becomes necessary for them to remain away from 
 their work in order to visit their relatives in jail. 
 
 It is recommended, therefore, that the rules of the jail be changed 
 making Sunday the only visiting day and restricting the number of 
 
DEPARTMENT OP SAFETY 319 
 
 visitors any one prisoner may receive. All church services should be 
 required to be over by noon on Sunday. 
 
 Guards Do Not Wear Uniforms 
 
 None of the employees of the prison wear uniforms. It is recom- 
 mended that all of the jail guards be required to wear a dignif'ed 
 uniform. 
 
 No Regular Inspection of Cells 
 
 Although the jail is clean and well kept, the cells, due to the fact 
 that prisoners are permitted to keep their own clothing, were untidy, 
 although not unclean. The officers of the "kangaroo courts" conduct 
 inspections of their own, but there is no regular inspection hour and no 
 guard who is responsible for the conduct of a regular inspection tour. 
 In the interest not only of cleanliness but of jail discipline as well, 
 there should be a morning inspection at which all prisoners would stand 
 at attention in the corridor immediately outside of their cells while the 
 warden and his deputy inspected each cell and the prisoners' general 
 appearance as well. 
 
 "While it is permissible in long term prisons to -allow prisoners to 
 arrange their cells in such a manner as to afford them the most com- 
 fort, it is unwise to permit short term prisoners to decorate their cells 
 or to store reading matter in them. 
 
 Prisoners Are Not Furnished Towels 
 
 The prisoners are required to furnish their own towels. As a result 
 the more fortunate prisoner usually loans his towel to his cell mates. 
 In many cells three or four prisoners were observed using one towel, 
 and many of the towels were in need of laundering. Prisoners should 
 be furnished towels, which should be laundered in the prison laundry. 
 
 No Fence Around the Jail Yard 
 
 Because the public has access to the jail yard, it is possible for 
 friends of the prisoners to pass into parts of the prison, drugs, files, 
 etc. It is impossible, however, for the warden to use the services of his 
 prisoners with any amount of freedom for keeping the lawns in condi- 
 tion and maintaining the roads about the jail. A fence would not in- 
 volve great expense and would serve to prevent the introduction into 
 the jail of drugs, etc. The fence need only be of wire construction, 
 and not a large prison wall. 
 
 Prisoners are Released to Constables Without a Court Order 
 Prisoners are released 
 
 1 — At the expiration of their term of imprisonment 
 
 2 — Upon a court order 
 
 3 — To constables and deputy sheriffs without an order. 
 
320 DENVER 
 
 It is the practice to deliver to constables prisoners held pursuant 
 to a warrant of the court to which the constable is attached without 
 any order from the court or receipt from the constable. Thus, it would 
 be possible for a constable desiring to accommodate a prisoner to take 
 him from the jail and to return him at such time as he might see fit, 
 even several days later. The warden should require that an order from 
 the court be issued before delivering a prisoner to a constable. All 
 prisoners delivered to deputy sheriffs, constables, police officers, or 
 any other persons having a right to take them from the jail, except at 
 the expiration of a prisoner 's term of imprisonment, should be receipt- 
 ed for, and the receipt should show the reason for the prisoner leaving 
 the jail, the time delivered from the jail, whether upon an order of 
 court, anrl the name of the judge signing the order. This receipt should 
 be signed by the officer to whom the prisoner is delivered, and a record 
 of it made in the jail record book. 
 
DEPARTMENT OP SAFETY 321 
 
 RECORDS AND REPORTS 
 
 Warden's Daily Report 
 
 Each morning the warden forwards to the office of the under- 
 sheriff a daily report showing the total number of prisoners in the jail, 
 the names of the prisoners received, the number received, and the num- 
 ber discharged. This record does not serve to keep the sheriff prop- 
 erly informed of the activities of the warden and the conduct of the 
 jail. The daily report should be made out in duplicate, one copy going 
 to the commissioner of safety. The report should contain among other 
 things the following information : 
 
 Total number of prisoners in the jail at 8 a. m., classified as to 
 male, female, federal, bound over, committed, on appeal, and for other 
 jurisdictions; number of prisoners received during the preceding 24 
 hours ; number sent to court and number returned ; number delivered 
 to constables and number returned ; number of prisoners detailed as 
 trusties ; number of prisoners sick ; number treated by physician ; num- 
 ber punished or disciplined, with the reason for punishment and a de- 
 tailed report upon the kind of punishment administered (if it be soli- 
 tary confinement, the time the prisoner was placed in the solitary con- 
 finement cell, the food served him while there, and the time he was 
 returned to his regular cell) ; number of prisoners detained for outside 
 jurisdictions, actual number of meals served during the preceding 24 
 hours ; number of meals permitted to be brought in from the outside ; 
 number of visitors admitted, upon pass and without pass; number of 
 prisoners confined to the section of the jail in which are kept "drug 
 fiends." 
 
 It would greatly aid the warden in tabulating the statistics con- 
 cerning his jail if he kept a copy of this daily report on file in his own 
 office. The report should be upon a specially prepared printed form 
 of a size which would permit of binding, instead of folding and filing 
 same. 
 
 Grocery Orders 
 
 Considerable time is consumed by the clerk in the preparation of 
 grocery orders received from prisoners. It is recommended that the 
 grocer having the privilege of serving the jail should provide a printed 
 order form upon which should appear a list of the groceries which the 
 warden permits to be delivered, and attached to this an order upon the 
 clerk to pay for same.* 
 
 Record of Prisoners 
 
 The record of prisoners is kept in a large bound book, having 
 printed headings calling for pedigrees. This book is kept properly, 
 except that it contains no record of the property taken from prisoners, 
 nor is there sufficient information concerning the manner in which 
 prisoners are released. Under the heading "remarks" should be 
 posted definite information concerning the manner of the release, such 
 
322 DENVER 
 
 as "released upon order of Justice or l f} 
 
 "released upon bond accepted by the sheriff or Justice ; 
 
 "time expired and released at 7 a. m." etc. "delivered to deputy sheriff 
 to be taken to court," showing the time and date of such delivery and 
 the time and date of return. 
 
 No Health Records are Maintained 
 
 The jail physician maintains no health records of the prisoners. It 
 is recommended that proper health records be established so as to show 
 the name, date, time, and cause of illness of prisoners, with a history 
 of the treatment, etc. 
 
 No Attorneys' Register Is Kept 
 
 No register is kept of visits of attorneys to prisoners pending trial. 
 An attorneys' register should be opened, and each lawyer should be 
 required, upon visiting the jail, to sign his name, the name of the pris- 
 oner, the time and date of the visit. 
 
 *This has been installed since this survey was made. 
 
 i 
 
 No Diary Showing 1 Date of Discharge of Prisoners is Maintained 
 
 All commitments which accompany prisoners are arranged in the 
 order of the dates of discharge of the prisoners. While this method of 
 filing may be fairly satisfactory, it is not as serviceable or as accurate 
 as a diary would be, since these commitments are being constantly 
 handled and disarranged. It is recommended that a proper diary be 
 opened, and in it entered chronologically the date each prisoner is due 
 for discharge. Thus each day the clerk would have before him a list 
 of the prisoners due for dicharge. 
 
 No Bulletin Showing the Number of Inmates 
 
 The warden should erect a bulletin board in the office on which 
 should be shown the number of prisoners of the various classes con- 
 fined in the institution. This would be inexpensive, as it could easily 
 be made by the prisoners. 
 
 Rules and Regulations 
 
 It is recommended that the warden promulgate, with the approval 
 of the sheriff, a proper set of rules and regulations governing the jail. 
 Such rules should require the maintenance of jail discipline. While it 
 is not recommended that the discipline be so rigid as to be inhuman or 
 not in keeping with the modern theories of conducting penal institu- 
 tions, it is believed that it should be of such a character as to prohibit 
 such practices as card playing, group discussions, keeping of cooked 
 food in the cells, and disfiguring the walls with pictures. 
 
DEPARTMENT OF PROPERTY 325 
 
 REPORT ON A SURVEY OF VKE 
 DEPARTMENT OF PROPERTY 
 
DEPARTMENT OF PROPERTY 327 
 
 CONTENTS 
 
 Page 
 
 Summary of Recommendations 329 
 
 Part I— The Office of the Clerk : 
 
 Organization 337 
 
 Part II— The Office of the Recorder: 
 
 Organization 341 
 
 Handling of Documents 344 
 
 Part III — The Park Commission : 
 
 Jurisdiction * 351 
 
 Organization 352 
 
 Passing of Bills 354 
 
 Accounts and Records 354 
 
 Engineering Force 355 
 
 Construction and Maintenance of Park Roads 356 
 
 Municipal Bath House 356 
 
 Park Roads 356 
 
 Apportionment of the Cost of Park Improvements 357 
 
 Mountain Parks 360 
 
 Playgrounds 360 
 
 Part IV — The Office of the Building Inspector: 
 
 Organization 363 
 
 Building Inspection 366 
 
 Electrical Inspection , 369 
 
 Plumbing Inspection 371 
 
 Boiler and Elevator Inspection., 372 
 
 Part V — The Public Utilities Commission : 
 
 Organization 377 
 
 Part VI — The Office of the Sealer of "Weights and Measures : 
 
 Organization 383 
 
 Powers and Duties 383 
 
 Procedure 384 
 
 Quarters and Equipment 386 
 
 Conspicuous Defects in Present Practice 387 
 
 Records and Reports 390 
 
DEPARTMENT OF PROPERTY 329 
 
 SUMMARY OF RECOMMENDATIONS 
 
 The summary of recommendations is as follows: 
 
 The Clerk 
 
 1 — That the office of clerk be abolished and that the auditor be 
 made ex officio clerk of the council. 
 
 2 — That, so long as the present office is continued, the positions 
 of deputy and stenographer be combined. 
 
 3 — That, if the office is to be retained, a bureau of information 
 and complaints and a municipal reference library be organ- 
 ized therein. 
 
 The Recorder 
 
 1 — That the schedule of recording fees be revised so as to provide 
 sufficient receipts to provide for the expenses of the office. 
 
 2 — That receipts be given for all fees collected, and that dupli- 
 cates thereof be transmitted to the auditor to serve as a 
 basis of control. 
 
 3 — That cash be received only by the cashier, who should be held 
 responsible therefor. 
 
 4 — That pen transcription of documents be abandoned and that 
 either the use of book-typewriting machines be extended or 
 a photographic process adopted. 
 
 5 — That office procedure be standardized so as to provide an 
 equitable distribution of duties and facilitate the progress 
 of the work. 
 
 6 — That a register be installed to provide for a record of cases 
 in which documents are recorded out of their regular order. 
 
 7 — That loose-leaf index volumes be substituted for the tight- 
 board books now in use. 
 
 8 — 'That a mailing fee be collected in all cases where documents 
 are returned by mail. 
 
 9 — That delivery boxes be placed under the supervision of a clerk. 
 
 10 — That some of the delivery boxes be fitted with locks and a 
 rental be charged for the use thereof. 
 
 11 — That the recorder's office undertake to explain for the benefit 
 of the public the principles and advantages of the Torrens 
 system of registration. 
 
 12— That the constitutionality of the Taylor act, providing for the 
 Torrens system, be tested in the courts. 
 
 13_That steps be taken to reduce the fire hazard in the office. 
 
330 DENVER 
 
 Park Commission 
 
 1 — That the park commission be continued until after the exten- 
 sion work in the mountain parks and playground problems 
 shall have been completed. 
 
 2 — That the park commission be reorganized with the view to 
 relieving the members of all administrative detail. 
 
 3 — That the duties of the park commission and its relation to the 
 commissioner of property be clearly defined by administra- 
 tive code or charter amendment. 
 
 4 — That the public works engineering of the park commission be 
 included among the duties of the department of improve- 
 ments. 
 
 5 — That the general accounting records now maintained in the 
 office of the park commission be abandoned and the neces- 
 sary work made a part of the duties of the city auditor. 
 
 6 — That all park roads be constructed and maintained by the 
 bureau of highways and bridges of" the department of im- 
 provements, contingent upon the successful reorganization 
 of the department of improvements upon an efficient and 
 economical basis. 
 
 7 — That the park budget be made a part of the general city 
 budget. 
 
 8 — That the park accounts be subjected to the general financial 
 audit of the department of finance. 
 
 9 — That cost and expense records showing unit and job cost of 
 operating, constructing, and maintaining parks be installed. 
 
 10 — That the principle of apportioning the cost of park improve- 
 ments within a local district be abandoned. 
 
 Building' Inspector 
 
 1 — That a bureau of building inspection be established for the 
 issuance and control over all permits issued in connection 
 with the construction, alteration, or repair of any structure 
 or equipment therein. 
 
 2— That proper transportation facilities, preferably small auto- 
 mobiles, be provided for the field inspectors of the proposed 
 bureau of building inspection. 
 
 3— That the present offices of the chief electrical inspector and 
 the permit division of that department be used by the head 
 of the proposed bureau of building inspection and the cen 
 tral permit division. 
 
 4— That all permits issued be drawn to standard size and r,™ 
 vided with a graduated stub for indicating the amount «f 
 payment received from the permitee amount o± 
 
DEPARTMENT OF PROPERTY 331 
 
 5— That all permit charges be received directly by the permit 
 division of the proposed bureau of building inspection. 
 
 6 — That the present building inspection organization be abolished 
 and its duties assumed by the proposed bureau of building 
 inspection. 
 
 7— That when a building permit be issued, the inspection data 
 obtained during the course of the building operation be 
 allocated to the record of the issuance of the report. 
 
 8 — That the form of field records and office methods for con- 
 trolling the same be revised in order to provide for: 
 
 a. 'Office control of all notices to inspect 
 
 b. The use of inspectors in the field— not as clerks. 
 
 That detailed records of all special permits granted by the 
 council be maintained. 
 
 9 — That all building operations licensed under permit be inspect- 
 ed at least once. 
 
 10— That the form of permit be standardized and that a placard 
 permit be issued with the requirement that such placard 
 shall be posted in a conspicuous place during the course of a 
 building operation. 
 
 11 — That the present electrical inspection organization be abol- 
 ished and its duties assumed by the proposed bureau of 
 building inspection. 
 
 12 — That in the licensing of moving picture operators more empha- 
 sis be placed on the determination of the applicant 's under- 
 standing of fire prevention and fire-fighting methods. 
 
 13 — That the forms of record for reporting and controlling elec- 
 trical inspectio'n be revised. 
 
 14 — That a form of placard permit be issued and that the permitee 
 be requested to post such placard in a conspicuous place 
 where such work is in progress. 
 
 15 — That the present plumbing inspection department be abolished 
 and its duties assumed by the proposed bureau of "building 
 inspection. 
 
 16 — That, comparatively speaking, less emphasis be placed on the 
 problem of plumbing inspection. 
 
 17 — That the present boiler and elevator inspection organization 
 be abolished and its duties assumed by the bureau of build- 
 ing inspection. 
 
 18 — That the chief inspector be relieved from all office and clerical 
 
 duties. 
 19 — That the duties be revised in order to eliminate the present 
 
 duplication of work. 
 
332 DENVER 
 
 20 — That a system of card historical records of various boilers and 
 elevators be installed. 
 
 21 — That the practice of providing inspectors with records of prev- 
 ious inspections be abandoned. 
 
 22 — That the basis for charges for boiler inspection be revised. 
 
 23 — That elevator operators be licensed. 
 
 24 — That a code of rules and regulations for the operation of 
 passenger and freight elevators be established by council. 
 
 Public Utilities Commission 
 
 1 — That the charter be amended to permit of the continuation of 
 a public utilities commission consisting of at least three 
 members or that the public utilities commission be abolished. 
 
 2 — That, in case the commission is abolished, the legislative duties 
 thereof be assumed by the council, the engineering duties 
 by a board of consulting engineers, and the operating and 
 administrative duties by a properly organized water depart- 
 ment. 
 
 3 — That in the construction of a water plant for the city partic- 
 ular attention be given to the formation of a proper operat- 
 ing organization and to the designing and installation of 
 proper administrative and accounting procedure. 
 
 Sealer of Weights and Measures 
 
 1 — That an assistant sealer be appointed. He should be an ex- 
 perienced scale maker, and his appointment should be the 
 result of a competitive civil service examination. 
 
 2— That a greater amount of time be devoted to detective work. 
 
 3 — That the sealer be provided with funds out of which to retain 
 the services of women inspectors from time to time. 
 
 4 — That Saturday afternoon and evening inspections be made by 
 the sealer and his assistant. 
 
 5 — That the office of the sealer be provided with proper equip- 
 ment and apparatus with which to conduct tests and com- 
 pare standards. 
 
 6 — That the sealer be provided with an automobile runabout so 
 as to make possible his transporting test weights and equip- 
 ment. 
 
 7 — That the sealer be provided with proper quarters in a store 
 upon one of the main streets so as to encourage housewives 
 to visit the office and cause their purchases to be reweighed 
 and merchants to bring their scales of smaller types to "be 
 tested. 
 
DEPARTMENT OP PROPERTY 333 
 
 8 — That the sealer prepare a proper schedule of tolerances. 
 
 9 — That a new ordinance be adopted, which will authorize the 
 sealer to promulgate rules and regulations governing the 
 sale, manufacture, and use of scales, weights, and measures. 
 
 10 — That the sealer be empowered by ordinance to confiscate and 
 destroy scales, weights, and measures of a fraudulent type 
 when found in use. 
 
 11 — That an ordinance be adopted requiring that the net weight 
 of all package goods be indicated in a conspicuous manner 
 upon the package, and that the sale of food commodities in 
 any other manner than by known weights and measures be 
 forbidden. 
 
 12 — That the sealer vigorously prosecute all persons detected using 
 inaccurate scales, weights, or measures or selling "under- 
 weight" packages. 
 
 13 — That the sealer begin at once a campaign of education, by cir- 
 cularizing the housewives, advising them as to methods of 
 reading scales, urging that they have in their homes a scale 
 and a set of liquid and dry measures so that they may re- 
 weigh their purchases, and warning them against common 
 practices of dishonest merchants. 
 
 14 — That the commissioner of property request the commissioner 
 of safety to allow the patrolmen to distribute such literature 
 as may be issued by the sealer. 
 
 15 — That all applications for licenses require the applicant to 
 state thereon whether he contemplates using scales, weights, 
 or measures in the business to be licensed, and that before 
 such licenses are issued the applicant shall produce a cer- 
 tificate showing that all scales, weights, and measures to 
 be used have been properly tested and officially sealed. 
 
 16 — That the sealer cause his own standards to be compared an- 
 nually with the standards of the state. 
 
 17_jThat all owners of official city scales or large platform scales 
 be required to maintain 1,000 pounds of standard test 
 weights at their scales ; these to be properly protected in a 
 locked cabinet. 
 
 18— That the sealer install a new system of records which will 
 provide for a card record of all merchants in the city, show- 
 ing the scales, weights, and measures in use and the results 
 of inspections and investigations; this record to be created 
 through the use of a proper certificate book. 
 
 'l9_That the new system of records also include a register of com- 
 plaints, a register of violations, a register of prosecutions 
 and record of inspections. 
 
334 DENVER 
 
 20 — That the sealer file with the commissioner of property a daily- 
 report which will more fully describe his activities than 
 does the present form of daily report. 
 
 21 — That the sealer issue an annual report with tables showing the 
 activities of his office for the year and sufficient statistical 
 information to serve as a guide to council in the enactment 
 of ordinances. 
 
DEPARTMENT OP PROPERTY 
 
 335 
 
 Department of Property 
 
 Part I— Office of the Clerk 
 
DEPARTMENT OF PROPERTY 337 
 
 REPORT ON A SURVEY OF THE DEPARTMENT OF PROPERTY 
 PART I— THE OFFICE OF THE CLERK 
 
 ORGANIZATION 
 
 The office of the city clerk has been continued under the new 
 charter, although most of the functions thereof have been assigned to 
 other branches of the government. The office staff comprises a clerk 
 at $2,000 and an assistant at $1,320, both appointed by the commis- 
 sioner of property. The stenographer of the commissioner of property 
 has her desk in this office and does what stenographic work is neces- 
 sary. 
 
 Charter Functions 
 
 The principal function left to the office under the charter as 
 amended consists of keeping and copying the minutes of the council 
 meetings. There are approximately two meetings a week. The min- 
 utes are taken down in longhand by the clerk and copied in the official 
 minute book. Once a month cancelled warrants are received from the 
 auditor, cheeked with the list transmitted therewith, and filed in the 
 vault. Deeds, contracts, and several other kinds of documents are also 
 filed in this office. 
 
 Not Enough Work 
 
 The actual time required to perform the charter duties noted above 
 is comparatively small. The work of this office consists mainly in 
 answering questions on all sorts of subjects from persons who come 
 into the office because of its location near the main entrance of the 
 city hall. Even with this additional work the clerk and his assistant 
 are idle a large portion of the time. This is the conclusion arrived at 
 after observation of the office almost daily for three weeks. In fact, 
 the deputy clerk stated that there was ample time to do more work 
 but that it had been transferred elsewhere. 
 
 Charter Change Needed 
 
 When a new charter is drafted this office should be abolished and 
 the auditor made ex officio clerk of the council. Several commission 
 cities have done this and thereby not only saved the cost of maintain- 
 ing the additional office but also expedited the transaction of the pub- 
 lic business. The very nature of the auditor's duties keeps him and his 
 deputies informed as to most of the city's affairs, and by haying him 
 sit as clerk of the council meetings unnecessary red tape is eliminated 
 and quicker results secured. 
 
 What Should Be Done Meanwhile 
 
 Pending changes in the charter, the staff of the city clerk's office 
 should be reduced. There is no need for both an assistant and a sten- 
 ographer. The deputy should be a stenographer. He could easily 
 
338 DENVER 
 
 handle all the stenographic work of the commissioner and secretary 
 and still do relief duty in the clerk's office at meal times, etc. This 
 would result in a saving of $1,200 a year. 
 
 It should be noted here that at the beginning of the present ad- 
 ministration the salary of the deputy clerk was raised from $1,800 to 
 $2,000 in order, as stated by the commissioner of property, to equalize 
 the salary with that of the deputy in the recorder's office, — the latter 
 being reduced from $2,400 to $2,000. 
 
 Even with the staff reduced to a deputy, assisted as may be needed 
 by a stenographer, there is not enough work to keep him busy. We 
 therefore suggest that this office be developed as a bureau of informa- 
 tion and complaints along the lines of similar bureaus in other cities, 
 and furthermore that a municipal reference library be developed there- 
 in. There is a need of all three of these fields being covered, and this 
 affords an excellent opportunity for doing so without additional cost. 
 
DEPARTMENT OF PROPERTY 339 
 
 Part II— The Office of the Recorder 
 
DEPARTMENT OF PROPERTY 341 
 
 PART II— THE OFFICE OF THE RECORDER 
 ORGANIZATION 
 
 The commissioner of property is ex officio county clerk and 
 recorder, the administration of the office being in charge of a deputy 
 recorder. 
 
 As the office of the county clerk, this office issues marriage 
 licenses, hunting licenses, magistrates' certificates, and certified copies 
 of records, etc., and collects fees therefor. As the office of the 
 recorder, the office records deeds, mortgages, and kindred documents 
 for which fees are also collected. 
 
 Receipts vs. Expenditures 
 
 Prior to June 1, 1912, fees collected by this office were retained 
 by the recorder as his compensation and as reimbursement of his ad- 
 vances toward the expenses thereof. Since that date all fees collected 
 have been turned into the county treasury. 
 
 The services rendered by the recorder benefit principally the per- 
 sons seeking the service rather than the general public. It -is therefore 
 logical and equitable that the persons benefited should pay the cost 
 thereof instead of its being made a general charge through taxation. 
 This argument being generally recognized as sound, it therefore fol- 
 lows that the fees collected during a given year should, at least, equal 
 the cost of the services rendered ; or, stated conversely, the cost of the 
 service should not exceed the amount of fees collected. 
 
 The receipts and expenditures for the year 1913, which may be 
 taken as typical, were as follows : 
 
 Fees for recording $25,257.15 
 
 Other fees 5,782.53 
 
 Total receipts $31,039.68 
 
 Total expenditures 29,431.99 
 
 Excess of receipts. .$ 1,607.69 
 
 As shown by the above, the receipts of the year exceeded the ex- 
 penditures by only $1,607.69 even by including $5,782.53 received for 
 services other than those incident to the office of recorder. The 
 $29 431 99 of expenditures related almost entirely to services for record- 
 ing' ($500 for examination of titles under the Torrens act has been 
 excluded). 
 
 Applying the expenditures to the amount received for recording 
 gives a deficit of $4,174.84, as follows : 
 
 Expenditures ■• • •> <• • •'• • -$29,431.99 
 
 Receipts • • • 25,257.15 
 
 Deficit $ 4,174.84 
 
342 DENVER 
 
 It is thus apparent that the office was not self-supporting, even 
 though no charge was included for rent, heat, or light. 
 
 The amounts charged as recording fees should be sufficient not 
 only to reimburse the county for salaries and supplies, but also for a 
 fair proportion of the cost of these other charges. 
 
 Since it is a special service rendered to certain persons, the ques- 
 tion may be properly raised, why should the taxpayers at large furnish 
 office room, heat, and light? 
 
 Examination of the office disclosed an evident effort to keep down 
 the cost of operation. The only suggestion offered for additional re- 
 trenchment relates to the recording of documents by photographic pro- 
 cess as hereinafter mentioned. 
 
 It is apparent that the financial adjustment must be by way of 
 increasing revenue rather than by decreasing the expenditures. It is 
 therefore suggested that the commissioners consider the advisability of 
 obtaining legislation which will readjust certain of the fees. Such 
 readjustment would seem to be desirable although the deputy in this 
 office is inclined to the belief that there are reasons why the entire cost 
 of operating the office should be borne by general taxation. 
 
 , Centralized Responsibility for Cash 
 
 All documents for recording are received by the cashier, who notes 
 thereon the date, hour, and amount of the fee, and collects the latter. 
 No receipt is given except upon request, and then a standard billhead 
 form is made out, but no duplicate thereof is retained. It is suggested 
 that a receipt be made by carbon process for the amount collected with 
 each document and that the document number be noted thereon. The 
 original might then be given to the payer and subsequently presented 
 by him as a means of identification at the time the document is re- 
 turned to him after being recorded. The duplicate receipt would be 
 transmitted to the auditor as a basis for proof of correctness of the 
 amount of cash turned over to the treasury. If desired, a triplicate 
 copy might also be made and turned over to the recorder. 
 
 The advantage of giving to each payer a written receipt for the 
 amount of the fee paid in is obvious, as is also the advantage of send- 
 ing to the auditor daily carbon copies thereof. Similar methods pre- 
 vail m all well regulated commercial organizations and in all efficient 
 government offices. 
 
 Proof of the correctness of amounts collected and of amounts 
 turned into the treasury now depends upon a book audit made from 
 time to time by some one from the auditor's office. While this method 
 is commendable so far as it goes, the additional check secured by the 
 adoption of the above suggestion is desirable. 
 
 Fees for licenses- and-f or other services than the recording of docu- 
 ments are not received through the cashier's window but are accepted 
 over a nearby counter and deposited in a separate cash drawer there- 
 under. All of the clerks in the office have access to this drawer. In 
 
DEPARTMENT OP PROPERTY • 343 
 
 fact, no one is definitely charged with the responsibility for this part 
 of the work or for the custody of the cash received in connection there- 
 with. It is suggested that authority for receiving cash be centralized 
 in the cashier, and that he be held responsible therefor. 
 
344 DENVER 
 
 HANDLING OF DOCUMENTS 
 
 Methods of Recording 
 
 Documents are recorded partly by pen-writing and partly by type- 
 writing. There are nine copyists, six of whom do longhand copying 
 and three use typewriters. All of the forms which come to this office 
 with any regularity are in bound books so that it is only necessary for 
 The copyists to insert the matter which has been filled in. This method 
 is to be commended. It saves a large amount of work and hence ot 
 expense However, all of the transcribing in these books is done with 
 pen-writing; the three book typewriters being used only on books 
 which are entirely blank and in which are recorded warranty deeds, 
 mortoao-es and related papers from outside the state of Colorado, 
 mechanics' liens, odd forms of chattel mortgages, and special court 
 documents. 
 
 It is suggested that more book typewriters be installed so that all 
 of the transcribing may be done by that method. It not only is much 
 clearer and cheaper, but is also neater and takes up less space in the 
 volume. In extending the use of typewriters on this work the spacing 
 and type should be made to conform to the books, or vice versa. It is 
 difficult to use the machines now in this office on the books containing 
 printed forms. 
 
 As an alternative to the extension of the typewriting method of 
 transcribing, it is suggested that the commissioners and the deputy 
 recorder consider the desirability of adopting a photographic process 
 of copying. Many organizations, such as insurance companies and title 
 companies, have substituted the photographic process for pen and type- 
 writer copying. Several county governments in different parts of the 
 country have also adopted this process for copying public records. The 
 Nebraska legislature passed an act which was approved April 7, 1911, 
 "authorizing the use of photographic process in the making and copy- 
 ing of public records in the public offices of this state." 
 
 The legislature of Louisiana in 1910 in an act known as the 
 "burned record act" also specifically provided for the use of photo- 
 graphic and rectographic copies of public records. 
 
 The principal advantages which would accrue from the adoption 
 of the photographic process in the recorder's office would be: 
 
 1 — The expense for copying could be reduced at least 50 per 
 cent. The salary expense of three persons to operate the 
 process would aggregate, approximately $3,600, to which 
 would be added $500 for the use of the machine, making a 
 total of $4,100, as against the present pay roll expense of 
 over $9,000. Moreover, with one machine and three per- 
 sons, as here suggested, it would be possible to copy as 
 many as 500 documents a day, which is far in excess of the 
 number now copied 
 
 8 — The records made would be exact copies of the original docu- 
 ments, even including the signatures, misspelled words, and 
 
DEPARTMENT OP PROPERTY 345 
 
 the number of words on a line. There would be no chance 
 for error. Without additional cost it would also be possible 
 to make exact copies of plans which otherwise would in- 
 volve the employment of a draftsman 
 
 3 — Documents could be delivered to the public in a much shorter 
 time than under the present or any other process. 
 
 Method of Payment and Erne Required 
 
 The clerks doing longhand copying in the recording room are paid 
 $80 per month. One of those on booktypewriters is paid $85, and two, 
 $90 per month. Formerly all of these clerks were paid on the basis of 
 the amount of work done each day. At the time of changing the 
 system to a fixed salary basis the old schedules of rates were retained 
 in use as a means of checking up the quantity of work done by each 
 clerk daily and determining the relation thereof to the amount of 
 salary paid. A tabulation was made of the average earnings of. each 
 clerk as computed on the old schedules for the six months ending 
 April 1, 1914. 
 
 Average Monthly 
 Earning 1 on 
 Clerk Present Salary Old Basis 
 
 A $90.00 $114.12 
 
 B 90.00 111.78 
 
 C 85.00 101.55 
 
 D 80.00 93.08 
 
 E 80.00 84.03 
 
 F 80.00 80.12 
 
 G 80.00 77.68 
 
 H 80.00 76.84 
 
 I 80.00 83.99* 
 
 *Four months only. 
 
 It is thus apparent that with two minor changes the efficiency of 
 the clerks has not been impaired by placing them on a fixed salary 
 basis However, instead of recommending the continuation of this 
 plan, attention is called to the fact that payment on a unit basis tor 
 this kind of service would make it possible to standardize the time re- 
 quired for recording the several documents. It now requires an aver- 
 age of ten days from the day the document is left in the recorders 
 office until it is ready for delivery (return). It should be possible to 
 standardize the office procedure so that documents would be ready tor 
 delivery on the fourth or fifth day. In Cook County Illinois 
 ('Chicago), all documents are ready for delivery on the eighth day, but 
 there the functions of the recorder's office are much broader than m 
 Denver, and documents are therefore put through more processes. 
 
 A standardization of time as suggested would be of much benefit 
 to person" having business with this office. Its aecomplishment ^ecej- 
 sitates that all of the documents received in any one day move througn 
 t£ ^offkea s a a single work order. The work would be equitably ens- 
 
346 
 
 DENVER 
 
 tributed among the copyists each day, and each one would be required 
 to complete her assignment before leaving the -office. If payment were 
 made on a unit basis, the measure should meet with no opposition; in 
 fact, it would probably prove popular because it would enable the 
 rapid workers to leave the office earlier. 
 
 If photographic process were adopted the standardization of time 
 required would be a simple matter and the documents might probably 
 be returned not later than the third day. 
 
 Upon request of the deputy, and with her approval, a document 
 may be taken out of its regular sequence and the recording thereof 
 expedited. Although the time of receipt and delivery is noted in a 
 register it would be necessary to make an analysis thereof to ascertain 
 to what extent documents have been recorded out of their turn. No 
 examination was made with respect thereto except to note the absence 
 of any separate or summary record wherein such documents were reg- 
 istered. Inasmuch as it would be possible to grant special permission 
 for hastening the recording of documents too frequently, or to do so 
 without special reasons, it is suggested that such a register be installed 
 and that it also set forth the reasons for the permission granted. In 
 this connection it may be noted that if the photographic process were 
 used it would be unnecessary to give permission to hurry documents 
 through the office, for even in the regular course of business they 
 would go through at nearly maximum speed. 
 
 Indexes 
 
 Deeds, mortgages, and similar documents are indexed both as to 
 grantors and grantees. Special indexes are made for other documents, 
 the nature of which does not conform to grantor and grantee indexing. 
 Bound volumes are used for all of the indexing work. 
 
 _ When planning' a new volume the indexer determines the space 
 which should be allowed to each letter, or name prefix. If there are 
 fewer references under any particular latter or prefix than he ex- 
 pected, the book will naturally contain some waste space, and this 
 waste space m the books takes up unnecessary room on the shelves 
 Recently the practice was adopted of carrying references forward or 
 backward to another blank page. While this enables the indexer to 
 more nearly fill the volume, and thereby save space on the shelves it 
 is a cause of annoyance to the public when looking up any such refer- 
 ences, because of the fact that they are continued so frequently from 
 one part of the book to another part, and sometimes to another volume. 
 
 To remedy this condition the adoption of loose-leaf volumes for 
 indexing purposes is suggested. When under this system the names 
 tm a given page, another may be inserted immediately following it 
 It is thus possible to eliminate the waste of space, and at the same time 
 to promote the convenience of the public. In answer to the objection 
 that leaves may easily be removed or lost from loose-leaf volumes it is 
 only necessary to mention that such books are so made that they may 
 be secured with lock and key and thereby made as serviceable as oound 
 
DEPARTMENT OF PROPERTY 347 
 
 Delivery of Documents 
 
 When the processes of recording, indexing, etc., have been com- 
 pleted, documents are either turned over to the stenographer for mail- 
 ing or placed in delivery boxes. 
 
 The chief deputy estimates that approximately 30,000 documents 
 are recorded in a year, and that about 60 per cent of these documents 
 are mailed to the persons to whom they belong or to their agents. Less 
 than five per cent of this number go to addresses outside of Denver. 
 It is a safe conclusion that when the fees for recording were estab- 
 lished it was not contemplated that they, should cover the cost of mail- 
 ing. In view ©f this fact and also of the fact that from a financial 
 standpoint the recording of documents is not self-supporting, it is sug- 
 gested that a mailing fee of five cents for each document be charged 
 on all documents which the owner or agent desires to have returned by 
 mail. Five cents would be an equitable fee when it is considered that 
 a two : cent stamp and envelope and some portion of time are involved 
 for each document. The fee is so small that it would not be a burden 
 to any one and yet would yield an additional revenue of approximately 
 $900 a year. It seems probable that no special legislative authority is 
 necessary as a prerequisite to charging such a fee. 
 
 Documents which are not sent out by mail are placed in boxes 
 which resemble lock boxes in post offices. There are 115 of these boxes 
 which are used by lawyers, title companies, and persons who have a 
 considerable number of documents to be recorded and who either come 
 or send their agents frequently to the recorder's office. No rental fees 
 are charged for the use of these boxes, and the public has free aecess 
 to them. Anyone may walk into the office and help himself to any of 
 the documents contained therein. It is suggested that part of these 
 boxes be set aside as private boxes and rented at a fixed fee of, say, 
 $3 a year and that each rentor be furnished with a key ; ,also that the 
 other boxes be continued in use for general delivery purposes except 
 that it be made a part of the duties of one of the clerks in the office to 
 have supervision thereof. This clerk should require some adequate 
 identification from each person who asks for a document. If a system 
 of issuing receipts is established, as already suggested herein, each re- 
 ceipt in itself would constitute proper identification. 
 
 Torrens System 
 
 The legislature of Colorado in 1903 passed an act (known as the 
 Tavlor act) providing for the registration of land title under what is 
 common^ knowl as the Torrens system. The general purposes _of this 
 l,^n are first certainty in the establishment and proof of title and 
 Scond, SplSy and facility in dealing with the land after the title 
 is thus conclusively established. 
 
 2S ^SX.TST.^ oS/S efo? P^ had oeen 
 
348 DENVER 
 
 filed in the recorder's office under the Torrens system during the sev- 
 eral years in whieh the act had been in operation. 
 
 This seems to be due to two main reasons : first, failure on the part 
 of county recorders of Denver County to give the new system the pub- 
 licity which is necessary to popularize it ; and second, a suspicion that 
 the law is defective and possibly unconstitutional. A campaign of 
 education should be inaugurated by the recorder's office without delay 
 in order that the citizens may understand the advantages of the Tor- 
 rens system of registration. An expert opinion should also be obtained 
 as to whether the law is in any way defective, and if it be found to be 
 so, corrective legislation should be secured at the legislative session. 
 To settle once and for all the constitutionality of the law, a test case 
 should be carried to the supreme court. 
 
 Fire Hazard 
 
 Attention is called to the great danger of having the valuable 
 records in the office of the recorder destroyed by fire. It is understood 
 that this matter has been frequently called to the attention of the com- 
 missioners and of the public, but no corrective measures have been 
 adopted. 
 
 A fire which gained any considerable headway in the court house 
 building would surely spread into the recorder's office. Not only is 
 the protection around the door jambs inadequate, but there is an open- 
 ing from the office into the hall which was placed there for ventilating 
 purposes. Moreover, the wooden shelves in both the upstairs vault 
 and the basement vault in themselves create fire hazard and negative 
 such measures as have been adopted toward fire prevention. 
 
DEPARTMENT OF PROPERTY 349 
 
 Part 111-The Park Commission 
 
DEPARTMENT OF PROPERTY 351 
 
 PART III— THE PARK COMMISSION 
 
 JURISDICTION 
 
 As it has usually been the custom of cities when assuming the com- 
 mission form of government to wipe out all subsidiary administrative 
 boards or commissions, it was somewhat of a surprise to find that the 
 park commission has been continued. Considering this fact, it is for- 
 tunate that the handling of the park problem in Denver by this com- 
 mission gave evidence of board administration considerably superior tb 
 that found in the work of the average unpaid commission. Great 
 credit is due to the present and former park commissioners in Denver 
 for the start made in the development of a magnificent park and boule- 
 vard system for the city. 
 
 The Question of Commission Management 
 
 Although at the present time the park situation in Denver pre- 
 sents many interesting problems involved in the construction of the 
 mountain parks and the extension of the playground activities, it is 
 only a question of time when the work of the park authorities will be- 
 come purely executive and operative routine. 
 
 Board management usually means inefficient management when 
 the question involved is one of routine, but where large extension work 
 involving the expenditure of large amounts of capital funds within a 
 short period is under way, a board commission has a legitimate reason 
 for existence. 
 
 At the present time, therefore, and until the time arrives when the 
 large extension problems, such as the purchase and improvement of 
 the mountain parks and boulevards and the inauguration of public 
 ' playgrounds have been solved, the abolition of the park commission 
 would be a mistake. As long as the interest of successful business 
 men can be maintained with the same degree of enthusiasm as was 
 evidenced at the time this investigation was in progress, their services 
 should be retained. But \t must be remembered that the interest o± 
 successful business men cannot be retained by routine problems. Thus 
 it is recommended that the organization of the park activities of Den- 
 ver be developed along such a line that the park commission control 
 will be confined to the large extension problems, leaving the routine 
 executive detail under the charge of a paid park official. 
 
 Conflicting Duties 
 
 In order that the exact duties of the park board might be deter- 
 mined as a basis for discussing the advisability of the continuation of 
 Wd management of the park problem of Denver, a study was made 
 
 ZtSZSSZSfiS&Z rX% of L — sioner of 
 property. 
 
352 DENVER 
 
 Steps should be taken immediately to define clearly just what 
 powers the park commission shall have and what relation it shall bear 
 to the commissioner of property. 
 
 It is believed that sufficient power has been given to the council 
 by recent amendments to the charter to clear up such indefinite pro- 
 visions of the charter proper. If such power is available, the council 
 should define by an administrative code provision the jurisdiction and 
 administrative rights of the park commission. 
 
 ORGANIZATION 
 
 At the time this investigation was in progress the organization 
 of the park commission was in a transitional stage. The novel inter- 
 relation between the park commission and the commissioner of prop- 
 erty, which had not been fully defined when this investigation was 
 completed, had caused a delay in the final formulation of the organ- 
 ization. To this end various organization recommendations of consult- 
 ing experts recently retained by the park commission were being con- 
 sidered. This report considers the question from two standpoints : 
 
 1 — Criticism of a proposed organization, and 
 
 2 — Recommended organization. 
 
 Criticism of Proposed Organization 
 
 The proposed organization of the park commission is indicated 
 by the accompanying chart. 
 
 This proposed organization is fundamentally imperfect. It con- 
 siders the park commission as a separate division of the city govern- 
 ment — which it certainly is not. If such an organization plan were 
 to be followed in the formation of all departments it would result in 
 a complete de-centralization of every activity of the city government. 
 In order to obtain efficiency and economy in the operations of a city 
 government it is essential that the organization of every function be 
 considered from the standpoint of the whole problem. The suggested 
 segregation of the legal, accounting, land purchasing, engineering, 
 draughting, surveying and engineering services for the park depart- 
 ment alone, merely because such services are needed in maintaining a 
 park system, is poor organization. 
 
 It is hardly necessary in this day of scientific corporation organ- 
 ization to dwell at length upon the many advantages of centralization 
 ™? eT / r ° m the stand P° int of general efficiency or money saving 
 What does seem to be necessary is to point out that the draughting 
 the engineering, the public works maintenance and construction and 
 ? a n 7 !^ er subs i diary activities of the park commission are not essen- 
 tially different from the engineering, draughting, surveying or public 
 works activities of the department of improvements. Thev are not 
 only not different, but in many cases identical. 
 
 Proposed Organization Plan 
 
 r^wi?"" 1 * e - nteri ^ int0 > e detail s of a plan of organization for the 
 park commission, the mam principles should be pointed out. Most 
 
corrn/ss/o/vcR or property 
 
 PROrESS/ONAL ADV/SORS 
 
 Having advisory powers but no execute 
 ive authority except when in special 
 esses vested with such authority by 
 vote of the Board. 
 
 BOARD Or PARK CO/Wf/SS/O/VERS I 
 
 A TTOPMEr 
 
 7 
 
 \la/voscape architecTY 
 
 OTHER CONSUL TANTS 
 ON SPECIAL PROBLEMS 
 
 STArr DCPARTfiZJVTS LOCAL D/V/S/ONS 
 
 Each in charge of foreman responsible 
 for everything in the division. 
 
 CLERICAL DEPT 
 Responsible tbr records 
 and accounts 
 SECRETARY *n charge 
 
 ^ 
 
 'Jbr/cai assisf&it 
 
 CLAM DEPT. 
 Responsible tor nego- 
 tiations concerning /and 
 etc, relations mfh con- ' 
 sessionaries etc, 
 'XAIM AGENT m charge. 
 
 SUPrTFt/NTFNDFNT 
 
 ENGINEER/NO DEPT 
 
 Responsible for preparation 
 and custody of surveys and re- 
 cords of fond and topogrephy in- 
 cluding underground structures; 
 preparation of plans specifications 
 and estimates for endsqoer vision 
 of construction andmaintenanoaof 
 roads drainage^ water-supply &id 
 engineering structures generally. 
 ENGINEER in charge. 
 
 Mead draftsman in charge of 
 office end of ail plans and sur- 
 vey records 
 
 Assistant engineer in charge of 
 pipe work and other assignments 
 
 Pipe foreman and gang 
 
 \ Cement foremen and gang 
 
 \ Oftier asi/sfanfs foengme'i 
 
 LANDSCAPE DEPT. 
 
 Responsible for preparation or 
 appromlofpbns affecting ■gener- 
 al design of any part of the 
 parh system endofp&ns, spec- 
 ific&f/ons and estimates tbr and 
 supervision of improvements m 
 and maintenance of&mns, plant- 
 ations end other parh areas not 
 assumed to another department 
 LANDSCAPE GARDENER ino% 
 
 \ Nursery foreman end gang 
 
 @ ^ Pbnfing foreman and gang 
 
 ® 
 
 Tree pruning and insecticide 
 foreman and gang 
 
 \CITY PARK Ply- 
 
 subdivisions: 
 
 3a#n. Grcznhouses 
 
 MAID ZOO. 
 
 \CiTEEStZ4iV PARK Dli\ 
 
 SPEER BLlf'D D/i/ 
 
 y 
 
 \PARK AVE DIV. Y 
 
 \pULLER PARK Oil/ Y 
 
 y 
 
 DUNHAM PARK D/Z 
 
 \CURTIS PARK Oil/. Y 
 
 \bL0CK a.OStM DPI Y 
 
 \CI/IC CENTER 
 
 \BEt?KCLEf PK DIM 
 
 >€K 
 
 SUBDIVISIONS'- 
 Slmn AND Goopcr LrtS- 
 ROCKY MOUNTAIN iw. 
 
 ARCHITECTURAL DEPT. 
 Responsible for preparation of 
 p&ns specifications and esfimot 
 es for and 'supervision ofim 
 prorements one/ repair of 
 buildings. 
 APCMITEC T in cnarge 
 
 Carpenter and gang 
 
 J Painter end pang 
 
 RECREATION DEPT 
 Responsible for tne control of tht 
 public in the use of playgrounds, 
 bafhs. social centers andotner 
 facilities and for the dssiffn coo- 
 s/rucficm and maintenance of 
 trie equipment of such. 
 SUPERVISOR in ctieige. 
 
 | Superintendent 'of 'equipment 
 ^donstrxtionandn^pair^ng 
 
 Instructors and assistants 
 
 ^ Alnstruc. 
 \ carefc 
 
 Care.tahers of buildings 
 
 | CHAPPEE PARH OIK Y 
 
 HIGHLAND PARKUV. \ 
 
 rfDOHOLGH PK PI/. Y 
 
 \jE P PERSON PK p/y Y 
 
 \LAKE PLACE Dlil Y 
 
 1 WASHINGTON PH DIIT \ 
 
 SUNKEN GARDENS 
 
 \PLATT PARK Pit Y 
 
 \DAILEr PARK DIK Y 
 
 OBSERVATORY PK Y 
 
 \UNCQLN PK Dlir. Y 
 
 MONTCLAIR PK DIV\ 
 
 CITf DITCH Dill. 
 
 MOUNTAIN PKS DIV. 
 
DEPARTMENT OP PROPERTY 353 
 
 important of these is that such general municipal functions as (1) ap- 
 propriation and contract accounting, (2) provision of legal advice, (3) 
 engineering service, (4) road construction and (5) surveying and 
 draughting for the entire city and county government be centralized 
 The second main point is the need for the establishment of divisional 
 organization in the subordinate activities of the commission. At the 
 present time, with the exception of the superintendent of parks and 
 the assistant superintendent in charge of mountain parks, there is no 
 clearly defined graduation of responsibility working downward from 
 either the superintendent or the assistant superintendent. This could 
 quite easily be formulated and made effective through preparation and 
 distribution of charts. 
 
 Criticism of De-Centralized Activities 
 
 Three conspicuous de-centralized activities are subject to criticism: 
 
 (1) The maintenance of fundamental accounting records by the 
 park commission, 
 
 (2) The maintenance of a special engineering corps by the park 
 commission, and 
 
 (3) The construction and maintenance of park roads by the park 
 commission. 
 
 These questions become somewhat confused when it must be ad- 
 mitted that the accounting, particularly the budget accounting of the 
 park commission, is on the average superior to that of the other 
 branches of the city government— and that the road forces of the de- 
 partment of improvements as at present organized and operating offer 
 no grounds upon which to recommend centralization of these activi- 
 ties But the principle of centralization is not impeached by the fact 
 that the organizations which should handle certain de-centralized 
 activities of the park commission are at present inferior in organiza- 
 tion and inefficient in operation. 
 
 Forester and Horticulturist 
 
 Although th^ city forester and horticulturist are both employees 
 of the department of property, of which the park commission is a part 
 the park commission has no direct control over the services of these 
 two men, nor is there any close relation between the forester and horti- 
 culturist and the park employees engaged in ^esamework. 
 
 Although both the forester and the horticulturist have duties 
 which require their services on trees, shrubs and plants which are not 
 wS the HmL of any park, it is obvious that t^ir services wou d 
 hP of particular value to the park commission, as much of their work 
 hL to P do S the care of trees, shrubs and plants within the parte 
 
 In orefor to answer the telephone during the rush season either 
 
354 DENVER 
 
 forester and the horticulturist were to be made a sub-function of the 
 park commission, this waste could be eliminated, and there is every 
 reason to believe that the efficiency in the handling of the forestry and 
 horticultural problems, both within the parks and generally through- 
 out the city, would be materially increased. 
 
 PASSING OF BILLS 
 
 Bills for services, supplies and materials purchased by the park 
 commission must go before the commission for authorization before 
 payment is made. This necessitates an average delay of approximately 
 one month in clearing bills, a procedure which is wholly apart from 
 best accounting practice. Moreover, it usually happens that such 
 authorization of bills is nothing more than a "rubber stamp process 
 of recertifying the items therein, based upon the signature of the divi- 
 sion chiefs. As has been already pointed out, the auditing and ac- 
 counting work should be taken over by the city's financial officers 
 If this were done, the auditing division of the finance department would 
 supplant the park commision in auditing claims. Such a procedure 
 would facilitate the passage of bills, and provide a better audit of 
 claims. 
 
 ACCOUNTS AND RECORDS 
 
 As has been indicated, the general accounting of the park commis- 
 sion compares favorably with the general accounting and budget con- 
 trol of the city government as a whole. But if the books of the auditor 
 carry out their proper function there is no need for the maintenance of 
 appropriation and contract ledgers, with their attending procedure, 
 in the office of the park commission. It is suggested that the general 
 accounting records be abandoned immediately and the work be trans- 
 ferred to the office of the auditor. 
 
 The commission maintains a warrant register, showing the dis- 
 tribution of warrants drawn on audited claims according to number, 
 date of issuance, to whom paid, from what account paid, and amount. 
 No particular criticism can be raised against this type of warrant reg- 
 ister per se. If the accounting activities were centralized in the audit- 
 or's office and if the procedure whereby the park commission passes 
 every invoice before a claim is paid were to be abandoned, there would 
 be no need for the maintenance of a register in the office of the park 
 commission. The same general criticism applies to the voucher register 
 which is now maintained by the commission. If the accounting work 
 were centralized this record could be abandoned. 
 
 In considering the budget question it must be admitted that the 
 general budget of the city and county could be improved by being pat- 
 terned upon the lines of the park budget — but recognition of some of 
 the more modern principles in budget-making would improve both 
 budget schemes. This question is taken up in the discussion of the 
 general budget procedure for the city and county. "What is of par- 
 ticular importance here is that the exclusion of the park appropria- 
 
DEPARTMENT OF PROPERTY 355 
 
 tions from the general budget of the city and county prevents the 
 exercise of proper appropriation control by the city's financial officers. 
 This is a loose administrative practice, and should be corrected by in- 
 cluding the detail appropriations of the 1915 park funds in the general 
 «ity budget. 
 
 Cost and Expense Records 
 
 Practically no cost and expense records are maintained. It is of 
 particular importance in all the public works activities in the parks 
 that unit and job costs be maintained in order that a basis may be ob- 
 tainable for measuring the efficiency of work done. Without such cost 
 records, judgment as to the economy used in carrying on this work 
 will depend solely on the results of inspections of field work and com- 
 parative expenditures from year to year. 
 
 It is also of particular value in park administration to have avail- 
 able cost records showing acreage costs for various elements of the 
 maintenance, construction and operation. The kind of costs needed 
 may be indicated by the following examples : 
 
 1 — cost per acre for maintaining alone 
 2 — cost per acre for policing parks 
 3 — cost per tree classes for spraying 
 
 4 — cost per acre for total operation, maintenance and construc- 
 tion expenses ; grouped according to parks 
 
 a — under one acre in area 
 
 b — one to five acres 
 
 c — five to twenty-five acres, and 
 
 d — over twenty-five acres 
 
 ENGINEERING FORCE 
 
 The maintenance of a separate engineering force by the park com- 
 mission is not so conspicuous a defect as the accounting de-centraliza- 
 tion, because a part of the engineering work is now carried on by the 
 engineering bureau of the department of improvements. The fact that 
 engineering, draughting and surveying work in connection with many 
 of the park improvements, particularly boulevard construction, is being 
 carried on directly for the park commission by the engineering forces 
 of another department is a concrete example of good organization. 
 
 This is a typical example of the advantage to be gained by central- 
 izing like activities of the entire city and county government. It is 
 unfortunate that all of the routine engineering of the park commission 
 isTot cared for in the same way. If all of the engineering services for 
 Ihe city were centralized under the supervision of the chief engineer- 
 ing offieCT of the city, the park commission could at any time requisi- 
 tion engineering services from the engineering bureau exactly m he 
 same mlnner a fit requisitions the purchase of supplies from the pur- 
 chrsinTagent. It is suggested that steps be taken immediately to cen- 
 tralize all of the engineering services in a like manner. 
 
356 DENVER 
 
 CONSTRUCTION AND MAINTENANCE OF PARK ROADS 
 
 There is no fundamental difference either in engineering technique 
 or administrative difficulties in the construction and maintenance of 
 a park road and the construction and maintenance of a light traffic 
 road in any part of the city. A properly organized city government 
 has within its organization men selected for particular engineering 
 ability or training to design, construct and maintain roads and pave- 
 ments. A city must have field operating forces whose particular duties 
 consist* of the construction and maintenance of roads and pavements. 
 It is submitted that the retention by the park commission of complete 
 jurisdiction over those roads which happen to be within the limits of 
 parks necessitates duplication in organization, force and equipment. 
 
 It is suggested that the control of all public works activities, par- 
 ticularly roads, be centralized in one organization unit of the city 
 government. 
 
 From a utilitarian standpoint it is also suggested that such central- 
 ization be delayed until the organization and working methods of the 
 road forces of the department of improvements reach such a state of 
 efficiency that centralization would unquestionably result in increased 
 efficiency and economy in the administration of the park road problem 
 At the present time it is an open question whether the highways forces 
 of the department of improvements could either save money or build 
 better roads. 
 
 MUNICIPAL BATH HOUSE 
 
 It is suggested that the municipal bath house be placed under the 
 control of the park commission and under the immediate supervision 
 of the division having charge of the recreation and social center work. 
 The engineering, maintenance and operation should be placed under 
 the supervision of a bureau of public buildings and offices, but the 
 operation of the municipal bath house from a social standpoint should 
 be placed under that division of the city government whose officers 
 are equipped to deal with social problems. 
 
 PARK ROADS 
 
 Park roads are now maintained directly by the park commission 
 forces m the various parks, under the immediate supervision of the 
 park foreman. These roads are of two general types : 
 
 (1) A sand-gravel surfacing, and 
 
 (2) A sand-gravel-clay surfacing. 
 
 As traffic carriers little can be said in the favor of this kind of 
 , ? nTw™ 0n " Ba ? d -*™7 el r ° a i of ™y sort is not suitable for carry- 
 
 Sf 55 t S automoblle . traf£l °' In faet > ™°h roads are but poorly 
 adapted for carrying any kind of traffic. 
 
 According to the statements of those familiar with the conditions 
 tiCds'S at , a V ime ? f the ^ar, it is understood that maJy S 
 the roads m heavily traveled parks had to be completely closed at cer- 
 
 of V^r\t^ ^^ T / S in itS6lf is Suffieient iQdiea ti°* of the lack' 
 ol proper road design and maintenance. 
 
DEPARTMENT OP PROPERTY 357 
 
 As a special example of the inefficiency of park roads as traffic 
 carriers, the Franklin street road in Cheesman Park may be cited. 
 This road was inspected regularly for a period of about three weeks 
 during the course of this investigation, and at not one time was it in 
 proper condition for a park road of its importance. There were cer- 
 tain times immediately after the maintenance forces had completed 
 repair work that the surface was in fair condition, but the road had 
 practically no stability and -was soon in as bad condition as ever. 
 
 In view of these conditions, an attempt was made to find out what 
 it was costing the park commission to construct and maintain park 
 roads, but it was impossible to ascertain from any records what it cost 
 to build or maintain them or to find even a statement of the mileage, 
 yardage, or width of the various roads within the city parks. Such a 
 condition indicates that the full importance of park road construction 
 and maintenance has never been given proper consideration. It is 
 another argument in favor of the centralization of road work in one 
 division of the city government, where such problems will be controlled 
 by men selected for their particular ability in handling such work. 
 
 Study of the Problem Recommended 
 
 It is submitted for the serious consideration of the park commis- 
 sion that a complete comprehensive study of park road conditions be 
 made. It is poor economy to lose so much of the value of the city's 
 park plant on account of inadequate roads. 
 
 Although this was intended to be essentially an administrative 
 survey, even a casual inspection of the park roads brought out many 
 defects in design and construction. Of these, the most conspicuous 
 were 
 
 (1) That the construction and maintenance methods were merely 
 temporary measures — the roads having even less ' ' salvage " or " scrap 
 value than the surface street type of construction used by the bureau 
 of highways of the department of improvements 
 
 (2) That evidently but little consideration had been given to 
 the excellent work done by the office of public roads of the United 
 States department of agriculture in determining the proper mix of 
 sand, gravel and clay in order to get the most efficient road from such 
 material. 
 
 A sand-gravel-clay road at best is not well adapted for many kinds 
 of traffic, but proper use of even those materials will provide much 
 better roads than the average park road now in existence. For exam- 
 ple the excess of sand in the surface mixture of Franklin street might 
 have been equalized by the addition of a proper quantity of clay. 
 
 APPORTIONMENT OF THE COST OF PARK IMPROVEMENTS 
 
 As a matter of principle, it is usually poor policy to bring up in a 
 critical way past actions which, although inequitable and unjust, can- 
 not be corrected. This, it might be said, applies to the question of the 
 manner in which the cost of Denver's park improvements has been 
 apportioned, but in order that such a plan may not be used m future 
 
358 DENVER 
 
 park developments, a brief statement of the injustice of the former 
 method of paving for park land is presented. 
 
 • Primarily local assessment to provide funds for the purchase or 
 improvement of general parks is theoretically and practically unsound 
 T? on account of statutory requirements, such a financing scheme is 
 not to be avdded, the administration of the plan should attempt to cor- 
 rect theoretical fallacies in the principle. *«*<«*. 
 The city of Denver has been divided into four park districts. 
 
 (1) Highland Park district 
 
 (2) East Denver Park district 
 
 (3) Montclair Park district, and 
 
 (4) South Denver Park district. 
 
 The capital expenditures to date (according to the bond issues) which 
 have been paid for by assessment on property withm the park districts 
 are as follows: 
 
 Highland $ 230,000.00 
 
 South Denver 243,50 X™ 
 
 Montclair 397,700.00 
 
 East Denver 2,685,000.00 
 
 It is apparent that the property owners in the East Denver Park 
 district have been paying considerably more than their share of park 
 improvements. It was stated that an attempt had been made to appor- 
 tion approximately the cost of the park improvements among the dis- 
 tricts in direct proportion to the total assessed valuation within the 
 districts. Time did not permit of the assembling of data showing as- 
 sessed valuations of the various park districts, but a casual investiga- 
 tion certainly would give ground for a question as to whether the 
 valuation of the East Denver Park district were even approximately 
 ten times as great as the valuation of the Highland and South Denver 
 Park districts, and seven times as great as the Montclair Park district. 
 
 Even if the cost of these improvements were apportioned in direct 
 proportion to the assessed valuations of the various park districts, the 
 principle is still wrong. Every capital expenditure of the city should 
 be borne by the taxpayers receiving benefits from such improvements. 
 This is a fundamental principle in taxation which cannot be satisfied 
 by approximate apportionment of the cost of park improvements ac- 
 cording to the comparative valuations within the park districts as of 
 the date the parks were acquired. Proper distribution of the tax bur- 
 • den under such a scheme would demand a" reapportionment of the as- 
 sessment burden every year according to the changed ratio of assessed 
 valuations within the various districts. At the present time the Mont- 
 clair Park district has an assessed valuation equal to one-seventh of 
 the assessed valuation of the East "Denver Park district, but in the 
 future this proportion is bound to vary, so that in ten years the as- 
 sessed valuation of the Montclair Park district may be less or greater 
 than one-seventh of the assessed valuation of the East Denver Park 
 district. Yet the property owners of those years will obtain even more 
 benefit from the park improvements than the taxpayers of these years. 
 
 The principle of distributing the entire tax burden among the 
 

 l'.TJlv^51 
 
 ■ - - itrja to 
 
 -r-:/ 
 
 -■ "*p mite- n r r v r* J n -rrr 
 
 ««iBe^f"-i 
 
 
 'l2SI?^ s ^L 
 
 &lpl§§lll 
 
 =3a^ 
 
 
 =s =-= si= jw = i_-__T±: = =sm- ==>/ 
 
 x.r &.»?«**= <>^,, — .-,4?-- ™.£ ^ 2; 33*6533 EE H Bw 
 
 
 SMfl 
 
 
 ,W^ 
 
 i isa /s 
 
 30SS 0S$09 
 
 ifMM^IlMfiflMf 
 
 
 
 '" L]Jg. I 
 
 ; EEfer. T^L 3133 
 
 re] E3M3 
 
 
 
 •i " £eH~V" [ ' f ~**Tfrr p ***T ~~ z**t*»t** a ;&fc> 2.3,13. £ 
 
 \ ^J^ ^^z_\±- J^^^ei r^^?. 
 
 
 ''jt'-Lrsk i"^^ 'ire,'* ' £lU^ q ~^= * ' m 
 
 
 if: 
 
 7 = ^-jw*cb!^^~^-r J ^;"~: ;TT 77 M S~' 
 
 I 
 
 ] ~rftg ^S s s s a s e a CHS 
 
 "Kft«" a 3 T T- ^ C 71 71 f?, r 
 
 
 iilgffiiil 
 
 
 
 
 K3B0lf 
 
 l^jSEBEBS^SSSg 
 
 v t B 
 
 ■IKH ll II I; il,li'li%«n*W* 1 rmfa !' . ., — r< • 
 
 A* 
 
 
 Hi 
 
 •^S^j^ ^ Jl j. 
 
 
 ^fctt&i 
 
 Epir; >T>V^««»"«>j 7. n a 171 n rn " 
 
 ... .. x±-5S ^d ™;c 
 
 =28= 
 
 3-BB 
 1BB0 
 
 QQaBlll 
 
 ssci^brS'- "j.^J^^B^^L'U^hur^' irsfct •-■sSl isKt. "f?d? 
 
 ="SB|93»; 
 
 fc u u, EJ> J h - 2. =. q- ^ - •sUn,-, I ... 
 rtrf^ rTHft-ii«^r 7lr^|7 7 n; tAM : Q 
 
 -1 rTn rirn r — "" " 
 
 mm 
 
 IXXsi 
 
 7nn 
 JUiliMilGi-lilDD!:?* 
 
 ^SelfeBBBBIOTIIirB B ^33" a 
 
 EO 
 
 
 TWIT T ' "Li" -' > «i - H ^-' 
 
 ....- ,,., BHa @gg§eB., 
 
 „ a a da 3 = a p(U I. U LilLJ ujl l)l-T!L~1_; D u M la i ii B S ScB 8.33 8 06 gj^; 
 
 1 yyfS^^^'SBBaBElBQBBBBQaBlD^ 
 
 RHHHflHHHi 
 
 ■a-l'iTr ,l <Sriar s - 1 ,' »rV. --rip liftife. 
 
 33952111 
 
 HHBa8JBHBB000EiaHIElB 
 
 - 1 " a a&Bosa 50 b 8 b a a 
 
 1DHB 
 
 ^ R**-i^ _m> ,, . 7 17; 
 
 
 liiH^"-^ 
 
 
 a 3 3 a a ^ a 42^^ y S S S 
 " 3i3B 
 
 ffllBBBiHBBBBBaBHBB 
 
 JgBHBBBBBBBBBBBBBi 
 mjBBHaBHBBia BBBBBB BB BBBBBB 
 
 sase 
 
 SBBB 
 
 as "S Sj9BB§a ETB E B a S 8 
 9BB ^' BBBBBBBBBgt 
 
 iBB0 rao *fiB&@BB0HH&- 
 ^ujgB^^SfflfifflfflHHIDB] 
 
 uJ ill JL Jj Ll. lIj JJ 
 
 MID 
 
 HfflfflfflBS 
 
 NV, 
 
 lJJHLlj 
 
 iffiii 
 
 HPfgQ 
 
 llliPS§SLi®n^s^g|§a 
 ' '_„. ™ 
 
 HI 
 
 IBIRIHIMBlHlHlffifflHIl 
 
 ODD 
 
 m 
 
 a-s- 
 
 -*• 
 
 BBB.BE 
 
DEPARTMENT OF PROPERTY 359 
 
 taxpayers receiving benefit from the objects purchased has been re- 
 cently applied to land purchases, so that only refunding term bonds 
 are issued to provide money for the purchase of land. This develop- 
 ment has arisen on account of the fact that there are two main classes 
 of purchases which can be properly made by a city with capital funds : 
 
 (1) Appreciative objects 
 
 (2) Depreciative objects. 
 
 The latter class includes pavements, sewers, sidewalks, buildings, etc., 
 which continue to depreciate in value. Such purchases demand the 
 issue of bonds with a term approximately equal to the life of the im- 
 provements purchased. 
 
 On the other hand, the appreciative objects, of which park land 
 is the most important, not only do not depreciate in value, but increase 
 in value, due to the accrual of the unearned increment on the land. 
 Thus it would be proper to purchase park lands with money provided 
 through the issue of refundable term bonds where the annual burden 
 to be carried by the taxpayer would be the interest on the investment 
 alone. 
 
 The need for a complete readjustment of the financing scheme in 
 park improvements in Denver cannot be questioned when considered 
 in the light of the best financial practices. It is suggested that these 
 questions be placed before the people in the form of a proposed charter 
 amendment. 
 
 The most recent examples of the injustice of apportioning the cost 
 of park improvements within a local district are to be found in 
 
 (1) The purchase and improvement of the civic center, and 
 
 (2) The addition to City Park. 
 
 Although both of these purchases were paid for by the property owners 
 of the East Denver Park district alone, they will be used and enjoyed 
 by the entire community. The question of the civic center apportion- 
 ment is considered in the assessment proceedings of the board of pub- 
 lic works. 
 
 The obvious injustice of apportioning the cost of the recent addi- 
 tion to City Park on the Bast Denver Park district is made clear by a 
 study of the map of the Denver Park districts. One end of City Park 
 touches the boundary line between the East Denver and the Montclair 
 Park districts, and on account of this location it would seem that thirty 
 per cent of the improved property in the Montclair Park district would 
 obtain more benefit from City Park than the average benefit obtained 
 by the entire property in the East Denver Park district. Yet no part 
 of the cost of City Park was borne by the property owners m the Mont- 
 clair Park district. 
 
360 DENVER 
 
 MOUNTAIN PARKS 
 
 Of the entire park system of the city of Denver, the mountain 
 parks stand out as most distinctive. The work done by the park com- 
 mission board in acquiring and improving the mountain parks would 
 be a credit to any organization, and it is to be hoped that sufficient 
 transportation facilities will be provided so that those who do not have 
 automobiles at their disposal will" be able to make use of these parks. 
 
 The mountain roads which were constructed last year m order to 
 provide access to the parks are excellent. The line and grade work, 
 particularly, shows the effect of careful engineering. With a maxi- 
 mum of six per cent grade, the road from Golden to Windy Point and 
 beyond can be used by almost any kind of traffic. 
 
 The mountain park system is a great undertaking, and, when com- 
 pleted, will be one of the most unique park developments in the coun- 
 try. As an attraction for tourists, the mountain parks will unques- 
 tionably add much to the general attractiveness of Denver as a tourist 
 city. 
 
 PLAYGROUNDS 
 
 The playground activities of the city of Denver were in a process 
 of reorganization at the time of this investigation. A report had been 
 received from one of the foremost experts on playground work in the 
 country, and the recommended changes in organization and methods 
 were under way. This work had not reached such a state that fair 
 criticism could be made of the results accomplished from the reorgan- 
 ization and change in methods. 
 
 The playground report suggests an organization along the lines 
 recognized as being the best adapted to that kind of service. Its treat- 
 ment of the co-operative problem between the school and park authori- 
 ties seems to have provided an adequate solution for this somewhat 
 difficult arrangement. 
 
 It is to be hoped that the enthusiasm of the park commission and 
 of the citizens generally will be kept alive on the playground question. 
 It is the kind of work through which ultimate results cannot be ob- 
 tained immediately. The development of constructive play and social 
 center work is one which needs time. The fact that the playground 
 problem is essentially a social problem makes the continued co-opera- 
 tion of the citizens in general more essential than official activity. 
 Of all the functions of government, playgrounds, if properly operated, 
 come the closest to the home and naturally demand for successful oper- 
 ation a very high factor of home interest. Playground results cannot 
 be measured in dollars and cents, but in the main must be presumed 
 upon a realization that the playgrounds are being properly managed. 
 But notwithstanding the fact that it is impossible to measure the re- 
 sults in unit costs or in square yards of work done, the results of play- 
 ground work are none the less real and well warrant the necessary ex- 
 penditure. 
 
DEPARTMENT OF PROPERTY 361 
 
 Part IV — The Office of the Building Inspector 
 
DEPARTMENT OF PROPERTY 363 
 
 PART IV— THE OFFICE OF THE BUILDING INSPECTOR 
 
 ORGANIZATION 
 
 The special inspection service under the jurisdiction of the depart- 
 ment of property consists of building inspection, plumbing inspection, 
 the electric wiring inspection, and boiler and elevator inspection The 
 fundamental defects in organization is found in 'all of these services, 
 namely decentralization. 
 
 Building inspection, electric wiring inspection, elevator inspection 
 boiler inspection, plumbing inspection are all activities having to do 
 with the care, construction or operation of buildings. They are essen- 
 tially like activities and in most cities either have been centralized or 
 plans are now under way to effect such centralization. 
 
 According to the charter the commissioner of property is ex-officio 
 building^ inspector, electrical inspector, boiler and elevator inspector 
 and plumbing inspector for the entire city. Thus the active heads of 
 the various branches of work are given the title "deputy." 
 
 The personnel of these suborganizations consists of 
 
 Building Plumbing 
 
 1 deputy 1 deputy 
 
 1 chief 2 inspectors 
 
 2 inspectors _ ., 
 
 _ Boiler and Elevator 
 
 Electrical , , 
 
 1 deputy 
 
 1 deputy 2 boiler inspectors 
 
 2 inspectors 1 elevator inspector 
 
 1 clerk 1 stenographer and clerk 
 
 All four suborganizations maintain permit divisions for the issu- 
 ance and control of permits. In order to take care of the permit work 
 one or two of the field employees of each division are usually to be 
 found in the office. It is the practice of one deputy to remain in the 
 office at all times during business hours, thus causing a complete loss 
 to the city of his field services. 
 
 Need for Reorganization 
 
 It is understood that the question of the centralization of these 
 services has been considered and abandoned largely on account of lack 
 of suitable quarters. 
 
 The principal advantage of centralizing these divisions would be 
 (1) establishing close co-operation between the various inspection serv- 
 ices, (2) the development of better administrative control, and (3) the 
 centralizing of clerical and office work, including the issuance of per- 
 mits, so that the time of the inspectors would be devoted to field work. 
 
 Centralization of the inspection services does not depend for suc- 
 cessful operation upon the actual physical centralizing of all of the 
 various activities in one room. What is important is to get the admin- 
 istrative offices and the clerical offices in one place and to provide 
 
364 DENVER 
 
 some place for the inspectors to write up their reports while in the 
 office. As a general rule, the less office room provided for inspectors 
 of any sort, the better are the results obtained. An inspector should 
 not be provided with a desk, particularly a roll top desk. There is 
 too great a tendency to make use of the desk for filing official papers 
 which ought to get into the general files, and also too great a tendency 
 to inspect on paper what should be inspected in the field. 
 
 Quarters Now Available 
 
 An examination of the available offices in City Hall only substan- 
 tiates the contention that such a reorganization could be effected im- 
 mediately. The present office of the electrician could be used for the 
 general administrative office of the centralized bureau. The electri- 
 cian's private office could be used by the head of the proposed bureau, 
 and the permit office immediately in front could be used for a central 
 permit division. Either the building inspectors' quarters or the boiler 
 and elevator inspectors' quarters could be cleared out and used for 
 providing table room for the inspectors when in the office. 
 
 The present plumbing inspectors' office could be used for a gen- 
 eral file or conference room, as might be decided in the future. 
 
 With the kind of organization as outlined in the accompanying 
 organization chart, provision has, been made for the establishment of 
 the office of chief inspector in each of the five main groups. The title 
 "chief inspector," as used in this organization chart, carries with it 
 little administrative authority or responsibility. It is expected that 
 the chief inspector as well as every other inspector in any one of the 
 subdivisions of the proposed bureau will be kept in the field on real 
 inspection work. The title should be reserved for the man most capa- 
 ble of handling difficult inspection cases. It should entitle the holder 
 to a slight increase in compensation over that paid to the other inspec- 
 tors. It should carry with it some additional authority and responsi- 
 bility, but the use of the title is not intended as an implication that 
 there shall be five assistant administrators in the proposed bureau 
 whose chief duty would be as at present to remain in attendance at the 
 main office. 
 
 Central Permit Division 
 
 It is proposed to centralize all of the permit activities through the 
 establishment of a central permit division. In considering this prob- 
 lem it developed that the permits now issued by the various permit 
 divisions have in general the same fundamental defects: (1) lack of 
 standardization of size, form and general arrangement, (2) they are 
 not susceptible of easy or accurate audit. 
 
 Inspection permits should be of uniform size, printing, and gen- 
 eral arrangement, the only variation being in the color of the paper 
 and the title and detailed instructions of the permit proper. 
 
 The criticism of the permit forms in use by the department of im- 
 provements applies equally to the permits issued by the department 
 of property. It is not the signature of the chief deputy inspector or 
 the commissioner of property which makes the permit an official in- 
 
DEPARTMENT OF PROPERTY 365 
 
 strument in the field as much as the size, color, arrangement and print- 
 ing. It would be advisable to print all permits of the city from the 
 same plate in order that the official form of permit may become so 
 familiar to officers and citizens that counterfeits and substitutions 
 may be readily detected. 
 
 A permit should be issued only upon a deposit from the permittee, 
 collected before the permit is issued. In order to avoid delay in issu- 
 ance and inconvenience to the applicant, the cash deposit should be 
 collected directly by the permit clerk. In order to follow this pro- 
 cedure and at the same time provide a basis for audit of the amount of 
 money received, the permit blanks should be printed and controlled in 
 blank by the auditor. 
 
 It is further suggested that the permit be drawn in duplicate or 
 triplicate, with a graduated stub devised for indicating the amount of 
 deposit paid and at the same time separating the original from the 
 duplicate. The duplicate copy could then be forwarded to the auditor, 
 together with the cash statement, and preserved as an evidence of the 
 accuracy of the cash transfer. 
 
366- DENVER 
 
 BUILDING INSPECTION 
 
 The general duties of the building inspection division consist of 
 (1) issuance of permits for the repair, alteration, and construction of 
 buildings and the erection of fences, signs, billboards, and gas tanks ; 
 and (2) inspection of such permitted operations to enforce provisions 
 of the building code and the other city ordinances applying thereto. 
 
 The present organization consists of the deputy building inspector, 
 one chief inspector, and two assistants. 
 
 The number of permits issued varies between 400 and 500 each 
 month. In March, 1914, 454 permits were issued, and in April 435. 
 
 Poor Administrative Control 
 
 The duties of the building inspector are essentially the protection 
 of life and property, but from an operating standpoint the work con- 
 sists largely of engineering, architecture and construction. It is of 
 particular importance that the building inspection authorities of any 
 city maintain strict control over all construction, alteration, or repair 
 jobs undertaken in the city. 
 
 At the time of this investigation only a part of the work going on 
 was being inspected. Although it must be admitted that even a casual 
 inspection of the building operations going on would demand a larger 
 force or better transportation facilities than were available for the 
 building inspectors, a better system of reports and records would have 
 materially, increased the effectiveness of the inspection work. Lack 
 of co-operation between the other inspection departments of the city 
 and lack of effective co-operation with the fire wardens added to the 
 ineffectiveness of the service. 
 
 Office Records Poorly Designed 
 
 In order to find out what effect was obtained from the inspection 
 work being carried on, an examination was made of the record of 
 building permits. It was found that when a permit is issued a book 
 record is made out by posting to a form of register the number, fee, 
 cost, date, stories, description, size, street and number, etc., of the 
 building. This record is a register of permits issued and is the only 
 book record maintained. 
 
 Although it was found to be impossible with the present force to 
 inspect every permit issued, no record of the inspections actually made 
 had been entered in this register of permits. In other words, it was 
 impossible to tell from the only book record of building permits 
 whether the building operations so permitted had been carried on in 
 strict accordance with the building code, or even whether the permits 
 had been inspected in any way. 
 
 In answer to the question, "How do you know whether this per- 
 mit has been inspected and, if inspected, whether the work was car- 
 ried on in accordance with the law ? ' ' the official stated that informa- 
 tion showing that inspections had been made and the result of such 
 inspection were available and could be assembled in time. The point 
 is not made that there were not inspectors' records somewhere on file 
 in the office, but that the lack of a clear-cut allocation of such reports 
 
CHART OF PROPOSED ORGANIZATION 
 BUREAU OF BUILDING INSPECTION 
 
 
 BUREAU 
 
 SUILDING /NSPECT/ON 
 
 
 
 CHIEF OF BUREAU 
 
 
 
 
 
 
 
 
 
 SECRETARY 
 
 
 
 STENOGRAPHER 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 n/v/s/o/v or 
 
 r^ETRMITS 
 
 
 
 o/v/s/on or 
 
 BO/LEA? /NSRECTION 
 
 
 
 oiv/s/on or 
 
 ELEV/JTOR INSPECTION 
 
 
 
 oiv/siONor 
 
 BUILDING INSPECTION 
 
 PERMIT CLfRK 
 
 CHIEF INSPECTOR 
 
 CHIEF INSPECTOR 
 
 CHIEF INSPECTOR 
 
 /ssu«/7Cf of Perm/ /£ 
 Co/iection of Deposits 
 issuance of Refunds 
 Off/c e ins a e c T/on Re c orJs 
 
 inspection of i/rsiaf fat/on 
 and operation- or 
 Siectm Boilers 
 
 /nspection of ins fa/loll on 
 and opera f/on of Passenger 
 and Freight £/evafor 
 
 inspectton of erects on, 
 a/feraf/on and fepa/r/ng 
 of Buifdings&oiher SirucA/res 
 
 
 
 
 
 
 
 
 
 
 
 
 ■ 
 
 
 
 
 
 
 oiv/s/on or 
 
 ELECTRICAL JNSPECTION 
 
 
 Division or 
 
 PL UMB/N6 /INSPECTION 
 
 
 division or 
 
 SMOKE INSPECTION 
 
 
 
 CHIEF INSPECTION 
 
 CHIEF INSPECTOR 
 
 CHIEF INSPECTOR 
 
 
 
 Ins&eClion of insTal/aTton 
 and alferat/on or 
 Elecfnicai Wirt no ana 
 rix. Tunes, 
 
 /rtsjoscT/on of in&Ta/laTion 
 
 alteration and repairing 
 of Plumbing & Plumbing 
 fix fares 
 
 /ns/dccT/'on ror /nc- 
 
 prerenl/on of f/ie 
 
 Smoixe Nui s /un c« 
 
 
 ff?t f>*R£ O 3f TMC BOtTS/tO Of t^lurvic I P/tL f?£ SerARCrt 
 /v£-w yC/?« CfTY 
 
DEPARTMENT OF PROPERTY 367 
 
 to the record of the original issuance of the permit proves conclusively 
 that the officer responsible for building inspection was not receiving 
 currently that kind of information. 
 
 From an accounting standpoint the entry of the issuance of the 
 permit is the charge against the division to make an inspection, and 
 the entry of the inspector's report is the clearing of the original 
 charge. Without a similar record it is impossible to know how much 
 of this work is actually being done. Both the, deputy building in- 
 spector and the commissioner of property (as ex-officio building in- 
 spector) might be subjected to the charge of criminal negligence if 
 after a dangerous building collapse or fire it were found that no in- 
 spection had been made of the construction or repair of that particular 
 building. 
 
 Such records should be maintained as will permit anyone to deter- 
 mine whether building inspection is actually being performed. 
 
 A special file record is maintained by the various inspectors of 
 jobs upon which violations have been found. No particular record is 
 maintained of jobs completed in accordance with law. From the stand- 
 point of inspection control it is just as important that the inspector 
 report that a job is satisfactory as to report jobs upon which the work 
 is being carried on in violation of the building code. In other words, 
 every inspection should initiate some kind of written report in order 
 that mistakes or negligence on the part of the inspector will invaria- 
 bly be errors of commission. 
 
 Need for Office Control of Field Records 
 
 It is suggested that whenever a building permit be issued an in- 
 spection form in duplicate or triplicate should be made out. The orig- 
 inal should be maintained in the office as a permanent record, the 
 duplicate used as a cross reference index, and the triplicate used as a 
 basis for inspectors' reports. If proper control is to be obtained oyer 
 the activities of various field inspectors it is essential that the office 
 maintain a record of "live" permit operations. The lack of such con- 
 trol was found in the method of handling the complaint forms. Com- 
 pleted complaints were filed permanently in the mam office, but no 
 one had any record of the number of complaint blanks which each in- 
 spector carried with him in the field. , 
 
 Experience has proved that the sending out of notices to inspect 
 to field inspectors, without maintaining office control over such re- 
 ports usuaUy results in increasing inaccuracies and also develops a 
 tendency on the part of the inspectors to lose or throw away the re- 
 ports in the field. 
 
 Transportation 
 
 It is suggested that the building inspection division be provided 
 with two ?three inexpensive automobiles for use by the field mspec- 
 Tors If the reorganization of the inspection forces can be effected as 
 
 00 +L in this renort probably six such automobiles should suffice 
 £f tnfent re oureau VaSy event, the providing of better transpor- 
 tation fofthe building inspectors is an immediate necessity. It is dan- 
 
368 DENVER 
 
 gerous to continue the practice of inspecting only a part of the build- 
 ing permits. There is but little doubt that the present force if pro- 
 vided with better means of transportation could inspect all of the 
 building operations. 
 
 Special Permits 
 
 An example of the lack of proper building inspection records may 
 be found in the fact that although 25 special permits had been granted 
 by council within the year, there was no record of when the permits 
 were issued, why they were issued, what exceptions to the building 
 code were authorized, or what kind of work actually was done. In 
 order to obtain any information about these permits it was necessary 
 first to go to the office of the city clerk and to obtain a file of the 
 proceedings of the council, after which descriptions of the permits 
 were obtained from various sources by officers of the building inspec- 
 tion organisation. 
 
 Fire Escapes 
 
 The building inspectors are also charged with the inspection of 
 fire escapes and the enforcement of fire escape regulations. A register 
 of fire escape notices sent out is maintained. A record of fire escape 
 violations is also maintained, and, according to the statements of the 
 officers, over 200 letters had been sent out. There was, however, no 
 record of orders sent out demanding the making of specific changes 
 in existing fire escapes or the construction of new fire escapes. There 
 was no record of final inspection, and the last entry made was January 
 14, 1914, although this investigation was made early in May. 
 
 Use of Placard Permit e- 
 
 It would be of particular advantage if a placard form of permit 
 were issued in place of the present form. By requiring that this pla- 
 card be posted in a conspicuous place on the work it would be possible 
 to obtain the co-operation of the police officers and inspectors of all 
 departments of the city in reporting building operations in progress 
 where no permit had been taken out. 
 
DEPARTMENT OF PROPERTY 369 
 
 ELECTRICAL INSPECTION 
 
 The electrical inspection organization consists of the deputy elec- 
 trician, two inspectors and one clerk. The authority for the work is 
 obtained from ordinances of council. The non-compliance with the 
 electrical code may be enforced through court action. 
 
 Licenses to Moving Picture Operators 
 
 Although the licenses to moving picture operators are issued by 
 the excise commissioner, the electrician is charged with the examina- 
 tion of all applicants. The form of license and the examination ques- 
 tions indicate that little attention has been paid to this subject. 
 
 Personal licenses of any nature are useless unless some means be 
 provided for preventing transfers. Without a detailed description of 
 the physical appearance of the licensee it is impossible for a field in- 
 spector to make sure that the person presenting the license for his 
 inspection is in fact the same person examined for the license. It 
 would be advisable to have pasted on the license card a picture of the 
 applicant, so that a transfer of the license could be instantly detected 
 upon examination. 
 
 The real reason for the examination of moving picture machine 
 operators and the licensing of those who successfully pass an exam- 
 ination is to make sure that the operators are properly trained to act 
 in case of panic, fire, or trouble with the apparatus. If this be true, 
 then the important points to emphasize in the examination of appli- 
 cants are those which will bring out the fire prevention and fire- 
 fighting knowledge of the candidates. The questions submitted for 
 examination of applicants for moving picture operators' licenses do 
 not emphasize these points. It is of little value to ask the applicants to 
 write out the names of the principal parts of a moving picture machine 
 or to describe the operation of changing reels or the repairing of 
 broken films. These constitute the greatest part of the examination of 
 applicants for this license. The kinds of question which should be 
 asked are: "What are the principal parts of a fire extinguisher?" 
 "How can you determine when a fire extinguisher is not in proper 
 condition?" "How often should a fire extinguisher be inspected?" 
 "What are the requirements of the city ordinances respecting the ac- 
 cumulation of combustible material in theaters?" "What are the re- 
 quirements of the city ordinances respecting the incumbrances of aisles 
 in a theater?" "What are the requirements of the building code re- 
 specting fire-proof construction of moving picture booths? What 
 constitutes a violation of such code ? " _'_ . 
 
 It is suggested that the form of examination of moving picture 
 operators be revised along these lines. 
 
 Inspection Procedure 
 
 On account of the fact that electrical wiring is usually concealed 
 by a wall construction after the completion of a building the exa 
 control of every electrical installation or repair job is of considerable 
 importance In the protection of life and property. From this stand- 
 
370 DENVER 
 
 point electrical inspection is of considerably more importance to the 
 community than plumbing inspection, where a failure is usually in- 
 dicated by a water or gas leak, the immediate results of which are not 
 particularly serious. 
 
 Transportation Facilities Needed 
 
 With the present force an attempt is made to inspect practically 
 every electrical installation or repair job. Better results and more in- 
 spection could be obtained, however, if proper transportation facilities 
 were provided for the inspectors. It is to be hoped that, if the pro- 
 posed reorganization can be effected, transportation either by auto- 
 mobile or motorcycle can be provided for most of the inspectors. 
 
 Permits 
 
 According to the present practice, permits are issued only to 
 licensed contractors who are required before receiving the license to 
 file a bond of $1,000. When the electrical work has reached such a 
 state that an inspection is necessary the contractor is required to 
 send in a notice to that effect. This procedure results in a distinct 
 saving of time and the concentration of effort on the part of the elec- 
 trical inspectors. 
 
 Placard Permit Suggested 
 
 In order that the electrical division may obtain more informa- 
 tion as to jobs under way, .it is suggested that a placard be posted 
 whenever a permit for an electrical installation or repair job is 
 issued. By requiring the posting of this placard on the work, it will 
 be possible for every field employee of the city, particularly police 
 officers and inspectors of buildings, to determine whether an elec- 
 trical job is being carried on under a permit. It is simple enough to 
 put in operation a system which will control the electrical installa- 
 jVEJ. a ° d repair work for which a Permit has been issued. What is; 
 difficult is to make sure that a permit has been issued for all elec- 
 trical work The use of a placard permit and the requirement that 
 such placard be posted m a conspicuous place on the work will make 
 it possible to obtain the services of other city employees in reporting: 
 work being carried on without a permit. 
 
DEPARTMENT OP PROPERTY 371 
 
 PLUMBING INSPECTION 
 
 The general duties of the plumbing inspectors consist of the in- 
 spection of plumbing installation and repair work. The personnel 
 at the time of this investigation consisted of one deputy and two in- 
 spectors appointed under specifications requiring that they shall have 
 been master plumbers with ten years' plumbing experience. 
 
 Permits 
 
 Permits are issued to master plumbers only,— the title of master 
 plumber being granted by the state examining board. There are about 
 220 master plumbers in the city and during the first four months of 
 1914 they took out 704 permits. 
 
 Reports and Records 
 
 The detailed records maintained by the inspectors of this division 
 were in general superior to the personal reports maintained by the in- 
 spectors in any other inspection division. These reports were made 
 out in duplicate for the commissioner of property. 
 
 General Statement 
 
 The tendency in the past has been to overestimate the importance 
 of plumbing inspection. Although the size of the division of the city 
 of Denver does not seem to warrant a criticism on the basis of over- 
 expenditure for this work, it is certain that, if three men are really 
 required for plumbing inspection in the city of Denver, 30 men would 
 be required for building inspection. It is not of supreme importance 
 whether plumbing work is inspected or not. Recent developments of 
 sanitary research have proved that although sewer gas is obnoxious, 
 it is not particularly dangerous, — certainly not as dangerous as ordi- 
 nary illuminating gas. 
 
 Faulty plumbing installation can be discovered and repaired be- 
 fore serious damage ensues. It is an open question whether the entire 
 plumbing inspection service should not be abandoned. "What work of 
 this nature is really necessary might be carried on by building inspect- 
 ors or sanitary inspectors of the bureau of health. 
 
372 DENVER 
 
 BOILER AND ELEVATOR INSPECTION 
 
 The duties of the division of boiler and elevator inspection con- 
 sist of the inspection of the installation and operation of boilers and 
 elevators. No smoke preventive inspection was being carried on at the 
 time of this investigation. 
 
 The force consists of one deputy, two boiler inspectors, one ele- 
 vator inspector, and one stenographer and clerk. The deputy also sits 
 as a member of the examining board for licensing stationary engineers. 
 
 The same criticism as to the need for centralization and the lack 
 of properly designed and controlled permit forms applies to this divi- 
 sion as to all other inspection divisions of the city. 
 
 Office Records 
 
 The office system in use by the boiler and elevator inspectors for 
 recording permits issued and inspections made is obsolete in principle 
 and cumbersome to operate. In addition, these records do not provide 
 case histories on various boiler and elevator inspections which would 
 permit of an easy comparison of the successive inspectors ' reports from 
 year to year. 
 
 The record of boiler inspection consists of the following entries : 
 
 Date 
 
 Name 
 
 Location 
 
 Number, diameter, length 
 
 Number of tubes 
 
 Diameter of valves 
 
 Strength 
 
 Estimated 
 
 Stamped 
 Pressure allowed 
 Class 
 Age 
 Fee 
 
 When paid 
 Certificate expires 
 Condition of boiler 
 Remarks 
 Name of owner. 
 
 This complete record is filled out over and over again as successive 
 inspections are made. The duplication in work is obvious. Moreover, 
 the following of this practice prevents the assembling in one place of 
 the complete history of one particular boiler. In order to obtain a 
 record of inspections on one boiler or plant it is necessary to recapitu- 
 late many different entries in this book. It is also true that three 
 quarters of the information currently rewritten is general historical 
 data which does not vary from year to year. In other words, much of 
 the rewritten information on inspections is a record of installation 
 rather than a record of operation 
 
DEPARTMENT OF PROPERTY 373 
 
 . The installation of loose-leaf historical records, either on cards or 
 in a loose-leaf ledger, would satisfy every requirement on the original 
 historical record and the installation of standard inspection field re- 
 ports (described m detail in the accompanying report on the depart- 
 ment ot improvements) together with a proper filing system would 
 complete the system. 
 
 The same criticisms apply to the method of recording and hand- 
 ling elevator inspections. There is unnecessary duplication of work 
 and the records are of but little administrative value on account of the 
 lack of recapitulations. 
 
 Program 
 
 Although the division prepares a program for inspection work in 
 which the various boilers to be inspected are grouped according to 
 routes and inspection periods throughout the year, no notation of the 
 progress of the inspection is entered on the program. If a loose-leaf 
 inspection system were inaugurated, there would be no need for the 
 preparation of a detailed typewritten program of inspections to be 
 made, for the file of the blank inspection reports would automatically 
 route and time-space the inspections needed. 
 
 Boiler Inspection Procedure Criticized 
 
 According to the present practice, when a reinspection of a boiler 
 or boiler plant is made the inspector is provided with a complete de- 
 tailed record of previous inspections.^ This practice violates one of the 
 fundamental principles of inspection control, i. e., that a reinspection 
 be made on the individual merits of the case without assistance of prev- 
 ious inspection reports. It too often happens that, if inspectors are 
 provided with reports on previous inspections, reports of reinspections 
 will be made out without viewing the boiler or plant in question, or, 
 if actual reinspection be made, the opinions of the inspector are in- 
 fluenced largely by the report previously sent in. 
 
 If the boiler inspectors are properly trained, they are fully capable 
 of making a boiler inspection without having the reports of previous 
 inspections available for reference ; if they are not competent to carry 
 on inspection along these lines, they should not be retained on the 
 force. 
 
 Revision of Charges Suggested 
 
 The charges made for inspection and boiler work are as follows : 
 
 Installation permit , $ 1-00 1 
 
 Inspection of steel boiler. 5.00 
 
 Inspection of cast iron boiler 3.00 
 
 Sunday inspection — 1st boiler 10.00 
 
 2nd " 6.00 
 
 In collecting these fees it is the practice to send out the bills prior 
 to the date when the inspection is to be made, but many of the boiler 
 owners do not pay the inspection charges until later m the year. This 
 practice is not open to serious criticism, although the city s financial 
 or legal officers should be charged with the collection of these bills. 
 
374 DENVER 
 
 Under the present procedure the chief of this division acts as a col- 
 lector as well as an inspector. 
 
 Considering the fact that it is possible to obtain these charges by 
 billing boiler owners, it is suggested that charges for inspection be 
 based on an arbitrary charge for work done in inspecting boilers. The 
 introduction of proper forms of inspectors' reports and time sheets 
 would make possible a simple distribution of the inspectors' time and 
 expense against the various jobs and would distribute more equitably 
 the cost of such work. 
 
 Elevator Operation 
 
 With the present highly developed systems of elevators and speed 
 appliances the main danger is in the operation of the elevator rather 
 than in defective construction or design. With this in view, the 
 attempt should be made to emphasize the regulation of elevator oper- 
 ation. This work could be materially assisted by the establishment of 
 proper rules and regulations for the operation of elevators and the 
 licensing of elevator operators. 
 
 Inefficient elevator operation, due to the poor training of elevator 
 men, or carelessness, causes a great majority of elevator accidents. The 
 licensing of elevator operators could be required through ordinance, 
 and it is suggested that the head of the proposed centralized bureau of 
 building inspection together with the commissioners of safety and 
 property constitute an examining board for licensing elevator oper- 
 ators. As in the case of moving picture operators, the license should be 
 so descriptive that a transfer of the license card would be impossible, 
 and to this end it is suggested that a picture of the licensee be placed 
 on this card. 
 
 Operating Rules 
 
 It is further suggested that strict rules and regulations to govern 
 the operation of passenger and freight elevators be established by ordi- 
 nance. Such a code should specify the detail of elevator operation and 
 establish penalties for violations thereof. As an example of the kind 
 of regulations to be included, the following might be cited : that it is 
 unlawful to start a passenger elevator before the gate has been closed ■ 
 it is unlawful to leave open a gate leading into an elevator shaft- it 
 is unlawful for the operator of a passenger elevator to sit down while 
 on duty. 
 
DEPARTMENT OP PROPERTY 375 
 
 p ar t V — The Public Utilities Commission 
 
DEPARTMENT OP PROPERTY 377 
 
 PART V— THE PUBLIC UTILITIES COMMISSION 
 
 ORGANIZATION 
 
 By virtue of section 264 A of the old charter, a public utilities 
 commission, consisting of three members, was created. This commis- 
 sion was to have (1) complete charge and control of supplying the city 
 and county of Denver with water (2) to have and exercise all powers 
 given to the board of public works in chapter 9 (now 16) relative to 
 public utilities. 
 
 The Powers of the Commission 
 
 The original charter provision which established the public util- 
 ities commission gave to the commission very broad and comprehensive 
 powers, every constitutional and charter right in the "matter of con- 
 structing, purchasing, condemning and purchasing, acquiring, leasing, 
 adding to, maintaining, conducting and operating a water plant or 
 system for all purposes and everything pertaining or deemed necessary 
 or incidental thereto." It would be difficult in one general grant of 
 power to give to any commission more arbitrary rights than have been 
 given to this commission. 
 
 These conditions are undoubtedly more or less familiar to prac- 
 tically every citizen in Denver. It is not uncommon to find that many 
 cities have delegated to commissions or boards broad and arbitrary 
 powers to build or operate the large public utilities. The inherent con- 
 servatism of any body Avhere administration must be controlled 
 through a majority vote tends to prevent the abuse of such powers. 
 As in the case of the public utilities commission of Denver these del- 
 egated powers often include certain legislative rights which by the 
 vote of the people have been taken away from the local legislative 
 body. Thus, many of the duties which commonly are delegated to the 
 council are in Denver within the jurisdiction of the public utilities 
 commission. These include such acts as the establishment of water 
 rates, the procuring of water rights, reservoirs and watersheds by lease 
 or purchase and the voting of subsidiary loans within a general author- 
 ization. 
 
 A One-Man "Commission" 
 
 What is of particular importance is the fact that the original pub- 
 lic utilities commission has already been depleted by the loss of one 
 member and will in a short time be depleted by the dropping of a 
 second member. The danger of this situation must be obvious. the 
 delegation of such broad rights and duties to a commission of three 
 unquestionably is a reasonably safe practice. The delegation of such 
 powers and duties to a commission of two would be unwise upon sev- 
 eral grounds of which lack of sufficient independent judgment, ack of 
 a majority without unanimity of opinion and others are typical. But 
 theTentual delegation to one man of such sweeping nghts and ^prrv- 
 ileges to establish, maintain and operate a water plant and to control 
 
378 
 
 DENVER 
 
 every attending and incidental operation is dangerous. It is of interest 
 in this connection to note that when the term of the last elected com- 
 missioner expires, June 1, 1918, the duties of the board automatically 
 fall to the commissioner of property. 
 
 On February 14, 1913, the following section was added to the 
 charter : < ' (Section 264 B) . Each member of the public utilities com- 
 mission provided for in section 264 A shall continue in office until his 
 term expires, or a vacancy for any cause arises, and as each goes out 
 of office the remaining members, or member, shall constitute said com- 
 mission until all of said commission have gone out of office and there- 
 after the powers and duties of such commission shall be performed Dy 
 the commissioner of public property." 
 
 No matter what procedure is necessary for changing the present 
 organization of the public utilities commission a change is needed. 
 This matter should be placed before the people at the next election. 
 The continuation of the present form of commission is not only dan- 
 gerous from the standpoint of centralization of power in the hands of 
 one or two men, but the organization prescribed by the recent charter 
 amendment is not calculated to provide the best administrative control 
 of such an important problem as the building of water works. 
 
 Before the work is even started one of the commissioners auto- 
 matically is retired from office ; two years later, about the time when 
 the work may be well under way, the second commissioner will be 
 dropped and the entire project left to the third and last commissioner. 
 At the time when the services of all commissioners will be most needed 
 and when the individual and independent judgment of several dif- 
 ferent men of equal authority would be most valuable, there will be 
 but one commissioner in office. 
 
 The real advantages of commission control of any large under- 
 taking consist of (1) continuity of action and (2) coordination of in- 
 dependent judgment in the determination of large administrative and 
 engineering problems. This cannot be obtained by the present plan. 
 This condition will be a serious impediment in the way of ultimate 
 efficiency and economy in the development of the water works. 
 
 The Administrative Problem 
 
 The assumption by the city of Denver of a municipally owned 
 water plant, no matter whether the existing plant of the Denver Union 
 Water Company be purchased or an entirely new plant constructed, 
 involves many serious questions of administration which should not be 
 neglected through the over-emphasis of engineering questions. Con- 
 struction is largely a question of engineering design and contracting 
 work, but the maintenance and operation of a water works are admini- 
 strative problems in which technical engineering must be subordinated 
 to the larger question of efficient administration. This fundamental 
 difference between the construction, and the maintenance and oper- 
 ation of a water plant must be borne in mind by the public utilities 
 commission if best results are to be obtained. 
 
DEPARTMENT OF PROPERTY 379 
 
 In entering into municipal ownership of the water utility at this 
 time Denver has a remarkable opportunity. The mistakes found in the 
 existing organizations can be avoided — and it is much easier to avoid 
 mistakes in formulating a new organization than to correct them after 
 they have been permitted to grow. Proper organization, inspection 
 control, revenue collecting procedure, and general accounting records 
 will prove their worth many times over. "While there is no general 
 panacea which can be applied to every water department in order to 
 obtain efficient administration, there are many general principles 
 which should not be overlooked in laying out the procedure for Den- 
 ver's municipal water plant. It is an opportunity which few cities 
 have, and, if lost, will mean the waste of many thousands of dollars. 
 
DEPARTMENT OF PROPERTY 381 
 
 Part VI— The Office of the Sealer of Weights and Measures 
 
DEPARTMENT OP PROPERTY 383 
 
 PAKT VI— THE OFPIGE OP THE 'SEALER OF WEIGHTS AND 
 
 MEASURES 
 
 ORGANIZATION 
 
 The enforcement of the laws and ordinances governing weights 
 and measures is in charge of a sealer of weights and measures who is 
 appointed by and responsible to the commissioner of property. He 
 serves at the will of the commissioner, and receives a salary of $1 200 
 per year. * ' 
 
 POWERS AND' DUTIES 
 
 The sealer is handicapped in his effort to regulate and control the 
 weighing and measuring devices because of the absence of an adequate 
 ordinance upon the subject. The present ordinance merely provides 
 tor the creation of the office of sealer and the sealing by him of all 
 scales, weights and measures at least twice each year. 
 
 Aside from the fact that because of the large number of stores in 
 the city using weighing and measuring devices, and because he has no 
 assistant, it would be physically impossible for the sealer to comply 
 with this requirement. Such a practice is not only unnecessary but it 
 is also prejudicial to a competent campaign against the fraudulent use 
 of scales. 
 
 The ordinance does not provide the sealer with power to make 
 rules and regulations governing the manufacture, sale and handling of 
 scales, weights and measures. It does not provide a penalty for the 
 removal of a condemnation tag, nor does it compel the owner of a small 
 scale or measuring device to bring it to the office of the sealer to be 
 tested and sealed. Thus it is possible for a merchant, without fear of 
 the imposition of a penalty, to have in his possession and to use weigh- 
 ing and measuring devices which have not been tested and sealed. 
 
 Cheating Not Prevented by Routine Inspections 
 
 It is the experience of sealers throughout the United States that 
 routine inspection and sealing of scales does not afford protection 
 against the dishonest use of weighing and measuring devices, and that 
 the greater part of the cheating practiced by dishonest merchants is 
 done through a manipulation of the scales. Therefore, to test and seal 
 a scale once a day would not prevent the dishonest merchant from 
 defrauding his customers. Because of this requirement the sealer is 
 forced to spend his entire time in making routine tests of weighing and 
 measuring devices. He cannot conduct investigations which would 
 tend to detect dishonest merchants in the fraudulent use of their scales. 
 
 It is sufficient only for purposes of taking a census of the weigh- 
 ing and measuring devices that they be inspected once a year, thus 
 leaving the sealer free to make sporadic inspections and investigations. 
 It is therefore recommended that the ordinance be amended so as to 
 require an annual inspection. 
 
384 DENVER 
 
 PROCEDURE 
 
 Sealer Conducts No Investigations 
 
 Each day the sealer begins his inspection tour at about 10 o'clock. 
 He has divided the city into routes and selects one of these routes for 
 his day's work, making on an average of twelve inspections a day. He 
 carries with him 15 pounds of test weights. These weights graduate 
 from four ounces to two pounds. Thus he is unable to make any ade- 
 quate test of weights, liquid or dry measures, or ordinary platform 
 scales. Such inspection is inefficient and serves neither to detect dis- 
 honest merchants in the improper use of the scales, nor to determine 
 the accuracy of a scale. Ordinary spring scales must be tested to their 
 full capacity. 
 
 The sealer does not reweigh packages being offered for sale,. nor 
 does he make purchases to discover whether merchants give short 
 weights. He confines his activities to the formal testing of scales with- 
 out any investigation. This is largely because he is constantly striving 
 to comply with the ordinance requiring him to inspect all weighing 
 and measuring devices twice a year. 
 
 The value of sporadic inspections as compared with routine inspec- 
 tions can be best understood when it is known that the progress of the 
 sealer along any street soon comes to the knowledge of the merchants 
 who may prepare for an inspection, and, since the use of open adjust- 
 ment screws on scales is permitted, a dishonest merchant can adjust an 
 inaccurate scale upon a moment's notice by the mere turning of a 
 screw. By sporadic inspection is meant inspection which carries with 
 it investigation and follow-up work, and it is recommended that the 
 sealer devote considerable time to sporadic inspections and investiga- 
 tions. 
 
 Woman Inspector Needed 
 
 The sealer soon becomes known to the merchant, and consequently 
 his services as a detective are not as valuable as they might be. For 
 making purchases in order to detect " short-weighters " the services of 
 a woman are invaluable. The presence of a man in a grocery store or a 
 butcher-shop frequently excites suspicion, and thus reduces the effi- 
 ciency of a test, but a woman can enter a store and make purchases 
 without arousing suspicion. 
 
 While it is not suggested that the department employ a woman 
 inspector continuously, it is recommended that the sealer be author- 
 ized to retain the services of a woman for this work occasionally. It 
 is not necessary that the woman spend money to make purchases, since 
 it is only necessary to establish intent to defraud by an offer to sell 
 less than the quantity represented. But in aggravated cases, where 
 the sealer wants to prepare his tests in such a manner as to make con- 
 viction absolutely certain, action should not be taken upon the first 
 short-weight, but the woman should be permitted to make purchases 
 from day to day, thus providing cumulative evidence. 
 
DEPARTMENT OP PROPERTY 385 
 
 Assistant Sealer Should Be Appointed 
 
 A field study of the conditions in the city with regard to the 
 scales, weights and measures in use was made in company with the 
 sealer. 
 
 Thirty-one stores were visited. These stores were selected at 
 random in various parts of the city. Ninety-six scales were examined 
 and tested, of which 50 were found accurate, 36 inaccurate and 10 de- 
 fective. Of the 36 inaccurate scales, eight were against the owner 
 while 28 were against the purchaser. 
 
 In most every case the inaccuracy showed upon the face of the 
 scale so that a test was unnecessary. Many scales of a type long since 
 condemned in other cities, were observed. 
 
 These conditions point to the need for a closer supervision of the 
 scales in use, which supervision cannot be properly exercised in a city 
 of the size of Denver by one inspector. Under the existing conditions, 
 when the sealer is in the field inspecting, which is practically all day, 
 his office must remain closed, although complaints or telephone com- 
 munications are received in the office of the commissioner of property. 
 It is therefore desirable that the sealer be provided with an assistant, 
 who should be a civil service employee with a competent knowledge of 
 the mechanics of scale making. 
 
 No Saturday Night Inspection 
 
 Saturday night is the busy night at the shops and because of the 
 increased amount of business it is regarded by dishonest merchants as 
 the "harvest time," yet the sealer conducts no Saturday night inspec- 
 tions. In fact, he conducts no inspections at all on Saturdays. 
 
 The sealer and his assistant should make sporadic inspections of 
 the market places and shops on Saturday afternoons and evenings. 
 
3g g DENVER 
 
 QUARTERS AND EQUIPMENT 
 
 Equipment. Inadequate 
 
 The sealer's equipment is inadequate and his testing instruments 
 of an 'unsatisfactory type. He is not prepared to make tests of large 
 liquid measures or dry measures. His personal kit is not of a standard 
 type and it is incomplete. 
 
 If the sealer is to be efficient he must be prepared to test all types 
 of scales weights, and measures. On his routine inspections he should 
 carry sufficient equipment to enable him to test liquid and dry meas- 
 ures and platform scales, and he should have proper instruments tor 
 marking, weighing and measuring devices tested by him. It is there- 
 fore recommended that the sealer be provided with proper equipment. 
 
 Sealer Should be Provided with an Automobile 
 
 The sealer is unable to carry with him on inspection trips_ ample 
 test weights and other equipment, or to make inspections during in- 
 clement weather. 
 
 He should be provided with a small automobile runabout of the 
 wagon type, capable of carrying not less than 1,000 pounds of test 
 weights. He would then be able to make inspections the year round, 
 except' in severe snow storms, and he would be prepared to inspect and 
 test all types of scales, Aveights and measures found on his tour. He 
 should be required to learn how to operate the automobile, so as to 
 avoid the necessity of employing a chauffeur. 
 
 Need for New Quarters 
 
 No scale, weight, or measure should be permitted to be used unless 
 it has been sealed and approved by the sealer. To carry this rule into 
 effect would mean that the activities of the sealer would be largely in- 
 creased and the need for larger office room would become imperative. 
 The sealer now shares a small office with the city forester in an ob- 
 scure corner of the second floor of the City Hall. He has no mechan- 
 ical division such as is necessary for a proper conduct of his office, and 
 its location is such as to make it difficult for citizens to find. The con- 
 ditions found in the city shops indicate the need for a vigorous cam- 
 paign against short-weighting. To carry on such a campaign it is 
 necessary that the sealer's office be located upon one of the main 
 thoroughfares, and that housewives may visit the office to have their 
 purchases re-weighed and that merchants may bring their small scales 
 frequently for tests. The office should be- equipped with a mechanical 
 division in charge of an assistant sealer and prepared to make tests of 
 all types of weighing and measuring devices. For this purpose it 
 should have running water with proper attachments to make it pos- 
 sible to test large liquid measures such as oil cans, milk cans, etc. 
 
 The office should be properly marked on the outside indicating 
 its function, and should be opened to the public all day and until 10 
 o 'clock on Saturday night. 
 
DEPARTMENT OV PROPERTY 387 
 
 CONSPICUOUS DEFECTS IN PRESENT PRACTICE 
 
 Proper Tolerances Should be Established 
 
 weia-hW P ^ ent S6aler iS T th ° Ut any ex P eri ^ce in the inspection of 
 SS,^?"? 8 devices Although the national bureau of 
 tnT ^ \ Washington has established a standard set of tolerances 
 ^o.ntT 3 ° n ™ lghm ? and mea ^ring devices, which tolerances are 
 
 ?n 5£t l T St 5-^ CeS m v the United States sub J ect t0 modification 
 to meet local conditions, the sealer allows tolerances in accordance 
 with his own judgment. 
 
 «„t, Spi "^ g S?a l? S f re SubjeCt t0 slight chan S e due t0 climatic condi- 
 tions, and weights become light due to handling, chipping, and rubbing 
 against rough surfaces, yet the change effected by these conditions is 
 extremely slight, and only a small tolerance should be recognized. It 
 is the practice of the sealer, however, to allow a tolerance of a full 
 ounce on spring scales of a small capacity. He has not set any definite 
 tolerance for weights or measures. Many of the inaccuracies of the 
 scales found m use, varying as they did from three-fourths of an ounce 
 to one-±ourth of a pound, the average being an ounce and a half, were 
 regarded by the s.ealer as conditions which should be allowed. "While 
 a tolerance may be allowed, measured in fractions of ounces upon a 
 scale which would only show an inaccuracy upon test, no allowance 
 should ever be made as a tolerance or otherwise where the inaccuracy 
 shows upon observation without a test, for a merchant who is desirous 
 of keeping his scale accurate can correct an obvious inaccuracy by 
 means of his adjustment screw. It is recommend that the sealer create 
 a schedule of tolerances. In preparing such a schedule he should con- 
 sult the schedule of tolerances promulgated by the national bureau of 
 standards and the tolerance commission of the State of New York. 
 With these it will be comparatively easy for him to work out a schedule 
 which will meet local conditions. 
 
 Few Cases Prosecuted in the Courts. 
 
 When the sealer condemns an inaccurate scale, he places a small 
 combination paster one and one-half by one inch on the weighing in- 
 strument. This condemnation paster is similar to the label marked 
 "Sealed," so the benefit of the condemnation label is lost. When a 
 scale is condemned, the sealer instructs the owner to have it repaired 
 within ten days in accordance with the ordinance and notifies the local 
 agent or the manufacturer that he has discovered one of his scales in 
 use which is inaccurate, but he does not follow up the case to determine 
 whether the scale is repaired. Consequently it is not the practice to 
 prosecute in the courts owners of scales found to be inaccurate. The 
 only prosecutions thus far have been in a few cases where "short" 
 deliveries in coal had been discovered. That no prosecutions have been 
 brought in other cases is due to the inadequacy of the present ordi- 
 nance, to the failure of the sealer to perform detective functions, and 
 to the fact that the sealer allows excessive tolerances. It is the ex- 
 perience of sealers in other cities that the only method of preventing 
 the use of inaccurate scales and the manipulation of accurate scales is 
 
388 DENVER 
 
 through vigorous prosecutions. The owner of a scale, weight, or meas- 
 ure must be held strictly to account for the condition of his apparatus, 
 since inaccuracies due to carelessness result in a loss to the purchasing 
 public just as much as inaccuracies due to tampering. A few success- 
 ful prosecutions accompanied by proper publicity will do more to 
 prevent cheating than any number of routine inspections. 
 
 Campaign of Education Necessary 
 
 The department has failed to conduct a campaign of education to 
 acquaint the housewives and the purchasing public with the common 
 practices of dishonest merchants. Such a campaign should be begun 
 at once with a view to making every housewife in the city a volunteer 
 inspector. Funds should be provided for the printing of instructions 
 to housewives as to the proper method of reading "scales, cautioning 
 them against scale manipulation, and inviting complaints. 
 
 During the course of the field study it was learned that the house- 
 wives make purchases upon what is known as the "money's worth" 
 system, a practice which prevents the proper enforcement of the law. 
 Sugar is commonly sold in 50-cent packages, without regard to weight. 
 Such packages were weighed in four different stores,- and each package 
 was of a different weight. Housewives should be instructed to buy 
 only in known quantities and by weight and measure. They should 
 be urged to keep in their homes a standard scale and measures, and to 
 test their purchases. Circulars or pamphlets should be distributed 
 from time to time by the members of the police force. 
 
 New Ordinance Recommended 
 
 The adoption of an ordinance authorizing the sealer to make pos- 
 sible a proper supervision of weights and measures is recommended. 
 This ordinance should provide that no scale, weight, or measure shall 
 be used in the city without having first been inspected and approved 
 by the sealer. It should further provide that no scale, weight or meas- 
 ure should be sold in the city unless it shall have been approved as to 
 type by the sealer. The need for this provision was emphasized by the 
 number of scales of a type long since condemned in other cities. 
 
 The ordinance should empower the sealer to promulgate rules and 
 regulations governing the manufacture of scales. The need for this 
 provision was shown by the number of scales with adjustment screws 
 and spring scales with hooks. The use of spring scales with hooks has 
 been forbidden m many cities, as the hooks may be weighted down 
 with tags, billheads, etc. 
 
 The sealer should be also empowered to confiscate and destroy all 
 scales, weights, and measures found in use which are so inaccurate as 
 to indicate intent to defraud. The ordinance should specify the degree 
 of inaccuracy which will warrant confiscation and destruction in the 
 case of each of the various types and capacities of scales. For example 
 the sealer should be permitted to confiscate and destroy any spring 
 balance scale found in use which is four ounces or more "fast " or any 
 
DEPARTMENT OP PROPERTY 389 
 
 spring scale of the type used on ice-wagons when found to be ten 
 pounds or more against the customer. 
 
 Under the provision permitting the sealer to promulgate rules and 
 regulations and providing a penalty for the violation of these rules, it 
 would be possible for the sealer to prevent the placing of scales in 
 stores in such a position as to make impossible the reading of the 
 weighing by the customer. Dishonest merchants and thoughtless 
 merchants frequently place a scale on the rear counter in such a posi- 
 tion that the customer cannot read the face of the scale. 
 
 To prevent the sale of food commodities by "money's worth" and 
 to prevent the sale of package goods without regard for specific weight 
 or measure, the ordinance should provide that no food commodities 
 shall be sold except by weight and measure, or numerical count; and 
 that all commodities put tip in packages should be sold upon a net 
 weight basis, with the weight plainly indicated on the outside of the 
 package. The need for this provision was made clear when it was 
 found in the course of the field study that in almost every place visited 
 paper bags, wrapping paper, cartons, etc., were being sold at the price 
 per pound of the commodity which they contained. In the sale of 
 sugar the grocers in almost every instance include in the weight the 
 paper bag and cord. A great many butter crates were reweighed and 
 in almost every instance the weight of the wax paper was included in 
 the 16 ounces. 
 
 The ordinance should provide that the owners of scales, except 
 large platform scales, which have been condemned, should be required 
 to bring them to the office of the sealer when repaired, thus relieving 
 him of the necessity of traveling about the city making reinspections. 
 It should provide a penalty of $25 for the removal of a condemnation 
 tag by any person other than the sealer or his assistant. 
 
 In order to assist the sealer in keeping full control over all scales, 
 weights, and measures, the ordinance should require that upon the 
 application blank for all kinds of licenses there should appear "State 
 whether you contemplate using scales, weights, or measures in the 
 business to be licensed, and, if so, how many and of what capacity and 
 type." 
 
 If a person should state upon his application blank that he does 
 intend to use weighing and measuring devices he should be required to 
 obtain a certificate of approval from the sealer showing that his weigh- 
 ing and measuring instruments have been properly tested and sealed. 
 
 Official city scales should receive frequent tests. Such tests are 
 now impracticable because it is necessary for the sealer to haul a ton 
 of test weights in order to make them. The ordinance, however, 
 should require that the owners of official city scales, shall provide a 
 standard set of test weights to the amount of 1,000 pounds. ^ These 
 weights should be kept in a cabinet immediately adjoining the sea e 
 and under lock and key. Thus the owner of the scale would be able 
 to maJe frequent tests^as would also the sealer without the necessity 
 of hauling his own test weights. 
 
390 DENVER 
 
 Sealer's Standards Should Be Compared With The State Standards 
 
 In order that the sealer may be able to give confident testimony in 
 court as to scales which are found to be inaccurate upon test, he should 
 be able to testify as to the accuracy of his own standards. This he can- 
 not do at present, because he has not caused his own standards to be 
 officially tested and compared with the state standards. The weights 
 of the sealer are as subject to change as are those of the merchants; 
 therefore it is incumbent upon the sealer to see that his are as accurate 
 as it is possible to keep them. Hence, they should be subjected to fre- 
 quent test and at least an annual comparison with the state standards. 
 
 RECORDS AND REPORTS 
 
 Because the sealer does not maintain any adequate system of 
 records and reports, an analysis of his work and the work of the 
 former sealer could not be made. A record of the name and address 
 of every place visited and the number of scales tested is kept upon the 
 stub of the inspection certificate. The certificate in use is of the oldest 
 type and was designed to serve as a receipt for fees collected in con- 
 nection with inspections. 
 
 The sealer makes a daily report to the commissioner of property 
 upon which he states in connection with each inspection, the number 
 of the certificate issued, the name and address of the owner of the 
 premises inspected, and the number of scales tested. 
 
 The stubs of the inspection certificates and this daily report con- 
 stitute all the records maintained by the sealer. 
 
 Hew Record and Reporting System Should Be Installed 
 
 It is recommended that provision be made for an improved method 
 of maintaining records and reporting on the work done. The follow- 
 ing records should be maintained .- 
 
 A card record of all merchants in the city using scales, weights 
 
 and measures 
 A register of complaints 
 A register of violations 
 A register of prosecutions 
 A record of inspections. 
 
 Card Record of Merchants 
 
 The present form of inspection certificate should be abandoned, 
 and a torm adopted which will provide for the establishment of a card 
 record of all the merchants in the city using weighing and measuring 
 devices, lhis can be done by providing a triplicate certificate form; 
 the first copy to be given to the owner of the scales, the second, which 
 
 lu° U } ,: e ? tlssue paper ' t0 remai n bound in the book, while the 
 
 third should be upon a card. Each morning the card should be re- 
 moved trom the book and filed according to street, cross indexed as 
 to name and kind of business. Thus when the sealer makes out the 
 
DEPARTMENT OF PROPERTY 391 
 
 inspection certificate in the field he will at the same time, by the use 
 of carbon sheets, make out the card for his record of merchants. The 
 headings upon the face of the inspection certificate should call for in- 
 formation which would show the kind of business and the type, size, 
 and number of scales, weights, and measures inspected. The various 
 types of scales, such as counter, spring, and patent balances, comput- 
 ing, platform, and beam scales, should be listed, as should also liquid, 
 dry, and linear measures. With each of the types of scales listed 
 should appear headings "Civil" and "Penal" violations. Upon the 
 bottom of the certificate should appear the word "Remarks." Under 
 this heading the sealer should report not only the fact that a violation 
 was discovered, but also the kind of violation, and the degree of in- 
 accuracy or the amount of shortage discovered in package goods. 
 Upon the back of the card there should be printed headings calling for 
 information concerning future inspections. There should also be upon 
 the certificate headings calling for information concerning the num- 
 ber of packages tested. 
 
 Register of Complaints 
 
 Each complaint reaching the sealer, whether by letter, telephone, 
 or personal interview, should be entered in a register of complaints, 
 which should have printed headings calling for the name and address 
 of the person making the complaint, a brief statement of facts con- 
 cerning the complaint, the name and address of the person or firm or 
 corporation complained of, the date investigated, and the result of the 
 investigation. Upon the receipt of a complaint, notation of the date 
 received, date investigated, and the result of the investigation should 
 be made upon the card record of the merchant. Bach month the record 
 of complaints should be recapitulated so as to show the number of com- 
 plaints received, classified as to subjects complained of, number in- 
 vestigated, number unfounded, number warned, number prosecuted, 
 and number of convictions resulting from prosecutions. 
 
 Register of Violations 
 
 In the register of violations should be kept a record of every viola- 
 tion discovered, whether it results in prosecution or not. This book 
 should have printed headings calling for name and address and kind of 
 business of the dealer, the character of the violation, the date discov- 
 ered, the action taken and the final disposition of the case. Bach 
 month the entries should be recapitulated to show the number of viola- 
 tions found, the number of merchants warned, and number of prose- 
 cutions, with results. 
 
 Record of Inspections 
 
 The record of inspections book should contain a record of every 
 inspection and test whether made in the field or at the office. It 
 should contain printed headings calling for the number of the inspec- 
 tion the name and address of the place inspected, the kind of business, 
 the number of scales, weights, and measures tested, classified as to 
 types to correspond with the headings on the certificate of inspection, 
 
392 DENVER 
 
 the number approved, the number found inaccurate, the degree of 
 inaccuracy, the number condemned, date of reinspection, the number 
 confiscated and destroyed, the number of packages tested, the number 
 found accurate, the number found short, the amount of shortage, viola- 
 tions filed, the number prosecuted and the result of prosecution. Each 
 month the entries in this book should be recapitulated. 
 
 Register of Types Submitted 
 
 In accordance with the suggestion that the ordinance require all 
 manufacturers of scales, weights, and measures to submit the type for 
 the approval of the sealer, it is further suggested that a register be 
 kept of all weighing and measuring devices submitted. This register 
 should have printed headings calling for the name and address of the 
 manufacturer, date submitted, description of the device, whether 
 approved or disapproved, and the date of such action. Reasons for 
 disapproval should be clearly stated. When a type is approved the 
 serial number placed upon the type should be entered. 
 
 Sealer's Daily Report 
 
 The daily report of the sealer to the commissioner of property 
 should show the total number of places visited, the number of weigh- 
 ing and measuring devices inspected, classified as to type, the number 
 of violations found, the total number of prosecutions, the number of 
 scales condemned, confiscated and destroyed, the number of hours in 
 the field, the average time required for inspection, the number of hours 
 in the office, the number of packages tested, the number found correct, 
 the number found incorrect, the total number of scales submitted for 
 approval, and the number disapproved. It is not necessary that the 
 name and address of the places inspected should appear on this report. 
 
 Monthly Report 
 
 The sealer should submit a monthly report to the commissioner 
 which would be a recapitulation of the daily reports. 
 
 Annual Report 
 
 In order to indicate the efficiency of the work and to be of real 
 statistical value, the annual report of the sealer should contain the fol- 
 lowing tables : 
 
 1— Table of places inspected by character of business including 
 the following headings : 
 
 Character of business 
 Total number of inspections 
 Number of violations found 
 
 Number of inspections where no violations are discovered 
 JNumb'er of prosecutions 
 5 Penalties imposed 
 Arrests made 
 Convictions in criminal cases 
 
DEPARTMENT OF PROPERTY 393 
 
 Cases where more than one violation was discovered in a 
 year. 
 
 2 — Table showing inspections of peddlers and hucksters as dif- 
 ferentiated from inspection of stores and regular mercantile 
 establishments. 
 
 Inspection of push-carts and hucksters in the field are made so 
 quickly and with such little difficulty that a proper impression of the 
 efficiency of the sealer is not given if they are included in the general 
 table of inspection. A combined table does not enable the reader to 
 determine whether fraud or carelessness is greater among peddlers 
 than it is among storekeepers. 
 
 3 — Table showing tests made of institutional and city department 
 scales. 
 
 4 — A table showing apparatus condemned, confiscated, and de- 
 stroyed. 
 
 5 — A table showing number and classification of new scales, 
 weights, and measures sealed during the year. 
 
 This would show the new apparatus coming into use, bringing 
 added responsibility for the sealer. 
 
 6 — A comparative table by years, showing the number of routine 
 inspections made as against special inspections. 
 
 By roiitine inspection is meant the annual and semi-annual inspec- 
 tion required by ordinance as distinguished from special inspections 
 required because of the installation of new apparatus, complaints of 
 citizens, etc. 
 
 7 — A table of purchases made for the purpose of detecting man- 
 ipulation of scales and the results of such tests. 
 
 8 — A table of complaints received. 
 
 9 — A table showing the household weighing equipment tested 
 upon request. 
 
 The purpose of this table should be to show the number of families 
 in the city equipped with weighing and measuring devices for their 
 own protection. 
 
 10 Tables showing, under classifications as to business and appa- 
 ratus, violations where actual fraud was practiced classified 
 as follows: 
 
 Fraudulent instruments 
 
 Tampering with the scales or measures 
 
 Operators of scales detected manipulating. 
 
 The report should contain a brief history of frauds discovered 
 during the year so as to serve as a warning to housewives in making 
 purchases. 
 
DEPARTMENT OP IMPROVEMENTS 395 
 
 REPORT ON A SURVEY OF THE 
 DEPARTMENT OF 
 IMPROVEMENTS 
 
DEPARTMENT OP IMPROVEMENTS 397 
 
 CONTENTS 
 
 Page 
 
 General Statement 399 
 
 Summary of Recommendations ' 401 
 
 Part I — The Office of the Commissioner 411 
 
 Organization 411 
 
 Procedure 412 
 
 Inspection 421 
 
 Annual Report : 424 
 
 General Accounting 425 
 
 Cost and Expense Records 427 
 
 Part II — The Bureau of Engineering and Surveying 432 
 
 Organization 432 
 
 Office Methods 433 
 
 Lighting Inspection 436 
 
 Part III— The Bureau of Highways 439 
 
 Organization 439 
 
 Highway Maintenance Division 440 
 
 Street Cleaning Division ' 444 
 
 General Statement Regarding Recommendations 447 
 
 Street Sprinkling Division 453 
 
 Sidewalk Division 456 
 
 Sewer Flushing Division 458 
 
 Permit Division 460 
 
 Asphalt Plant 466 
 
 Block Paving 469 
 
 Street Railway Area Pavements 471 
 
 Highway Inspection Data 476 
 
 Penetration Macadam Contracts 485 
 
DEPARTMENT OF IMPROVEMENTS 399 
 
 REPORT ON A SURVEY OF THE DEPARTMENT OP 
 IMPROVEMENTS 
 
 GENERAL STATEMENT 
 
 The survey upon which this report is based included an investiga- 
 tion of the activities of the various branches of the department of im- 
 provements, except the art commission and the natural history museum. 
 
 The department of improvements is not a department, but an ag- 
 gregation of organizations with little centralized control. As a first 
 step toward efficiency the department should be reorganized. 
 
 Organization Nomenclature 
 
 It is suggested that in connection with the reorganization of the 
 department an attempt be made to correct the ambiguous and contra- 
 dictory nomenclature now in use. There is a bureau of highways, a 
 bureau of street sprinkling, a bureau of engineering and surveying, 
 etc., all of which are styled "department," thus confusing their rela- 
 tionship to the department of improvements. The same confusion ex- 
 ists in the titles of certain of the supervising officers of the various 
 departments within the department of improvements. The title "com- 
 missioner" should be limited strictly to the chief administrative officer 
 of the charter departments. The use of the title of "commissioner of 
 highways" to designate the head of that particular branch of the de- 
 partment of improvements is confusing to any one not familiar with 
 the actual situation. In the chart of proposed organization, accom- 
 panying this report, the titles of the various sub-organization units 
 within the department of improvements have been selected according 
 to the common classification of city departments, i. e., department, 
 bureau and division. 
 
 Civil Service 
 
 The question of civil service is one which affects all departments 
 of the city and county government, but there is no department where 
 properly organized and administered civil service control would be of 
 more benefit than in the department of improvements. The civil serv- 
 ice control of the department of improvements was in a more, or less 
 transitional stage at the time this investigation was in progress. Most 
 of the subordinate employees were either taking examinations or were 
 about to be placed under civil service. The principle had not been m 
 operation sufficient time to make possible a statement as to its success 
 or failure. 
 
 It was of importance, therefore, to find that the civil service regu- 
 lations were excluding from the classified list various bureau and divi- 
 sion chiefs. This is undoubtedly a mistake. If the civil service control 
 is properly exercised, there is no place where properly qualified tech- 
 nical service or continuity in office would be of more value to the city 
 than in the principal positions in the various branches of the depart- 
 
400 DENVER 
 
 ment of improvements. It is admitted that the examination for a chief 
 of the bureau of highways is more difficult to draw up than for an in- 
 spector in the same service. It is also admitted that written exam- 
 inations will not satisfy a condition where executive ability is one of 
 the main requirements. But examinations for this kind of position 
 have been held successfully in a number of cities with measurable in- 
 crease in the efficiency of the service. There is no reason why the same 
 result cannot be obtained in D'enver, even if the examination of appli- 
 cants is limited to the interviewing of such applicants by a dozen or 
 fifteen representative and successful business men of the city and a 
 rating made upon such examination. 
 
 Identification of Field Employees 
 
 It is suggested that every salaried employee of the department of 
 improvements who is not required to wear a uniform be provided with 
 a badge. This is of particular importance to identify city employees 
 while on various kinds of work. It is of great assistance to the citizen, 
 and has a tendency to increase the efficiency of city employees while 
 on field work. 
 
 At the present time it is the practice of the bureau of police to 
 issue police badges to various officers of the department of improve- 
 ments. In addition to the fact that the police powers of a city should 
 be carefully protected, there is no reason why the division chiefs or 
 other employees of the department of improvements should be pro- 
 vided with police authority. The important factor is identification, 
 and, if identification is made simple, any employee can call upon and 
 authorize an officer to carry out any police duty. It is suggested that 
 the present police badges be returned, and that the department of im- 
 provements design and purchase proper identification badges for all 
 salaried employees whose work carries them into the field and into 
 direct contact with citizens, contractors or other outside parties. 
 
DEPARTMENT OF IMPROVEMENTS 401 
 
 SUMMARY OF RECOMMENDATIONS 
 
 A summary of the recommendations follows: 
 Organization 
 
 1 — That the department of improvements be reorganized in order 
 to co-ordinate into a true departmental organization the 
 various subfunctional activities now under the jurisdiction 
 of that department. 
 
 2 — That the public works engineering of the park commission be 
 made a part of the department of improvements. 
 
 3 — That the board of public works be abolished. 
 
 4 — That the legislative duties of the board of public works be 
 assumed by the council. 
 
 5 — That the administrative duties of the board of public works 
 be assumed by the commissioner of improvements. 
 
 6 — That the city chemist be made a part of the organization of 
 the department of improvements. 
 
 7 — That the title ' ' commissioner ' ' be restricted to the designation 
 of the chief administrative officer of the department. 
 
 8 — That the title "department" be restricted to the designation 
 of the department of improvements. 
 
 9 — That the prime suborganization units within a department be 
 designated as "bureaus" and that the subsidiary organiza- 
 tion units be designated as "divisions." 
 
 10 — That a central inspection division be established. 
 
 Personnel 
 
 11 — That the heads of bureaus and divisions in the department of 
 improvements be placed under civil service regulations. 
 
 12 — That efficiency records of employees' services be maintained. 
 
 13 — That field employees of the department be provided with 
 badges indicative of their employment and duties for iden- 
 tification while on field duty. 
 
 14 That the wearing of police badges by division and bureau 
 
 chiefs be forbidden. 
 
 Board of Public Works 
 
 15— That an administrative code outlining procedure for the in- 
 itiation, authorization and carrying out of public works im- 
 provements be formulated by the council. 
 
402 DENVER 
 
 16 — That the legislative duties of the board of public works be 
 assumed by the council. 
 
 17 — That the department of improvements be given the right to 
 construct any pavement, with departmental labor, in case 
 such construction can be carried on more cheaply than by 
 
 contract. 
 
 18 — That the charter restriction providing for the construction q£ 
 local improvements by contract only be repealed. 
 
 19 — That the commissioner of improvements enter into direct com- 
 petition with private contractors in bidding on various im- 
 provements. 
 
 20— That a scientific definition of "paving" and "paving groups" 
 be included in the charter by amendment. 
 
 21 — That the council prepare administrative code provisions de- 
 fining in exact detail assessable and non-assessable improve- 
 ments, the procedure for initiating such improvements and 
 the method for apportioning the cost thereof. 
 
 22 — That macadamizing and "surfacing" be eliminated from the 
 permanent pavement classification. 
 
 23 — That the basis of petition for and remonstrance against im- 
 provements be made the same as the basis for apportioning 
 the cost thereof. 
 
 24 — That the type of pavement to be laid and the engineering de- 
 tail of construction be determined by the engineering staff 
 of the department of improvements, not by citizens. 
 
 25 — That the method of apportioning cost of parkway and other 
 local improvements be standardized in order to reduce the 
 work necessary for making such apportionments. 
 
 26— That the present form of minute book be abolished. 
 
 27 — That the longhand writing of public improvement minutes be 
 abolished. 
 
 28— That the advertising of proposed improvements be standard- 
 ized and that a special day be selected for the publication 
 of such advertising. 
 
 29— That notification of prospective improvements be posted along 
 the proposed right-of-way. 
 
 30— That the rights of the community in estopping contract im- 
 provements upon proof of administrative and operative in- 
 efficiency be clearly defined in every contract. 
 
 31— That payment to contractors on improvement contracts be 
 premised upon a certification by the inspector on the work 
 supported by the certificate of the engineer in charge and 
 m turn certified by the- commissioner of improvements 
 
DEPARTMENT OP IMPROVEMENTS 403 
 
 City Plan 
 
 32 — That steps be taken to develop a comprehensive city plan to 
 be enforced through administrative code provisions. 
 
 33— That the staggering of streets and the nonalignment of side- 
 walks, curb lines and parkways in new additions -be pro- 
 hibited. 
 
 Pavement Reconstruction 
 
 34 — That the charter be so amended as to permit of proper pave- 
 ment reconstruction. 
 
 35 — That pavement reconstruction be excluded from the local im- 
 provement class. 
 
 36 — That a program of pavement reconstruction be prepared. 
 
 37 — That records of the cost and expense of maintaining the streets 
 be assembled and maintained in such a form that informa- 
 tion will be available for determining scientifically when 
 reconstruction is more economical than repair. 
 
 Inspection 
 
 38 — That a central inspection division be organized. 
 
 39 — That a system of patrol inspection be established for report- 
 ing defective conditions of public works and work that is 
 to be done. 
 
 40 — That police officers, sanitary inspectors and other field em- 
 ployes of other city departments be provided with postal 
 card report forms for reporting defective public works con- 
 ditions to the department of improvements. 
 
 41 — That the maintaining of an independent force for sidewalk 
 inspection be discontinued. 
 
 42 — That inspection forms be standardized with the view to facil- 
 itating the preparation of field reports and the filing of 
 such reports in the office. 
 
 43 That a block and intersection file for filing of inspection and 
 
 cost and expense records be established. 
 
 Annual Report 
 
 44__That in the annual report for 1914 more attention be paid to 
 the development of tabulated data susceptible of compari- 
 son with physical and financial data of other cities. 
 
 45— That more attention be paid to the reporting of the activities 
 of the suborganizations of the department other than tne 
 bureau of engineering and board of public works. 
 
404 DENVER 
 
 General Accounting 
 
 46 — That the present general accounts of the department of im- 
 provements be abolished and that the work necessary there- 
 with be made a duty of the auditor. 
 
 47 — That the one-twelfth limitation on appropriation expenditures 
 be eliminated from the charter. 
 
 48 — That the various accountants, clerks and bookkeepers in the 
 department be centralized in one office and that the present 
 duplication of work be stopped. 
 
 49 — That adequate cost and expense records be established in or- 
 der to provide a basis of administrative control of field 
 operations. 
 
 Cost and Expense Records 
 
 50 — That cost and expense records be established which will show 
 
 1 — Job cost and unit cost 
 
 2 — Location recapitulations 
 
 3 — Field organization recapitulations. 
 
 51 — That field reports be standardized in order to facilitate the 
 making out of reports of field employees while on the work. 
 
 52 — That reports be prepared in such a manner as will facilitate 
 filing and automatic recapitulation. 
 
 53— That the cost and expense filing plan be co-ordinated with the 
 inspection report filing. 
 
 Engineering 
 
 54 — That the duties of the bureau of engineering comprehend the 
 providing of engineering service for all departments of the 
 city government. * 
 
 55— That a system of progress reports on contract work be estab- 
 lished and such information provided for use by the com- 
 missioner of improvements. 
 
 56— That adequate fireproof filing facilities be provided for pre- 
 serving engineering records. 
 
 57— That steps be taken to inaugurate general substructural maps 
 showing the lines and grades of all substructures in the city. 
 
 58— That steps be taken to classify property on the section, lot 
 and block system in order to facilitate property descrip- 
 tions and the accounting incidental to the assessment and 
 collection of taxes. 
 
 59- 
 
 -That all lighting inspection be placed within the jurisdiction 
 ol the bureau of engineering and surveying, in the depart- 
 ment of improvements. 
 
DEPARTMENT OP IMPROVEMENTS 405 
 
 60 — That a bureau of highways and bridges be established under 
 the supervision of a competent assistant engineer, and that 
 such an organization have included in its duties, in addi- 
 tion to the duties of the present bureau of highways — 
 
 a — Asphalt repairs 
 
 b — Stone block repairs 
 
 6 — Enforcement of contract guarantees. 
 
 61 — That the present method of surface street construction be 
 abandoned. 
 
 Street Cleaning 
 
 62 — That the street cleaning functions of the department of im- 
 provements be centralized in a separate bureau. 
 
 63 — That such an organization comprehend in its duties sewer and 
 catch basin cleaning and flushing and the sprinkling of 
 streets. 
 
 64 — That the employees of the street cleaning department be com- 
 pletely uniformed, including helmets for the blockmen and 
 khaki uniforms for the flushing men and machine broom 
 gangmen. 
 
 65 — That flushing and machine broom routes be standardized in 
 such a way as to permit of elastic routing to meet changes 
 in weather conditions. 
 
 66 — That broken stone be spread at intersections of unimproved, 
 streets with a view of preventing tracking of mud on im- 
 proved streets. 
 
 67 — That the street cleaning shop be abolished and its work be 
 taken over by the central repair shop. 
 
 68 — That sidewalk flushing he discontinued. 
 
 69 — That the cost of cleaning the city market be charged to a fund 
 obtained from the use thereof. 
 
 70—T/hat a study of the street cleaning and street sprinkling 
 forces be made in order that a city owned equipment may be 
 used efficiently for all purposes for which it is adapted. 
 
 71— That power flushes be used on certain heavy traffic streets 
 where low water pressure prevents the use of tank flushers 
 without special auxiliary pumps. 
 
 72— That a special inspection of fire plugs used by the street clean- 
 ing department be made at least once a month. 
 
 Street Sprinkling 
 
 73— That the bureau of street sprinkling be abolished. 
 
406 DENVER 
 
 74— That the work of this division of the department of improve- 
 ments be asumed by the street cleaning organization. 
 
 75— That the practice of water sprinkling of unimproved roads be 
 
 .abandoned. 
 76— That a program for oiling with dust layer oils and treatment 
 
 with deliquescent salts be prepared as a substitute theretor. 
 
 Sidewalks 
 
 77 — That the sidewalk division be abolished. 
 
 78— That the inspection work of the present sidewalk division be 
 assumed by the proposed central inspection division and 
 that the supervision of sidewalk reconstruction and main- 
 tenance be placed under the jurisdiction of the proposed 
 bureau of highways and bridges. 
 
 Sewer Flushing 
 
 79— That the present sewer flushing division be abolished. 
 
 80 — That the work of this division be assumed by the street clean- 
 ing force. 
 
 81— -That a special inspection be made before ordering the repair, 
 cleaning, or flushing of any catch basin or sewer. 
 
 82 — That a special inspection be made during extremely hot 
 weather in order to determine whether the street flushing 
 by the street cleaning division does not eliminate the neces- 
 sity for special catch basin flushing. 
 
 Permit Division 
 
 83 — That the superintendent of sewer flushing be relieved from 
 the duties of chief permit inspector. 
 
 84 — That a central permit division be established. 
 
 85 — That unnecessary work now caused by improperly directed 
 office procedure be eliminated through the establishment 
 of proper field report forms and office filing systems. 
 
 86 — That the permit forms be made standard as to type, printing, 
 and general set-up. 
 
 87 — That a system of direct collection of permit deposits, to be 
 controlled through the use of graduated special forms, be 
 installed. 
 
 88 — That the field report forms be standardized in order to facili- 
 tate reporting in the field and filing in the office. 
 
 89 — That the department of improvements establish rules and reg- 
 ulations preventing the issuing of permits for the cutting 
 
DEPARTMENT OP IMPROVEMENTS 407 
 
 of newly constructed pavements except in case of real neces- 
 
 90 ~ T ww-^f at * ention be ^en to the enforcement of proper 
 back-fil] and protection of unpaved cuts by planking 
 
 91— That rules and regulations governing this work be made a part 
 of the application agreement. l 
 
 4 
 
 Asphalt Plant and Specifications 
 
 92— That the asphalt plant be made a subdivision of the proposed 
 bureau of highways and bridges. 
 
 93— That the city chemist be stationed at the asphalt plant and 
 oa ™ .L e supervise the manufacture of asphalt mixtures 
 94r— that the sheet asphalt specifications be corrected and revised. 
 
 Stone Block Paving' 
 
 95— That the stone block specifications be revised with a view to 
 
 a— Reducing the size of the stone blocks used 
 b — Securing more regularity in block sizes. 
 
 96— That a study be made to determine the point of smoothness 
 in the sandstone blocks where the attrition of traffic will 
 tend to wear the pavement smooth, and that such a degree 
 of smoothness be required in the stone blocks used. 
 
 Street Railway Area Pavements 
 
 97 — That the procedure for enforcing the repairs to the railway 
 area pavements, be formalized through the serving of legal 
 notices to such effect. 
 
 98 — That when the asphalt plant or city forces engage in work 
 for the street railway company, the company be billed for 
 the complete cost of such work, including a reasonably 
 accurate overhead charge. 
 
 99 — That the department of improvements establish standard 
 specifications for railway area construction and that such 
 construction methods be enforced in all new work and all 
 reconstruction work undertaken by the street railway com- 
 pany. 
 
 100 — That the street railway company be prohibited from repair- 
 ing sheet asphalt, concrete, or bituminous concrete pave- 
 ments in the railway area with stone blocks. 
 
 101 — That the company be required to maintain the railway area 
 pavements in passable condition, particular emphasis being 
 placed upon the maintenance of proper paving conditions 
 at important intersections. 
 
408 J DENVER 
 
 102 — That a greater depth of section in the rails used and a better 
 type of rail be required. 
 
 103 — That the toothing type of stone block construction in the rail- 
 way area be prohibited. 
 
 104 — That where the roadway proper is paved with bituminous 
 concrete, such pavement be brought flush to the outer edge 
 of the outer rails. % 
 
 105 — That in future construction the use of unprotected concrete 
 pavement in the railway area be discouraged. 
 
 Seventh Avenue, Third Avenue and Capitol Hill Contracts 
 
 106 — It is recommended that, if legally possible, these- contracts be 
 stopped at once. 
 
 107 — That a study be made to determine whether the original let- 
 ting of the contracts with but a six months' guarantee was 
 in accordance with the law. 
 
DEPARTMENT OP IMPROVEMENTS 409 
 
 Department of Improvements 
 
 Part I — The Office of the Commissioner 
 
DEPARTMENT OP IMPROVEMENTS 411 
 
 PART I— THE OFFICE OF THE COMMISSIONER 
 
 ORGANIZATION 
 Board of Public Works 
 
 The present board of public works consists of the commissioner 
 of improvements, the engineer, and the "commissioner of highways." 
 The two latler officials are appointed to office by the commissioner of 
 improvements. This form of organization is a development from the 
 original board of public works, which consisted of the city engineer, 
 the commissioner of highways and the commissioner of public works, 
 all appointed officials, but appointed under restrictions which required 
 a bi-partisan board. The power to remove and to appoint the com- 
 missioner of highways and the city engineer is now vested solely in the 
 commisioner of improvements. Thus it is obvious that the present 
 board of public works is not a "board," but the commissioner of im- 
 provements, with two subordinate self-appointed officials as advisers. 
 
 Commissioner Possesses Excessive Powers as a Board 
 
 This condition is worthy of serious consideration. Prior to the 
 recent amendment of the charter, the board of public works had been 
 given every opportunity, and even arbitrary powers, to control all 
 kinds of public works construction. If anything, the present form of 
 the charter, with its amendments, gives to the commissioner of im- 
 provements more power than was vested in the original board of pub- 
 lie works. There are a number of rights now delegated to the com- 
 missioner of improvements which, from the standpoint of best munici- 
 pal organization and practice, should be and are inherently legislative 
 duties. There are other duties also delegated to this officer which 
 rightly belong to the city's auditors or general financial officers. 
 
 Responsibility Not Centralized 
 
 Criticism of the organization of the present board of public works, 
 and of the delegation of rights and duties to this board, has been of 
 necessity based almost entirely upon the present practice. It is prac- 
 tically impossible to determine from the sections of the charter which 
 control these operations, what particular officer, or particular organ- 
 ization unit of the city government, is given the right to supervise the 
 various steps in carrying out a local improvement. There is no clear- 
 cut alignment of functions, no proper designation of duties, and no ex- 
 act specifications as to responsible officers to be found in the present 
 charter. Section 154 of the present draft is a general curative section 
 and is indicative of the realization upon the part of the charter drafters 
 of the many ambiguities and contradictions to be found in the local 
 improvement section. The following is a quotation in point : "If any 
 doubt should arise from this amendment as to what officer or depart- 
 ment shall have the power of performing any of the acts and duties set 
 forth in said Article XI (article VII of revised charter, governing pub- 
 lic improvements), then the council may, by resolution, determine the 
 matter, and its decision shall be final." 
 
412 DENVER 
 
 PROCEDURE 
 
 Administrative Code Needed 
 
 The saving grace of this particular part of the charter is that the 
 council has been given the power, through the general grant of section 
 154, to formulate an administrative code for the control of public im- 
 provements. The less delay in formulating a definite code of proce- 
 dure, the sooner can best results be expected in the administration of 
 this part of the city government. 
 
 Such an administrative code, which can be enforced through reso- 
 lution of council, should contain in exact detail the alignment of re- 
 sponsibility and a clear-cut definition of duties for every officer and 
 organization unit having to do with public improvements. That there 
 is need for drastic charter revision in the sections governing this work 
 is beyond contradiction, but the formulation of a proper code of proce- 
 dure would provide the best possible basis for considering prospective 
 charter changes. The best charters are those which include only gen- 
 eral grants of power to officers, general specifications of protective 
 rights for assesees, and other general specifications respecting the 
 financing of improvements and the procuring of adequate publicity. 
 The detail of administrative practice, much of which is included in the 
 present charter of the city of D'enver, properly belongs in the code of 
 ordinances or resolutions of the legislative body. Such a code can be 
 protected from change due to personal desires of the council, by re- 
 quiring that all local improvement ordinances or resolutions must be 
 considered for one month, and published in the official newspapers for 
 a certain period before they can become a part of the improvement 
 code. Likewise, amendments may be restricted to this advertisement 
 for a similar period and passed by a four-fifths vote of the council. 
 
 The present charter contains too much detail, and the detail in- 
 cluded is ambiguous and often contradictory, section by section. Its 
 correction is a matter of fundamental importance to every property 
 owner in the city, and should be undertaken immediately. 
 
 No Need for a Board of Public Works 
 
 With the present form of government, Denver has no need for a 
 board of public works. What legislative decisions are needed should 
 be given by the council. Administrative matters should be controlled 
 by the commissioner of improvements. The board, as organized at 
 present, is a caricature of what the board of public works was meant 
 to be under the old form of govennment. The only effect of conferring 
 power upon the present board of public works is to confuse in the 
 minds of the citizens the actual power delegated to the commissioner 
 of improvements. 
 
 Contracts 
 
 _ It is not the purpose of this report to enter into a detailed discus- 
 sion of the legal aspects of the contracts in use by the department of 
 
DEPARTMENT OP IMPROVEMENTS 413 
 
 improvements. Arising from special investigations, two points, how- 
 ever, stand out as in particular need for correction. 
 
 Certification of Engineer Should be Required 
 
 Every contract entered into between the city of Denver and a pri- 
 vate contractor should specify that no work would be finally accepted 
 except on the certificate of the inspectors, the assistant engineer, and 
 the .engineer in charge of such work, that the work was done in a good 
 and substantial manner and in conformity with the specifications. 
 
 Public Improvement Contracts 
 
 Section 125 of the charter states that "In all cases where the cost 
 of local improvements is to be assessed wholly or in part upon the 
 property benefitted, the same shall be constructed by independent con- 
 tract or contracts but other public improvements may be constructed 
 by day labor under the direction of the board." Why this provision, 
 which was a part of the charter of March 29, 1904, was retained in the 
 present charter is beyond conception. Why the charter implies that 
 there is .a distinct and peculiar difference in the construction detail 
 and engineering technique incident to the construction of a local im- 
 provement, which would demand its segregation from all other kinds 
 of public works improvements, is also impossible to understand. When 
 the city of Denver maintains a division for the repair, reconstruction, 
 and resurfacing of macadam, gravel and slag roads, the presumption 
 must be that this service is obtained more cheaply and efficiently than 
 it could be obtained from a private contractor. Why is it necessary 
 to forego the charges of department labor simply because in the case 
 of local improvements the method of financing is a little bit different 
 from that required for the work paid for out of the general revenue of 
 the city? There is no difference, and the continuation of such a clause 
 in the charter legislates inefficiency and waste upon the department 
 of improvements. 
 
 This kind of provision has been handed down in the charters of a 
 number of cities from the time when departmental labor, due to the 
 influence of the spoils system and factious politics, was anything but 
 a success. Today the whole tendency in large operating departments 
 of city governments is to save to the community the contractor s 
 profits through well organized and well operated municipal construc- 
 tion departments. 
 
 There are a number of cities operating municipal asphalt plants, 
 sewer construction divisions, sidewalk construction divisions, etc., 
 where the commissioner in charge enters into direct competition with 
 the private contractor in bidding on all kinds of city work. The most 
 conspicuous success from this method has been obtained m the city 
 of Toronto The reports of the commissioner in charge of an excep- 
 tionally well operated department in that city show that his competi- 
 tive bias on sewer construction, sidewalk construction and street pave- 
 ment construction have saved to the citizens of Toronto from 10 per 
 cTnt to 25 per cent on the cost of most of their public works improve- 
 ments. 
 
414 DENVER 
 
 No more important element can be kept in mind in the drafting of 
 charter provisions governing the operations of a department of public 
 works than that the financing of improvements must be considered 
 absolutely apart from construction and maintenance methods, lhe 
 only difference between a local improvement and any other kind ot 
 public works improvement is that the cost of the former is assessed 
 against the owners of property within a limited district, while m the 
 latter case the cost is charged against either current revenues or bond 
 funds Financing methods, like accounting records, have no intrinsic 
 value The charter, however, woiild seem to imply that the money 
 paid by the citizen for local improvements is negotiable only by a pri- 
 vate contractor. 
 
 With the exception of this clause, there seems to be no reason why 
 the commissioner of improvements could not enter into direct com- 
 petition with private contractors for the construction of local improve- 
 ments Experience has proved that such a practice makes for a healthy 
 condition of competition. It has saved and is saving thousands ot 
 dollars to the citizens of other cities in the construction of public works 
 improvements. There is no reason why the citizens of Denver cannot 
 obtain the same advantage. 
 
 Definition of "Paving" 
 
 'Section 127 of the charter defines the term "paving" as including 
 macadamizing. Thirty years ago cobblestones, macadam and gravel 
 pavements were the highest examples of the highway engineer's art. 
 Today, due to revolutionary changes in traffic conditions, neither cob- 
 blestone, gravel, nor macadam pavements can be recognized as pave- 
 ments in the proper meaning of the term. The most advanced paving 
 laws consider the roads paved with water-bound macadam, gravel and 
 cobblestone as unimproved roads. There is no particular need to enter 
 into a detailed discussion of why water-bound macadam roads are not 
 fitted for present day traffic. The records of every highway associa- 
 tion in the country are filled with records of tests and experiments, 
 in which various engineers were and are attempting to save the money 
 invested in water-bound macadam roads. This is of importance in 
 Denver, particularly as it affects the general release clause on re- 
 assessment of reconstruction against the owners of the abutting prop- 
 erty, which will be considered later. The term "macadam" is seldom 
 used in any paving definition. A macadam road originally consisted 
 of a layer of broken stone of various sizes, worked and bound together 
 by a water solution of the stone dust. In the last few years, due to the 
 absolute failure of water-bound macadam roads to withstand automo- 
 bile traffic, various oil mixtures going under the name of "bituminous 
 macadam," have come on the market. The word macadam alone would 
 undoubtedly be interpreted by the courts to mean a water-bound type 
 of macadam road. It is upon such a prospective definition that these 
 criticisms are based. In any event, the term macadam alone is too 
 ambiguous to be included in a definition clause of any charter. 
 
DEPARTMENT OP IMPROVEMENTS 415 
 
 Macadamizing as it Affects Assessments 
 
 The lack of a clear definition of assessable and non-assessable 
 ■pavements leaves an opening for great inequity and injustice in the 
 administration of the local improvement law. It is assumed that the 
 charter prevents the assessment against the owners of abutting prop- 
 erty of the cost of reconstruction and repaving — that after the first 
 assessment has been paid, the property owner is then released from all 
 future assessments for paving, and the cost of reconstruction and main- 
 tenance must be borne by the city at large. Although the charter is 
 somewhat ambiguous upon this point, the inference and the present 
 practice is that only original construction should be assessed against 
 the owners of the abutting property. 
 
 Depending upon the kind of pavement laid, the difference to the 
 property owners in the various parts of the city may amount to several 
 dollars per square yard. If on one street the property owners petition 
 for a macadam pavement, which might be laid for 50 cents a yard, and 
 on another street it is deemed desirable to construct a stone block pave- 
 ment on a concrete foundation, at a cost of $4.00 per square yard, the 
 first property owner has purchased his release from all future local 
 assessments for one-eighth of what the second property owner has paid. 
 
 A great many cities control the general release from future assess- 
 ments by class pavements. It has usually been the custom to establish 
 three groups of pavements, (1) the permanent pavements, (2) the semi- 
 permanent pavements, such as the lighter forms of asphaltic, concrete, 
 and bituminous macadam, and (3) unimproved road work. Property 
 owners are then required to pay for one class of pavement by special 
 assessment before being released from future assessments. This is the 
 practice in New York State, and has been copied in many states and 
 cities. Another plan for avoiding this inequity is in use in other cities. 
 By this plan the property owner is required to pay by special assess- 
 ment a standard amount per square yard, independent of the kind of 
 pavement laid. This is the plan in use in the State of Wisconsin, and 
 is growing rapidly in favor. Every property owner there is required to 
 pay by local assessment the cost of pavement construction up to $3.00 
 a square yard. Either plan is far superior to the loose methods per- 
 mitted by the Denver charter. This becomes of particular importance 
 when it is understood that the power to select the type of pavement to 
 be used is delegated almost entirely to the property owner. 
 
 Remonstrance and Petition Basis 
 
 The charter gives to the owners of property within the local as- 
 sessment district rights to petition for a remonstrance against paving 
 improvements. The owners of 35 per cent of the frontage of the prop- 
 erty to be assessed for a particular improvement may force the carry- 
 ing out of a petitioned improvement, or prevent the carrying out of an 
 improvement initiated by the department of improvements If the 
 Phartpr nrescribed that the final assessment of cost should be on a tlat 
 foontTgeTS this procedure would be equitable, although the per- 
 centage are open to criticism. This, however, is not the case. 
 
416 DENVER 
 
 The charter on the one hand bases petition and remonstrance 
 rights upon frontage, and, upon the other, prescribes that the cost shall 
 be assessed upon an area zone basis. Thus, the owner of property on a 
 side street, who is only required to pay a small amount toward the cost 
 of the pavement on the street under improvement, is given as much 
 right of petition and remonstrance per frontage as the owner of prop- 
 erty actually abutting upon the street under improvement. The in- 
 justice of this is obvious. In either case, without exception, the basis 
 for petition and remonstrance should be identical. 
 
 Selection of the Type of Pavement 
 
 According to section 127, sub-section 3, of the charter, the prop- 
 erty owners in petitioning for an improvement are given the right to 
 select the type of pavement to be used, and such selection shall be final 
 if the improvement is undertaken. It may be somewhat unfortunate, 
 but it is none the less true that the average non-technical, uninformed 
 citizen needs protection from his own desires in selecting the type of 
 pavement to be used. If the officials of the department of improve- 
 ments are not competent or willing to exercise intelligent judgment to 
 the best of their ability in selecting the proper type of pavement, the 
 citizens had better remove the officials than attempt to take into their 
 own hands the engineering features of pavement construction. There 
 are so many cases in every city of the country where such procedure 
 is in force, which show clearly the disadvantage of citizens' selection, 
 that a detailed discussion of this question seems hardly necessary. 
 
 One case may be of particular interest. In a western city about a 
 year ago the citizens petitioned for a certain kind of pavement and 
 carried their petition over the strenuous objections of the engineer. 
 The pavement work amounted to approximately $40,000. Before half 
 of the work was completed, the first few blocks laid began to work 
 out and disintegrate so rapidly that the citizens asked the department 
 to stop the work. Nevertheless, this pavement had been laid exactly 
 according to specifications and the $20,000 was paid to the contractor 
 by the city and assessed against the owners of the abutting property. 
 The details of this particular pavement make the case of even more 
 interest. False reports of work done on the west coast were used to 
 obtain an open market order for work in New York City. Photographs 
 of this work done in New York before traffic was permitted upon it 
 were used to influence citizens in another west coast city to petition 
 for $40,000 worth of this pavement. Actually, the pavement laid in 
 New York wore out before the voucher could be passed through the 
 finance department, and payment was held up. This is but one ease 
 indicative of the need of protection of citizens against their own judg- 
 ment. There is really no more reason why the citizens should be given 
 arbitrary right to select the type of pavement to be laid in front of 
 their property than right to determine the construction details in the 
 construction of a sewer. Pavement construction may seem to be more 
 simple, but, if properly designed and selected, it really needs as much 
 engineering and consideration as the selection of type and design of 
 a sewer. 
 
DEPARTMENT OF IMPROVEMENTS 417 
 
 Method of Apportionment Commended 
 
 The method used by the department of improvements in appor- 
 tioning the cost of park improvements of all kinds is considerably 
 above the average. It would be futile to commend, without qualifica- 
 tion, the methods in use for this work. Both from the standpoint of 
 theory and practice, assessment laws today are far from perfect. 
 Equity in apportioning the cost of improvements is very seldom ob- 
 tained. The area zone system in use by the department of improve- 
 ments, and prescribed generally by the charter, is the most advanced 
 form of assessing paving improvement costs in use today. This method 
 should not, however, be carried to excessive detail — as in the case of 
 the plan used on the Seventeenth avenue parkway. Thirty zones were 
 established, varying in per cent from 20. per cent of 37y 2 per cent to 
 1 per cent of 37% per cent. The improvement amounted" to $112,000, 
 and it took six computers and draftsmen nine months to calculate the 
 assessments. This time could have been greatly reduced if the assess- 
 ment district boundaries had been made to extend to a net depth on 
 each side of the parkway. It would also have been more equitable to 
 the owners of property surrounding. The district consisted of the land 
 bounded by lines drawn parallel with the parkway and 750 feet on 
 each side of the street line. This was a gross depth, and the varying 
 number of parallel streets within the district along the course of the 
 improvement necessitated a reapportionment on the property upon a 
 pro rata basis of the amount of the assessment which would have been 
 carried by the space occupied by the streets, if no streets had been 
 present. If, however, 750 feet net depth of property, exclusive of 
 parallel streets, had been used, the calculations could have been scaled 
 off by» means of a key scale or curve. 
 
 Notification of Proposed Improvements 
 
 According to the charter, the board of public works must publish 
 for ten days, in two of the newspapers of Denver, notifications setting 
 forth in detail the district limits of the proposed assessments, the kind 
 of work, and the lots to be assessed. This kind of publicity is unques- 
 tionably valuable to the property owner, but the continuous publica- 
 tion of long detailed announcements is hardly warranted by the atten- 
 tion given to them by the average citizen. 
 
 It would be better to establish one particular day in the week 
 when official notices of this character would be published in the daily 
 papers. If this were done, files of that particular day would provide 
 a form of calendar for easy reference by especially interested organiza- 
 tions. 
 
 For the average citizen it would be far better to publish a simple 
 draft of the proposed improvement, showing by plan the lot lines, 
 street lines, and assessment limits. These kinds of plans are now pub- 
 lished in the city and county of Denver publication, and would be un- 
 questionably of more value to the average citizen than the kind ot 
 notices now published in the daily papers. As an additional notifica- 
 tion it would be advisable to post along the line of the proposed im- 
 
418 DENVER 
 
 provement at least two placards announcing that either by a petition 
 or initiative, a public works improvement has been proposed, and in- 
 forming the public where information concerning the proposed work 
 may be secured in accurate and exact detail. This practice is being 
 followed by many cities of the United States today, and has been of 
 great value to the citizens. 
 
 Need for a City Plan 
 
 A short investigation of the recent additions to the plotted sec- 
 tions of the city of Denver shows very clearly the need for a city plan. 
 With the exception of one section of the charter, which grants to the 
 council control over plotting of new additions, there is no mention any- 
 where of the formulation of a proper city plan and its enforcement dur- 
 ing the growth of the city. "What is needed primarily is a study of 
 the unplatted additions of the city, in order that the laying out of new 
 streets will provide adequate transportation facilities, and at the same 
 time harmonize with the excellent park development now in progress. 
 
 Whether a city plan commission should be established to formulate 
 and to enforce a city plan, is not so important at the present moment 
 as the preparation of a code of ordinances to govern unplatted addi- 
 tions. There is practically no large city in the country which has not 
 a more or less well formulated city plan which is being enforced either 
 through independent civic organizations or the city government. 
 
 The East Colfax section of the city, which parallels to the south 
 the Seventeenth avenue boulevard, is a typical example of what the 
 lack of a city plant will permit. Looking south from Seventeenth ave- 
 nue boulevard for practically its entire length, every street extending 
 south is staggered at the point about one-quarter of a mile distant in 
 such a way that off-sets of a half a block are made before the street 
 extends further south. In addition, on some streets sidewalks are laid 
 next to the curbing on others a parking strip of ten to twelve feet is 
 left; in other cases the sidewalks extend for a certain distance along 
 the curb line and immediately thereafter a parking strip is left. There 
 is no uniformity, no conformity to any plan, and the result is highly 
 undesirable. Off-set streets interfere seriously with the development 
 oi good landscape effects and greatly decrease the transportation effi- 
 ciency of the streets. 
 
 Council Has Power to Stop Such Developments 
 
 Section 232 of the charter provides that "no territory within the 
 city and county shall be so platted as to dedicate any street, alley or 
 other public highway without the approval of the council." Without 
 the preparation of a detailed, comprehensive city plan, it would still 
 
 K lbl + t- f ° r th . e e0U ? C1 i' under the S eneral ^ant of power, given to 
 them by this section of the charter, to prevent the laying out of off- 
 set streets. There » no particularly difficult topographical problem 
 
 be incTX 6 anyWh r f tMn the dty ° f Denver which °™U »°t easily 
 De included m a city plan. 
 
DEPARTMENT OF IMPROVEMENTS 419 
 
 Acting under the power granted by section 232 of the charter, 
 council should have prepared at once a code of regulations to govern 
 the fundamental points in platting new additions. A little foresight 
 at the time streets and alleys are laid out will bring a tremendous re- 
 turn in later years. 
 
 Proceedings of the Board 
 
 The present board of public works has retained all of the proce- 
 dure and methods of the former board. This procedure is a well pre- 
 served specimen of administrative red tape which is fast being elimin- 
 ated from the business practice of city governments. It is cumbersome, 
 wasteful, and generally inefficient — although the long, tedious minutes, 
 notices and records have been maintained conscientiously. 
 
 The minute book in use by the clerk of the board contains 640 
 pages of of 42 twelve inch lines each. All of one book, and more than 
 half of two other books of the same size were needed to contain the 
 minutes for 1913. Every entry is made in longhand. In addition, the 
 books are indexed, first, to an index to titles grouped according to the 
 various proceedings, and second, to a re-index of the primary index, 
 alphabetically by name. This work alone takes practically the entire 
 time of one $1,200 clerk. In addition, in order to provide copies of 
 notices for the newspapers, and a typewritten copy from which the 
 longhand entries in the minute book can be made, a good part of the 
 time of the secretary of the board and the stenographer to the com- 
 missioner is consumed. 
 
 There are so many ways of improving this system that it is some- 
 what surprising that it has remained in operation for so long. There 
 are any number of typewriting machines on the market which will 
 write directly into a bound book and provide at the same time as many 
 copies as could reasonably be desired. One of these copies could be 
 filed in a loose-leaf binder according to proceedings, and provision 
 could be made for the assembling in one place of all proceedings rela- 
 tive to one improvement (which the department has not done), and 
 for an automatic index of the minute book. The advantage of type- 
 written minutes over even the best hand-written minutes is too obvious 
 to need further comment. 
 
 The minutes of the meeting of August 8, 19JL3, consumed 18 pages. 
 A proceeding for the construction of the subdistrict sewer consumed 
 883 lines, or about 20 pages. A single notice for the assessment of a 
 grading and curbing contract consumed 441 lines, about 11 pages— all 
 written out in longhand. The minute book is decorated with about 30 
 different kinds of rubber stamps, which are used as marginal captions 
 to indicate various kinds of proceedings. 
 
 The introduction of a typewritten minute book with duplicate and 
 triplicate copies of the minutes, would reduce the work necessary about 
 80 per cent The introduction of blank forms for the various proceed- 
 ings would eliminate a great deal of the stenographic service necessary. 
 
420 
 
 DENVER 
 
 Pavement Reconstruction 
 
 The need for complete reconstruction of some of the older perma- 
 nent pavements, such as the Nineteenth street asphalt pavement, is be- 
 ginning to raise a new question in the highway problem. In the older 
 cities of which the borough of Manhattan, New York, is an example, 
 the paving problem is largely one of reconstruction, but in Denver 
 there has been practically no reconstruction of permanent pavements. 
 The most important factors in considering the reconstruction problem 
 are (1) how to "finance reconstruction improvements, and {Z) wnen to 
 cease repair and to undertake reconstruction. At the present time the 
 department of improvements is poorly equipped to handle the recon- 
 struction problem. The organization is not well adapted for this worK. 
 There are no cost or administrative records upon which could be made 
 an intelligible determination of what reconstruction is needed, and tUe 
 charter provisions controlling the financing of pavements are wholly 
 inadequate for this work. 
 
 In other sections of this report recommendations are made suggest- 
 ing revision in organization and the installation of cost and expense 
 records. If reorganization along the general lines suggested should be 
 effected, the department would be properly organized and equipped to 
 carry on the reconstruction of pavement work. The special diiiiculty 
 in the pavement reconstruction problem is on the financial side, and 
 lies in the fact that the charter practically ignores the entire question. 
 What provisions there are, control this work by implication rather 
 than by direct statement. The charter provides that the board of pub- 
 lic works shall have complete jurisdiction over the issuance, sale, and 
 general funding of bonds for financing public works improvements, 
 according to the subsequent detail included in the charter. The only 
 reference later made to the question of bonds is in section 149, which 
 provides that "All local improvements shall be paid for with public 
 improvement bonds of the city and county of Denver." This naturally 
 implies that all public improvements are local improvements. This is, 
 nevertheless, untrue. 
 
 By careful administration and more careful legislation it is pos- 
 sible to obtain equity in apportioning the cost of local improvements 
 on property within a district if care be taken to define clearly just 
 what improvements are to be classed as local, and to eliminate from 
 this class certain improvements which are essentially non-local in their 
 benefits. Pavement reconstruction is not a local improvement, and 
 certainly the cost of such work should not be assessed against the prop- 
 erty within a local district. 
 
 The first reconstruction work which will have to be made is in 
 the business^seetion of the city on the streets carrying the heavy traf- 
 fic and being used by horse-drawn and automobile vehicles from all 
 over the city and state. It would be unjust to attempt to require the 
 owners of property in the business section of the city to pay for dis- 
 integration and deterioration of the pavement caused by travel from 
 all parts of the city and the country. At best, the local assessment 
 plan for financing so-called local improvements is premised on taxation 
 of opportunity to use rather than actual use of the pavement. Local 
 improvement assessments are rapidly decreasing in favor, and the 
 
DEPARTMENT OP IMPROVEMENTS 421 
 
 kinds of improvements designated as local improvements are being 
 limited to those which bestow a distinct and peculiar benefit or those 
 where administrative difficulties demand. Original pavement con- 
 struction falls in this latter class. Prom any standpoint, either admin- 
 istrative or financial, reconstruction cannot be considered properly as 
 a local improvement. 
 
 Common practice in financing the cost of pavement reconstruction 
 recognizes three general methods: (1) use of public funds; (2) use of 
 special revenue funds (road and automobile taxes) ; (3) current reve- 
 nues. In Denver the question would be largely between the bond funds 
 and current revenues. If it be decided to make use of bond funds for 
 this work, particular care must be taken in order that the liquidation 
 or amortization of the bonds will distribute the cost of the improve- 
 ment to the taxpayers receiving benefit from the improvement. If 
 such a principle be followed and made a definite requirement by law, 
 the question of the kind of bonds, whether serial or straight term, is of 
 no particular importance. 
 
 INSPECTION 
 
 The present inspection forces of the department of improvements 
 are so decentralized that criticism of their various activities is taken 
 up under the various branches of the department. In recommending 
 the establishment of a central public works inspection division the 
 recommendations for the proposed organization are included under this 
 head. 
 
 Central Inspection Needed 
 
 Developments in the last few years in the inspection control of 
 public works administration have tended toward the centralization 
 of inspection service. It has been proved that the most efficient in- 
 spector is the public works inspector, rather than various inspectors 
 of construction, highways, maintenance, sewer construction, house con- 
 nection inspectors, grade inspectors, sidewalk inspectors, encumbrance 
 inspectors, street sign inspectors, and other special inspectors. 
 
 Inspection service for public works and public utilities activities 
 are often divided into three main classes: construction inspectors, 
 patrol inspectors, and inspectors of operations requiring- inspection in 
 buildings or of the public street proper. This latter class includes the 
 inspection of buildings, a problem which is not now confronting the 
 department of improvements. 
 
 The inspectors of a department should be the eyes of the admin- 
 istrative officers and should report as nearly as possible directly to the 
 officers who are required to make the decisions. Generally speaking, 
 the most fundamental failures in the present inspection service in the 
 department of improvements are : 
 
422 DENVER 
 
 1 — Lack of centralization 
 
 2 — Subordination of inspectors to operating employees 
 
 3 — Lack of proper patrol inspection 
 
 4 — Lack of proper inspection reports and filing control 
 
 In the reorganization of the department of improvements it is 
 suggested that an inspection division be established, reporting directly 
 to the chief engineer or the commissioner. The general duties of this 
 division would consist of the inspection of all contract work, special 
 inspection of field operations carried on by the divisions of the' depart- 
 ment, the inspection of permit openings, encumbrances and sidewalks, 
 and general patrol inspection. 
 
 In considering the inspection problem it must be remembered that 
 inspection service is a "staff service" rather than a "line service." 
 
 Value of Centralization 
 
 Centralization of inspection forces, like centralization in many 
 other activities, would make possible a more efficient use of the in- 
 spectors' time. There are certain times of the year when the field in- 
 spection work in any department of public works is practically nil, 
 yet it is advisable if possible to maintain a regular staff of inspectors 
 during the year which would at least form a nucleus for the inspection 
 service during the summer months, when field work is at its height. 
 By centralizing the inspection activities it would be possible to com- 
 plete for all practical purposes sidewalk inspection at the times in the 
 year when it is impossible to carry on large construction work in the 
 field. There are many other inspection requirements in this same class, 
 and by using the services of the contract inspectors on such activities 
 at times when no field work is in progress, it would be possible to main- 
 tain a fairly regular personnel in the inspection division. 
 
 One of the greatest problems in inspection work is how to main- 
 tain a regular inspection force without wasting a great deal of salary 
 expense during the winter months when no field work is in progress. 
 The centralization of inspection work would be a step toward the solu- 
 tion of this problem. 
 
 Patrol Inspection 
 
 There are two general classes of work which the inspection service 
 of the department of improvements must undertake: (1) the reporting 
 of work done both as to kind and quantity, and (2) the reporting of 
 work necessary to be done. Practically no attention has ever been 
 given in Denver to the reporting of work necessary to be done, — patrol 
 inspection. 
 
 It is of fundamental importance, if ultimate efficiency of the field 
 operations of the department is to be obtained, that the administrative 
 officers be provided with sufficient information to order intelligently 
 the work to be undertaken by the field organization. There were no 
 inspection records on file in the department of improvements at the 
 time this investigation was in progress which provided information of 
 service to the administrative officers in ordering work done. 
 
DEPARTMENT OF IMPROVEMENTS 423 
 
 It is a fact that many failures in administration of public works 
 departments have been due entirely to the inability of the administra- 
 tive officers to obtain in the office accurate live information as to what 
 work should be done. Without such information the ordering of field 
 work must be haphazard or the administrative officers of the depart- 
 ment must themselves spend most of their time in the field in order to 
 determine what work is necessary — neither of these practices can be 
 commended. A patrol inspection force for the department of improve- 
 ments should be a general patrol inspection force for the entire city 
 government. There is no reason why a public works patrol inspector 
 cannot report upon violations of the sanitary code and violations of 
 fire prevention ordinances, as well as defective streets, side-walks, 
 sewers, and all other public works activities. 
 
 It is suggested that the city be divided into districts and that a 
 patrol inspector be assigned to each of the districts to report currently 
 on the conditions of the public works in his district with particular 
 reference to statements of work necessary to be done. 
 
 Use of Police Officers 
 
 With more than 100 police patrolmen on beat throughout the city, 
 it is poor organization not to make use of their service in reporting on 
 public works conditions. No special technical training is needed to 
 determine whether there is a dangerous hole in the street, whether a 
 catch basin on a sewer needs cleaning, or whether a permit opening 
 has been poorly back-filled and unplanked. All that is needed is to 
 provide the police officers with a proper form of report card so that 
 without any hindrance to their police duties information which they 
 collect may be made available to the city departments responsible for 
 the correcting of the defective conditions. 
 
 It is suggested that every police officer be provided with a postal 
 card report form, self addressed to the department of improvements, 
 and that space be provided on this blank for the easy reporting of all 
 defective conditions in the public works. It would be advisable for 
 the chief engineer and the commissioner of public works to instruct 
 the police officers in just what constitutes public work defects. The 
 only instruction needed is simple, and can be easily understood by any 
 one competent to hold the position of patrolman. Such instructions 
 could then be printed in pamphlet form and distributed among the 
 patrolmen. 
 
 Inspection Forms and Piling 
 
 One of the most important elements in obtaining accurate field 
 reports is the provision of proper forms and records for such reporting. 
 Adaptability or lack of it in field reports usually means the obtaining 
 of serviceable or useless reports. Every field report should be drawn 
 in standard size, not to exceed 4% inches in width and 9^4 inches in 
 length (the size which is rapidly becoming standard all over the 
 country for field inspection reports). By the use of a 1% "^h binding 
 margin in the form of a perforated stub, these reports can be hied 
 directly on the 8 inch base in a standard 8x5 file cabinet as they are 
 received in the main office. 
 
424 DENVER 
 
 A convenient type of loose-leaf binder, either aluminum or card- 
 board, should be provided for all field operating officers to hold blank 
 inspection reports and cost reporting forms while on duty in the field. 
 One of the most essential items to the obtaining of accuracy in field 
 reports is to make sure that the reports be made out on the work rather 
 than taken home and made out at night. Permit, sidewalk, highways, 
 sewers, bridges, street cleaning and every other kind of inspection re- 
 port can be adapted to this size and this method of handling. 
 
 Filing- Control 
 
 The use of loose-leaf inspection reports of standard size not only 
 facilitates the preparation of field reports, but also assists materially 
 in filing control in the main office. 
 
 The fundamental basis for filing of public works reports must be 
 by location. This applies equally to statements of work necessary to 
 be done and to reports of work completed. Experience in a number of 
 cities has proved that the best basis for establishing filing control is 
 by blocks and intersections, including in each filing compartment all re- 
 ports applying to one street block and one intersection. With such a 
 general basis it is possible to make more intensive subdivisions of the 
 public works activities for each block and intersection group in the 
 city. Thus, it would be possible to establish a subcompartment for 
 
 1 — Inspectors ' reports on work in progress 
 
 2 — Inspectors' reports on completed operations 
 
 3 — Job costs on 
 
 a — Sewer flushing 
 
 b — Sewer cleaning 
 
 c — Highways construction 
 
 d — Highways maintenance, etc. 
 
 ANNUAL REPORT 
 
 An annual report of a city department may be judged from two 
 mam standpoints (1) its effectiveness as a document for administrative 
 control, and (2) its effectiveness as a document which can be used by 
 citizens for measuring the efficiency of a city department ' 
 
 lhe annual report of the department of improvements for 1913 
 is patterned generally after the reports of the former board of public 
 works. As it is the first report prepared, and as it was prepared by 
 the secretary of the board of public works, it was not surprising to 
 fand that the most valuable part of the report is that which deals with 
 the board of public works activities. The bureaus and divisions in the 
 department have little of value in the report, 
 
 The organization of the department of improvements was not in 
 ettect ; until the fiscal year 1913 was well under way, and this no doubt 
 caused considerable confusion in the developing of the reports of the 
 
DEPARTMENT OF IMPROVEMENTS 
 
 425 
 
 JoT wuTi^Zlf 8 °^ anizati0 °-. I* » to be hoped that the report 
 
 X^^szt:r^^ comi - ^ & £ ^ 
 
 this ZV'C ^ 11 - b i° ar - d + - 0f PUWie WOrks can be fair] y eri tized at 
 this time The principal criticism is that the report includes too much 
 repeated detail and lacks comparative statistical data. Practical? all 
 of the written descriptive matter included could be better and more 
 
 I?"??? ta + b , IeS " F ° r aU Praetical P ur P° ses the tabular mat! 
 ter now included m the report is an exact duplication of most of the 
 written descriptive information. ' 
 
 Comparative Data Needed 
 
 As it is only by comparison that the results of any organization 
 may be measured, it is esential that the annual report of the depart- 
 ment of improvements provide a basis for comparing the work carried 
 on and completed by that department in the report year with work 
 carried on by similar departments in other cities and by the same de- 
 partment in other years. This is purely a question of arrangement 
 and the provision of proper comparative tables. Inclusion of such 
 comparable data would increase the value of the report both to the 
 citizen and to the administrative officer. 
 
 GENERAL ACCOUNTING 
 
 Unnecessary Duplication of Work 
 
 It is not the purpose of this report to enter into a detailed dis- 
 cussion of the general accounting requirements of the charter to sug- 
 gest a means for obtaining proper administrative control in the de- 
 partment. Both of these subjects will be taken up in the report deal- 
 ing with the auditor's office. It is, however, of importance to know 
 that in the department of improvements the fund and appropriation 
 accounting of the auditor's office is being duplicated at least three 
 times in two different divisions of the department. If the books of 
 the auditor, or the properly designated central accounting office, carry 
 out their proper function, there is no need for detail fund accounting 
 in the department of improvements. At the present time all of the 
 information obtained from the appropriation records of the department 
 of improvements may be obtained directly from the books of the aud- 
 itor. Neither of these records provides complete information. In fact, 
 neither the auditor's records of the appropriations of the department 
 of improvements, nor the departmental records show liabilities or in- 
 cumbrances against appropriations. This makes it impossible to es- 
 tablish a control over expenditures from these records which will sat- 
 isfy the specifications of the charter. Section 33 of the charter pro- 
 vides that no liability or indebtedness shall be incurred in excess of 
 appropriations, nor shall any claims incurred in one fiscal year be- 
 come a charge upon or be paid out of the income or revenue of any 
 other fiscal year. Although "the abuse of this section has not been se- 
 
426 DENVER 
 
 rious, there are no records available for the administrative officers of 
 the department which would prevent over-expenditures from appro- 
 priations. Several 1913 bills were carried over by the department to 
 be paid out of 1914 appropriations. The total of these bills was not in 
 itself an important factor. 
 
 The Duplication of Records Described 
 
 In order to explain more clearly the duplication in the accounting 
 work of the department of improvements, it was thought desirable to 
 trace a voucher through the department. 
 
 A requisition for the purchase of asphalt for the asphalt plant 
 would be made out in the department, transmitted to the bureau of 
 supplies, and the purchase made. When the invoice had been received 
 by the bureau of supplies, it would be returned to the bureau of high- 
 ways' accounting division, and the following entries made: first, into 
 the requisition ledger, showing date, requisition, and the amount, un- 
 der the heading "Asphalt Plant," next to a detailed expenditure anal- 
 ysis showing the amount distributed according to an arbitrary supply 
 classification; then, to an appropriation ledger, showing the total 
 amount as a debit against the appropriated amount as the credit. 
 When the invoice had pased through the accounting division of high- 
 ways, it would be forwarded to the secretary of the board of public 
 works, and during and after consideration by the board of public 
 works it would be entered, first, in the minutes ; second, in the voucher 
 register; third, in the division ledger (appropriation ledger), and then 
 vouchered and forwarded to the auditor for the drawing of the war- 
 rant. The auditor would then post the amount of the warrant as a 
 debit against the appropriation to the highways department; seven 
 records to obtain two statements; (1) a statement of unexpended bal- 
 ances of appropriations, (2) a classification of purchases according to 
 an arbitrary expenditure classification of supplies and materials. Two 
 records and two postings are all that is necessary to obtain this in- 
 formation; one in the auditor's office and one in the department of 
 improvements. Whether the entry in the minute book of the board of 
 public works could be eliminated is a question. There is no doubt, 
 hoAvever, that four of the postings and four of the records are duplica- 
 tions and a waste of time. 
 
 One-Twelfth Limitation on Expenditures Criticised 
 
 Section 32 of the charter provides that after an appropriation has 
 been made, not more than one-twelfth of the funds shall be expended 
 in any one month, with the exception of "appropriations to meet the 
 expenses of elections, for the support and maintenance of the assessor's 
 department, and for the department of health, highways, sprinkling, 
 libraries and parks." Properly administered, there is no division in 
 the department of improvements, or in any department of public 
 works, which can be operated upon a one-twelfth basis. Several of the 
 divisions of the department of improvements, i. e., the street cleaning 
 and sewer flushing divisions, the permit division, and the sidewalk di- 
 vision, have not been excluded from this provision. Moreover, if- a 
 
DEPARTMENT OF IMPROVEMENTS 427 
 
 properly segregated budget be installed, and the appropriation of 
 wages separated from the appropriations for other kinds of personal 
 services, the variation in the days of the month and the holidays within 
 the month will make it impossible to comply with this provision. The 
 intentions of the charter drafters in putting such a provision into the 
 charter are to be commended. It is not the kind of a provision, how- 
 ever, which should be included in a charter. It is meagre, unscientific, 
 and wholly impracticable as it stands, but should be corrected and 
 made a controlling factor in the annual budget. (See criticism of 
 budget.) 
 
 Central Accounting 
 
 "What accounting and recording is actually needed in the depart- 
 ment of improvements should be centralized under one head and in 
 one office. At the present time each bureau and division has certain 
 employees assigned to assembling various clerical records. A good 
 part of this work could be centralized in one office in the City Hall, 
 but all of the work should be placed under the supervision of a chief 
 accounting officer. (See organization chart.) With proper account- 
 ing records and organization, less than half the present force could 
 obtain all the information now being obtained for the administrative 
 officers. There is need, however, for more exact information on unit 
 costs, shop costs, and operating expenses. 
 
 Need for Cost and Expense Records 
 
 Generally speaking, the only cost records which approach accu- 
 rate detail are those maintained in the asphalt plant. The other divi- 
 sions of the department are practically without records of operating 
 costs The value of cost and expense records is so universally admitted 
 as to need no brief in this report. Steps should be taken. at once to 
 insure their installation in the department of improvements. 
 
 COST AND EXPENSE RECORDS 
 
 It will be impossible in the space of this report to do more than 
 touch upon the main points of a cost and expense system adapted to 
 the needL of the department of improvements. . The principal point to 
 be kept in mind in cost and expense record installation is that the 
 records are to be used primarily in administrative control of field 
 operationr With a prope? budget classification showing "functional 
 ?E5 of expenditure " and "character of expense groupings, the 
 exnen e ^edgefi a comparatively unimportant financial umtrnment 
 f^ current use. It is of importance mainly as a monthly, semi-annual 
 
 ° r ThTklnroSTecoVds most serviceable for a public works de- 
 partment is that which emphasizes the following elements: 
 
 l_Job costs and unit costs, where possible 
 
 2— Location recapitulations 
 
 3 pield organization recapitulations. 
 
428 DENVER 
 
 Standardization of Field Report Forms 
 
 What is needed first is the standardization of field report forms 
 with two main principles in view. First, convenience for use in filing, 
 and second, adaptability for easy recapitulation and filing in the main 
 office. One of the greatest difficulties in the development of a unit 
 cost and expense system in a department of public works has been to 
 obtain accurate information from the operating employees, and to pro- 
 vide current intelligible recapitulations without increasing the over- 
 head expenses for such service. To this end more can be accomplished 
 toward the development of proper field records and office filing sys- 
 tems than toward any other factors in cost and expense accounting. 
 
 The field reports should be developed with the idea of making it 
 possible for every operating employee having to do with the supervi- 
 sion of field work to carry with him a complete pad of blank report 
 forms and in the same binder to maintain a file of authorizations to do 
 different kinds of work or to undertake different jobs. It must also 
 be remembered that the field reporting forms for the cost and expense 
 control, payroll preparation, and general inspection should be made 
 standard and should pass through the same general filing control in 
 the main office. In other words, there should be established a general 
 office plant for controlling field reports. 
 
 Job Cost Records 
 
 If it is planned to emphasize job costs as the first cost recapitu- 
 lation, the first step should be the development of a combined job 
 authorization or order to do work, and a job cost card in which the 
 former would be an order to an operating employee to carry on certain 
 work and be used at the close of the work for reporting quantities of 
 work done, and the latter would be at once an office record of work 
 ordered and a posting medium for entering current reports of labor 
 and material properly chargeable to the job. 
 
 The second step should be the development of report forms for 
 reporting to the main office direct labor and material charges against 
 various jobs. It is further suggested that by a proper differentiated 
 color scheme the classes of jobs may be designated by colors. This 
 would also assist in the handling of reports after they were received 
 in the main office. 
 
 Recapitulations 
 
 From the standpoint of administrative control, recapitulations of 
 job costs are by far the most important records in the entire system 
 Ihese recapitulations should be drawn in such a manner that they will 
 
 1— Comparative efficiency of different field organization units- 
 such as paving gangs— engaged on the same work but under 
 different supervision and in different sections of the city 
 
 2— Comparative efficiency of the same organizations from day to 
 
DEPARTMENT OP IMPROVEMENTS 429 
 
 3 — Weekly expense of carrying on various operations of the de- 
 partment, analyzed in detail 
 
 4 — Monthly or semi-monthly recapitulations as a basis for post- 
 ing to the expense ledger 
 
 5 — A filing recapitulation according to locations 
 
 The recapitulations of cost and expense records, like the recap- 
 itulation pi progress reports on contract work, are the only records of 
 particular value in controlling the operations of a large department. 
 They are the kind of records which are now lacking but which should 
 be available at all times for use by the commissioner in charge of the 
 department. It is only through intelligent recapitulations of cost and 
 expense records that the chief administrative officer of a large depart- 
 ment can keep in touch with and maintain control over the work for 
 which he is responsible. The main criticism of the general adminis- 
 trative control of the department of improvements as evidenced dur- 
 ing this investigation was that the commissioner in charge had no in- 
 formation from which could be obtained a complete picture of the 
 operations of the department and upon which orders to do work, to 
 change methods, or to stop work could be based.^ 
 
 Filing 
 
 It has already been pointed out that the cost and expense system 
 for the department of improvements should be tied in with the inspec- 
 tion and general file reporting. The interlocking point in the two sys- 
 tems would be found in the filing plant. The kind of plant best 
 adapted to this purpose— the block and intersection file— is considered 
 in detail under the inspection section of this report. 
 
DEPARTMENT OF IMPROVEMENTS 431 
 
 Part II — The Bureau of Engineering and Surveying 
 
432 DENVER 
 
 PART II— THE BUREAU OP ENGINEERING AND SURVEYING 
 
 ORGANIZATION 
 
 Engineer in Charge 
 
 The bureau of engineering and surveying is under the direct 
 supervision of the engineer, who is also a member of the board of pub- 
 lie works. The duties of the engineering division are to provide en- 
 gineering, drafting, and surveying service for the department of im- 
 provements, to inspect contract work, to prepare plans and specifica- 
 tions, and to be generally responsible for the engineering work of the 
 department of improvements. 
 
 Detail criticism of the organization of the bureau of engineering 
 is considered graphically in the charts showing the present and pro- 
 posed organization for the department of improvements. In short, the 
 bureau of engineering as now constituted is too restricted in its duties 
 and too poorly functioned to produce the most efficient and economical 
 results. 
 
 Primarily, in a city the size of Denver, the entire engineering 
 service should be centralized in one bureau, and upon requisition, made 
 available to every organization unit in the city government. This is 
 not true at the present time in the case of the engineering division of 
 the department of improvements, although certain work in drafting 
 and designing is now done for the park department by this division. 
 Moreover, the fact that in the organization of the department of im- 
 provements the services of the engineering officers has been confined 
 almost entirely to the construction side of the work has resulted in the 
 maintenance work being carried on without engineering supervision 
 of any sort. * 
 
 It is admitted today that many of the most important problems 
 of a public works department are those of maintenance rather than 
 those of original construction and design. This applies particularly 
 to pavement maintenance. As at present organized there is no direct 
 engineering supervision over any of the operations of the highways 
 situation, which is without doubt partly responsible for many°of the 
 inefficient and wasteful methods in use there. 
 
 Engineering Office 
 
 The filing, recording, drafting and general engineering office 
 work is under the direct supervision of the chief draftsman The force 
 at the time of this survey consisted of six draftsmen and a chief drafts- 
 man. 
 
DEPARTMENT OF IMPROVEMENTS 433 
 
 OFFICE METHODS 
 
 It is the duty of this division to compute estimates for preliminary 
 and final payments, to prepare plans, and to record, file and preserve 
 all engineering data of value. 
 
 Filing 
 
 Generally speaking, the kind of data filed by the office organiza- 
 tion <5f the engineering division is of sufficient importance to demand 
 fire and burglar proof protection. There is no question that the rec- 
 ords now filed in the office of the engineering division are of great 
 value, but little protection has been provided for them. Two vaults 
 are available for filing, but the actual filing equipment is largely of 
 wood, and many of the supporting documents are filed outside the 
 vaults. 
 
 Progress Reports 
 
 Two kinds of inspectors' progress reports are received by this di- 
 vision. These are inspectors' reports on sewer and pavement work. 
 The mere fact that these reports are received directly by the head of 
 the office force of the engineering division before passing through the 
 • administrative offices is indicative of the fact that the reports are 
 not used for administrative or engineering control of the field work. 
 
 Of the two reports, the sewer report is of the most value, the high- 
 way report being practically valueless. The sewer report contains a 
 daily report of the number of Y's and branches attached to a main or 
 lateral sewer. From these reports the locations of the Y's and branches 
 are plotted on the general sewer maps. The pavement reports are 
 often not turned in until the end of the work. They contain no state- 
 ment of quantity and are practically useless for administrative or en- 
 gineering control. 
 
 There is no reason, however, why the inspectors engaged in high- 
 way construction work, whether by contract or departmental labor, 
 cannot be used effectively in obtaining accurate, live information in 
 the main office regarding the work done in the field. The kind of 
 report needed here is taken up under the general head "inspection 
 reports." The report should be in the form of a certification and 
 should emphasize quantities and qualities of work done and material 
 used. 
 
 The sewer reports are received currently, and what information 
 they contain is of considerable value. They should be amplified, how- 
 ever to include accurate statements of work done and materials used 
 in the course of the work with the certification that both are in strict 
 conformance with the specifications of the contract. 
 
 General Sub-Sitructure Maps 
 
 With the exception of city-owned sub-structures (at the present 
 time sewers alone), the department has no record of the lines or grades 
 
434 DENVER 
 
 of sub-structures in the street. It is difficult to make the officers of 
 a comparatively young city realize the importance of properly main- 
 tained records of the sub-structures, both public and private, occupy- 
 ing the public highways. It is only by judging from the experience 
 of the older cities, and particularly the borough of Manhattan of New 
 York City, that the value of accurate location maps of all sub-struc- 
 tures can be appreciated. As has been conclusively proved, much of 
 the damage to monolithic pavements is caused by cutting the founda- 
 tion and surface for the purpose of making repairs to or constructing 
 sub-structures. The importance of adequate sub-structure records can 
 be better understood. It too often happens that a public service cor- 
 poration, a plumber, or a private property owner, in attempting to at- 
 tach to or repair a water main, gas main, or electric light conduit, is 
 forced to dig a number of test holes, to tunnel, and to sound in order 
 to find the desired structure. 
 
 It has been found by experience that the practice of depending 
 upon private corporations to maintain these records has almost in- 
 variably resulted in losing most of the desired information. This work 
 should be carried on by the city, and it should be started by Denver 
 immediately in order that the work will not accumulate so rapidly 
 that it will be difficult to get a complete and accurate record.' 
 
 It would be advisable to have plotted on one plan all of the sub- 
 structures in a street, so that the inter-relation of the various conduits, 
 mains, sewers, etc., can be plainly seen without the confusion of dif- 
 ferent conventional signs and plans drawn to different scales, as would 
 be the case were separate sets of plans maintained for each kind of 
 sub-structure. However, if it be found impossible or inadvisable to 
 start the recapitulating work at once, the department should at least 
 insist on the filing of complete plans of sub-structures by every cor- 
 poration using the streets for this purpose. 
 
 Lot and Block System 
 
 Through the supervision of the platting of new additions and gen- 
 eral surveying to determine property lines the bureau of engineering 
 and surveying of the department of improvements has an excellent op 
 portumty to improve the land descriptions for the purposes of taxa 
 tion. The need for a lot and block system to describe property is Ex- 
 plained in detail m the section of the report dealing with the assess- 
 ment and collection of taxes. The engineering division of 'the depart 
 ment of improvements should be responsible for th s work howeveJ 
 It is not a simple undertaking to revise the land description 'scW of 
 a city, but the advantages to be gained from the use of the scientific 
 section lot and block numbering scheme for describing propertv in 
 facilitating the general procedure in connection with The SeS of 
 taxes, would well warrant the expenditure and effort COilectl0n 0± 
 
DEPARTMENT OF IMPROVEMENTS 435 
 
 LIGHTING INSPECTION 
 
 The duties of the lighting inspector are to supervise in a general 
 way the operation of the lighting contract. At the time this investi- 
 gation was made, the lighting inspector was devoting practically all 
 of his time to health work and was de facto a sanitary inspector. This 
 situation is interesting from two standpoints, first, that the loose con- 
 trol of the civil service permits the use of a lighting inspector as a 
 sanitary inspector, and, second, that there is not sufficient work in 
 lighting inspection to consume the entire time of one man. 
 
 It is recommended that the supervision of the lighting contract be 
 placed under the bureau of engineering and surveying of the depart- 
 ment of improvements and that the lighting inspector be dropped from 
 the rolls <3f the department of social welfare. 
 
 The appropriation for the lighting contract, which amounts to 
 approximately $200,000 for 1914, should be made to the department 
 of improvements. At the time this investigation was made there were 
 in operation 2,221 street arcs, 517 ornamental ares, and 771 incan- 
 descent lights. The contract for lighting will expire in 1916. The 
 equipment is owned by the Denver Gas and Electric Company, with 
 the exception of certain ornamental light standards bought by mer- 
 chants. 
 
 Inspection 
 
 The records of the lighting inspection were the only records found 
 which gave evidence of much police co-operation. The police reports 
 on light outages were satisfactory, but entirely too few. It was found 
 that the reports from the company invariably outnumbered the reports 
 received from the police officers. For example, on May 1, 1914, 82 
 reports were received from the company and 13 from the police. 
 
 It is suggested that the post card report books which were recom- 
 mended for use by the police officers in connection with the reporting 
 of public works defects for the department of improvements include 
 places for the reporting of defective lamps and inferior lighting. 
 
 Light Testing 
 
 From an examination of the records and procedure of the light- 
 ing inspection division it would appear that the question of whether 
 the lights were burning or not is of sole importance. An equally im- 
 portant phase of light inspection is a determination of the lighting 
 value received from the various kinds of lights. It is suggested that 
 at periodic times during the year photometer tests be made to deter- 
 mine the lighting efficiency of the various lamps. Dirty lamp globes 
 inefficient contact, and imperfect lamps are in the same class with 
 lamp outages, the only difference being a matter of degree. 
 
DEPARTMENT OF IMPROVEMENTS 437 
 
 Part III— The Bureau of Highways 
 
DEPARTMENT OP IMPROVEMENTS 439 
 
 PART in— THE BUREAU OF HIGHWAYS 
 
 ORGANIZATION 
 
 As at present organized, the bureau of highways consists of the 
 highways maintenance division, the street cleaning division, the street 
 sprinkling division and the sidewalk division. The commissioner of 
 highways also has general, although indirect, supervision over the 
 asphalt plant and the stone block repair works. Of all the suborgan- 
 ization units of the department of improvements, the bureau of high- 
 ways is the best example of the need for complete reorganization along 
 functional lines. 
 
 This situation was exemplified particularly during this investiga- 
 tion, when it was found to be practically impossible to find out from 
 subordinate employees the officers to whom they were reporting di- 
 rectly and to whom their superior officers reported. Division chiefs 
 themselves frankly admitted that they did not know whether the com- 
 missioner of highways really was in charge of their work, largely on 
 account of the fact that the then highway commissioner did not inter- 
 fere with their plans, organization, or personnel. 
 
 Commissioner of Highways 
 
 The general administrative control of the bureau of highways is 
 vested in the commissioner of highways, who has direct jurisdiction 
 at least over most of the maintenance work, if not over the other 
 activities previously listed under the bureau of highways. The com- 
 missioner of highways is a member of the board of public works. The 
 deputy commissioner is in direct charge of the highway maintenance. 
 
440 DENVER 
 
 HIGHWAY MAINTENANCE DIVISION 
 Duties 
 
 As it was found practically impossible to tell exactly what the 
 duties of the bureau of highways really were, the material in this sec- 
 tion of the report has been restricted to criticism and recommendation 
 on the highway maintenance work of the department. The other sub- 
 organization units of the bureau of highways are taken up elsewhere. 
 
 The bureau of highways has supervision over all of the highway 
 maintenance work except — 
 
 1 — -Asphalt repairs 
 
 2 — Stone block repairs 
 
 3 — Enforcement of contract guarantees 
 
 4 — Repairs to any kind of an improved pavement 
 
 There still remains a .very important part of the highway main- 
 tenance work, but, comparatively speaking, only a small part of the 
 general highway maintenance problem. This work consists in the sur- 
 facing of unimproved roads and the repairing of surfaced streets and 
 unimproved roads. 
 
 Supervision 
 
 For the supervision of this one part of the general highway main- 
 tenance problem, there is available a commissioner of highways, a 
 deputy commissioner, and four district superintendents. Over all of 
 the other parts of the highway maintenance problem there is available 
 for supervision part of the time of the superintendent of sewer flush- 
 ing and part of the time of the engineer. It would seem that the super- 
 vising activities of the maintenance division of the highways had been 
 over-emphasized. 
 
 Surfaced Streets 
 
 The most favored type of highway construction in use by the 
 bureau of highways is the so-called "surfacing." A surfaced street 
 by definition is a street upon which gravel, slag, sand, or broken stone 
 has been spread to a uniform depth of not to exceed three inches, 
 crowned, and compacted by rolling. Surfacing is not paving. The 
 cost of the work is never assessed against the owners of abutting prop- 
 erty; and because surfacing is excluded from the local improvement 
 class no petition of property owners is required. 
 
 From an engineering standpoint, surfacing is nothing more than 
 a variation of the old type of water-bound macadam and water-bound 
 gravel and sand roads, the principal variation in Denver being the use 
 of a slag sand mixture on most of the roads. The surfaced streets are 
 unquestionably a failure. It has been proved too often to admit of any 
 doubt that water-bound macadam or gravel roads cannot withstand 
 automobile traffic. They are expensive to maintain, dusty in hot 
 weather, and muddy after rains. At best, macadam construction must 
 be used as a foundation for bituminous treatments, in order to prevent 
 
DEPARTMENT OF IMPROVEMENTS 441 
 
 the attrition of fast-moving power vehicles from wearing away the 
 seaLcoat and wearing surface ; but water-bound macadam is consider- 
 ably superior to the average type of surfaced street to be found in the 
 city of Denver. Without entering into a detailed discussion of the 
 technique of macadam road building, it may be fairly stated that the 
 true water-bound macadam road consists of from four to eight inches 
 of foundation stone or telford, three to six inches of smaller broken 
 stone, and a seal coat of rock chips and screenings. 
 
 The surfacing going on in Denver at the time this survey was in 
 progress consisted of the application of a layer of broken slag, sealed 
 together by sand. The primary difference between the two types of 
 construction is that a properly built macadam road provides an ex- 
 cellent foundation for subsequent bituminous surface treatments, but 
 a slag sand surfaced street has practically no salvage value ; in fact, 
 if a depreciation account were to be set up, the value of a $1,000 con- 
 struction expenditure for each class of road might be approximately 
 as follows: 
 
 Table of Comparative Value 
 
 Year 
 
 Macadam 
 
 Surfaced Street 
 
 When constructed . 
 
 ..$1,000.00 
 
 $1,000.00 
 
 End of first year 
 
 800.00 
 
 800.00 
 
 End of second year, . 
 
 700.00 
 
 500.00 
 
 End of third year. , 
 
 500.00 
 
 100.00 
 
 End of fourth year. 
 
 400.00 
 
 minus 200.00 
 
 In other words, if at the end of four years the macadam road surface 
 was unfit for carrying the traffic imposed, the foundation and first 
 course of the construction would have a real value as a foundation for 
 subsequent bituminous surface treatment. On the other hand, the sur- 
 faced street material would have to be removed, in part at least, be- 
 fore resurfacing with bituminous wearing surface could be undertaken. 
 
 There is considerable objection to the use of broken slag in the 
 surfaced street construction. When first laid, the slag is exceedingly 
 sharp, and unless properly covered with sand, is hard on automobile 
 tires. Furthermore, although the smelter slag is very hard, it has a 
 low fracture point and the surface course is soon pulverized,_ thereby 
 increasing the dust in dry weather and the surface mud in rainy 
 weather. 
 
 It is submitted for the serious consideration of the department 
 of improvements that the present surfacing methods are merely tem- 
 porary measures. The work done has no permanent value, and when 
 resurfacing with bituminous material is necessary, the slag sand work 
 not only has no scrap or salvage value to determine the cost of the 
 work, but increases the cost of subsequent work on account of a large 
 part of the material having to be removed. 
 
 Corporation Yard 
 
 While this investigation was in progress, the bureau of highways 
 was engaged in fitting up a special corporation yard. This yard is 
 
442 DENVER 
 
 situated at the corner of Twelfth and Curtis streets and is leased for 
 hree years at $150 per month. The yard is more of a barn or enclosed 
 yard [han the ordinary storage yard, there being no outside yard 
 space. 
 
 It happened that the building had formerly been used for factory 
 purposes and there was available a certain amount of machine shop 
 equipment, consisting of 
 
 2 punches 
 
 1 shear 
 
 1 emory wheel 
 
 1 bolt threader 
 
 1 drill press 
 
 1 band saw 
 
 1 G. E. 3 H. P. motor 
 
 1 blacksmith shop equipment 
 
 This equipment was purchased for $250.00. The repairs to the build- 
 ing cost approximately $1,000.00, in lieu of which expenditure an al- 
 lowance of two months' rent was made. 
 
 There is no objection, theoretically or practically, to the mainten- 
 ance of a corporation yard or a number of corporation yards by the 
 highway maintenance division. In fact, proper organization necessi- 
 tates storage facilities for equipment, supplies, and material. It is an 
 open question, however, whether it would not have been more desirable 
 to select two locations equally well, if not better located, in place of 
 one yard in the downtown section of the city. Proper development of 
 the organization of the bureau of highways will unquestionably em- 
 phasize construction, reconstruction and maintenance of departmental 
 labor in the future — especially on improved pavement work. When 
 such time arrives it will be necessary to provide storage places for 
 considerable quantities of highway material. Very little material can 
 be stored at the newly acquired yard. 
 
 Perhaps the most questionable factor in the acquisition of this new 
 yard is whether availability of shop equipment will not cause a decided 
 tendency toward departure from central repair shop principles. For 
 this reason it is suggested that all repair equipment now available in 
 the new corporation yard be transferred immediately to the central 
 repair shop, and that the new yard be used solely for the storage of 
 equipment and supplies and for a central supervising office. 
 
 Interdepartmental Charges 
 
 On several occasions in the past, the bureau of highways has been 
 requested by the park bureau to prepare ground for new playgrounds. 
 During a tour of inspection a highway gang was found to be engaged 
 in work of this nature. The work consisted of levelling and smooth- 
 ing the land in anticipation of the construction of a playground and 
 the erection of an outdoor apparatus. There is no reason why any one 
 branch of the city government should not be called upon by any other 
 branches for work. In fact, efficient use of the city's forces demands 
 
DEPARTMENT OP IMPROVEMENTS 443 
 
 just this kind of service. However, particular pains should be taken 
 to make sure that the cost of such work is properly shown on the ac- 
 counts. Heretofore no appropriation transfers, or even definite state- 
 ment of cost properly chargeable to the park bureau has been made 
 by the bureau of highways when work of this nature has been under- 
 taken. 
 
444 DENVER 
 
 STREET CLEANING DIVISION 
 
 Of all the branches of the department of improvements, the street 
 cleaning division stands, out pre-eminently as the most efficient. Den- 
 ver's streets are clean, and with such a premise, consideration of the 
 activities of the street cleaning department must be based largely on 
 the question of economy rather than effectiveness. 
 
 A comparison of the expenditures for street cleaning in 1913 and 
 the amount appropriated for 1914 is indicative of economy in admin- 
 istration as well as effective street cleaning. In 1912 the street clean- 
 ing expenditures amounted to $164,000; in 1913, they amounted to 
 $148,000; while in 1914, this service amounts to $124,250. This saving 
 has been effected without perceptible decrease in the efficiency of the 
 street cleaning work. It is to be hoped that by more elastic routing of 
 the flusher gangs, additional saving can be effected in the future. 
 
 Organization 
 
 The street cleaning division is a subdivision of the bureau of high- 
 ways of the department of improvements. It is under the immediate 
 supervision of a superintendent of street cleaning. The present operat- 
 ing force consists of 69 men and 44 teams. 
 
 The suborganization of the division consists of six subdivisions: 
 the shop, two sweeper gangs, one flusher gang, one alley cleaning gang, 
 and one hand cleaning gang. 
 
 Uniforms 
 
 An attempt has been made to place all of the hand cleaners or 
 blockmen m uniform. The department purchases for each blockman 
 a khaki uniform for winter wear and requires the employee to furnish 
 one additional khaki uniform. For summer wear the department fur- 
 nishes and keeps laundered two white duck uniforms. 
 
 The effectiveness of the uniforming of the blockmen is materially 
 decreased, however, by the lack of uniform hats. From the standpoint 
 o± appearance a uniform, neat, well adapted hat is an essential part 
 of any uniform. It is suggested that for the current year the depart- 
 ment furnish white duck helmets for the use of the hand cleaners. 
 These helmets are excellent sun shades, easily kept clean, and com- 
 the 1 " force 7 meXpensive - The y would add mue h to the appearance of 
 
 Criticism of Flusher Routing 
 
 of the fact that every street is gone over twice. account 
 
DEPARTMENT OP IMPROVEMENTS 445 
 
 There is no doubt thut on certain heavy traffic streets two flush- 
 ings are needed to clean the pavements. There are, however, many 
 streets where a single flushing would answer the purpose, with pos- 
 sibly a double flushing once a week. During this investigation an 
 examination was made of many blocks cleaned by the flushing ma- 
 chine. On lower Broadway, for example, the first flushing cleaned 
 the pavements of practically all the dirt and rubbish. The second 
 flushing is essentially a luxury. 
 
 With a rearrangement of the flushing routes more territory could 
 be covered at the same expense with distinct advantage to other parts 
 of the city which are not now cleaned by flushers. 
 
 Effect of Unimproved Intersecting' Streets 
 
 Of the dqwntown streets, West Larimer street was particularly 
 conspicuous as usually being in a dirty condition. This was not due 
 to inefficiency on the part of the street cleaning forces, but rather to 
 the fact that intersecting West Larimer street are a number of unim- 
 proved streets. Traffic coming from these unimproved streets carries 
 on to the asphalt pavements great quantities of sticky mud, with the 
 result that the pavement becomes dirty immediately after it is cleaned. 
 
 No method has as yet been discovered which will completely elim- 
 inate this nuisance. The nearest approach to a satisfactory remedy 
 has been found in the use of broken stone on the wings of the improved 
 streets which abut unimproved streets. Where mud is particularly 
 sticky, even this method has been of little value. It is suggested that 
 the bureau of highways establish along Larimer street, as a test, strips 
 of broken stone at the pavement wings. The expense entailed is not 
 great, and the results might be of particular advantage in keeping 
 such streets as West Larimer clean. 
 
 Street Cleaning Shop 
 
 With a municipal shop in operation, it is the presumption at least 
 that individual shops will not be maintained by the various depart- 
 ments, but the street cleaning division, like the bureau of highways, 
 maintains a separate shop. - At the time this survey was made, four 
 men were employed in the street cleaning shop in building wagon beds 
 to be used on clean-up day. If a central city shop is to be maintained, 
 the establishment of individual repair shops by various divisions of the 
 city government is bad practice. 
 
 The use of shop employees for building wagons is a common 
 method for utilizing the idle time of a repair shop The us* * of waste 
 shop time in building street cleaning wagons or other city equipment 
 has usually resulted in that particular equipment costing many times 
 tH sum it would have cost tS purchase it in ^e open market^lreag 
 manufactured A repair shop should confine itself solely to repair 
 wk and to the manufacture of only such articles as are needed m 
 very small quantities and which cannot be obtained through contract 
 or open market purchase. 
 
446 DENVER 
 
 Central shops have proved their worth in many cities, and the 
 theory of such organization can hardly be questioned today. There 
 does seem to be some question in the minds of the various division 
 chiefs as to whether they can obtain proper service from the central 
 shop now in operation in Denver. This is not an argument against a 
 central city shop, but, if true, it is indicative of administrative ineffi- 
 ciency in the operation of the present city shop. What is needed is 
 correction of the inefficiencies in the city shop rather than the estab- 
 lishment of many individual repair shops. 
 
 The point is not made that the four men in the street cleaning 
 shop were inefficient, but rather that the efficiency of repair work 
 could be increased, and that the amalgamation of the street cleaning 
 shop with the city shop would be particularly of advantage in increas- 
 ing the efficiency of the work done by the city shop for other depart- 
 ments of the city government. 
 
 Charging of Repair Expense Criticized 
 
 In the section of this report dealing with the city shop, the method 
 of charging departments for the cost of work done is criticised in de- 
 tail. The inadequacy of this plan was brought out particularly during 
 the investigation of the street cleaning division. 
 
 Practically all of the rolling stock of the street cleaning division 
 has been, or is to be, repainted by the city shop. Many of the dump 
 wagons which were injured in removing the snow last winter have 
 been practically rebuilt in the city shop this spring. In charging the 
 street cleaning division for this work, only the cost of material used 
 is shown as a street cleaning expense. In both the painting of the 
 rolling stock and the rebuilding of the dump wagons the largest item 
 of cost is labor. Thus the street cleaning division is relieved of a 
 majority of the expense which should properly be shown against its 
 appropriation. This is a matter of accounting, and, as has been 
 pointed out in the criticism of the city shop, should be corrected, not 
 only by the street cleaning division, but by all departments of the city 
 government. The work done for the street cleaning division in the 
 city shop is just as much a street cleaning expense as the payroll of 
 the street cleaners. 
 
DEPARTMENT OF IMPROVEMENTS 447 
 
 GENERAL STATEMENT REGARDING RECOMMENDATIONS 
 
 With an organization like that of the Denver street cleaning divi- 
 sion, where much has been done to place the street cleaning operations 
 on an efficient basis, it is possible to make more detailed recommenda- 
 tions and to suggest more intensive administrative control than would 
 be possible in a fundamentally inefficient organization. It is with such 
 an idea in view that many of the following recommendations have been 
 included. It is to the credit of the street cleaning division that route 
 slips are available and used currently in controlling the field operations. 
 The point is not made that these route slips are bad, but rather that 
 they could be improved. The same attitude engendered the recommen- 
 dation rgarding a more extensive distribution of the flushers through 
 the establishment of varying routes and work units. 
 
 Sidewalk Flushing 
 
 It is unusual for a municipal street cleaning division to undertake 
 the job of cleaning sidewalks even in the downtown districts. Insofar 
 as the investigations of the Bureau of Municipal Research are con- 
 cerned, the Denver street cleaning division is unique in this respect. 
 The sidewalk flushing crew consists of two men and a 700 gallon tank 
 pressure flusher. Practically all of the sidewalks in the downtown 
 district are cleaned once a week by this crew. The practice, according 
 to the statement of the superintntendent, was inaugurated in order to 
 assist the street cleaning division by keeping the dirt and rubbish off 
 of the sidewalks, but the amount of work which can be accomplished 
 by this one crew in one night is only about five per cent of the area 
 cleaned by the street cleaning crew. Thus, it is absolutely impossible 
 to obtain much effect in keeping the streets clean by flushing a few of 
 the sidewalks. 
 
 Moreover, there is in existence at the present time a very compre- 
 hensive sidewalk cleaning ordinance which, if properly enforced by the 
 police, would eliminate all necessity for special cleaning of any par- 
 ticular sidewalks. 
 
 If it were found necessary to stress for the time being the enforce- 
 ment of this ordinance, much more value could be obtained by spend- 
 ing the same amount of money for sidewalk inspectors as is now 
 expended in maintaining the sidewalk flushing crew. 
 
 From the standpoint of an equitable distribution of the tax burden, 
 the practice of cleaning a few sidewalks in a restricted section of the 
 city is also subject to criticism. The cost of this work is paid for ■out 
 of the general funds of the city, yet this benefit is distinctly local in its 
 nature There is no question that the abandoning of the sidewalk 
 SusSg would occasion but little change in the condition .of the streets 
 and thf use of this money and of the equipment for flushing the streets 
 would The of great help in increasing the cleanliness of the downtown 
 Seels To continue to maintain a sidewalk flushing crew would be a 
 waste of money. 
 
448 DENVER 
 
 Cleaning the City Market 
 
 Under the present practice, the street cleaning division is required 
 to clean the city market stand used by the farmers and the truck 
 gardeners. There is no particular objection to having the street clean- 
 ing division responsible for this work, but the cost is not a proper 
 street cleaning charge. If possible, a special revenue should be pro- 
 vided for this purpose out of the funds obtained from a small fee 
 charged to the- farmer using the stand. The expense is more nearly 
 a health and sanitation expense, or at least a garbage removal expense, 
 than a street cleaning expense, and should be shown as such on the 
 city's books. 
 
 Uniforms for Superintendents 
 
 The same reasons which actuated the uniforming of the blockmen 
 are equally applicable to the street cleaning foremen and flushermen, 
 superintendents, etc. A cheap serviceable uniform would add much to 
 the appearance of the force and materially increase citizen co-operation 
 and civic pride. For the foremen and district superintendents a simple 
 serviceable olive drab uniform would be the most effective. For the 
 drivers, flushermen, and others whose work is largely night work, a 
 khaki uniform would be suitable. 
 
 Catch Basin Flushing Vs. Street Flushing 
 
 The question of catch basin and sewer flushing is taken up else- 
 where in this report — the conclusion being that the catch basin flush- 
 ing work had been greatly overestimated and also a waste of- money. 
 This conclusion is fortified by an analysis of the amount of street flush- 
 ing done and the amount of water consumed in this work. 
 
 According to the statement of the superintendent of sewer flushing, 
 it had been and was the practice to flush the sewer basins and the down- 
 town sections of the city two or three times a week during the summer 
 months. At the time this survey was in progress, the catch basin 
 flushing crew was observed at work on many of the downtown streets, 
 notwithstanding the fact that the weather was moderate and that a 
 special investigation of the sewer catch basins showed that not a single 
 basin inspected was emitting obnoxious odors. At the same time that 
 these catch basins were being flushed by the sewer flushing division 
 forces, the street cleaning division was pouring into each block ap- 
 proximately 2,100 to 3,000 gallons of water every night. It is impos- 
 sible to believe that any sewer catch basin receiving this much flow 
 every night could develop within 24 hours any particularly obnoxious 
 odors which could not be washed away by the street cleaning flushers 
 the following night. 
 
 It is unquestionably true that the use of street flushers for clean- 
 ing streets necessitates a more frequent cleaning of the sewer catch 
 basins, but it does not necssitate the flushing of such basins two or 
 three times a week during any season. 
 
DEPARTMENT OF IMPROVEMENTS 449 
 
 The catch basin cleaning and flushing should be ordered by the 
 administrative officers only after a preliminary inspection had been 
 made and the real need for such work determined. By providing 
 police officers with proper forms of reports and by installing in the 
 department of improvements a central filing division where informa- 
 tion of this character would become available for administrative 
 purposes, the problem of catch basin flushing and cleaning would be 
 greatly reduced. Such a system would probably show that with the 
 use of pressure flushers for cleaning the streets, there was no need for 
 a continuous sewer basin flushing gang. In any event, the sewer flush- 
 ing and catch basin flushing and cleaning should be placed under the 
 jurisdiction of the street cleaning division. 
 
 Sprinkling Vs. Street Cleaning 
 
 The fact has already been brought out that the present street 
 sprinkling organization is over-burdened with time keepers, superin- 
 tendents and foremen. Practically all of the supervising officers of 
 that division could be eliminated by placing the street sprinkling 
 division under the street cleaning division. The work is similar, the 
 equipment almost identical and the kind of organization needed prac- 
 tically the same for street sprinkling as for street cleaning. There 
 would not only be a distinct saving in the administrative cost, but 
 eventually there is no question but that the equipment of the street 
 sprinkling forces could be used by the street cleaning forces as well. 
 
 It has already been suggested that the present $75,000 appropria- 
 tion for street sprinkling be reduced to approximately $25,000, and 
 that this amount be spent almost entirely in oiling the dusty roads. 
 
 The street sprinkling division is now using a pressure sprinkler 
 for water sprinkling. This sprinkler is capable of developing by its own 
 power a pressure of from 45 to 60 pounds. At the same time there is 
 a situation in the street cleaning division where the flushing routes 
 are severely restricted due to the fact that sufficient water pressure 
 cannot be obtained in certain sections of the city to fill the flusher tank ; 
 yet with such an aid nothing has been done to provide the Souer spray 
 with a by-pass attachment for flusher nozzles. This should be made 
 available for night use, at least by the street cleaning division, to clean 
 certain sections of the Capitol Hill district and South Broadway, 
 where the water pressure is too low to permit the use of the ordinary 
 flusher tanks. This lack of co-operation between the street sprinkling 
 and street cleaning divisions is not unique, but is a universal de- 
 deficiency in the entire department of improvements. The sooner 
 the street sprinkling division is made a part of the street cleaning 
 division the. sooner better results can be expected. 
 
 In advocating the consolidation of the street sprinkling division 
 with the street cleaning division, full consideration has been given to 
 the fact that too much emphasis has been placed on water sprinkling 
 in the past. It will probably not be possible the first year to dispose 
 entirely of the water sprinkling plan. It should be discontinued as 
 rapidly as possible. Oil sprinkling, which is needed but once or 
 
450 DENVER 
 
 twice a year at the outside, should be under the direct supervision of 
 the highway engineers, but the equipment of the street cleaning di- 
 vision should be planned along such lines that it will be adapted for 
 use in both fields of work. There is nothing difficult in any of the work 
 necessary to place the street cleaning, the sewer flushing and street 
 sprinkling divisions on an efficient basis. What is needed most is a 
 full conception of the true value of functional organization, and a 
 clearer understanding of the waste and inefficiency which usually 
 accrue from decentralized organization and independent efforts. 
 
 Street Cleaning Routes 
 
 Administrative control of street cleaning forces must be based 
 primarily on the formulation of routes. With intelligent administra- 
 tion these routes are either plotted on district maps or written out in 
 order that the activities and location of the street cleaning forces may 
 be visualized by the administrative officers required to exercise judg- 
 ment and determine where and how much of the work has to be done. 
 
 At the present time the superintendent of the street cleaning 
 division has prepared routes for the various crews. These routes are 
 practically standard and although subject to change are really not 
 changed very often. The criticism of this plan is not that the routes 
 which are now in use have not been well planned, or that the routes 
 are not being followed by the men in the field, but rather that ultimate 
 efficiency in street cleaning will depend largely upon the elasticity 
 of the routing. The present procedure in Denver's street cleaning 
 division is subject to criticism largely on the grounds of inelasticity. 
 
 The primary reason for elasticity in the routing plan is that 
 changes in the weather, changing the conditions of the streets, require 
 different kinds of street cleaning. Certain weather changes are so 
 well pronounced and cause such a distinct change in street conditions 
 that even the ordinary street cleaning laborer can usually be depended 
 upon to change the methods to meet the new conditions. Thus, after a 
 slight rain there is no need for the preliminary softening application 
 of the flusher before the double jet is put upon the street. There are, 
 however, less pronounced weather changes and traffic changes as well 
 which cause gradual changes in street conditions. These conditions 
 must be met by an elastic routing plan, so that after the decision is 
 made by the head of^the street cleaning division, the change in work- 
 ing methods can be effected immediately. 
 
 As an example of this need, the condition on Colfax avenue 
 during the summer months might be cited. If the street cleaning 
 division were provided with a pressure flusher, it would be advisable 
 to flush this street perhaps once each week. The same general condi- 
 tions exist on South Broadway. 
 
 The condition of the streets now cleaned by flushing must be 
 considered with this prospective increase in the scope of the work in 
 order that the full value of the elastic routing plan may be under- 
 stood. 
 
DEPARTMENT OF IMPROVEMENTS 451 
 
 At the same time this investigation was made, Lower Broadway and 
 practically all of the downtown streets were being cleaned by the 
 flushing method. As it happened upon a number of occasions, the 
 streets being cleaned by flushing were hardly dirty when the flushers 
 arrived for their work. If an elastic routing plan were in use such a 
 condition could be determined by a special investigation or special 
 reports from patrol inspectors, and a ' change in method for that 
 night's work automatically inaugurated. 
 
 The essential difference between the elastic and inelastic routing 
 plan is that the former provides a means for carrying out immediately 
 the best judgment of the administrative officer regarding street clean- 
 ing conditions, while the latter is of practically no assistance to the 
 street cleaning superintendents in carrying out a more or less radical 
 change in working program for a short period. The present routes are 
 practically permanent assignments. 
 
 Suggested Procedure 
 
 The principle of an elastic routing scheme for street cleaning 
 work is based solely on the preparation of standard routes for varying 
 conditions. For a city the size of Denver, and with its present street 
 cleaning problem, probably 75 to 100 standard routes would be suf- 
 ficient. These routes cannot be prepared without a thorough study 
 of conditions made during one complete year. They should provide 
 for routing and organization adjustments to satisfy all changes in 
 weather conditions encountered. 
 
 Thus, an exceptionally heavy rain might require the complete 
 reajdustment of the flusher and machine broom routes and a re- 
 organization of the blockmen; this might also automatically initiate 
 a special inspection of sewer catch basins to provide a basis for ad- 
 ministrative judgment in ordering out catch basin cleaning gangs. 
 On the other hand, an extended period of slight rainfall and high 
 temperature might warrant the inauguration of day flushing as well 
 as night flushing and a change in the organization of the machine 
 broom crews providing less wagons and more sprinkling carts. These 
 are but two examples of a great many different conditions and varia- 
 tions thereof which can be planned ahead of time in the organization 
 and procedure of the street cleaning forces. 
 
 Inspection of Fire Plugs 
 
 During the inspection of the work of the street cleaning forces, 
 it was found that the street flushing crews and the sidewalk flushing 
 crew were using the fire plugs for charging the tank wagons. This is 
 a common practice and one which can hardly be avoided, but care 
 must be taken to make sure that the hose connections at the plugs are 
 always in proper working condition. It is hardly necessary to point 
 out the danger of disabled hydrants in the case of a fire in the down- 
 town district of the city. 
 
 At the time this inspection was made a defective hydrant was 
 found at the corner of 15th and Tremont streets. The threads on the 
 
452 DENVER 
 
 hose connection had become worn and were so loose that it was im- 
 possible to obtain a tight connection on one of the outlets. 
 
 Constant use of the fire hydrants for filling flusher tanks will in 
 time wear out the threads on the hose connection. This cannot be 
 avoided, nor would it be advisable to install special water services for 
 filling the flusher tanks. It is possible, however, to provide every flush- 
 er-man with a simple report form and to instruct every street cleaning 
 employe to report immediately to headquarters every defective hyd- 
 rant, no matter how small the defect may be. It is further suggested 
 that a list of all hydrants used by the street cleaning forces be sub- 
 mitted to the fire chief at least once a month in order that a special 
 inspection may be made by representatives of the bureau of fire. 
 
DEPARTMENT OF IMPROVEMENTS 453 
 
 STREET SPRINKLING DIVISION 
 
 The street sprinkling division is under the immediate supervision 
 of a superintendent of street sprinkling, who reports directly to the 
 commissioner of public improvements. The normal organization of 
 this division consists of a superintendent, one foreman, three time- 
 keepers and 89 teams with drivers. - At the time of this investigation 
 only 36 teams were at work. 
 
 Denver has a difficult sprinkling problem to overcome. Of the 
 eight or nine hundred miles of city streets but 10 per cent are paved 
 in such a manner as to make sprinkling unnecessary. The point is 
 made not that dust preventatives are unnecessary in Denver, but that 
 water sprinkling is inefficient and a waste of money. 
 
 Cost of Sprinkling 
 
 In 1913, $72,800 was expended for water sprinkling. For 1914, 
 $73,400 has been appropriated for this work. These figures are of 
 particular interest when compared with the amount appropriated for 
 highway work in 1914. 
 
 The appropriation for the bureau of highways, including the 
 asphalt plant and the surface of the streets, amounts to only $148,- 
 805.55. Thus the department is planning to spend more than half as 
 much for water sprinkling of dirt roads than will be spent for the 
 improvement of roads from the general funds. 
 
 Disadvantages of Water Sprinkling 
 
 It is hardly necessary to prepare a detailed report to point out 
 the many disadvantages of water sprinkling. In hot weather the 
 effect of sprinkling seldom lasts longer than half an hour. Such 
 sprinkling has no beneficial effect on the roads. Water sprinkling is 
 not cumulative in its effect as a dust layer. It is a purely temporary 
 measure, and of the kind which is rapidly being discarded by pro- 
 gressive cities. Water sprinkling of roads is a thing of the past, and 
 certainly should not be continued in Denver except for very special 
 cases. 
 
 Amount of Work Done 
 
 There- are a number of streets and roads in the city of Denver 
 where the street sprinkling department is required during the summer 
 months to sprinkle the roadway six or seven times a day. It there 
 were no other ways to prevent the dust nuisance, water sprinkling to 
 the extent of $75,000 might be warranted. There are, however, many 
 other ways to eliminate dust none of which has been thoroughly tried 
 in Denver. In fact, the only dust preventive measure ever tried m 
 Denver has been the surface treatment of roads with a heavy bitumin- 
 ous oil. The failure of this type of treatment has been used as an 
 argument in favor of water sprinkling. The fact that the bituminous 
 surface treatments were laid without proper specifications and with 
 very imperfect methods has not been given proper consideration. 
 
454 DENVER 
 
 Alternative Methods Considered 
 
 There are two general types of dust preventive work which have 
 been used successfully in many cities: (1) the application of a 
 deliquescent salt to the road; (2) the application of dust layer oils. 
 Of these two methods the latter has given best results, due to the 
 cumulative effect of the oil from year to year. 
 
 The use of a deliquescent salt might, however, be warranted in 
 certain localities. The salt usually used for this purpose is the calcium 
 chloride obtained as a biproduct in the manufacture of bleaching 
 powder. By extracting moisture from the air this salt moistens the 
 surface of the road and prevents the accumulation of dust. Its use, 
 however, is not particularly recommended in Denver. 
 
 Dust-layer oils, of which there are a great number on the market, 
 are particularly recommended for the serious consideration of the city 
 officers charged with this work. One application per year would prob- 
 ably satisfy all requirements on most pf the roads of the city. These 
 oils can be spread with the equipment now owned by the city, and one- 
 third of the amount of money appropriated for water sprinkling would 
 purchase and spread enough dust-layer oil to cover practically all of 
 the streets now sprinkled with water. 
 
 The department now has available one automobile pressure sprink- 
 ler, which alone could probably spread all of the oil necessary to be 
 used. Any additional work necessary could be done with horse-drawn 
 sprinklers, although this method would cost a little more. 
 
 Another advantage of the use of a dust-layer oil comes from the 
 fact that continuous protection from the dust nuisance is obtained. 
 The only real protection from dust obtained from water sprinkling is 
 immediately after the sprinkling carts have passed over the streets. 
 Moreover, the right kind of dust-layer oil has. a very salutary effect 
 on the pavement proper. It assists in maintaining proper drainage 
 of storm water from the surface of the road and tends to prevent 
 raveling of the seal coat on macadam and slag roads. 
 
 Time to Begin Work 
 
 Oiling of roads to prevent dust is usually undertaken in the 
 spring, and if properly done at that time, the roads will retain the 
 oil throughout the entire dry season. The department should at once 
 contract for the purchase of several tanks of dust-layer oil, the cost 
 varying from four to six cents a gallon, depending on the point of 
 delivery. As soon as any surfaced street or unimproved road is put 
 into condition in the spring, the oil should be spread. 
 
 Prompt action in this matter would save to the citizens approxi- 
 mately $50,000 out of the street sprinkling appropriation, which could 
 be used to advantage in constructing good roads. If the present 
 practice of water sprinkling be continued it will mean that $75,000 
 (more than the appropriation for the health department) will be spent 
 to obtain temporary relief. The continuation of temporary measures 
 
DEPARTMENT OP IMPROVEMENTS 455 
 
 in any line invariably means a waste of money. Water sprinkling is 
 no exception to this rule. 
 
 Employment of Timekeepers Criticised 
 
 The street sprinkling division carries on its payroll five super- 
 vising officers, one superintendent, one foreman, and three timekeepers. 
 Even in the summer months with a full quota of sprinklers at work 
 this number is entirely too great. The timekeepers cannot do true 
 timekeepers' work. They are merely inspectors of work done and 
 report the time of the teams upon the basis of work done rather than 
 upon the hours of work. By proper co-operation with the other 
 divisions of the department of improvements, at least three of these 
 men could be eliminated. 
 
 In connction with the questioSi of reducing the supervising corps, 
 it is of particular importance to remember that if oil sprinkling replaced 
 the present water sprinkling, there would be no need for a sprinkling 
 superintendent, a sprinkling foreman, or three timekeepers. The work 
 necessary to oil the streets could be supervised and should be super- 
 vised by the men in charge of highway maintenance. 
 
456 DENVER 
 
 SIDEWALK DIVISION 
 
 The sidewalk division is under the general supervision of a chief 
 inspector who reports directly to the commissioner of highways. The 
 force consists of one chief inspector and four inspectors. The work 
 comprehends the enforcement of the sidewalk ordinances and charter 
 provisions respecting the construction and maintenance of sidewalks. 
 
 As the property owner is responsible for the construction and 
 maintenance of a sidewalk in front of his property, the chief function 
 of this division is one of inspection and the service of formal notices 
 ordering property owners to put their sidewalks into proper condition. 
 If these notices are of no effect the city undertakes the work. Two 
 main classes of sidewalks are permissible under the ordinances now 
 in force * 
 
 1. Flagstone 
 
 2. Cement concrete 
 
 For the construction of these sidewalks the city has advertised 
 for bids and entered into contract upon a unit price basis. 
 
 Need of Centralization of Inspection 
 
 If a proper inspection division were to be established there would 
 be no need for the special detail of inspectors for sidewalk work alone. 
 In fact, if proper use were to be made of police officers more informa- 
 tion could be obtained from reports received from them than from the 
 limited number of public works inspectors. Space for reporting side- 
 walk conditions should be provided in the general patrol inspection 
 form and be made use of by every field operating employee of the city. 
 If the sidewalk inspection reports were then made a part of the general 
 inspection plan, the information there available could be made use of 
 in the same manner as reports on highways, sewers, and other public 
 works conditions. 
 
 Effect of Formal Notices 
 
 Any organization making use of formal legal notices ordering 
 property owners to engage in any work should be careful that the 
 notices so issued have the proper effect. Any legal notice, such as a 
 warrant or subpoena has per se considerable power, as it is the form, 
 the size, the printing, and the general arrangement which carry the 
 official authority more than the signature of the authorized officers. 
 It is advisable to control every legal notice by number, and to require 
 the blank forms for this purpose to be subject to audit by the city's 
 legal officers. Moreover, care should be taken that every notice served 
 by the sidewalk division, either has the desired effect and is answered 
 by the taking out of a permit by the person served, or steps should be 
 taken immediately to order the repair, reconstruction, or construction 
 of the sidewalk in question. 
 
 This procedure was in a transition stage at the time the investi- 
 gation was made. It is hoped that formal procedure covering this 
 
DEPARTMENT OP IMPROVEMENTS 457 
 
 important side of the serving of legal notices for sidewalk repairs has 
 now been installed. 
 
 Sidewalk Permits 
 
 It is suggested that every sidewalk operation be controlled 
 through the issuance of a permit for which a fee is charged. If a 
 centralized permit divisiqn were established, as has been recommended 
 in this report, sidewalk permits could be issued and a charge made 
 sufficient to cover the cost (1) of issuing the permit, and (2) of inspect- 
 ing the work. 
 
458 DENVER 
 
 SEWER FLUSHING DIVISION 
 
 The sewer flushing division is under the general supervision of a 
 superintendent who also is in charge of the asphalt plant and block 
 pavement repairs. The organization at the time of this investigation 
 consisted of : 1 foreman at $100 per month ; 21 men at $75 per month : 
 3 teams at $5 per day; and 7 laborers at $2.50 per day. This division 
 also has been equipped with three 600-gallon'flush tanks. The general 
 problem consists of keeping clean 625 miles of sewers and 4124 storm 
 sewer inlets. The expense for this service has been approximately 
 $30,000 a year for several years. 
 
 Organization 
 
 The establishment and maintaining of a separate division for 
 sewer cleaning and sewer flushing for a city the size of Denver is poor 
 organization and a waste of money. This work could easily be taken 
 care of by the street cleaning division and properly belongs there. 
 This would materially decrease the cost of supervision and the waste 
 of money now caused by duplication of equipment and duplication of 
 effort between the two divisions. 
 
 Study of Catch Basin Problem Needed 
 
 An expenditure of $30,000 a year, largely for cleaning and flushing 
 of sewer catch basins, in itself indicates the need of a careful investi- 
 gation. On account of the cleaning of the streets by power flushers, 
 sewer flushing in the business sections of the city would seem to be 
 practically unnecessary except in exceptional cases. 
 
 In any event, it is imperative thafc^he ordering of work done be 
 based on a preliminary inspection. Tilf e are no records in the sewer 
 flushing division upon which intelligent opinion as to the need for 
 work could be based. These records could be obtained from police 
 officers, sanitary inspectors, highway inspectors, street cleaning super- 
 intendents, and in fact every employee of the city, if proper reporting 
 forms were provided. These reports should be made a part of the 
 general patrol inspectors' reports recommended in the section of this 
 report dealing with patrol inspection. 
 
 Type of Catch Basins 
 
 It was surprising to find that in order to decrease if possible the 
 amount of catch basm cleaning necessary in certain sections of the 
 city, the superintendent of the sewer flushing division had ordered 
 catch basins or sumps filled up in order that the surface water would 
 have a direct flow into the sewer proper. If there were a real need 
 tor the catch basins when the sewer was originally constructed, this 
 changing is a dangerous practice. The cleaning of a sewer catch 
 basm is a comparatively easy problem, but the cleaning of a clogged 
 sewer or lateral is both difficult and expensive. 
 
DEPARTMENT OF IMPROVEMENTS 459 
 
 Working Methods 
 
 It is a rather common sight in the congested sections of the city 
 of Denver to see two men engaged in flushing a sewer catch basin. 
 The sewer flushing crews consist of two men, who are provided with 
 a small cart upon which to transport two lengths of fire hose and a 
 bridge tread for carrying traffic over the hose while on the street. 
 While the actual flushing is in progress, the only function of one of 
 the men it appears is to sit upon the fire plug. One man would be 
 sufficient for this work. 
 
 Direct Flushers 
 
 It is suggested that in the design and construction of catch basins 
 along the line of new sewers, apparatus for direct flushing be provided. 
 If the city had been fully equipped with direct flushing appliances 
 whereby water under pressure could be introduced directly into the 
 basin by turning a key, it would be possible for one or two men to 
 flush all of the catch basins in the city. 
 
460 DENVER 
 
 PERMIT DIVISION 
 
 The permit division of the department of improvements is now 
 operating under a form of divided jurisdiction. The issuance of the 
 permits and the general record where necessary are under the immedi- 
 ate charge of the permit collector. The inspection and field work 
 incident to the repairing of pavements damaged are under the juris- 
 diction of the superintendent of sewer flushing. A change in this 
 organization would be desirable. (See accompanying organization 
 chart.) 
 
 Permits for opening the street pavement to attach to a sewer or 
 build or repair any substructure; permits to erect an awning; permits 
 to erect a sign ; permits to build private drains ; permits to store 
 building material on the street; and other special permits under the 
 jurisdiction of the board of public works are issued by this division. 
 Certain of the operations of the permit division, particularly the 
 central office inspection of the back-filling of cuts, are commendable. 
 The present procedure, the records and kind of inspection are indi- 
 cative of well meaning efforts on the part of the department's officials 
 to develop an efficient organization. Lack of direction is chiefly re- 
 ponsible for the adversely criticised details of this system. The efforts 
 required to institute the necessary changes are very slight. The 
 sooner these changes are inaugurated, the easier it will be to handle 
 the permit problem in the height of the season and to obtain an exact 
 control over the field work. 
 
 Force 
 
 The present personnel of the permit division consists of one permit 
 clerk, two sewer inspectors, one paved street inspector, one surfaced 
 street inspector, one assistant chief inspector. The chief inspector's 
 position is now filled by the superintendent of sewer flushing. 
 
 Forms 
 
 The form of application for inspection, and the permit proper, all 
 show the lack of standardization and design and general set-up. The 
 importance of standardized forms in a permit division can hardly be 
 over-estimated. Ease in handling applications and ease in inspecting 
 permit operations in the field depend very largely upon the kind of 
 forms and office procedure in use. The present application forms are 
 all of different sizes, of the same color, and of different set-up, all of 
 which increases the difficulty of handling. 
 
 The permits are made out in original and stub duplicate, neces- 
 sitating two writings. They are of different sizes and shapes and 
 have different kinds of printed captions. As it is the form and size 
 and color of the permit which makes it the official document in the 
 field when inspected by police officers, or other city officers, rather 
 than the signature of the permit clerk or the commissioner, it is of 
 particular importance that the field officers know an illegal permit 
 when they see it. 
 
DEPARTMENT OP IMPROVEMENTS 461 
 
 For inspection forms this division uses simple 3x5 cards, with 
 very little inscription. Proper inspection forms must be made out in 
 duplicate, or even triplicate, in order to insure a field and office control 
 at the same time, and to provide forms for all necessary operations 
 which can have made out at one writing all descriptive matter as to 
 location and name of permitee that is necessary for completing the 
 entire permit operation. In the space of this report it would be im- 
 possible to outline in exact detail the methods used in the most efficient 
 permit divisions for controlling this work. A number of examples 
 will be considered in the following paragraphs and in the appendix 
 to the report. 
 
 Street Opening Permits 
 
 The present procedure for handling street opening permits is so 
 involved that it is thought desirable to enter into particular detail in 
 this discussion. With the exception of the Denver Gas and Electric 
 Company's permits, every permittee, including plumbers, property 
 owners, and public service corporation, is required to make an indi- 
 vidual deposit with the treasurer before a permit is issued. A running 
 account is carried with the Denver Gas and Electric Company and 
 cleared at least once a month, or oftener, as the case may require. 
 
 This procedure for the payment of permit charges will be criti- 
 cised under that heading. The same procedure for deposits and pay- 
 ments is in use on all permits issued by this department. 
 
 For the issuance of the permit, a fee of 50 cents is charged. For 
 the deposit, out of which can be paid the cost of repairing the pave- 
 ment, fees at the following rates are charged: 
 
 Asphalt $3.00' per square yard 
 
 Concrete 3.00 per square yard 
 
 Brick 3.00 per square yard 
 
 Stone 2.50 per square yard 
 
 Macadam 2.00 per square yard 
 
 Surface streets 15 per running foot 
 
 There is in addition in all cases an arbitrary charge of $2.00 for 
 plumber's hole. 
 
 Four accounts are carried with the Denver Gas and Electric Com- 
 pany, in which the permits are grouped according to, (1) surtace 
 streets, (2) paved streets, (3) permit account, (4) electrica 1 co sec- 
 tions. The surface street deposit, which is the amount re quired for 
 cutting into the unpaved streets, requires no fond, he amou nt o 
 deposit being $2.00. In case of an excess bill an erasure of th e ong 
 
462 DENVER 
 
 general recapitulation, there is made out six or seven times a year, a 
 list of repairs necessary, showing permit number, cut by, location, kind 
 of repair, and blank columns for the insertion of the area repaired. 
 This list becomes the basis for a report by the foreman in charge of 
 the repair work as to the amount of pavement restored. The fore- 
 man's statement of the area restored, which is returned to the permit 
 division, on the list of openings, is checked against an inspector's card 
 returned, which is usually more accurate than the foreman's report, 
 according to the statement of the permit clerk. The corrected amount 
 is then charged against the account of the permitee, and at the same 
 time a transfer voucher is made out, notifying the treasurer to transfer 
 the actual cost of the repair based upon the yardage rates from the 
 special and trust fund to the highway department appropriation. 
 These accounts are carried finally into a form of permit ledger show- 
 ing refund number, number of the permit, date, to whom issued, loca- 
 tion, kind of paving, area repaired, price, total cost, deposit, permittee, 
 amount of refund, and the signature of the permittee as a receipt for 
 the refund voucher. 
 
 In place of this involved and cumbersome procedure, the only 
 records needed are (1) application blank, (2) permit register ledger, 
 (3) an inspection and repair form, (4,) refund voucher, and (5) permit 
 
 Application 
 
 The present forms revised, in order to secure standardized sizes, 
 and to include a statement of rules and- regulations to which the per- 
 mittee would subscribe before the permit was issued, would answer 
 every purpose. 
 
 Refund Voucher 
 
 The central accounting officer should prepare a form of individual 
 refund voucher, which could be used by all departments. Preferably 
 they should be in the form of a voucher check. 
 
 Permit 
 
 The kind of form needed for this work is described in the section 
 regarding permit forms. 
 
 Permit Register Ledger 
 
 This should show the following information: 
 
 1. Permit number 
 
 2. Date issued 
 
 3. Name of permittee 
 
 4. Purpose 
 
 5. Location 
 
 6. Kind of pavement 
 
 7. Estimated square yards to be damaged 
 
 8. Arbitrary yardage rate 
 
DEPARTMENT OP IMPROVEMENTS 463 
 
 9. Total amount deposited 
 
 10. Square yards repaired 
 
 11. Unit cost of repair 
 
 12. Total cost of repair 
 
 13. Date of payment voucher 
 
 14. Voucher number 
 
 15. City's credit 
 
 16. Amount of refund due 
 
 17. Date of refund voucher 
 
 Inspection and Repair Form 
 
 This form should be drawn in convenient field form size and made 
 out in duplicate or triplicate by typewriter after the permit has been 
 issued. The original could be used as an inspector 's report ; the dupli- 
 cate, if desired, as an office control on inspection and repair ; and the 
 triplicate, as an order to the foreman to repair the opening. The order 
 could be returned by the foreman, with the notation of the amount 
 of pavement restored, and used as a final posting medium to the per- 
 mit register ledger, which in turn would initiate the refund voucher 
 or excess bill to the permittee. All of the inspection and repair forms, 
 upon the completion of the work, should be filed permanently in a 
 block and intersection file, and used as a historical record of pavement 
 cuts. A record of this nature is essential in order to control the resto- 
 ration of repaired cuts where the pavement has sunk, due to improper 
 back-fill. The nature of the soil underlying the streets of Denver 
 makes this particularly important. 
 
 Cost of Permit Division Operation 
 
 The entire permit cost of the division should be charged against 
 the fund accumulated from the deposits received on permits. In addi- 
 tion to the direct cost there is an amount properly chargeable to the 
 street opening funds, as the cost of supervision and general admin- 
 istration. If proper reinspection were made of all repaved' cuts, 
 the cost of inspecting this particular kind of permit would be con- 
 siderably increased. The increased expenditure would be well war- 
 ranted in view of the fact that it is poorly back-filled cuts which cause 
 the most serious deterioration in street pavements. At least, as insur- 
 ance against possible failure in the restored pavement, an increased 
 expenditure for the inspection of this kind of permit would be well 
 warranted. Permits are issued to particular individuals for their own 
 individual benefit, and very often to the distinct inconvenience of the 
 community at large. Their cost, if not a special revenue rental, should 
 be charged against the permittee for the privilege granted. 
 
 Need for Better Control Over Issuance of Street Opening Permits 
 
 There is no specific power now vested in the board of public works, 
 or the permit division, which would prevent the cutting of a newly 
 paved street immediately after the pavement has been laid. It often 
 happens that pavements are no sooner laid than permission to make a 
 
464 DENVER 
 
 cut for the repairing or construction of a substructure is granted by 
 the permit division. 
 
 Strict regulations should be established, either by departmental 
 order or by ordinance, which would prohibit the issuance of a permit 
 to cut the street pavement within two years after the construction of 
 the pavement, except in cases of real emergency. As a protection to 
 public service corporations and owners of abutting property, the de- 
 partment of improvements should invariably send out notices at least 
 six weeks prior to the start of pavement construction on any street, 
 informing the public generally, the owners of abutting property, and 
 public service corporations having mains in the street, that a new 
 pavement is to be laid. To the public service corporations, this notifi- 
 cation should be in the form of official communications from the board 
 public works. A simple form of handbill, which could be distributed by 
 a public works inspector along the line of the proposed improvement, 
 would be sufficient notification to the owners of the abutting property. 
 
 Need for Control of Permit Openings 
 
 It is the practice of the permit division to delay the restoration of 
 permit openings in the pavements until a sufficient number of these 
 openings have accumulated to provide work for a repair gang. Cuts 
 in the asphalt pavements are repaired at intervals of approximately 
 six to seven times a year. 
 
 This practice means that the cuts are left open for an average 
 period af from six to seven weeks, a practice which interferes seriously 
 with the efficient use of the paved streets. Every attempt should be 
 made to repair a permit opening in the permanent pavement as quickly 
 as possible, for a permit opening back-filled with earth is considerably 
 more dangerous and a more serious inconvenience to traffic than ordi- 
 nary "wear and tear" holes. 
 
 Special efforts were made to determine how long permit openings 
 in thp heavy traffic sections of the city were permitted to remain un- 
 repaired. Cuts were found on 18th Street, 17th Street, and Larimer 
 Street which remained unrepaired practically the- entire time this 
 survey was in progress. 
 
 It is admitted that it would be an expensive luxury to maintain 
 a special cut repair gang for the immediate repairing of permit open- 
 ings. Even this additional expenditure might be warranted if it were 
 found impossible to enforce proper regulations for temporary restora- 
 tion of openings by the permittee. 
 
 According to the rules and regulations of the permit division of 
 the department of improvements, the permittee is required to back-fill 
 the trench or cut with a proper kind of filler, and by planking to pro- 
 vide a firm, durable surface over the cut flushed with the surface of 
 the surrounding pavement. Not one of the cuts on 17th Street on 
 Larimer Street or on 18th Street was planked or back-filled in 'any 
 way except with loose earth. What is needed primarily is the strict 
 enforcement of the rules. 
 
DEPARTMENT OF IMPROVEMENTS 465 
 
 These rules could be made more emphatic if before a permit was 
 granted the applicant were required to sign a form of application in 
 which he would be obliged to agree to certain definite rules and regu- 
 lations. All important rules and regulations governing the kind of 
 back-fill, the method of back-filling, the kind of planking, etc., should 
 be printed directly on the application form. 
 
 Preventing Cuts in New Pavements 
 
 The point has already been made that the granting of permits for 
 the cutting of new pavements should be stopped. The point has also 
 been made that by proper notification to property owners, public 
 service corporations, and others interested in construction or repair 
 of substructure in the street, it would be possible to place the complete 
 substructure plant in good condition before the pavement is laid. 
 
 The point is now made that by virtue of the general granting of 
 power to the board of public works in Section 177, special power is 
 now available to require proper substructure conditions before a 
 paving improvement is undertaken. If this section of the charter 
 were amplified by a resolution of the board or an ordinance of the 
 council stating publicly that no permits for the construction or repair 
 of any substructure will be granted within a period of one or two years 
 after the laying of a new pavement, the entire situation would be 
 covered. Too much emphasis cannot be placed on the need for strict 
 control over this work. There is nothing more damaging to a mono- 
 lithic pavement or foundation than the complete cutting of the founda- 
 tion and pavement surface in making a permit opening. 
 
466 DENVER 
 
 ASPHALT PLANT 
 
 Under the present organization, the asphalt plant is ostensibly a 
 sub-division of the highways department. In fact, there is little con- 
 nection between the asphalt plant and the main highway division. 
 The asphalt plant is under the immediate direction of the superinten- 
 dent of sewer flushing, who has the added duties of chief permit in- 
 spector. 
 
 Decentralization a Failure 
 
 With the "present organization it is practically impossible to obtain 
 greatest efficiency from the use of the asphalt plant and the municipal 
 yard. Lack of co-operation between the highway and asphalt plant 
 forces has caused duplication in equipment and will prevent in the 
 future the establishment of an efficient maintenance division. At the 
 time this investigation was in progress the highways department was 
 installing a portable crusher on the slag piles near the old smelters 
 while at the same time there was available at the asphalt plant a com- 
 plete well-equipped crusher which had not been used for some time 
 and was not being used at any time during this investigation.' 
 
 This is another example of the decentralized organization of the 
 department of improvements. The asphalt plant unquestionably 
 should be made a part of the maintenance division of the bureau of 
 
 highways. 
 
 Asphalt Paving Specifications 
 
 An attempt was made to compare the asphalt paving specifications 
 included in the contracts for the paving construction with the mixture 
 being prepared by the municipal asphalt plant, with particular refer- 
 ence to the mineral aggregate. The specifications submitted to the 
 investigator by the engineering officers of the department of improve- 
 ments being typical of the sheet asphalt specifications in use were 
 those for the East Denver paving district No. 4. On page 20, article 21 
 of these specifications, the proportions for the mixture of asphaltic 
 folk mineral aggregate are set forth. This mixture is as 
 
 Bitumen 8 per cent 
 
 Mineral aggregate passing 
 
 200 mesh screen 8 per cent 
 
 Mineral aggregate passing 
 
 80 mesh screen 11 per cent 
 
 Mineral aggregate passing 
 
 40 mesh screen 22 per cent 
 
 Mineral aggregate passing 
 
 10 mesh screen 16 per cent 
 
 Mineral aggregate passing 
 
 4 mesh screen 30 per cent 
 
 Mineral aggregate passing 
 
 2 mesh screen 5 per cent 
 
DEPARTMENT OP IMPROVEMENTS 467 
 
 It is interesting to find that but five per cent of mineral aggregate 
 will be permitted to pass a two mesh screen while 30 per cent will be 
 permitted to pass a four mesh screen, etc. 
 
 It is needless to say that it would be exceedingly difficult to obtain 
 eight per cent by weight of mineral aggregate which would pass a 200 
 mesh screen if only five per cent of the total can pass a two mesh 
 screen. It was probably the intention of the department to specify 
 that eight per cent of the material should pass a 200 mesh screen and 
 that the other percentages should be retained on rather than pass the 
 other screens. 
 
 This is a typical example of the loose method in which the paving 
 specifications for the city of Denver have been prepared. This same 
 condition is exemplified in the paving specifications for the 7th Avenue 
 parkway, the Williams Street parkway, and the 3d Avenue paving 
 districts criticised in another section of this report. 
 
 Poor Mixture 
 
 During the investigation of the operations of the asphalt plant it 
 was noticed that the sand being used for the topping mixture seemed 
 to be of an inferior grade. As it has been proved that the success or 
 j allure of asphalt pavements depends to a great degree upon the proper 
 graduation of the sand used, it was thought advisable to have a special 
 analysis made of the sand aggregate of the asphalt pavement. The 
 ■ foreman of the asphalt plant volunteered to make an analysis of the 
 sand being used on that day. 
 
 The report is as follows: 
 
 All passed 10 mesh screen 
 
 Left on 20 mesh screen 5 per cent 
 
 40 mesh screen 25 per cent 
 
 60 mesh screen 22 per cent 
 
 80 mesh screen 16 per cent 
 
 100 mesh screen 7 per cent 
 
 200 mesh screen 20 per cent 
 
 Passed 200 mesh screen 5 per cent 
 
 100 per cent 
 City Chemist 
 
 It was surprising to find that although the city had in its : employ 
 a city chemist, his services are very seldom used in analyzing the mix- 
 ?ures y used at the asphalt plant. There is »P «me ope«t«m rf the c t y 
 P-overnment where the services of a chemist are of as much service 
 fsTnc^nSomng asphalt mixtures. In fact, without the continuous 
 direct supervision of trained chemists it is impossible to obtain the 
 best results in the manufacture of asphalt paving material. 
 
 Thp rmauestionable need for services of this kind is evidenced by 
 the flc^t that SbTg asphalt companies in the country maintain Inghly 
 pa'd fand efficient chemical and physical laboratory specials. 
 
468 DENVER 
 
 At the time this investigation was made practically the only anal- 
 ysis being carried on to determine the quality of the paving material 
 manufactured was incidental analyzing work undertaken by the plant 
 foreman. This consisted of special work on penetration of the as- 
 phaltic cement and of analyses of the mineral aggregate used. 
 
 It is recommended that the city chemist be required to make daily 
 tests of the asphalt plant mixture and special detailed examinations 
 of all material received. If possible, it is suggested that a suitable 
 laboratory be provided for the chemist directly on the plant grounds. 
 Chemical supervision at an asphalt plant should be continuous to be 
 the most effective. Samples of materials used by other departments, 
 could be brought to the plant laboratory for analysis without decreas- 
 ing the efficiency of the chemist in any way. 
 
DEPARTMENT OF IMPROVEMENTS 469 
 
 BLOCK PAVING 
 
 Stone Block Specifications 
 
 One of the most effective developments in pavement specifications 
 in recent years has been the improvement in the stone block require- 
 ments. For heavy traffic the newer forms of so-called special im- 
 proved block pavements have no equal, and it is believed that the re- 
 vision of the stone block specifications now in use in Denver along 
 "special improved" lines would assist greatly in providing better 
 pavements for heavy traffic streets. 
 
 In the section of this report dealing with the general highways 
 inspection the Market street stone block paving job is discussed. This 
 was the only extensive stone block work going on at the time this 
 investigation was made. Criticisms of the workmanship on this street 
 are included under that heading. Certain of the defects noticed on 
 this work, however, were due to faulty specifications. 
 
 Sections 1 to 4 inclusive (page 14) of the specifications for Market 
 street paving district No. 3 are typical of the kind of specifications 
 used in ordering stone block work. These specifications are loose and 
 are lacking in three fundamental requirements: (1) close dressing of 
 the stone blocks; (2) excessive size of the blocks; (3) selective sorting 
 of the blocks. 
 
 According to the specifications, the blocks may vary in length 
 from six to twelve inches, in width from four to six inches, but they 
 must have a uniform depth of six inches. Prom an inspection of the 
 blocks used on Market street, it appeared that the average block ap- 
 proaches the maximum dimension more often than the minimum di- 
 mension permitted. This usually arises from the practice of purchas- 
 ing stone blocks by the ton rather than by the number of blocks. Nat- 
 urally it is to the advantage of the block manufacturer to get as much 
 tonnage as possible out of a minimum amount of cuttings. An attempt 
 should be made to educate contractors and quarrymen to the purchas- 
 ing and selling of blocks by number rather than by the ton. 
 
 The maximum and minimum requirements offer entirely too wide 
 a variation, particularly in width. The best 'results have been ob- 
 tained from a block not to exceed four and one-half to five inches m 
 width and from six to eight or ten inches in length. No particular 
 objection can be raised to the six inch depth dimension, although ex- 
 cellent results have been obtained from blocks five inches m depth it 
 stringent dressing requirements have been followed in the manutac- 
 ture of the block. 
 
 Need for Selective Sorting 
 
 The most important deficiency in the present stone block specifi- 
 cations is that the factor of selective sorting has been entirely over- 
 looked. The only block sorting now done is that done by the pavers 
 when the blocks are being laid. Naturally the tendency is to s hde over 
 Sis important side of stone block construction. The irregularity of 
 
470 DENVER 
 
 many of the courses of stone block work on Market street is indicative 
 of the fact that the blocks had not been properly sorted. 
 
 The newest type of stone block specifications provides for a quarry 
 sorting of the blocks into standard widths and depths. Thus, it is pos- 
 sible, with very cheap labor, for the quarrymen to sort the blocks 
 manufactured into groups, in which each block will be similar to the 
 rest of the blocks in the group. In stone block work it is not of par- 
 ticular importance whether the blocks are four, four and one-half, or 
 five inches in width, or whether the blocks are five, five and one-half, 
 or six inches in depth, but it is important that blocks laid in the same 
 course and in the same line shall be as nearly as possible of the same 
 width and the same depth. 
 
 By the process of selective sorting the quarrymen is able to ob- 
 tain with little additional cost a sorting of the blocks so that all those 
 laid within a city block or half a city block will be of the same width 
 and depth. This has a very salutary effect in preventing deteriora- 
 tion of the pavement. It increases the smoothness of the pavement 
 without doubling or quadrupling the cost of dressing of the blocks, 
 although more attention to this detail than was given to the blocks 
 on the Market street work would be advisable. 
 
 A smooth pavement tends to wear smoother and a rough pave- 
 ment tends to wear rougher. As is pointed out in the criticism of the 
 Market street job, there is a point in all kinds of block work, whether 
 basalt, granite, or sand stone, where the attrition of traffic will either 
 wear the road smoother or by rounding the corners of the blocks wear 
 it rougher. This point should be determined by careful test, and the 
 degree of smoothness in the block dressing required to obtain this con- 
 dition should be specified in the contracts. 
 
DEPARTMENT OP IMPROVEMENTS 471 
 
 STREET RAILWAY AREA PAVEMENT'S 
 
 'One' of the most important highway problems is that of maintain- 
 ing street railway area pavements. This area consists of the pavement 
 between the street ear tracks and a strip immediately on the outside 
 of the outer rails of from one to two feet. According to the terms of 
 the franchise the street railway company is required to construct and 
 maintain the pavements in the railway area. Practically all railway 
 area pavements carry a traffic much heavier proportionately than 
 the pavements outside in the roadway proper. This condition arises 
 from a number of causes: (1) the concentration of wheel and horse 
 traffic in well defined lines; (2) the exceptionally heavy use of rail- 
 way area before the snow has been removed from the roadway proper ; 
 (3) attraction of traffic due to the decreased traction and pull obtain- 
 able by tracking on the steel rails. These conditions, together with the 
 fact that the street railway company is required to finance all of the 
 cost of construction and maintenance of these pavements, make the 
 railway area pavement problem not only one of particular importance 
 but one difficult to administer successfully. 
 
 An examination of the railway area pavement conditions in the 
 city of Denver developed little evidence of particularly creditable work 
 on the part of either the street railway company or the city forces. 
 Generally speaking, the construction methods are obsolete, the rail 
 section is bad, and maintenance is carried on in a slipshod and hap- 
 hazard fashion. In appearance most of the railway area pavement* 
 are a disgrace to the city. At intersections, where there is a very con 
 centrated traffic, and where there is need for particularly favorably 
 pavement conditions in order to avoid congestion, the pavements are 
 in the main, in the worst condition of all. 
 
 "What is needed most is complete co-operation between the eitj 
 officers and the street railway company and the development of a:i 
 intelligent program for carrying on this work. Working methods foi 
 this kind of pavement construction and maintenance are today prac- 
 tically standard, much more so than the average public works opera- 
 tion. There is no reason why Denver, both through the street railway 
 company and the city officers, cannot obtain the advantage of experi- 
 mental and actual construction work undertaken and successfully com- 
 pleted by many cities and many street railway companies. 
 
 Superintendent of Sewer Flushing in Charge 
 
 At the present time there is no definite alignment of responsibility 
 for enforcing proper paving conditions in the railway area. This duty 
 like many others of a more or less disagreeable nature has been dele- 
 gated to the superintendent of sewer flushing. Before a detailed study 
 of working methods is made it would be advisable to formulate a 
 definite policy for constructing, reconstructing, and repairing this 
 pavement through cooperative conferences between city officers and 
 the officers of the street railway company. 
 
472 DENVER 
 
 It is certainly unwise in these days of electric street railways to 
 continue a practice requiring the street railway company to maintain 
 a railway area pavement which was inaugurated in the old days of 
 horse-drawn street cars — the theory being that the street railway com- 
 panies should be responsible for the excessive wear and tear damage 
 caused by the street car horses. 
 
 The fact that the street railway company is required to maintain 
 and construct the pavements in railway area is of distinct advantage 
 to the city at large and was unquestionably a factor in the granting of 
 the original franchise to the railway company. It would hardly be 
 possible to change this condition at the present time. However, it 
 would be possible to avoid such inequitable arrangements in the future. 
 It is suggested that examination be made of the expenses of the street 
 railway company in order to find out what it has cost to construct and 
 to maintain the railway area pavements in order that the citizens may 
 know what the value of this particular service is and which they are 
 obtaining in return for the franchise. If such data can be prepared 
 and compensated for the increased cost of maintaining railway area 
 pavements in a proper condition, a factor would be available for 
 establishing a franchise tax or payment from a railway company when 
 new franchises are granted. The decentralization of this part of the 
 paving problem is expensive both for the street railway company and 
 the community at large. 
 
 Methods 
 
 Attached to this report will be foimd diagrams indicative of the 
 present methods used in constructing the railway area pavements. It 
 is subject to criticism from a number of points, the most important of 
 which are (1) the rail is not sufficiently deep; (2) the rails have not 
 always been properly set in concrete; (3) the toothing stone and run- 
 ners are unsightly, inadequate, and expensive to maintain. 
 
 Without entering into detailed discussion of the technical defects 
 m the present construction methods it may be stated that the use of a 
 Trilby type rail of a nine inch section, set in concrete with double con- 
 crete at intersections, the paving of the space between the rails with 
 a cement grouted brick or stone block and the paving of the double 
 strip or the space between the tracks with the same type of pavement 
 as that laid on the roadway proper are the fundamental changes in 
 method recommended. It may be stated as a fact that the best main- 
 tained and constructed railway area pavements in the country have 
 been constructed with these general principles in mind. In most places 
 complete responsibility for this work has been placed in the hands of 
 the railway company officers, who are not likely to waste money on 
 expensive types of pavement construction. Of all the pavements laid 
 by the New York Railways Company in the borough of Manhattan and 
 the Brooklyn Rapid Transit Company in the borough of Brooklyn 
 these general requirements have been followed with a distinct savin" 
 to the companies in the cost of maintenance and a distinct betterment 
 of the roadway conditions both in appearance and in efficiency as 
 traffic carriers. 
 

 
 
 I 
 
 
 
 
 1 
 
 
 
 
 K 
 <0 
 
 
 
 toj 
 
 
 
 
 
 •— 
 
 Q 
 
 
 
 
 £ 
 
 
 
 
 
 
 1 
 
 ■=■ 
 
 | 
 
 
 
 ta-i 
 
 
 
 ill 
 
 M 
 
 
 f?/?/i. cuf* rj-zifver 
 
 EXAMPLE OF S TOME BL O CK RUMMER 
 OUTS>/DE OF/7/9/L.S 
 
DEPARTMENT OP IMPROVEMENTS 473 
 
 Concretb Construction 
 
 It is the practice of the street railway company to pave the railway 
 area with an unprotected concrete pavement. The use of concrete 
 pavement for this purpose is open to question. In fact, the use of 
 unprotected concrete for any kind of a pavement is being questioned 
 very seriously everywhere there has been an attempt to use it. 
 
 The general defects of this type of construction are apparent from 
 a casual investigation of the railway area pavement conditions. Prac- 
 tically every one of the streets upon which street railway tracks have 
 been laid may be used as an example for this statement. Larimer Street 
 being one of the streets first paved in this manner is perhaps more 
 typical of conditions which may be expected than many of the others. 
 
 The difficulties of unprotected concrete construction for pave- 
 ments are generally that if the concrete is made smooth it may become 
 too slippery for horse-drawn traffic, and if the concrete is left rough 
 it may soon disintegrate when used by steel tire traffic and when 
 subjected to freezing temperature. In addition, the contraction and 
 expansion factors in concrete usually cause an excessive cracking 
 which has to be guarded against by leaving expansion joints in the 
 pavement. Finally, if disintegration sets in, it is difficult to repair the 
 damaged portions in a permanent manner, as it is impossible to place 
 a new batch of concrete in a depression and obtain sufficient bond 
 with the old concrete to prevent sloughing out. 
 
 Repairing of a concrete pavement with asphalt topping mixture, 
 brick, and stone blocks, as is the case on many of th"e streets in the 
 business section of the city, results in an unsightly condition and does 
 little more than delay the rate of disintegration. 
 
 The use of basalt blocks to provide expansion joints in the con- 
 crete pavement is a rather unique type of construction, and one which 
 unquestionably assists in protecting the edges of the concrete at the 
 joints. One of the greatest difficulties in unprotected concrete pave- 
 ments has been in preventing excessive wear at the expansion joints, 
 and it is believed that the use of the stone blocks in forming the expan- 
 sion joints has assisted in decreasing the rate of deterioration. It is 
 equally true, however, that even that method has not prevented a 
 rapid rate of deterioration, as is evidenced by the numerous chuck 
 holes and ruts in the portions of the pavement immediately adjoining 
 the expansion joints. 
 
 Inspection of Railway Area Conditions 
 
 Pavements within the railway area are generally in much poorer 
 condition than pavements in the roadways proper. An inspection of 
 practically all of the streets of the city of Denver failed to disclose one 
 street upon which up-to-date construction methods had been used. With 
 such conditions it was not surprising to find that the railway area 
 pavements were generally so bad that the transportation facilities of 
 the streets were seriously affected. It would be difficult to estimate 
 the loss to the community in not being able to make efficient use of the 
 
474 DENVER 
 
 section of the street occupied by the railway area. Such a loss is real 
 and not so small but that serious consideration of the question is well 
 warranted. 
 
 Broadway and Oolfax Street Intersection 
 
 This intersection was examined at frequent intervals during the 
 progress of this investigation. Although repairs were in progress at 
 several different times when this pavement was inspected, the pave- 
 ment was never found in even fair condition. The blocks are loosely 
 set on an unsubstantial foundation. In so far as could be discovered 
 the blocks had never been properly grouted either with a Portland 
 cement or asphalted cement grout. They were loose, irregular, and 
 poorly aligned. This intersection was continuously in a state of dis- 
 repair so that crossing in any sort of vehicle other than street cars 
 was a succession of bumps. 
 
 The roughness was aggravated by the fact that the rails them- 
 selves were loose and the continual passing and repassing of cars raised 
 the header and stretcher blocks next to the rails several inches above 
 the rest of the pavement. It is needless to add that the intersection 
 of Broadway and Colfax is an important traffic center and one where 
 the combination of a heavy street car and automobile traffic with 
 heavy pedestrian travel results in serious congestion. This congestion 
 can be relieved to a degree by improving the pavement conditions in 
 the railway area. 
 
 Broadway 
 
 As far out as Spear Boulevard the railway area on Broadway is in 
 bad condition. Joints have been broken and repairs made with basalt 
 block. Runners on the outside of the outer rail have been extended 
 about two feet. All of the railway area work was in bad condition 
 due largely to the unsubstantial foundation and the poor bonding of 
 the blocks. At the time the investigation was made repair work was 
 in progress but the kind of work being done did not indicate that much 
 better conditions could be expected in the future. The rails in use are 
 not sufficiently deep in section to permit of the best kind of construc- 
 tion methods. The foundation was unsubstantial and the blocks, small 
 and irregular. The type of toothing stone construction already criti- 
 cized in detail was to be found here. 
 
 Welton and 19th Streets 
 
 The crossing of Welton and 19th Streets was in exceptionally 
 bad condition when inspected. The asphalt of the roadway proper had 
 broken away from the toothing stone construction outside of the rail- 
 road tracks with the result that ruts from a foot to a foot and a half 
 in depth had been formed. No matter what kind of construction 
 methods are used, there is no excuse for such lack of diligence in the 
 maintenance work. 
 
DEPARTMENT OP IMPROVEMENTS 475 
 
 Larimer and 17th Streets 
 
 Another example of bad crossing conditions was found at Larimer 
 and 17th Streets. Proper inspection by city officers to enforce main- 
 tenance work where needed would avoid these conditions in the future. 
 
 15th Street 
 
 The railway area on 15th Street is one of the few locations in the 
 city where the interior area has been paved with asphalt. The double 
 toothing stone and runner construction has been used separating the 
 asphalt from the rails. At no time during the course of this investi- 
 gation was the 15th Street railway area in proper condition. 
 
 The use of bituminous pavement for the interior railway area work 
 cannot be too strongly discouraged. For efficient wear, traffic on any 
 kind of bituminous pavement has to be fairly normal over the entire 
 surface. At least there must be a reasonable alternation between horse 
 and wheel traffic. The concentrated traffic in one" particular line in 
 the interior railway area on account of track alignment causes rapid 
 deterioration in the pavement. 
 
 Arapahoe Street 
 
 The condition of the railroad area on Arapahoe Street is typical 
 of the wear which may be expected on an unprotected concrete pave- 
 ment at the expansion joints. 
 
 Toothing 1 Stone Construction 
 
 Accompanying this report will be found a diagram of the type of 
 toothing stone construction in use in the street railway area pavements 
 in Denver, and also used in tying in many of the old brick gutters to 
 the pavement proper on some of the asphalted streets. Toothing stone 
 construction has been abandoned by progressive highway engineers for 
 a number of years. Theoretically and practically it is unfitted for the 
 conditions which it was supposed to satisfy. If it is found necessary to 
 make use of some form of block construction between the rail and the 
 asphalt pavement on the roadway proper, it should be the invariable 
 practice to make a smooth, even, regular joint between the blocks and 
 the asphalt pavement. Toothing stone construction multiplies three 
 to four times the length of the joints between the asphalt pavement 
 and the stone blocks. Asphalt pavements invariably begin to wear 
 at a crack, joint, or scar, or any other opening in the surface where 
 water can get in and traffic shatter the edges. It would be advisable 
 to make use of a long header stone to join the stone block pavement 
 outside of the rails with the asphalt or other pavement in the roadway 
 proper. If this is found to be too expensive, it would be advisable to 
 lay the outer block with its longest dimension parallel to the rail. 
 
476 DENVER 
 
 HIGHWAY INSPECTION DATA 
 
 During the course of the survey an attempt was made to investi- 
 gate all of the important highways in the city of Denver with a view to 
 determining the results obtained by the present and former administra- 
 tions in the handling of the highway problem. Special investigation 
 was also made of most of the important contract work under way. In 
 order to avoid the monotony of continuous repetition, the detailed de- 
 scriptions of road conditions and contract operations have been elimi- 
 nated from the general discussion. Inefficient operating methods 
 discovered and poor work obtained as the result of former methods, 
 together with constructive recommendations based thereon, are pre- 
 sented in this and in the following section of this report. 
 
 Market Street Contract 
 
 The Market Street contract presents two main questions: (1) the 
 need for revision of the stone block paving specifications ; (2) protection 
 of sidewalks paralleling railroad tracks. The stone blocks being used 
 in the paving of Market Street are manufactured from a hard sand- 
 stone, similar to that used in the stone curbing. Insofar as the rock 
 aggregate is concerned the rocks appear to be hard and well adapted 
 to the purpose. They are too large, however, and too irregular to 
 make a satisfactory wearing surface. Recent developments in stone 
 block specifications have tended toward the reduction of the block 
 size and the manufacture of a smoother block. There is a certain point 
 in smoothness or irregularity at which the blocks may be expected 
 either to wear smooth or to wear round. This point has been deter- 
 mined for certain types of granite to such a degree that in the newer 
 type of special improved granite construction increased traffic wear 
 on the blocks makes the pavement surface smoother instead of rougher, 
 as was the case in the old type of construction. There is no reason 
 why a similar point cannot be determined for the sandstone used in 
 Denver. 
 
 This pavement was also indicative of improvement which could 
 be effected by a proper blVek sorting. Proper stone block specifications ' 
 should provide for an adequate sorting of the blocks before they are 
 placed on the street. In the Market Street contract only a haphazard 
 sorting was done and the sorting was done by the pavers as they laid 
 the stone. As the pavers were paid on the yardage basis by the con- 
 tractor they naturally attempted to complete as many square yards of 
 pavement each day as possible. This practice has a tendency to de- 
 crease even the minimum time which the average paver gives to the 
 sorting of his blocks. A number of block crossings were examined 
 where the alignment was poor which the poor sorting of the blocks only 
 increased. 
 
 Plans should be made to protect pedestrian traffic along Market 
 Street after the railroad tracks have been opened. A simple form of 
 fence, frequently broken by sliding gates, would answer every require- 
 ment in protecting pedestrians and at the same time would offer no 
 
DEPARTMENT OF IMPROVEMENTS 477 
 
 inconvenience to the unloading of cars directly into warehouses or into 
 wagons on the street side. 
 
 During the inspection of Market Street paving work an interesting 
 situation was discovered which is typical of the lack of the realization 
 of many city employees that city property needs as much protection 
 as private property. 
 
 The stone blocks for the Market Street pavement were being set 
 on a concrete foundation. Any concrete construction must be protected 
 from traffic or physical interference of any sort during the preliminary 
 and secondary setting of the mixture. Upon inspecting the new con- 
 crete foundation work it was discovered that a wagon had been driven 
 over more than a half block of freshly laid concrete foundation caus- 
 ing a damage roughly but conservatively estimated from $200 to $300. 
 The damage done to the concrete, for the repair of which the contractor 
 may properly submit an extra bill, is just as much a real loss to the 
 city as the loss of $200 to $300 from the cash drawer of the treasurer's 
 office. 
 
 Alley Construction 
 
 Generally speaking, the concrete alley construction in Denver 
 stands out from a comparative standpoint as generally superior to 
 other pavement construction. There are, however, numerous instances 
 of peculiar engineering design in the construction of the center drains. 
 An example of this type of construction is in the alley between 19th 
 and 20th Streets, Welton and California. This practice has recently 
 been discontinued and replaced by a gradual gradient to the side curb 
 lines of the alley, giving a better looking and more serviceable alley 
 intersection. 
 
 14th Street Viaduct 
 
 The 14th Street viaduct, one of the most important arteries of 
 travel between North Denver and the central sections of the city, was 
 in a serious state of disrepair during the entire time this investigation 
 was in progress. The viaduct is paved with a sheet asphalt which was 
 badly worn in many places. The condition of this pavement surface 
 raises an important question as to the administration of the asphalt 
 repair plant. The question of the distribution of asphalt repair is 
 certainly a big problem. There can be hardly any question, however, 
 but that the repair of as important an artery of travel as the 14th 
 Street viaduct is of more importance than the complete resurfacing of 
 the railway area of a street, such as Colfax Street, which work was in 
 progress at the time this investigation was made. Resurfacing work 
 is an important part of the operations of an asphalt plant, but par- 
 ticular attention should be given in the early spring months to the 
 repair of the most important arteries of travel if only on a temporary 
 basis after which the larger resurfacing jobs can be undertaken and 
 effectively carried through without interfering with the transportation 
 facilities of the remaining asphalt pavements of the city. 
 
478 DENVER 
 
 Federal Boulevard 
 
 Federal Boulevard presents many bad features common to a great 
 many other streets and roads in the city, such as the question of the 
 advisability of the use of a sand slag mixture for a road carrying as 
 heavy traffic as the Boulevard. There are many places on Federal 
 Boulevard where raised sections in the road are not aligned in any way 
 with the sidewalk. There is a question as to the real efficiency of 
 raising pavement at intersections, but there can hardly be any question 
 as to the absurdity of raising the pavement at such a place so that the 
 raised portion does not abut the end of the sidewalk. Such a condition 
 is an indication of lack of engineering ability or foresight. 
 
 Another question suggested by the peculiarly raised places in the 
 roadway of Federal Boulevard is why an attempt was made to raise a 
 slag sand pavement at any section. Without header stones or embank- 
 ments on at least three sides, it would be impossible to prevent the 
 raised sections from wearing away through erosion. There are many 
 places along the Boulevard where the roadway has been raised 
 approximately to the level of the sidewalk but the sand and slag have 
 been washed away leaving only the concrete header standing. This 
 condition is now more dangerous and inconvenient than it would have 
 been if the roadway had been left in its original condition and at its 
 original grade. 
 
 19th Street 
 
 The asphalt pavement on 19th Street has been down, according to 
 the records of the department, about 18 years. It was one of the first 
 California asphalt jobs in the city of Denver. The condition of this 
 street evidenced the need for a change in administrative methods and 
 records. 
 
 Like the 14th Street viaduct, 19th Street is a main artery of travel 
 carrying heavy commercial traffic. It should have been put in at least 
 passable condition before extensive resurfacing work was undertaken 
 by the asphalt plant forces. At the time this investigation was made 
 from 25 to 40 per cent of the street was in need of repair. As a general 
 rule, when the annual cost of repairs exceeds the annual fixed charges 
 and interests charges necessary to liquidate and carry a capital 
 expenditure of sufficient amount to repave the street it is time to 
 abandon repairing and to undertake the repaving or reconstruction 
 1 Pavement. The investigation indicated that 19th Street had 
 passed the time when continuous repairing was an economical practice. 
 
 If cost records properly recapitulated into expense groups, had 
 been maintained, information upon which an accurate, intelligent de- 
 cision regarding this work could be based would have been available 
 and the chances are that repaving would have taken place sometime 
 ago. 
 
 Mud Streets 
 
 Typical examples of the many miles of streets almost impassable 
 alter a heavy ram, due to the excessive mud, may be found in 19th 
 
DEPARTMENT OF IMPROVEMENTS 479 
 
 Avenue, 20th Street, 23rd Street, and Grove Street. These streets are 
 only a few of many in the city of Denver. They would carry heavy 
 traffic, if properly paved, but at the present time, due to dust and mud, 
 they can be but little used. These streets are generally unimproved, 
 with little drainage, practically no crown, and with mud for a wearing 
 surface. 
 
 Wooden Headers 
 
 The use of wooden headers to prevent the ravelling of improved 
 pavement where it abuts pavement of a different character or an unim- 
 proved road has been considered in the section of the report dealing 
 with specifications. An example of what may be expected where 
 wooden headers are used is to be found at the corner of 8th Avenue 
 and Sherman Street. Eighth Avenue is paved with a sheet asphalt 
 pavement. The sheet asphalt ends at the foot of the hill at the inter- 
 section of Sherman Street. At the time this inspection was made there 
 was a dangerous depression and bump where the asphalt on 8th Ave- 
 nue adjoined the unimproved surface of Sherman Street. This was 
 caused primarily by the lack of a substantial header for holding the 
 asphalt in place and for providing a firm abutment for sufacing mate- 
 rial on Sherman Street. Upon first inspection there appeared to be no 
 header at the end of the asphalt pavement, but after digging under the 
 surface material it was found that a wooden header had at one time 
 been placed in that position but had rotted away and become displaced 
 so that it was of practically no value in preserving the alignment of 
 the pavement and the smooth intersecting joint. 
 
 Other examples of the use and inefficiency of wooden headers may 
 be found at the street intersections along Mt. View Boulevard and 17th 
 Avenue Boulevard. 
 
 Colorado Springs — Denver Road 
 
 The original pavement of the Colorado Springs — Denver Road 
 consists of a cement concrete foundation with a surface treatment of 
 a bituminous flush coat. When inspected, however, the excessive wear- 
 ing of the bituminous surface had left the road with practically nothing 
 more than a concrete foundation for pavement. Of all the roads in- 
 vestigated this was in the most dangerous condition, due largely to the 
 lack of proper maintenance. 
 
 The pavement was laid by the bureau of highways practically 
 without engineering supervision, but if it had been properly protected 
 there is no reason to doubt that the concrete foundation would be in 
 good condition at the present time. 
 
 The portion of the road in question is a stretch of about 1.2 miles 
 near Overland Park. The concrete is in a spotted condition. Certain 
 sections where the surface of the concrete has been thoroughly pro- 
 tected by the bituminous flush coat are in good condition; other sec- 
 tions are in such bad condition that the road was the most dangerous 
 one inspected during the entire investigation. Three separate chuck 
 
480 DENVER 
 
 holes, each of which was more than one foot and a half deep and from 
 three to four feet wide, were found in this road in addition to a great 
 many smaller holes which unless properly taken care of would in a 
 short time become dangerous. 
 
 20th Street Viaduct 
 
 The 20th Street viaduct is paved with wood blocks set upon a 
 creosote planking. Naturally creosoted lumber when thoroughly dried 
 out by a hot summer sun becomes highly inflammable. Several serious 
 bridge and viaduct fires have recently occurred where the creosoted 
 under-structure was not properly protected. Fire lines should be pro- 
 vided in order that water may be immediately available if a fire should 
 happen to start anywhere on the viaduct. 
 
 17th Avenue Boulevard 
 
 The 17th Avenue Boulevard evidenced so many engineering and 
 administrative inefficiencies that several special investigations were 
 made. The most noticeable defects were : 
 
 1 — Poor engineering in determining line and grade 
 2 — No provisions for sub-surface storm water drains 
 3 — Excessive crowns at intersections 
 4 — Poor pavement surface. 
 
 At the extreme east end of the boulevard the intersection of the 
 main boulevard with a terminal boulevard shows at least two if not 
 three distinct crown points in the intersection. It is unsightly and 
 dangerous, and evidence of poor engineering. 
 
 Along the entire route too little care has been given to grade 
 adjustments. The crowns of the intersecting roads between the north 
 and south roadways of the boulevard are in the most eases so high that 
 the peak point is flush with the top of the curb. On the roadways 
 proper, both on the north and south sides, the crowns are entirely too 
 high for the type of pavement used. Increasing the crown naturally 
 tends to concentrate traffic upon a narrow stretch of the roadway 
 surface. That this condition has arisen is apparent from an examina- 
 tion of the wear marks on the pavement. 
 
 It was surprising to find that no provision had been made prior to 
 the construction of the existing pavement for the installation of a storm 
 water sewage system, with the result that whenever it rains heavilv 
 the great excess of surplus water cannot be taken care of by the two or 
 three inlets. Every heavy rain means a flood at the west intersection 
 o± the boulevard with more or less serious inconvenience to all traffic 
 It is unquestionably true that the construction of the boulevard with- 
 out first constructing a complete system of storm water sewers, resulted 
 m a much smaller assessment upon the property within the district 
 aut the policy of constructing permanent pavements without first 
 placing the substructures in proper condition is one that cannot be too 
 strongly criticised. 
 
ssto/v/e: &L.oc/<s 
 
 £X/?MPLE Or TOOT////VG STOW? COATST/Pi/CT/OAT 
 (COLFAX ST/7&ST) 
 
DEPARTMENT OP IMPROVEMENTS 481 
 
 This boulevard has been paved with a form of asphaltie concrete 
 pavement, commonly known as "Amesite", a patented pavement which 
 is distinctive from the usual form, of asphaltie pavement in that it is 
 designed to be laid cold. 
 
 At the time this investigation was made the surface of the pave- 
 ment was in fair condition although in many places the frequent occur- 
 rence of soft cracks indicated that the foundation had been improperly 
 laid and that considerable trouble might be anticipated in the future 
 due to the capillary attraction of the water. 
 
 The condition of the pavement had been materially improved by 
 repairs made prior to the beginning of field work in 1914. It will be 
 found upon inspection that the cracks, which so often appear in 
 "Amesite" pavements and which at times roll out by traffic during 
 the summer months, are occurring with undue frequency in the 17th 
 Avenue Boulevard pavement. This may be due partly to the type of 
 material used, but primarily to the fact that the only foundation under 
 the "Amesite" pavement is the old road material which was to be 
 found directly along the line of the improvement. This subsurface 
 material offers absolutely no impediment to the upward percolation 
 of the water by capillary attraction, with the result that in many 
 places the subsurface material immediately under the "Amesite" pave- 
 ment had been loosened, thus causing a settling and cracking of the 
 pavement surface. 
 
 There are a number of places where cracked sections of the 
 original pavement had been replaced by patches which were less than 
 a year old at the time this investigation was made, but the patches 
 themselves were cracked as badly as the surrounding pavement. It is 
 useless to attempt to get a pavement of the Amesite type to hold 
 together where the subsurface does not provide a firm watertight 
 •foundation. 
 
 18th Avenue 
 
 The pavement on 18th Avenue is one of the few real macadam 
 pavements in the city of Denver. It was constructed at a cost of 
 approximately $1.75 per square yard, and consists of nothing more 
 than thoroughly compacted broken stone. The stone used was basalt ; 
 one of the hardest of road materials. The compression was good, and 
 the resulting surface one of the best unpaved road surfaces in the city. 
 The advantage of the broken stone construction over the slag sand 
 construction for surface streets is well brought out in the road surface 
 condition of this avenue. 
 
 Colfax Street Resurfacing 
 
 The work on Colfax Street consisted of resurfacing with sheet 
 asphalt pavement the part of the roadway between the street car 
 tracks and a foot and a half on the other side. This work was being 
 performed by the field forces of the municipal asphalt plant. Accord- 
 ing to the terms of the franchise the street railway companies were 
 being charged for the cost of this work. There is little to commend 
 
482 DENVER 
 
 in the Colfax Street work from an organization, administrative, or 
 operating standpoint. The way the work was being carried on; the 
 kind of workmanship and materials being used; the kind of super- 
 vision ; the lack of proper records upon which to base charges for the 
 work done; inaccurate computations of cost of the work done, as well 
 as the fact that the work was being carried on at all, are in themselves 
 a serious indictment of this division of the department of improve- 
 ments. 
 
 This report has already touched upon the need for intelligent 
 judgment in determining where and what repairs shall be made, par- 
 ticularly during the spring months. If this had been done there is no 
 doubt that the work on Colfax Street would have been delayed until 
 the main arteries of travel paved with sheet asphalt had been put in 
 proper condition. The point is not made that Colfax Street is not a 
 main artery of travel in one direction. The point is made, however, 
 that railway area work on Colfax Street is not of fundamental or 
 immediate importance if the roadways proper are in fair condition. 
 
 A remarkable example of inefficient, wasteful field operating 
 methods was also to be found in the conduct of this work. One of the 
 primary factors in reducing the cost of field work on public works of 
 any sort and particularly on pavements, is to eliminate duplication in 
 haul and general travel from one point to another; yet during the 
 course of the railway area resurfacing on Colfax Street the foreman 
 in charge passed by a number of areas in the roadway proper on the 
 north side of the street which were in need of immediate repair. 
 Whether this condition was caused purely on account of incompetent 
 supervising service or on aceount of the lack of proper cost distributing 
 records would be difficult to determine. 
 
 The organization of the asphalt plant forces is not of the best. The 
 kind of supervision could also be improved, but the poorest organiza- 
 tion and the weakest supervision would hardly countenance such a 
 practice as was being followed on the Colfax Street work unless some 
 other factor were present. In this case lack of proper cost records 
 was that factor. 
 
 There were no records being used by the asphalt plant forces which 
 would provide a basis for distributing the cost between two jobs, and 
 it is probable that the superintendent, in order to protect the accuracy 
 of his charges against the street railway company for work done in 
 resurfacing the railroad area, hesitated to undertake any repair work 
 chargeable to the general funds of the city. It is obvious that such 
 practices should be stopped at once and proper records installed so 
 that the lack of cost-distributing reports will not stimulate inefficient 
 and wasteful held operating methods. 
 
 The resurfacing work on Colfax Street was being paid for b V the 
 
 street railway company The agreement on file with the department 
 
 'tZw?rt Pmid ? that the company was to be billed for the 
 
 actual cost of the work plus 8%". In the first place there are no 
 
 aXlt ^S^Twf ° f im P roveme ^' general office nor at the 
 aspiialt plant by which the actual cost of this work can be determined. 
 
DEPARTMENT OF IMPROVEMENTS 483 
 
 The direct labor charges can be ascertained with reasonable accuracy. 
 The direct material charges are also susceptible of compilation for a 
 few standard items, but it would be difficult to get actual direct labor 
 and material charges for the work done. 
 
 The main difficulty in determining the cost of work done by the 
 asphalt plant is in the overhead calculation. By agreement the over- 
 head charge was to be upon an arbitrary basis of 8 per cent. Without 
 a detailed audit of the expenses of the asphalt plant it would be im- 
 possible to state how much too low an 8 per cent overhead basis 
 actually is, but there is no question that 8 per cent is too small. 
 Calculated upon the 4913 basis the "fixed charge" overhead charges 
 of the asphalt plant for interest and depreciation on plant alone 
 would amount to six and one-half per cent; vacations, special leave, 
 sick leave, holidays with pay and waiting time run anywhere from 
 seven to fifteen per cent in an organization of this nature. Engineer- 
 ing, supervision, inspection, accounting, and general administration 
 might add as much more. 
 
 This job is but one example of a great many which indicate the 
 need for the installation of cost and expense accounting in the depart- 
 ment of improvements. 
 
 The most serious factor in the Colfax Street resurfacing job was 
 the poor working methods. Instead of correcting certain fundamental 
 errors in the original construction on that part of the pavement, the 
 resurfacing work was being done in such a way that there was 
 practically no fundamental improvement in the new pavement over 
 that originally laid. It is of particular importance that in all re- 
 surfacing and general repair work the faulty construction of the 
 original pavement be corrected. This was not being done in the 
 Colfax Street work. 
 
 The entire question of the railway area pavements and the in- 
 adequacy of the present railway area construction methods in Denver 
 have been considered under that head in the report. The Colfax 
 Street railway area is an exceptionally conspicuous example of the 
 misuse of toothing stone and runners of basalt block along the sides 
 of the rails. At best, this type of construction is unsightly and imper- 
 fect, but on this street as upon a great many other streets throughout 
 the city the routine repairing of the road bed of the street railway 
 necessitated the cutting of the asphalt pavement and the removing of 
 certain of the stone blocks. When this pavement was restored, the 
 repair was made entirely with stone blocks thus causing a very irregu- 
 lar <and patch work appearance in the pavement. A diagram of this 
 condition is attached to this report. 
 
 When the resurfacing work was undertaken an opportunity was 
 provided for correcting this condition, but no corrective measures 
 were taken. The completed job is unsightly, and may be expected to 
 disintegrate rapidly. 
 
 The best kind of sheet asphalt provides for the use of a close 
 binder for the first layer in order to bind the asphalt to the concrete 
 
484 DENVER 
 
 foundation. Lack of sufficient depth, it was stated, prevented the 
 use of any binder on the Colfax Street job: The use of topping alone 
 usually results in a so-called pushing or rolling of the pavement and 
 very rapid disintegration under traffic. If sufficient depth is not 
 available for laying three inches of sheet asphalt pavement, it is un- 
 questionably better to eliminate the binder course rather than to de- 
 crease the depth of the top ; but it would have been better still to have 
 made use of a special kind of topping which has been proved by 
 experience to be well adapted to the kind of condition encountered 
 on this work. The elimination of rolling and pushing in a sheet 
 asphalt pavement can be effected almost entirely by the use of a small 
 amount of rock aggregate to stiffen the mixture of sand and asphaltic 
 cement which constitutes the top surface of a sheet asphalt pavement. 
 
DEPARTMENT OF IMPROVEMENTS 485 
 
 PENETRATION MACADAM CONTRACTS 
 
 At the time of this investigation three contracts for paving by 
 the asphaltic penetration method were in progress. These contracts 
 were: 
 
 1 — William Street Parkway district 
 
 2 — Seventh Avenue Parkway district, and 
 
 3 — South Capitol Hill districts 
 
 — amounting in all to more than 100,000 square yards of pavement. 
 
 The work done under these contracts and the specifications of the 
 contracts were the most conspicuously inefficient pavement operations 
 found during this investigation. The specifications were improperly 
 drawn and the kind of pavement specified was poorly adapted to the 
 needs of the districts. Although the contracts had not been completed 
 some of the pavement already laid had begun .to disintegrate. 
 
 General Contract Statistics 
 
 The following statement outlines in summary form the general 
 history and present status of these contracts : 
 
 1— Amount of each contract 
 
 (1st) 7th Ave. Parkway (Grant 
 
 selected) $31,552.00— opt. A or B 
 
 (2nd) Capitol Hill 16,533.63 
 
 (3rd) Williams St. Parkway... 33,356.95 
 includes other items 
 
 2 — Name of contractors 
 
 Municipal Construction Co. 
 (1st) 7th Ave. Parkway. The Mass. Bonding Co 
 
 (2nd) Capitol Hill Beach and Decker 
 
 (3rd) Williams St. Parkway. Beach and Decker 
 
 3 — Amount of work uncompleted on each contract (April 30) 
 
 (1st) 7th Ave. Parkway 90% 
 
 (2nd) Capitol Hill 20% 
 
 (3rd) Williams St. Parkway 20% 
 
 4 — Number of streets out of guarantee 
 
 . A six months' maintenance period from 
 date of acceptance. None yet accepted. 
 
 5 — Unit cost per square yard for paving, including 
 grading and preparation of sub-grade on each 
 street. 
 
 A B 
 
 (1st) 7th Ave. Parkway $0.58 $0.58 
 
 (2nd) Capitol Hill 0.58% 0.60 
 
 (3rd) Williams St. Parkway. . 0.59 0.66 
 
486 DENVER 
 
 General Criticism of Specifications 
 
 The specifications prepared by the former board of public works 
 were patterned after the Los Angeles specifications for "penetration 
 macadam" but only as far as the general method of laying the pave- 
 ment is concerned. The most fundamental difference and the chief 
 cause for failure lie in two main points. First, that whereas the Los 
 Angeles specifications are drawn with the idea of laying six inches 
 of broken stone to be penetrated with the asphaltic cement, the D'en- 
 ver specifications call for an average thickness of about three inches 
 of stone — four inches at the center and two inches at the sides of the 
 roads. Second, with but such a slight thickness of stone, it was par- 
 ticularly important that a proper foundation for the pavement be pre- 
 pared, which was not required in the specifications. More specifically, 
 the specifications called for too little rock and too much oil. The com- 
 paratively large sizes of stone specified could not be sufficiently keyed 
 together by the roller to prevent the sand, loam and clay of the sub- 
 grade from working to the surface. 
 
 The work already completed on Williams Street and 3rd Avenue 
 shows very clearly the effect of such faulty specifications. On Wil- 
 liams Street the overabundance of asphaltic cement in the mixture has 
 caused a "bleeding" of the asphalt in the mix. The contractors have 
 been required to blot out the excess of asphaltic cement by a liberal 
 use of sand on the suface of the street. Excessive bleeding of a 
 bituminous macadam pavement will never occur evenly over the entire 
 surface, and the blotting up of the excess of asphaltic cement by sand 
 will eventually give an uneven surface. Moreover, it is doubtful 
 whether, when warm weather arrives, sufficient sand can be applied 
 to take up all the excess of asphalt. Even at the time this survey was 
 made (April 24th), with very little hot weather, the asphaltic cement 
 was bleeding underneath the sand and flowing into the gutters. 
 
 On 3rd Avenue the disadvantage of too little stone depth was 
 most apparent. There a sub-grade of a sort of gumbo soil had worked 
 up through the two to four inches of .broken stone, and practically 
 ruined the pavement. The contractors had been required to take up 
 and relay a portion of the work on this street. Very little can be 
 expected of this pavement, although temporary relief was being 
 obtained through covering the sub-grade with a coat of sand. 
 
 Changes in Specifications 
 
 The inspector in charge of the contract work, whieh was in pro- 
 gress on 7th Avenue at the time this survey was made, stated that 
 orders had been issued to change the working methods. Instead of 
 following the detailed specifications, as laid out in the contract, radical 
 changes had been made. It is a question whether these changes 
 actually do not mean less expense to the contractor than the original 
 method. The changes were as follows: Instead of penetrating the 
 pavement in two courses, the stone was laid and penetrated but once, 
 the original course consisting of three-fourths inch to two and one- 
 fourth inch stone. In addition, instructions had been given to cover 
 
DEPARTMENT OP IMPROVEMENTS 487 
 
 the broken stone with a layer of sand, and to harrow the loose rock 
 until the sand had disappeared from the surface. Both of these 
 methods tend to over-emphasize the large amount of oil used. The 
 contract calls for the use of one and a half gallons of heavy asphaltic 
 oil for each square yard of pavement. For the average thickness of 
 three inches of stone, this is entirely too much, but the penetrating of 
 the stone in courses would have assisted in reducing the bleeding 
 effect. 
 
 The following order is a copy of that issued to the inspector 
 and contractor when the changes in the specifications were ordered. 
 
 1st course 
 
 1 inch sand 
 
 2nd course 
 
 S^-inch to 2y 2 -inch stone carefully spread 
 to required thickness without any 
 sprinkling or rolling 
 
 3rd course 
 
 %-ineh plus or minus of sand harrowed and 
 rolled until sand disappears and voids 
 are filled. 
 
 Oil application 
 
 IV2 gallons of oil per square yard 
 
 Final course 
 
 % inch of V s to 14-inch screenings rolled in 
 and sufficient sand to absorb oil. 
 
 The change of specifications may be expected to relieve some- 
 what the condition found on certain sections of the 3rd Avenue work 
 completed under the original specifications but may at the same time 
 be expected to accentuate the bleeding effect as was found on the 
 completed section of Williams Street. 
 
 Guarantee Period 
 
 The charter of the city of Denver specifically requires that on 
 pavements of a permanent character, the guarantee period must extend 
 over a period of five years after the pavement has been laid. On 
 macadam pavements, after two years, the guarantee for the remainder 
 of the five year period shall only apply to the grade and crown of the 
 road. Penetration macadam is unquestionably a pavement although 
 called surfacing in these contracts. A liberal interpretation of the 
 charter would undoubtedly demand that a guarantee of at least two 
 years be required on such pavements. As a matter of fact, a guaran- 
 tee period of only six months was required on any of these contracts, 
 and if the contractors can reasonably maintain their pavements for 
 a period of six months, the city will have no redress. With such 
 
488 DENVER 
 
 specifications, it would have been very ill-advised for any contractor 
 to guarantee the work for more than six months; but this, however, 
 in no way relieves the city officials of the responsibility of having on 
 their hands, at the end of the guarantee period, six or seven miles of 
 improperly constructed bituminous macadam pavements. They will 
 be expensive to maintain and a continuous disappointment to citizens 
 having to use the streets. 
 
DEPARTMENT OF IMPROVEMENTS 489 
 
 CHARTS 
 
CHART OF EXISTING ORGANIZATION 
 DEPARTMENT OF IMPROVEMENTS 
 
 DEPARTMENT 
 IMPXOV EMENTS 
 
 COMMISSION CR 
 
 orr/CE 
 
 5ECPCT«»v 
 
 act Qurr/ino 
 Secretarial *" 
 cftrical serf ice 
 
 PUBLIC YVOGKS 
 
 COMMISSIONER 
 ENGINEER 
 COMHR Of HIGMW^vb 
 
 Charge and Co ft fro i 
 
 ofo/fPuJ>//c Work 
 and utif/ft&s 
 
 ma/?£/7<s Or~ 
 
 COMivi ISSIOWCR 
 
 A9rrT 
 COM/ftSSlON 
 
 C nfli» hnA N 
 
 Con fro/ or 
 off -m offers 
 or orf. 
 
 BUffEflU Of~ 
 EtV(?/rVE EA?/nf& & SUr7*£Y//V& 
 
 E r*t C> i NCt» 
 
 DE PI/TV 
 COMMISSIONER 
 
 CHIEF ASSISTS HT 
 EN6INCE R 
 
 O/V/S/O/W 
 
 SUPEPINTCNOENT 
 
 urt/ 
 Str. 
 
 rsAf/^g of 
 rt/e*ro re a? 
 efs. 
 
 Sr£D£ r**7£- X 
 G/V/S/OS* 
 
 SUPERINTENDENT 
 
 ■ath /rt»omc7ion 
 tf^OrcBrrrenT*' 
 
 S/de 
 
 of js/c/e*n*af6 
 
 r?OrJO J9rfOB#/06£ 
 rTEAVf/r? 0/V/S/OfV 
 
 ■4-^OJST- SUP*T. 
 
 Gonenof re^mira 
 to unfrrt/^roveof 
 ~roacf&. 
 
 Surfacing of Streets. 
 
 £ Tr7££ T Ct~ £*#/* « 
 0JV/SIOM 
 
 Superintendent 
 
 CfoarT'nQ o f~ 
 
 Sfre efs arid 
 r?f/ejfS. 
 
 
 HEAD DRAFTSMAN 
 
 ar*fr;* 
 
 and frf/ng or records. 
 
 r-t£t.O fi-OrrC£. 
 
 Sorr'tno. ConA-oef 
 Ins/ee c fton~. 
 G erterof Supervision. 
 
 COt-Ofi*r?00 
 MUSEUM 
 
 Operot/ort of 
 rfa fir a f Ms tort, 
 ArtuS eunr. 
 
 /tSf#*t.Ta"0 STOrfC 
 
 f s £f?A*fiT aivtstort 
 
 fi*£r7rAJT CJ-£*rf 
 
 CHIEF INSPECTOR 
 
 /ssuo/rce and 
 ee>n/rof or/wrsm'fs. 
 ^•erm/i /nso*c7Htrf 
 
 S £**£** r-i.t/3r*/#G 
 ^/V/S/O/V 
 
 SuPCfflNTENOtNT 
 
 Co /en Mswic^a/wivfl, 
 
 S«»v*/- cteorttrrg. 
 
 Sewer o—d CofiA 
 Sosi'n ffusJiifg. 
 
 /»*//»/»*» «V Trff *<*»£* 
 
 ~I~**L. MM"*M**<r1 
 
 r*M** ros+rt cmr 
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 CHART OF PROPOSED ORGANIZATION 
 DEPARTMENT OF /APPROVEMENTS 
 
 
 DEPARTMENT 
 or- 
 
 improve:ments 
 
 
 COMMISSIONER 
 
 
 
 
 
 
 
 
 \ 
 
 
 
 
 
 
 trvSREC r/OAV 
 
 £>/ Y/S/OAf 
 
 
 tes r / rv G 
 i. MB Or?/t TORY 
 
 
 
 /? p?~r 
 
 C OrSIM/SStOrV 
 
 
 OEM ER/7U 
 
 o/?r/cE 
 
 
 CHIEF INSPECTOR 
 
 CHEMI ST 
 
 C HA 1 RMA N 
 
 CHIEF CLERK 
 
 
 
 
 
 
 
 
 7» sf/rip o r Sufjjol/e^. 
 Ma/eria/z ancJ Etjtsiomer*!* 
 
 Corf/rot or all 
 matters of Art 
 
 
 
 
 
 
 
 
 
 /=>/?TROL /NSRECT/OM 
 
 
 co/vt/prct /mspzct/on 
 
 
 
 PERM! T Of VISION 
 
 
 
 D/v/stor* or 
 
 #E PORTS 6 /?fCOf?DS 
 
 
 
 
 
 
 
 
 Genera/ Pa/rot /rrsftec t/ofr 
 or- S/£/e*v&t Ks t •Servei-M, 
 
 Sfreet Lights £fc. 
 
 Siderva IA and 
 3r*/d q e Construction % 
 
 
 
 
 
 Issuance or Permits 
 for Street Opening*,, 
 Siorts, 3/tl Boards., 
 
 General Substructures 
 
 S/enopraf^lric 
 C/eri c ol. 
 Attendant Serrice. 
 
 Correspondence. 
 
 Co s/ /?c c o vntirto . 
 Payroll Pre/aa ration. 
 Stores A'ccount/ng. 
 Piling of Cost and 
 Inspection Records. 
 
 
 ENGINEER 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 OR /IF TING & C OMPU 71 NO 
 OtVt SlOtst 
 
 
 
 £-/VG ttVErAIN G 
 
 a/vtstotv 
 
 t 
 
 HEAD DRAFTSMAN 
 
 CHier ass't engineer 
 
 Urafftrwo, Preparation, 
 c*ntit Pre sen ration or 
 Eno/neer/tip Pecords,, 
 Compsvtsno ror £sTtmafe&, 
 
 Co/n/oaf/ng For As s tssmenh 
 
 General Enohieerino 
 Su/oervtEt/on over 
 
 Design, Constructiori and 
 
 Maintenance or all Puh/ic 
 Works,, irtcludingParhRoadydewtri 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 au/?E/?u or 
 
 STREET Ct-EJ?MJN<Z 
 
 
 su/P^/ru or 
 
 r/IGHW/t YS AND BRIDtti 
 
 
 BUREAU Of 
 SEWEffS 
 
 
 
 CHlEFOF BUREAU 
 
 CHIEF OF BUREAU 
 
 CHIEF OF BUREAU 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 S/SeeT; Mley ""d Cede A 
 Sty^/rr C/earr/rjo. 
 Sfi-ee/- and Server /~/uSnino. 
 SA-eef Sor/nAt/no 
 
 
 >=V7 VStVtEtV T 
 COMST&UCTiON G/tNG 
 
 
 
 ASPHALT PLANT 
 
 
 C o/ts/rc/cAorr and 
 /Fejsa/f of Servers, Caleb 
 ffastrts, /n/eli, MonAolei Sit. 
 
 
 rOPFMAN 
 
 SUPERINTENDENT 
 
 Parerrre/rf Co/f&trt/c /tort 
 ifitft Ci/y Labor, including 
 3/lu/w'rroteS Ps»vct**er*fe . 
 
 &i /u/nirtous fZxverrtertf' 
 Arts xfisre s . 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 MR/NTEN#NC£ 0/VISl OH 
 
 
 ASSISTANT CHIEF 
 
 
 
 1 
 
 
 
 
 
 
 
 1 
 
 
 I 
 
 
 
 
 
 
 f~/r?ST &/S7-/P/C7- 
 
 
 secotvo Dtsr/PiCT 
 
 
 THIRD DISTRtCT 
 
 
 F O URTH OtSTf?! C T 
 
 
 SU F>£#INT£NDENT 
 
 SUf=>£ KM NTENDCNT 
 
 SUPfPINTENOCNT 
 
 SUPCRINTCNOENT 
 
 Surf a C'rtg arret ffe/ga/'r of 
 Unpaged Streets, Grading 
 artct Care of Dirt tToaofs. 
 'Ae/yair/rto of /mpr'ove.d 
 Str>eeAs arret Sicterrot/rs, 
 Wrtor Srid^e Re/*afr*&. 
 
 Unparea 4 Streets, Gractino 
 a*7<J c*.r*eof O/f/ fpo aofs. 
 APoyoainirra or /mar o^e^ 
 Streets one/ S/c/etva/As; 
 Minor* &ric/jpe Repairs. 
 
 &<*r- foe/rig a net tfepotifor 
 Unparcct $fr e*ti, Gnctofirtf 
 arrof Cor* of tJirf fPoa dS. 
 /Ye/vain' rig or tmp*~o'<re<t 
 S/>ee/j attot SJrf'e^a/^s. 
 Mirror* &r>tof£* rTe/oaifs,- 
 
 Surf acirrg and r?epmir> or" 
 Ur>pav< d Str<*ts f Gr-oe/i'nm 
 and Cmr*e of 0irt~ /Poao/s. 
 tpe/at*tr*itia or fmpr* o r « d 
 Stmets **,*et S/Vc-f«//ri. 
 
 A7/'r**^* J3r/'*/ge /v > */oe**r>*. 
 
 
 
 
 
 
 
 
 
 
 
 
 P^fAVMA &v 
 
 T*£ 
 
 BliffSAtO or i*t4sw*Ctr?*C A£SC/9*tCh 
 
 rtev* -ronx arr 
 
DEPARTMENT OF FINANCE 491 
 
 REPORT ON A SURVEY OF THE 
 DEPARTMENT OF FINANCE 
 
 AND 
 
 Sundry Commissions and Offices Not Under Departmental 
 Juristiction ; Also a Summary of Charter Criticisms 
 
DEPARTMENT OF FINANCE 493 
 
 CONTENTS 
 
 Summary of Recommendations with respect to the departments, 
 commissions, offices, etc., included in this report. 495 
 
 Part I — Department of Finance (Including Auditor's Office and 
 Budget Procedure) 503 
 
 Assessment of Taxes 508 
 
 Collection of Taxes 507 
 
 Treasurer 510 
 
 Commissioner of Supplies 512 
 
 Central Repair Shop 516 
 
 Accounting and Auditing 518 
 
 Payroll Procedure , 527 
 
 License Procedure 529 
 
 Budget 533 
 
 Indebtedness / 541 
 
 Automobile Service 544 
 
 Part II — Sundry Commissions and Offices Not Under Depart- 
 mental Juris dogtion 549 
 
 Civil Service Commission 549 
 
 Jury Commissioner 551 
 
 Election Commission 553 
 
 Public Administrator 563 
 
 Juvenile Court 565 
 
 Summary of Charter Criticisms. 579 
 
DEPARTMENT OP FINANCE 495 
 
 SUMMARY OF RECOMMENDATIONS 
 
 The following is a summary of the recommendations relating to 
 the department of finance and the sundry commissions and offices in- 
 cluded in this report: 
 
 DEPARTMENT OP FINANCE 
 (Including Auditor's Office and Budget Procedure) 
 
 Assessment of Taxes 
 
 1 — That real estate be assessed at nothing less than its full and 
 true cash value. 
 
 2 — That enough men be assigned to assess real estate so that no 
 one man will be required to assess more than 10,000 parcels 
 ■ — the maximum number which one man can assess properly. 
 
 3 — That the men assigned to assess real estate be selected on the 
 basis of training and experience and retained on such work 
 so long as they render satisfactory service. 
 
 4 — That the assessor's office be provided with land value maps 
 and lot and block maps. 
 
 5 — That more extensive use be made of mathematical rules and 
 tables in computing the value of real estate, particularly 
 with respect to irregular tracts of land. 
 
 6 — That a change of present statutes be obtained so that an op- 
 portunity will be afforded for review and revision locally 
 of the assessments before they are transmitted to the state 
 board. 
 
 7 — That the personnel of the local reviewing body include men 
 who have a thorough knowledge of real estate conditions 
 and relative values in Denver. 
 
 8 — That the assessment lists be published in printed form for the 
 inspection of taxpayers. 
 
 9 — That statutory authority be obtained for simplifying the rec- 
 ords used in the assessor's office and thus eliminate several 
 thousand dollars of unnecessary annual expense. 
 
 Collection of Taxes 
 
 10 — That statutory authority be obtained for making taxes pay- 
 able 30 or 40 days later than at present so as to afford time 
 at the beginning of the year in which to prebill taxes. 
 
 11 — That the entire city be renumbered with respect to designa- 
 tion of taxing districts so as to show section, block and lot 
 numbers uniformly throughout. 
 
496 DENVER 
 
 12 — That statutory authority be obtained for changing the present 
 procedure in the collector's office so that it will not be 
 necessary to list in detail daily the number of each receipt, 
 the valuation of each piece of property and each kind of 
 tax paid on it. 
 
 13 — That statutory authority be obtained for (1) assessing per- 
 sonal taxes as of a later date -or (2) making them become 
 delinquent at an earlier date. 
 
 14 — That personal taxes as well as all other tax money be made 
 receivable only at a collection office instead of sending col- 
 lectors into the field. 
 
 Treasurer 
 
 15 — That modern scientific books of account be installed in the 
 treasurer's office in the court house. 
 
 16 — That the method of allotting public moneys to the several 
 depositories be revised as indicated in the context of this 
 report. 
 
 Commissioner of Supplies 
 
 17 — That standard specifications be adopted for all equipment, 
 materials and supplies used by the city and county. 
 
 18 — That in all cases where supplies, materials or equipment are 
 susceptible of written description, they be purchased only 
 on standard specifications and not ' ' according to sample. ' ' 
 
 19 — That the chemical and bacteriological laboratory of the city be 
 consolidated and made to serve as a standard testing labora- 
 tory. 
 
 20— That adequate chemical or physical tests be made of samples 
 taken from deliveries of all supplies, materials and equip- 
 ment purchased. 
 
 21 — That the method of purchasing supplies under contract for 
 competitors' bids be extended. 
 
 22— That uniform blanks be prepared and transmitted to depart- 
 ment heads periodically, with the request that they indicate 
 the kinds and quantities of supplies which they will need 
 during the ensuing period. 
 
 L'3 — That a file of cards showing current prices be maintained. 
 
 -That the present form of requisition be i 
 in the context of this report. 
 
 25 — That a central storehouse be established. 
 
 24 — That the present form of requisition be improved as indicated 
 in the context of this report. 
 
DEPARTMENT OF FINANCE 497 
 
 Central Repair Shop 
 
 26 — That a system of accounts be installed whereby job costs and 
 unit costs may be determined. 
 
 27 — That a rotary fund be established for the purpose of clearing 
 bookkeeping debits and credits incident to the operation of 
 the repair shop. 
 
 Auditing and Accounting 1 
 
 28— That a modern scientific system of accounting be installed. 
 
 29 — That the methods of inspecting deliveries, certifications on 
 documents, and the entire auditing processes he revised as 
 indicated in the context of this report. 
 
 30 — That the charter provision requiring council to approve cur- 
 rent claims be repealed. 
 
 31 — That statutory authority be obtained to establish an account- 
 ing and auditing control over the fees collected in the dis- 
 trict and county courts. 
 
 32 — That as soon as the accounting system is revised so as to fur- 
 nish the necessary data, a complete balance sheet showing 
 what the city and county owe and own and also current 
 operating statements be prepared and published at least 
 quarterly. 
 
 33 — That the procedures incident to the handling of invoices, 
 vouchers and warrants be revised so that it will be possible 
 to take more cash discounts. 
 
 34 — That the business procedure be revised so that dealers will not 
 be required to come to the city hall twice in order to obtain 
 payments of their claims. 
 
 Payroll Procedure 
 
 35 — That the entire system of making out payrolls and pay war- 
 rants be revised as indicated in the context of this report. 
 
 36 — That the forms of payrolls be standardized and adapted to 
 binding in loose-leaf form, and that all copying of payrolls 
 be eliminated. 
 
 37 — That the system be extended of paying employees who are en- 
 gaged outside of the city hall at the places where they are 
 working. 
 
 38 — That the system of paying jurors and election clerks be re- 
 vised so that the payees will not be compelled to accept dis- 
 counts on their warrants in order to avoid waiting for pay- 
 ment for their services. 
 
498 DENVER 
 
 License Procedure 
 
 39— That the entire license procedure be revised as indicated in 
 the context of this report. 
 
 40— That all licenses be made out on safety paper and that the 
 forms be so devised as to render possible an effective audit 
 of the amounts for which they were issued. 
 
 41 — That so far as practicable all licenses be made terminable at 
 fixed dates, the same as ash haulers' and milk licenses are 
 at present. 
 
 42 — That license inspection be made a function of the police de- 
 partment instead of being, as at present, a function of the 
 auditor, and that the staff of license inspectors now attached 
 to the auditor's office be reduced from 8 to 2 men. 
 
 43 — That the staff employed by the excise commissioner be elim- 
 inated. 
 
 44 — That consideration be given to abolishing the office of excise 
 commissioner. 
 
 Budget 
 
 45 — That the entire procedure incident to making the budget be 
 revised as set forth in the context of this report. 
 
 Indebtedness 
 
 46 — That the principle of issuing bonds in serial form be adhered 
 to in all subsequent bond issues. 
 
 47 — That no bonds be issued for a period longer than the probable 
 life of the asset purchased from the proceeds thereof. 
 
 48 — That all bond sales including sales of local improvement bonds 
 be adequately advertised in advance. 
 
 Automobile Service 
 
 49 — That the Pierce-Arrow assigned to the commissioner of 
 finance, the Stoddard-Dayton assigned to the sheriff and 
 the Chalmers assigned to the mayor be pooled and made 
 subject to requisition by any of the departments upon ap- 
 proval of a central authority. 
 
 50 — That a system of service cost records be installed at the garage 
 and currently maintained with respect to each automobile. 
 
 51 — That all automobiles owned by the city and county be prom- 
 inently lettered to indicate such ownership. 
 
DEPARTMENT OF FINANCE 499 
 
 CIVIL SERVICE COMMISSION 
 
 52 — That a complete efficiency system, including a standardization 
 of salaries be installed which will provide adequately for 
 the promotion and demotion on definite factor 1 ratings of all 
 city and county employees. 
 
 53 — That charter section 301 (old section 201) be repealed. (This 
 section compels a department head whenever he desires to 
 reduce his force to lay off the last person certified irre- 
 spective of the fact that such person may be the most effi- 
 cient employee in the department. It also compels a depart- 
 ment head whenever he desires to increase his force to re- 
 instate persons suspended in the order of their original cer- 
 tification irrespective of the fact that such persons may 
 have proven to be inefficient and useless.) 
 
 ELECTION COMMISSION 
 
 54 — That the statute making the commissioner of safety a member 
 of the election commission be repealed. 
 
 55 — That the method of selecting judges of election be revised so 
 as to provide for the election of judges as a result of an 
 examination to determine their qualification. 
 
 56 — That a character investigation of all applicants for appoint- 
 ment as election judges be made. 
 
 57 — That the statute requiring ballots when voted to be marked 
 with ink, be amended so as to permit the use of lead pencils. 
 
 58 — That the practice of judges marking the number of the ballot 
 on each ballot when voted, be abandoned through an amend- 
 ment of the law. 
 
 59 — That the law requiring the appointment of a double set of 
 judges for precincts having more than 300 electors be re- 
 pealed and an amendment to the general election law be 
 adopted which will provide that no precinct shall have more 
 than 300 electors. 
 
 60 — That an effort be made to use the schoolhouses for polling 
 places and the practice of using firehouses abandoned. 
 
 61 — That an effort be made to secure the adoption of a law which 
 will require personal registration at every election and a 
 proper investigation prior to election day, of all the names 
 appearing upon the register. 
 
 62 — That the records of the office be revised so as to provide for 
 a more complete record of the expenditures of the commis- 
 sion and its activities. 
 
 63 — That a card record of all voters be maintained. 
 
500 DENVER 
 
 64 — That the office of the public administrator be placed on a 
 salary basis. 
 
 65 — That his books be brought within financial control of the city- 
 auditor. 
 
 JUVENILE COURT 
 
 66 — That an effort be made to secure remedial legislation so as to 
 enable the judge of the court to fix the salaries of the 
 attaches of the court. 
 
 67 — That a building be erected in which will be housed the 
 children's court and the offices of all children's activities in 
 the city and that the equipment of this building and the 
 court be such as will lend to the dignity of the court and 
 inspire the children coming in contact with it. 
 
 68 — That the court be enabled to increase its efficiency in the 
 handling of children's cases and probation work by trans- 
 ferring its functions with regard to the trial of rape cases, 
 to the district court. 
 
 69 — That provision be made for proper medical inspection of juve- 
 nile delinquents under the supervision of the judge of the 
 court. 
 
 70 — That the records of the court and the probation offices be re- 
 vised in accordance with the suggestions contained in this 
 report. 
 
DEPARTMENT OP FINANCE 501 
 
 PART I— DEPARTMENT OF FINANCE 
 (Including Auditor's Office and Budget Procedure) 
 
DEPARTMENT OF FINANCE 503 
 
 PART I— DEPARTMENT OP FINANCE 
 (Including Auditor's Office and Budget Procedure) 
 
 ASSESSMENT OP TAXES 
 
 The 1913 valuations of the city and county of Denver taxes which 
 are now being collected were as follows : 
 
 Lots and land $167,415,407.00 
 
 Improvements 130,527,608.00 
 
 Personalty 103,959,097.00 
 
 Total $401,902,112.00 
 
 Organization 
 
 The commissioner of finance is ex officio assessor of taxes. The 
 staff of the assessor's office at the time of our survey was as follows : 
 
 1 deputy. 
 1 chief clerk. 
 1 estates deputy. 
 
 1 chief land appraiser. 
 
 2 assistant appraisers. 
 
 1 chief merchandise appraiser. 
 1 assistant merchandise appraiser. 
 1 draftsman. • 
 
 1 abstractor. 
 
 2 counter clerks. 
 
 1 automobile appraiser. 
 
 2 stenographers. 
 
 45 field deputies from April 1 to May 20 (approximately) . 
 
 Assessment of Real Property 
 
 Real property is assessed annually. This is as it should be. It is 
 generally recognized by economists and tax specialists that property 
 valuations for tax purposes should be as nearly a continuous operation 
 as possible. However, all of the real property in Denver is assessed by 
 only three men — the chief land appraiser and his two assistants indi- 
 cated in the above list of employees. Mr. Lawson Purdy, the well- 
 known expert on taxation, states that no one man should undertake to 
 assess more than 10,000 parcels of real estate in a single year ; that it 
 is a physical impossibility for one person to assess a greater number 
 and do it properly. We were unable to ascertain the number of parcels 
 in Denver, but the officials in charge of the assessor's office stated that 
 the number would exceed that of either Dos Angeles, California, or 
 Portland, Oregon. In both of the latter cities there are over 100,000 
 parcels ; therefore it is evident that in Denver each of the three land 
 appraisers is required to assess upward of 33,000 parcels each year. 
 
 Beginning with the next assessment, more men should be assigned 
 to the assessment of real property. They should be selected solely on 
 
504 DENVER 
 
 the basis of their individual fitness for such work — consideration be- 
 ing given to their education, training, and experience. A great deal 
 depends upon securing competent assessors and retaining them in such 
 employment, because the value of the services of a competent assessor 
 to a community is cumulative and should be capitalized by it. 
 
 Should Not Undervalue 
 
 The law requires that real estate be assessed at its full and true 
 cash value. That it has not been so assessed is evidenced by the fact 
 that the state tax commission increased the entire valuation of the city 
 and county of Denver last year by approximately one-third. It is not 
 the purpose of this report to discuss the propriety of this order by the 
 state commission, or of the court decision regarding it, but the fact 
 remains that had the Denver property been assessed at full value the 
 local commissioners would have had not only a legal, but a very sound 
 and substantial defense. They are entitled to credit for contesting the 
 decision of the court upholding the order of the state commission, but 
 unfortunately they were not backed up by such facts as would have 
 been theirs had the assessments actually been made at full value. 
 
 To assess real estate at anything less than its full value is to open 
 the door for inequality and fraud. In fact it is practically impossible 
 to make an equitable assessment of a community except on the basis of 
 full valuation. For example — if "A" is assessed at only 90 per cent, 
 "B" at only 80 per eent, # and "C" at only 70 per cent, the probability 
 is that none of them will complain because each realizes that he is being 
 assessed at less than full valuation on his property, and for fear of 
 having the amount raised if attention is called to the matter, he re- 
 mains quiet. However, if any of them were to be assessed at more than 
 full value they would at once make a complaint and thus the over- 
 assessment would be adjusted. The conclusion is self-evident that 
 property had better be over-valued than under-valued, although with 
 competent assessors and adequate methods there should be very little 
 of either. 
 
 Inasmuch as the assessment of full values does not mean the assess- 
 ment of more taxes, because the rate of assessment would be lower, we 
 recommend that nothing less than full value be used hereafter. 
 
 Method of Assessing Land 
 
 Land and buildings are separately valued. This is proper pro- 
 cedure. However, with respect to the assessment of lands the Denver 
 assessors are inadequately equipped. Those communities which have 
 made the greatest progress in the equitable assessment of land, have 
 done so largely by the use of what are called land value maps. Such 
 maps show the property lines, and in the street margins thereof is noted 
 in lead pencil the average front foot value in each block. Not only 
 values for the current year but also the preceding year are noted there- 
 in. The assessors are thus enabled by reference to these maps to 
 visualize the relative values and shadings of values between blocks and 
 districts. Supporting such maps, lot and block maps can be used ad- 
 
DEPARTMENT OP FINANCE 505 
 
 vantageously to enable the assessors to visualize the relative values 
 between lots. The atlas used by the assessor's office in Denver is a 
 step in the right direction, but, nevertheless, it would make for more 
 equitable assessments if land value maps and lot and block maps were 
 made available. 
 
 Not only have the most progressive communities adopted such 
 maps for assessment purposes, but they have also adopted definite rules 
 and tables for computing valuations, particularly valuations of irreg- 
 ular tracts of land. The Hoffman, Neill, Newark, and similar tables 
 were designed for this purpose. Some time ago Denver property was 
 assessed under the rules of Somer's system, but the company which 
 was employed to make the valuation left with the local officials no 
 tables for use in making subsequent assessments. The deputy in charge 
 of the assessor's office states that he has aimed to calculate mathemat- 
 ically the valuation of irregular tracts without the use of special tables. 
 However, we submit that the use of such tables would be of very great 
 assistance. 
 
 Assessment of Personal Property 
 
 Personal property is valued by 45 deputies, who, between April 1st 
 and May 20th, distribute schedules throughout the city to each person 
 owning personal property, obtain a statement of the personalty owned 
 and a sworn certificate on each schedule, and return them to the assess- 
 or's office. These deputies are paid at the rate of $90 a month. Each 
 man is assigned to cover a definite district and renders a daily report 
 showing the work done by him. In all cases where no schedule is re- 
 ceived by May 20th, an arbitrary assessment is levied against the per- 
 sonalty of all persons whose names are recorded in the assessor's office. 
 A notice is then sent them that they have been assessed at such an 
 amount (stating it), and they have an opportunity to come in and 
 swear to a different assessment if they so desire. 
 
 The principal comment with respect to the assessment of personal 
 property is that it is generally recognized throughout the country as 
 being an inequitable tax. It is probably administered as well in Denver 
 as elsewhere. The methods described are practically the same as used 
 in many other communities. The efforts of the commissioner of finance 
 should be directed toward decreasing each year the amount of the per- 
 sonal tax and increasing the tax on real estate so that before many 
 years the local government will not be dependent to any great extent 
 iipon revenues derived from the taxation of personal property. 
 
 County Board Has No Power to Equalize 
 
 Both real and personal property valuations must be completed, 
 and an abstract thereof prepared and transmitted to the state tax com- 
 mission by September 1st of each year. The board of county commis- 
 sioners sits in September as a board of equalization. It is to be noted 
 that this is to a considerable extent a post mortem affair, because the 
 assessments have already been certified to the state commission. The 
 county board, even though it may be satisfied that assessments in par- 
 
506 DENVER 
 
 tieular instances are erroneous, has no power except to make recom- 
 mendations to the state commission. 
 
 Not only should there be an opportunity for review and revision 
 locally ol the assessments before they are transmitted to the state 
 board, but the personnel of the local reviewing body should be dif- 
 ferent. It should consist of men who have a thorough knowledge of 
 real estate conditions and relative values in Denver. The majority of 
 the board might well be composed of men in the real estate business. 
 The commissioner of finance might act as chairman of such a reviewing 
 body. 
 
 Should Publish Assessment Lists 
 
 The assessment lists of the city and county of Denver should be 
 published in printed form for the inspection of all taxpayers. To do 
 so Avould be of much assistance in equalizing the local valuations. So 
 far as the equitable assessment of property is concerned the publication 
 of assessment lists is second only to having the land value maps here- 
 inbefore recommended. We understand that the principal obstacle in 
 the way of publishing the lists is the cost involved. However, there is 
 little question that an appropriation for such a purpose would prove 
 to be an excellent investment as well as being popular with the major- 
 ity of the taxpayers. 
 
 Records Should Be Simplified 
 
 With respect to the records used in the assessor's office it is to be 
 noted that a large amount of work is performed which serves no useful 
 purpose and causes an annual excess in the cost of this office, estimated 
 by the chief deputy at from $8,000 to $10,000. We refer particularly 
 to the duplication of work involved in making out schedules of prop- 
 erty and valuations in detail, and then copying all of the information 
 on the assessment rolls. The schedules should either be prepared so as 
 to admit of binding in the form of a roll, or should be eliminated and 
 the roll used in lieu thereof. We were informed that the records here- 
 in criticized are required by statute to be kept. This information being 
 correct, such statute should be changed by the next legislature. 
 
 Also a complete file of house cards is maintained. This comprises 
 a third duplication of the detail of personal property assessments. It 
 serves only as an index to the property schedules. All that is necessary 
 to show on these cards is the street, house number and schedule number. 
 
DEPARTMENT OF FINANCE 507 
 
 COLLECTION OF TAXES 
 
 Time of Collection 
 
 Taxes are collected at the treasurer's office in the court house. 
 They are payable January 1st, and may be paid in two installments, 
 the first half on or before the last day of February, and the second 
 half on or before July 31st. A penalty of one per cent per month 
 attaches to the first half unless payment is made before March 1st, and 
 continues until August 1st, at which time a penalty of one and one- 
 fourth per cent per month attaches to all unpaid amounts of both the 
 first and second installments and continues until it is paid or the 
 property is sold. 
 
 The plan of collecting in two installments is commendable both 
 from the point of view of the taxpayer and of the city and county. In 
 the former case it distributes the burden of payment over a period of 
 several months and in the latter it brings money into the city treasury 
 at the beginning of the year as well as from month to month during the 
 year, and aids the government in meeting current liabilities without 
 resorting to short term loans in anticipation of taxes as is done by 
 many cities. The fact that the city had to borrow money (rely on 
 bank overdrafts) at the beginning of 1914 was due to the revision of 
 the rolls by court order and consequent tardiness in turning them over 
 to the treasurer for collection. However, the dates when taxes are due 
 might be set thirty or forty days later and still preserve practically 
 the same advantages and also afford time at the beginning of the year 
 in which to prebill the amounts due. 
 
 Taxes Should Be Prebilled 
 
 Owing to the fact that the treasurer does not receive the tax rolls 
 until the taxes are receivable (January 1st) he has no time in which 
 to prepare in advance the tax bills for the various property owners. 
 As a result, even though he mails postal card notices telling people 
 they may pay by check, there is a constant congestion of taxpayers in 
 his office during the taxpaying period. Not only are they packed 
 about the counter, but sometimes extend in a line down the hall and 
 out into the street. A large proportion of the taxpayers are women, 
 and to cause them to stand for hours before being able to pay their 
 taxes is a severe indictment of the present method of tax collection. 
 Even with respect to men, it is unfair and unbusinesslike to compel 
 them to wait in line so long before being furnished with their tax bills. 
 Moreover, the clerical difficulty of making out tax bills, a large pro- 
 portion of which are very complicated, and making the proper credit 
 postings thereof, is very great under such untoward conditions. 
 
 Several large cities have successfully adopted a method of making 
 out all tax bills, proving the correctness thereof, and also the correct- 
 ness of the extensions on the rolls, before the taxpaying period begins. 
 Among such cities may be mentioned New York, Pittsburgh, Buffalo 
 and Los Angeles. 
 
508 DENVER 
 
 In the first three of the above named cities the bills are type- 
 written in triplicate by carbon process at a single writing which also 
 produces a schedule of the bills. One of the three copies of the bill, 
 showing a description of the property and the amounts assessed, is 
 mailed to the taxpayer for his information ; another is issued as a re- 
 ceipt when payment is received; and the third serves as a posting 
 medium to the rolls. The schedule of bills becomes a duplicate tax roll. 
 Since the typewriting machines carry automatic adding attachments 
 this method serves also to verify the correctness of the computations 
 on rolls and bills. 
 
 In cities where taxes are prebilled, advertisements are inserted 
 prominently in the daily papers, urging people to pay by checks sent 
 through the mails, and thus avoid the necessity of coming to the tax 
 collector's office. It is not required that the checks be certified. By 
 having the tax bills prepared before the beginning of the taxpaying 
 period it has been found possible, even in such large cities as those 
 mentioned, to prevent all congestion of taxpayers when they come to 
 the collector's office. Formerly the congestion and delay in each of 
 these cities was as bad as it is in Denver. Such a system should be 
 adopted in Denver. The tax bills might be made out (1) by the treas- 
 urer in advance of the taxpaying date, or (2) by the assessor and 
 turned over with the rolls to the auditor, who would verify them and 
 transmit them to the treasurer and charge him therewith, or (3) by 
 the auditor after receiving the rolls from the assessor. In any case, 
 the auditor should supervise the verification of the extensions and 
 totals. This is not done now. However, before the suggested system 
 can be installed and the advantages thereof secured to the taxpaying 
 public of Denver and the local government, certain changes in existing 
 statutes are necessary. First, the date of completing the tax rolls and 
 turning them over to the treasurer for collection must be readjusted 
 or the date when taxes are payable must be readjusted to permit suf- 
 ficient time in which to prepare tax bills. Second, the entire city must 
 be renumbered, with respect to designations of taxing districts, so as 
 to show section, block and lot uniformly throughout. 
 
 An examination of the tax rolls now in use disclosed descriptions 
 of subdivisions, resubdivisions and fractions thereof of such a character 
 that they are a maze of technical detail. These complicated descrip- 
 tions must all be set forth on the tax bills, and it is no wonder that 
 errors are continually arising because people pay taxes on the wrong 
 property, make double payments, etc., and that property on which 
 they intend to pay becomes delinquent, and in some cases is sold for 
 taxes. The complexity of the present system, or rather lack of system, 
 of describing property is also a source of constant embarrassment in 
 transferring property, because of the danger involved in using an in- 
 correct description in deeds, mortgages, etc. 
 
 The adoption of the prebilling system here recommended would 
 save time and be more convenient for taxpayers by, 
 
 1 — Preventing all congestion in the collector's office and 
 thereby enabling them to make payments quickly 
 
DEPARTMENT OP FINANCE 509 
 
 2 — Informing each taxpayer in advance relative to the details 
 of his assessment 
 
 3 — Reducing the possibility of errors in making bills 
 
 4 — Affording a basis for audit of both rolls and bills 
 
 5 — Making the bills neater and more legible (because type> 
 written). 
 
 6 — Reducing the cost of making out bills. 
 
 The suggested system would also save a large amount of clerical 
 time now consumed by the collector's office in listing in detail each 
 day the number of each receipt, the valuation of the property set forth 
 thereon, and each kind of taxes paid. This procedure is required by 
 statute, but serves no useful purpose other than to assist in determin- 
 ing whether the correct amount of cash for the day's collections is in 
 the cash drawers. So far as proving the cash is concerned, a much 
 simpler method is available, and as to its being of assistance in proving 
 the correctness of the tax extensions, this would have been already 
 determined at the time of prebilling. 
 
 Collection of Personal Taxes 
 
 It is to be noted that property is assessed as of April 1st each year 
 but that it does not become delinquent until a year from the succeed- 
 ing August — sixteen months later. Naturally much personal property 
 can disappear during such a long period and nothing be left to levy 
 on if it becomes necessary to sell it for taxes. Recognizing fully the 
 fact that taxation of personal property is unsatisfactory wherever 
 applied, nevertheless so long as the practice is continued in Denver the 
 law should be changed so that either it becomes delinquent earlier or 
 the tax is assessed later. The commissioner of finance has endeavored 
 to reduce to a minimum the amount of loss through non-collection of 
 personal taxes by putting two collectors out in the field. However, 
 this is bad practice. In fact the sending of men around town to collect 
 any kind of city revenues is bad in that it is difficult to maintain a 
 complete administrative control over them and over the correctness 
 of their collections. The temptation for them to peculate is strong and 
 the government should not place its employees in such a position. Par- 
 ticularly is this true of such uncertain revenues as personal taxes. All 
 tax money should be made receivable only at a collection office. 
 
510 DENVER 
 
 TREASURER 
 
 Organization 
 
 The commissioner of finance is ex officio treasurer. Two treas- 
 urer's offices are maintained, one in the court house and the other in 
 the city hall, the deputy in charge of the latter being subordinate to 
 the deputy in charge of the former. Both offices are conducted prac- 
 tically the same as they were before consolidation of the county and 
 city governments so far as handling the receipts and disbursements 
 thereof is concerned. The court house branch is used principally as a 
 tax collecting office, the treasurer being also tax collector. The city 
 hall branch is used mainly for issuing licenses and permits, and as a 
 disbursing office for payroll and other claims. If there were room in 
 the city hall, the duties of the office in the court house might be per- 
 formed there with equal facility and with the elimination of the second 
 deputy, but until a new municipal building is erected it will probably 
 be necessary to continue both offices. 
 
 Bookkeeping Methods Need Correction 
 
 The system used at the court house office of issuing receipts in 
 triplicate for money received from the recorder, sheriff, clerks of 
 courts, etc., is adequate. Similarly, we have no suggestions to offer 
 with respect to the issuing of licenses and permits by the city hall 
 office except as noted herein under the caption of "license procedure." 
 
 However, with respect to the bookkeeping methods at the court 
 house branch there is room for improvement. One naturally expects 
 to find complete and well kept records in a treasurer's office but here 
 a large amount of valuable data is contained on loose documents and 
 memorandum slips, which should be entered in registers and other book 
 records. Even the cash book is such as would not be tolerated in any 
 commercial house which pretended to use modern methods. ' Instead 
 of being columnar so as to show the different classes of receipts, it is 
 more like an old style journal. There is not even a column for setting 
 forth deposits in bank. 
 
 The books at the city hall branch are more complete and in better 
 form except that unnecessary work is performed in copying in the 
 cash book the name of every licensee and permittee. It is to be noted 
 that we made no audit of the treasurer's accounts. 
 
 Depositories of City Funds 
 
 Section 77 of the charter requires that — 
 
 "The treasurer shall, with the approval of the 
 mayor and auditor, select annually, or oftener, if 
 necessary, one or more banks or banking institutions 
 in the city and county, which will pay the highest 
 interest for the average current deposit of the city 
 and county funds. Before any such deposit shall be 
 made, the bank shall give a bond to the city and 
 
DEPARTMENT OF FINANCE 511 
 
 county, with such conditions and in such sums as may 
 be determined by the mayor, auditor and attorney, 
 but not less than the maximum amount which shall 
 be on deposit at any time. ' ' 
 
 Each of the depositories holding city funds at the time of our sur- 
 vey had on file with the city clerk a bond of a surety company equal 
 in amount to the deposit held. The city is receiving two-and-a-half 
 per cent interest from each depository. We would suggest, as an addi- 
 tional precaution that an ordinance be adopted, or better still that 
 when a new charter is adopted a provision be included therein whereby 
 deposits of city funds in any institution shall be limited to a definite 
 and fixed percentage of the combined capital and surplus of such in- 
 stitution. At present, the city has no assurance of the stability of its 
 depositories other than the bonds of local surety companies, and the 
 ability of such companies to avoid making reimbursements on bonds 
 furnished municipalities has often been demonstrated. As an illustra- 
 tion of what we have in mind, the method now used by the city of 
 New York may be cited. The four factors entering into the plan on 
 which the distribution is made between depositories in New York are — 
 
 First: Amount of bank's capital and surplus. Ten per cent of 
 the combined capital and surplus of a bank is taken as a minimum 
 basis. Thus a bank with $3,000,000 capital would be entitled to receive 
 $300,000 deposits. 
 
 Second : Rate of interest. .For every % per cent above 2 per cent 
 interest, an additional 2% per cent of the capital and surplus is added, 
 up to 20 per cent, which is the maximum. Thus, if the $3,000,000 bank 
 offers to pay 3 per cent, it is entitled to an amount equal to 10 per cent 
 of the capital and surplus, in addition to the first 10 per cent, making 
 $600,000 in all. 
 
 Third: The ratio of capital and surplus to the bank's general 
 deposits. The question here is one of safety. A ratio of five times as 
 much in deposits as the amount of capital and surplus is taken as nor- 
 mal. The variation of one unit above or below causes a variation of % 
 per cent in the amount of city deposits. Thus in the case specified if 
 the bank had ten times as much deposits as its capital and surplus, a 
 deduction of five times % per cent, or 2% per cent would be made, 
 reducing its maximum city deposits from $600,000 by $75,000, leaving 
 it at $525,000. (In Denver adjustments of these figures would of 
 course need to be made.) 
 
 Fourth : The amount of money the city has to deposit. In New 
 York in arranging transfers between depositories, those that offered 
 to pay 3 per cent receive the maximum to which they are entitled ex- 
 cept in a few cases where they restricted the amount themselves on 
 which they would pay 3 per cent. The remainder of the city's funds 
 are then distributed among those that offered to pay 2% per cent in 
 the proportion of the maximum to which they are entitled. As the 
 city's total balances vary, the effort is made to preserve this propor- 
 tion among the 2% per cent banks in round amounts. 
 
512 DENVER 
 
 COMMISSIONER OF SUPPLIES 
 
 Organization and Overhead Cost 
 
 The commissioner of supplies is the purchasing agent for the city 
 and county. He also is custodian and has supervision over the oper- 
 ation of the central repair shops, auditorium, comfort stations, public 
 bath house, and all other public buildings. In this chapter we shall 
 discuss only his duties as purchasing agent, the other functions being 
 discussed elsewhere in our report. 
 
 The commissioner of supplies receives a salary of $3,000 per year 
 and is appointed by the commissioner of finance. The annual P ay roll 
 of the office is $10,300; on a basis of $600,000 of purchases during 1913 
 the overhead salary cost of the office is therefore 1.7%. This is not 
 excessive, but it should be noted that the same staff could as well do 
 the buying of a much larger amount. Of course, it does not include 
 salaries or wages of employees in any of the public buildings. 
 
 How to Buy Efficiently 
 
 If the supplies, materials and equipment used by a city are to be 
 purchased economically, three definite steps are necessary — 
 
 (1) Centralization of Purchasing Power 
 
 (2) Standardization of Specifications 
 
 (3) Purchasing in Large Quantities and by Competitive Bids. 
 
 In centralizing all purchasing power in the office of the commis- 
 sioner of supplies, Denver has taken the first of these steps. However, 
 with respect to the second, practically nothing has been done, and as 
 to the third, only a beginning has been made. 
 
 Should Standardize Specifications 
 
 Most commercial organizations and some cities are awake to the 
 immense savings which may be realized by standardizing their equip- 
 ment, materials and supplies so that only the kind, grade, style, etc., 
 best adapted for each particular need will be purchased. Nothing of 
 this kind has been done by the city and county of Denver. No stand- 
 ardization has been effected of even the common supplies such as coal, 
 lubricating oil, lumber, etc., of which a large quantity is purchased 
 each year. Departments are free to requisition almost any kind and 
 grade of supplies, materials and equipment they may fancy. 
 
 Although the city spends $35,000 a year for fuel, the contracts say 
 nothing about heat units or percentage of ash. In certain instances it 
 is specified that the coal shall be "screened", but nothing is said re- 
 lative to the size of the mesh of the screens. Throughout the country 
 coal specifications are being used which provide that tests shall be 
 made of the number of British thermal units contained therein. Under 
 this system payments are made not simply according to the number of 
 tons of "coal" but according to the actual heat producing power which 
 the coal contains. 
 
DEPARTMENT OF FINANCE 513 
 
 Even on such minor supplies as letterheads and envelopes a con- 
 siderable saving might be realized by formally adopting certain grades 
 of paper, style of printing, etc., as standard, and buying no other. 
 
 The failure to standardize Denver specifications extends not only 
 to all supplies purchased, but even to the containers thereof, some of 
 the supplies still being purchased by the box, crate, basket, package, 
 etc. Properly drawn specifications would enable the city to secure a 
 better quality of supplies for the same price frequently paid for in- 
 ferior qualities. All supplies and materials which are susceptible of 
 being accurately described in writing should be purchased only on 
 written specifications, and adequate chemical and physical tests should 
 be made of deliveries to determine whether they conform to such speci- 
 fications. A considerable portion of the city's supplies are now pur- 
 chased "according to sample." This practice should be reduced to a 
 minimum. Standardization of purchases and specifications might per- 
 haps be best accomplished by a small committee composed of the com- 
 missioner of supplies and two department heads. The committee would, 
 of course, advise with all department heads and with manufacturers 
 and dealers, and would consider original costs of articles as well as the 
 relative efficiency thereof. 
 
 Need for Standard Testing Laboratory 
 
 In this connection the need for a standard testing laboratory is 
 emphasized and the city is fortunate in that it already possesses the 
 nucleus thereof. If the chemical and bacteriological laboratories were 
 ".onsolidated as suggested in that portion of our report relating to the 
 health department, and a re-alignment of the duties of the employees 
 therein were effected as we are suggesting, the new combined labora- 
 tory and staff would with little additional equipment be able to make 
 all of the tests needed. Some cities employ firms of engineering chem- 
 ists to make such tests, and others establish separate testing labora- 
 tories. Denver, however, is in a position to secure the same results 
 without any additional cost. 
 
 Should Purchase in Larger Quantities 
 
 It must be recognized by all citizens that the city and county of 
 Denver should be a wholesale buyer instead of a buyer at retail, be- 
 cause wholesale buying means lower prices, and the latter is the first 
 essential to efficient buying. A good start has been made in this direc- 
 tion, and for this the officials are deserving of commendation. 
 
 The following supplies are purchased under an annual contract 
 let under advertisement and competitive bidding. Fuel, lumber, ice, 
 cement, asphalt, crushed rock, sand, gravel, trees, oak stakes, nails, 
 meals at jail, laundry at county hospital, and towel service, legal adver- 
 tising, bread for both hospitals, fire and garden hose, toilet paper, car- 
 bon paper and typewriter ribbons, and publishing "City of Denver." 
 
 Certain other supplies are let on bi-monthly contracts after receiv- 
 ing sealed bids. Included in this class are forage, groceries, meat, 
 
514 DENVER 
 
 butter, eggs, and janitor supplies. However, notwithstanding the sev- 
 eral kinds of supplies purchased under contract, a great many pur- 
 chases are still made on open market order from week to week and 
 dav to day. For example, the hospital, instead of submitting estimates 
 of drugs and medical supplies which they will need for six months or 
 a year in advance, send in weekly requests. In fact, many requisitions 
 of this nature are received from the hospitals even during the weekly 
 interims. 
 
 The first move toward correcting the existing condition is to as- 
 certain the needs of all departments as far in advance as possible. 
 With respect to most supplies the demand therefor may be anticipated 
 a year in advance. Such information may be best obtained by trans- 
 mitting to the department heads standard blank forms with the request 
 that they designate thereon the total quantities of each kmd of supply 
 which they will need during the next year, or, say, six-month period. 
 With such information at hand more contracts might be let for quan- 
 tities adequate to last the entire period. Some times, of course, a con- 
 tract may be based on unit costs and equally low prices might be ob- 
 tained without guaranteeing that the city will purchase any definite 
 quantity. Also exception to purchasing at the beginning of the year 
 would be made in the case of fuel, forage and other supplies which are 
 of a seasonable nature, and for which lower prices may be obtained for 
 making contracts during the year. Moreover, if this plan were fol- 
 lowed a large amount of clerical labor now consumed in making requi- 
 sitions in the departments, issuing and recording orders, making out 
 vouchers, etc., in the central office would be eliminated. 
 
 Owing to the lack of a standardized budget and accounting meth- 
 ods information is lacking as to just how much the purchases amount 
 to in a year. For the several particular kinds of supplies the commis- 
 sioner of finance estimates that the purchases during 1913 amounted to 
 approximately $600,000. Even an average saving of 10% on this sum 
 would amount to $60,000 a year. Obviously it is a matter which should 
 receive immediate and continual attention. 
 
 Should Have A Central Store House 
 
 There is need in Denver for a central store house for supplies and 
 certain kinds of material and equipment. Experience of such cities as 
 have established such store houses shows that a very marked saving 
 can be effected thereby. It is the next logical step after the centraliza- 
 tion of buying power. The establishment of a central store house does 
 not mean that all supplies, materials and equipment must be kept there. 
 Contracts may be arranged for periodical deliveries as needed at any 
 number of delivery points, but there are certain commodities which 
 must be kept on hand anyway and if kept in a central store house a 
 smaller inventory would be required and hence a smaller investment 
 than is necessary when kept in the store rooms of several departments 
 as at present. Although we did not make a thorough study of condi- 
 tions relative to the best location for a central store house we were, 
 nevertheless, impressed with the advantages of locating it near the City 
 
DEPARTMENT OP FINANCE 515 
 
 Hall in the yards where the central repair shop stands ; in fact, it is 
 possible that some room might be set aside in the repair shop building 
 for this purpose. 
 
 Other Administrative Methods 
 
 Much excellent work has been done in arranging the records and 
 procedure in the office of the commissioner of supplies. The staff, par- 
 ticularly the chief clerk, appeared to take a keen interest in the work 
 and we believe with the proper encouragement that they will be glad to 
 correct such defects as still exist and are pointed out herein. Although 
 a file of trade catalogues is kept on hand, the office has no file of cards 
 showing prices current. Such a file is of great advantage in any pur- 
 chasing office. The present rule of thumb methods of noting prices on 
 sundry documents, or simply making a mental note thereof, should be 
 replaced by a file of this kind. Similarly, there is room for improve- 
 ment in the form of the documents used. For example — requisitions 
 which come to the purchasing agent from the departments are, after 
 signing and filling in the name of dealer, forwarded to the latter, a 
 carbon copy thereof being retained in the office. These documents 
 therefore serve both as departmental requisitions and purchase orders, 
 but no space is provided thereon for setting forth the number or 
 amounts of bids secured before issuing the orders. In fact, no record, 
 with the occasional exception of noting on the back of the duplicate 
 requisitions, is maintained in the office of the number and amounts of 
 bids secured from dealers in the respective commodities requisitioned. 
 
 The reason why the documents or other records should provide 
 such information was well illustrated during the progress of our sur- 
 vey when we endeavored to ascertain, and the commissioner of supplies 
 endeavored to demonstrate, that competitive bids were in fact actually 
 secured before issuing open market orders. 
 
516 DENVER 
 
 CENTEAL EEPAIE SHOP 
 
 Denver is to be congratulated on having centralized its repair 
 forces in a single building well situated and surrounded by storage 
 yards. 
 
 No Job Costs 
 
 The initial reason for having municipal repair shops in any city is 
 to eliminate the profit which accrues to a commercial shop doing city 
 repair work. Unless a city-owned repair shop can turn out work 
 cheaper than it can be done in a commercial shop the former is ob- 
 viously a bad investment. The only possible way to ascertain whether 
 work is being done in a city repair shop cheaper than it might be done 
 in a commercial shop is to currently maintain in the city shops job 
 costs on all work passing through the shop. With such costs avail- 
 able, comparisons may be made with outside prices and the relative 
 economy or lack of economy be clearly shown. Moreover, the record- 
 ing of job costs on the several kinds of work passing through a shop 
 affords a basis which the shop superintendent may use in estimating 
 the cost of similar jobs in the future. They are also of value in gaug- 
 ing the efficiency of individual workmen. 
 
 With the reasons and desirability for maintaining job costs thus 
 in mind, we would point out that although Denver has established a 
 central repair plant, no job costs have been kept on any of the work 
 turned out. It was therefore impossible for us to obtain any idea 
 relative to whether the work at the city shop is being done at an ex- 
 cessive cost or not. Similarly, the lack of such essential data militates 
 seriously against an effectual administrative control over the shops. 
 
 It is true that a record is kept showing the cost of raw material 
 used on the several jobs, but no attempt whatever has been made to 
 distribute the cost of labor over the respective jobs. In fact the only 
 time record maintained at the shop for the workmen employed there 
 is an ordinary time book, such as is used for street gangs, etc. Even 
 the time the men arrive and depart from the plant is not clearly noted 
 therein. 
 
 Need for "Rotary Fund" 
 
 In order that the operating costs of the several departments of 
 the city and county may be currently compiled and the relative effi- 
 ciency of the administration of such departments thereby determined, 
 it is necessary that in each and every case when the repair shop does 
 work for a department the actual cost thereof be charged against the 
 budget appropriation of such department. This is not done in Den- 
 ver. No part of the labor cost on any repair work is charged against 
 the departments for which the work is performed. Only the cost of 
 the raw material is thus charged. The procedure which is followed 
 forcibly illustrates the need for an immediate installation of an ade- 
 quate accounting system, not only in the auditor's office, but through- 
 
DEPARTMENT OP FINANCE 517 
 
 out the departments. For example — in the budget for 1914, instead of 
 appropriating an amount to cover the monthly costs of the repair shop, 
 and which would be reimbursed periodically from the appropriations 
 of the departments for which work was done, a lump sum or mongrel 
 appropriation was set aside for a dozen or more different functions 
 and activities, included among which are city repair shops. 
 
 "Public Grounds and Buildings — 
 
 $106,476 — together with the receipts from the Auditor- 
 ium, and the earnings of the city shops and garage, shall 
 be credited to and become a part of this appropriation. 
 This appropriation includes all expenses for salaries, 
 maintenance, repairs and supplies of the Auditorium, 
 bath house, city shops and garage, and public comfort 
 station. It includes the salaries of all engineers, firemen, 
 janitors, and lawn men, and the necessary repairs and 
 maintenance, including fuel, light and water rent in the * 
 Court House, West Side Court, City Hall, Euclid Hall and 
 Harman Hall. It carries all cost of fire and boiler insur- 
 ance for the above departments, and the entire telephone 
 expenses of the city and county of Denver." 
 
 Correct accounting and administrative procedure suggests that a 
 capital or "rotary fund" of, say, $25,000 be appropriated exclusively 
 to cover the repair shop operations. Pay rolls and vouchers for mate- 
 rial would be paid out of this fund, and it would be reimbursed monthly 
 or semi-monthly by transfers from the appropriations of the depart- 
 ments for which work was done, the transfers being the aggregate 
 amounts of the job costs which we have indicated should be kept. 
 
518 DENVER 
 
 ACCOUNTING AND AUDITING 
 
 The charter (section 236) states that the auditor is the general 
 accountant of the city and county. Most of the books of account are 
 therefore kept in the auditor's office, although the present system is 
 not what might be called "centralized." Unquestionably there is 
 much need for the installation of a modern, scientific system of ac- 
 counting. It seems probable that the auditor has sufficient authority 
 under the charter to take the initiative in such an installation. That 
 council has adequate authority there can be no question; section 20 of 
 the charter is very clear on this point. It reads — "the council shall, 
 by ordinance, require a uniform and comparative system of account- 
 ing and reporting by the different departments of the city and county." 
 
 :' 
 To facilitate the installation of a new system and to insure the 
 
 best results of its subsequent operation, it is essential that there be a 
 
 hearty co-operation not only between the auditor's office and council, 
 
 but also between all of the departments, bureaus, and' offices of the 
 
 city and county government. 
 
 The principal defects in the present system of accounting and 
 auditing are as follows: 
 
 Expenditures 
 
 1 — Although the auditor is the general accountant of the city, 
 he is afforded no information that a purchase order has 
 been issued and a liability incurred until he receives a ven- 
 dor's bill, stating that certain commodities have been pur- 
 chased and delivered. In fact many such deliveries may 
 easily have been consumed before the auditor knows any- 
 thing about them. 
 
 2 — Not only is there a failure in the auditor's office to post the 
 amounts of open market purchase orders as encumbrances 
 on appropriations and funds, but also with respect to con- 
 tracts, the amounts thereof are not set up as encumbrances 
 against the appropriations or funds from which payments 
 thereon are to be made. 
 
 'A— By reason of the facts set forth in 1 and 2, above, the system 
 does not enable the auditor to protect himself, the other 
 city and county officials, or the public by preventing the 
 budget appropriations from being over-encumbered, i. e., 
 the incurring of liabilities in excess of appropriations. 
 
 4— Although "expenses" are the only proper basis of comparison 
 in measuring the costs of government or of functions there- 
 of as between years or months, and although expenses must 
 first be ascertained before unit costs can be determined, 
 there is practically no expense accounting either in the 
 auditor's office or in any of the other departments of the 
 city or county. 
 
ACCOUNTING AND AUDITING 519 
 
 5 — The methods of inspection, certification and auditing to deter- 
 mine that purchases have been delivered or services ren- 
 dered afford very little protection against fraud or error. 
 
 Revenues 
 
 6 — Instead of being on a revenue accrual basis, the accounts are 
 on what may be called a cash basis. This means that the 
 auditor, the chief accountant of the government, takes no 
 cognizance of receipts until they are actually collected. 
 
 7 — Notwithstanding the fact that licenses, permits and other sim- 
 ilar documents of financial stationery have a monetary 
 value, there is absolutely no central accounting control 
 thereover. 
 
 8 — There is no adequate accounting or auditing control over the 
 fees collected in the district and county courts. 
 
 In General 
 
 9 — The auditor is unable to produce from his accounts even at 
 the end of a year a complete balance sheet of the assets and 
 liabilities of the city and county. 
 
 10 — There is need for building up what are usually termed general 
 ledger accounts. The group of accounts in the auditor's 
 office which comes nearest to being general ledger ac- 
 counts contains many accounts which do not belong in a 
 general ledger and omits many others which should be there. 
 
 1] — There is considerable duplication of effort in the present 
 bookkeeping processes in the auditor's office. 
 
 12 — Owing to the lack of proper procedure for handling invoices, 
 vouchers and warrants, and notwithstanding the fact that 
 the annual purchases run into hundreds of thousands of 
 dollars, practically no cash discounts are obtained. 
 
 Books Should Show Unencumbered Balances of 
 Appropriations and Funds 
 
 For the central accounting office to have no information of pur- 
 chase orders issued until after deliveries have been made thereon and 
 bills rendered, is a defect in the system which needs no elaboration in 
 this report. So long as the auditor knows nothing of what is being 
 done until after it is done, he cannot exercise that degree of control 
 over the purse strings of the city and county contemplated by the 
 statutes and charter, and necessary for efficient financial administra- 
 tion. 
 
 When it is considered that the amounts which the government may 
 spend are limited by the amounts appropriated, and that it is only un- 
 encumbered balances of appropriations that are available for expendi- 
 
520 DENVER 
 
 tures, it is almost inconceivable that reliance has been placed for so 
 long a time on a system which affords absolutely no information as to 
 the balances of appropriations which remain unencumbered by pur- 
 chase orders and contracts. 
 
 A weekly statement has been inaugurated and furnished to each 
 department head which shows the unexpended balances of appropria- 
 tions. This statement was designed to inform the several departments 
 relative to the amounts which were still available for expenditure. 
 However, it is plain that this purpose is not served, because while the 
 statement may show a considerable balance in any given appropriation 
 there may be contracts, open market purchase orders, or unvouehered 
 or unwarranted claims outstanding which entirely offset the apparent 
 balance. 
 
 Even in the matter of making the annual budget it is highly de- 
 sirable to know the amount of the previous year 's appropriations which 
 will remain unencumbered, and therefore be available for applying 
 to the reduction of the tax levy of the ensuing year. Obviously under 
 a system of accounts which fails to show such unencumbered balances 
 it is impossible to apply them with any degree of correctness. 
 
 Properly designed appropriation and fund ledgers should be in- 
 stalled in the auditor's office, in which it would be possible to set up 
 reserves against appropriations and funds to meet contingent liabili- 
 ties outstanding, such as noncompleted contracts and open market or- 
 ders, and thus enable the auditor at all times to ascertain readily both 
 the unexpended and unencumbered balances. 
 
 Section 85 of the charter (old section 237) provides that — "Any 
 demand against the treasurer remaining unpaid at the end of the fiscal 
 year for lack of money applicable to its payment, shall be paid in the 
 order of its registration out of any money which may subsequently 
 come into the proper fund from delinquent taxes or other uncollected 
 income or revenue for such year." 
 
 The principle laid down in this section of the charter is sound and 
 should be observed. To shunt the obligations which remain outstand- 
 ing at the end of a year over onto the revenues .of the next year is not 
 only unfair to the taxpayers, but is unbusinesslike. However, the only 
 way to prevent such an occurrence is to set up reserves for the amount 
 of outstanding liabilities as indicated above. As a matter of fact the 
 failure to maintain proper reserve accounts has actually resulted in 
 paying large amounts of one year's obligations out of the revenues of 
 the ensuing year. For example, the budget of 1914 contained an ap- 
 propriation under the title of "urgent deficiency" of approximately 
 $75,000 to take care of unpaid warrants of 1913. 
 
 Need for Expense Accounting 
 
 It is not sufficient to record the warrants drawn against the sev- 
 eral appropriations. If officials are to be afforded financial data 
 which they may safely use as a basis for judgment in administering 
 their departments, they must be furnished also with statements show 
 
ACCOUNTING AND AUDITING 521 
 
 ing the expenses for the several functions, subfunetions, activities, etc. 
 By expenses is meant the cost of administration, operation, mainten- 
 ance and fixed charges incurred in a stated period, irrespective of the 
 date of payment. 
 
 Information relative to warrants drawn (expenditures) is of as- 
 sistance chiefly to those responsible for the city's finances. Such data 
 relates only to the flow of cash. Quite a different kind of information 
 is needed by the other administrative officials. They are not as much 
 concerned with the flow of cash as with the cost of the services which 
 were actually rendered during the given period and the cost of the 
 supplies actually consumed. 
 
 Auditing of Expenditures 
 
 There is no uniformity with respect to the auditing of claims 
 against the city. Although they are all submitted to the auditor be- 
 fore payment, some of them are required by charter to be passed upon 
 by council, and some are not. For example, claims relating to the fol- 
 lowing boards and purposes need not have the approval of council be- 
 fore payment: 
 
 Board of Public Works — 
 Highways 
 Street cleaning 
 Streets and boulevards 
 Engineering and survey 
 Art commission 
 
 Colorado museum, natural history 
 Special fund 
 Condemnation fund 
 Paving 
 
 Permit and inspection 
 Sewer flushing 
 Street openings, and 
 All local improvement district funds 
 
 Fire and Police Board — 
 Police 
 Fire 
 
 Excise bills 
 
 Postage stamp bills 
 
 "Witness, juror, assigned counsel, autopsy, etc., on certificates 
 of courts and coroner 
 
 Bills of public utilities commission 
 
 Park bills 
 
 Board of Charities and Corrections — 
 Mothers' compensation 
 Support of poor 
 
522 DENVER 
 
 Poor farm 
 Detention home 
 Municipal lodging house 
 Municipal store 
 
 Library commission 
 
 Payroll and election judges, clerks, etc. 
 
 Rebate of taxes. 
 
 All other claims against the city must be submitted to council and 
 have the approval thereof before payment. That the approval of cur- 
 rent claims by council is entirely perfunctory and affords no additional 
 protection to the city is evident from an examination of the procedure 
 as it is operated. 
 
 The minutes of council meetings show that upon motion the bills 
 submitted are usually passed in lump without any examination or 
 query. The usual motion, as shown by the minutes, is as follows: 
 
 "Upon motion by Commissioner , duly seconded, that all bills 
 
 and demands in the hands of the clerk that have been signed by their 
 respective heads of departments and audited be allowed; was carried 
 by the following vote." 
 
 Because of the large amount of other work which devolves upon 
 council it is wrong to expect it to audit claims, and unless it does make 
 an audit, there can be no value in an approval thereof. Moreover, the 
 approving of claims by council tends to shifting of responsibility. 
 
 The entire procedure incident to the audit and payment of claims, 
 beginning with the inspection and certification of deliveries, needs re- 
 vision. Several hundred thousand dollars worth of materials and sup- 
 plies are purchased annually by the city, and yet the auditor has no 
 independent means of ascertaining whether the deliveries thereof with 
 respect to quantity and quality were correct. It is true that the vouch- 
 ers contain certificates purporting to show that the commodities or 
 services were furnished as billed, but these certificates, instead of 
 being signed by the persons who actually received the deliveries or by 
 inspectors attached to the auditor's office, are in practically all in- 
 stances signed by a deputy head of department. It is suggested that 
 a system of "blind tally" sheets be used whereby each delivery point 
 will be furnished with a pad of such sheets, and, whenever deliveries 
 are received, the person receiving them will write out a description of 
 what is received, including the quantity thereof, and a statement as to 
 whether it appears to be in good condition or not; also from whom 
 received. This would all be written in triplicate and signed by the 
 person receiving the delivery. One copy would be sent to the auditor's 
 office immediately and be there placed in a file, together with a copy 
 of the purchase order, to await the receipt of the vendor's bill, when 
 it would serve as a basis for audit. The duplicate copy would be sent 
 to the central office of whatever department the goods were purchased 
 for, and the triplicate be retained at the receiving point. 
 
ACCOUNTING AND AUDITING 523 
 
 Such a system not only has great advantages over the mere ap- 
 proval of a department head as at present, but is also superior to any 
 system whereby the person at the delivery point simply signs or initials 
 the invoices or delivery slips presented to him. Where the latter 
 method is used the tendency is always to assume that the deliveries 
 are correct and the signing of the invoices or delivery slips is, there- 
 fore, perfunctory. By using the method herein recommended it is 
 incumbent upon the person at the receiving point to make an actual, 
 physical examination of what is received in order to describe it in 
 writing on the tally sheet. 
 
 The only inspection method which is better than the use of tally 
 sheets is to have an inspector from the auditor's office visit the deliv- 
 ery points as soon as possible and make independent inspections of 
 deliveries. However, such a method is expensive and the cost might 
 not be justified. The same moral effect on persons at receiving points 
 may be had by sending out a man from the auditor's office intermit- 
 tently, as the work conditions in the office permit, to check up the cor- 
 rectness of the statements set forth on the tally sheets. 
 
 A feature of the auditing process which is without value as a 
 means of protection, and which causes unnecessary work in the office 
 of both the purchasing agent and the auditor, as well as unnecessary 
 bother to those doing business with the city, is the requirement that 
 the latter shall come to the city hall and sign the certificate as below : 
 
 "The undersigned being duly sworn, deposes and says 
 that he is authorized to make and file this affidavit ; that the 
 within account and the items in the bill specified or attached 
 are correct; that the articles or services therein enumerated 
 have in fact been furnished or performed, and by due author- 
 ity. That the prices charged therein are reasonable and just ; 
 and that the said bill has not been either in whole or any part 
 paid, and that the full amount is now justly due from the City 
 and County of Denver, and that no officer or agent of the city 
 is personally interested therein." 
 
 The signing of this certificate has no value, because it is done per- 
 functorily in the office of the purchasing agent, who is without author- 
 ity to serve in such capacity, and merely initialed by the deputy 
 auditor when it subsequently reaches the auditor's office. 
 
 Moreover, the requirement that dealers must come to the city hall 
 or send a representative to sign the above certificate, and a few days 
 later make another trip to receive the warrant in payment of the claim, 
 naturally has a tendency to restrict competition for city business. By 
 the adoption of a form of invoice-voucher-check, payments in liquida- 
 tion of claims might be sent to the payees by mail and their endorse- 
 ment to the check constitute adequate receipt of the amounts set forth 
 thereon. Many commercial firms have adopted this method both for 
 their own convenience and that of their customers. 
 
524 DENVER 
 
 Should be on Revenue Basis 
 
 For the same reason that expense accounts are necessary to enable 
 the department head to ascertain the cost of a particular function or 
 activity for any particular period, it is also necessary for the financial 
 officers and council to be furnished with information relative to the 
 amounts and kinds of revenue which have accrued or which will ac- 
 crue in the near future— say the next month or year. The fiscal offi- 
 cers of a large private corporation would not think of accepting state- 
 ments of cash received as a criterion of the amount of business done 
 during a particular period; they would demand to know the amount 
 of revenue accrued. Similarly, such officials would not think of mak- 
 ing plans for the future merely on the basis of cash receipts; they 
 would necessarily predicate their plans largely on the revenues which 
 would accrue. So with public corporations — if there is to be adequate 
 basis for judgment, the financial and legislative officers must be sup- 
 plied with full information relative to the accrual of revenues as well 
 as to the collection thereof. 
 
 Moreover, unless the auditor's records furnish him currently with 
 information relative to the amounts which have accrued and are owing 
 to the city, he has no basis for determining the correctness of the 
 amounts which have been collected and turned over to the treasurer. 
 At the present time the auditor and the treasurer are in the position 
 of accepting merely what is given them. In short, it is a "hand to 
 mouth" method. For example, although the commissioner of finance 
 furnished the auditor with copies of agreements entered into when the 
 municipal Auditorium is leased with respect to the leasing of other 
 city property the auditor has no basis for determining whether the cor- 
 rect amounts are actually collected or not; also the department of 
 parks rents out a number of houses, but the auditor has no information 
 as to the terms of the leases. Similarly, with respect to property ac- 
 quired by condemnation and leased, the auditor states that he is af- 
 forded no information as to the terms made. 
 
 Should Have Control Over Financial Stationery 
 
 Owing to the monetary value attaching to documents such as 
 licenses, permits, and receipts, the blank forms thereof should be pur- 
 chased only by the city auditor. When and as he delivers them to de- 
 partments for issuance he should charge such departments therewith 
 according to document numbers and hold them responsible for (1) 
 turning over to the city treasurer the amounts represented by the face 
 of the documents, or (2) returning them to the auditor in blank or as 
 cancelled or spoiled documents. Only in such a way can there be an 
 adequate control thereover. 
 
 Inasmuch as some financial documents can be and are issued for 
 varying amounts, it is essential that a means be provided for auditing 
 in the central auditing office the correctness of the amounts for which 
 they have been issued, so that the same may be checked against the 
 amount of money collected and turned over to the treasurer. This may 
 be effected by having the license forms prepared as described in this 
 report under the caption of "license procedure." 
 
ACCOUNTING AND AUDITING 525 
 
 Until such a system is adopted there is practically no means of 
 determining whether the amounts collected are the amounts which 
 should have been collected. Even with respect to tax rolls there is no 
 independent proof by the auditor of the correctness of the extensions 
 and totals thereof. 
 
 No Central Control Over Court Revenues 
 
 One of the most serious defects with respect to the auditing of 
 receipts relates to the fees earned by the county offices. Both the 
 district and county courts pay all employees, other than bailiffs and 
 stenographers, out of the fees received and render no report whatever 
 to the auditor relative thereto. Such cash balances as may remain 
 after paying the employees are turned over to the treasurer, but the 
 auditor is left in the position of simply accepting the amounts turned 
 over. He has no auditing control over the amounts collected. 
 
 The fees collected by the sheriff, juvenile court and by the recorder 
 are turned into the treasury and the net thereof reported to the auditor 
 monthly, although he receives no duplicate receipts of individual 
 amounts collected, depending entirely on a periodical checking up of 
 the books of such offices. 
 
 Cannot Produce a Balance Sheet 
 
 The reasons why a balance sheet of the city and county govern- 
 ment of Denver should be available are set forth in connection with 
 our discussion of the budget. The ability of a city or county to pro- 
 duce a clear-cut and accurate balance sheet tends to inspire the con- 
 fidence of the community in its public officials. The taxpayers of 
 Denver have as much right to expect a balance sheet, showing the 
 financial condition of their government as have the stockholders of a 
 private corporation. Moreover, it is essential for purposes of clear 
 thinking about the financial program of the city and county that the 
 information contained in a properly prepared balance sheet shall be. 
 available to them. 
 
 It is impossible for the auditor to produce a balance sheet because 
 his books do not afford complete information relative to the outstand- 
 ing liabilities or the revenue receivable; nor do they show the value 
 of the property owned, either real or personal. Although an inventory 
 of all city property is supposed to be taken at the close of each year, 
 it is not recorded in ledger accounts. In fact it is filed with the com- 
 missioner of property instead of with the auditor. It is not even 
 checked to ascertain its correctness, and we are informed that the 
 amounts shown were in most cases estimated values instead of actual 
 costs. 
 
 In this connection it is to be noted that complete property records 
 are valuable not only for balance sheet purposes, but for current ad- 
 ministrative purposes, in fact, their value is greater for the latter pur- 
 pose. 
 
526 DENVER 
 
 Section 236 of the charter (old section 47) requires that the auditor 
 "shall give information as to the exact condition of the treasury, ana 
 of every appropriation and fund thereof, upon demand of the mayor, 
 council, or any committee thereof." It is impossible for the auditor to 
 conform to the provisions of this clause until his accounts are revised 
 so as to reflect all of the liabilities which have been incurred and all 
 of the revenues which have accrued. 
 
 Similarly, section 239 of the charter (old section 50) requires the 
 auditor to render a verified statement to council showing "the condi- 
 tion of each fund at the close of June 30. ' ' The condition of each fund 
 cannot be determined from the present books of account. 
 
 Feed for Complement of General Ledger Accounts 
 
 The first step toward adjusting the ledger accounts of the audit- 
 or's office is to devise and instal the proper kinds of forms. For ex- 
 ample, separate forms should be used for general ledger, appropriation 
 and fund ledgers, contract ledger, expense ledger, stores ledger, etc. 
 Only the accounts necessary to produce a complete balance sheet and 
 auxiliary special accounts should be included in the general ledger. 
 Many of the general ledger accounts should serve as controlling ac- 
 counts over the totals of the accounts in subsidiary ledgers. At the 
 present time there is no clear alignment of the several classes of ledger 
 accounts. All appropriation and bond and trust accounts are carried 
 in a single ledger, which is ill designed for such purposes. For exam- 
 ple, one-fifth of the entire book is ruled for "warrants outstanding," 
 when as a matter of fact the warrants outstanding column is used for 
 such accounts on only two pages, and even these accounts should be 
 in a general ledger and not in an appropriation, bond, or trust account 
 ledger. 
 
 Duplication of Bookkeeping Processes 
 
 Not only does the present accounting system fail to supply much 
 information which it should supply, but there is a duplication of effort 
 in recording such data as is now recorded. For example, certain kinds 
 of documents are entered in a register and also journalized in detail. 
 Such duplication should be eliminated. Adequately designed registers 
 would eliminate practically all journalizing. 
 
ACCOUNTING AND AUDITING 527 
 
 PAYROLL PROCEDURE 
 
 Present Procedure 
 
 Payrolls are prepared in the several departments — some being 
 written on the typewriter and some in longhand. After the civil 
 service commission has checked them to the authorized rosters of city 
 employees they are sent to the auditor's office where, although a pro- 
 teetograph machine is used to punch the maximum amount in each 
 warrant, the warrants are nevertheless written out in longhand — one 
 for each person named on the rolls. Furthermore, each payroll is 
 copied in longhand into a warrant book. The warrants are then sent 
 back to the departments for counter-signatures by the heads thereof, 
 after which they are returned to the auditor, who checks them to the 
 warrant book. 
 
 Suggested Procedure 
 
 Pay checks for the individual employees in the respective depart- 
 ments should be made out therein and transmitted, together with the 
 payroll, through the civil service commission to the auditor. 
 
 As soon' as an adequate efficiency system of daily reporting is in- 
 stalled, all payrolls should be made out in the office of the civil service 
 commission on an addressograph machine and transmitted to the re- 
 spective departments for certification and drawing of pay checks._ 
 Each roll sent to the auditor should also be accompanied by a blanket 
 warrant, in favor of the treasurer as paymaster, for the total amount 
 of the roll and signed, as required by charter, by the head of the de- 
 partment ; it should also be accompanied by a payroll voucher. 
 
 After verifying the correctness of the rolls, checks, warrants and 
 vouchers, the auditor should then certify to the rolls and vouchers, sign 
 the warrants and transmit all of the documents except the vouchers to 
 the treasurer. 
 
 The treasurer should clear the warrant to the credit of a special 
 payroll account against which the checks are drawn, sign the checks 
 and disburse them. 
 
 All charter requirements would then be complied with, adequate 
 safeguarding factors would be provided, and the procedure much sim- 
 plified in the auditor 's office, not only by eliminating the making and 
 signing of so many warrants, but also the registration thereof. More- 
 over, each department head would sign only one warrant for his entire 
 payroll instead of one for each of his employees. 
 
 The copying of payrolls in the auditor's office should, of course, 
 be discontinued. They should be made uniform in size for all depart- 
 ments, separate colors being used if desired to facilitate handling them. 
 They should be in loose leaf form and inserted in binders when they 
 reach the treasurer's office, and thus automatically become a register 
 and fulfill the same purpose as the register now prepared by copying 
 — payees receipting therein the same as now for the amounts of their 
 
528 DENVER 
 
 checks. When rolls have been paid they would be returned to the 
 auditor for filing. If any checks remain unpaid for several weeks, the 
 rolls would nevertheless be returned to the auditor and the checks 
 cleared into a "payroll tailings" or "unclaimed salaries" account. 
 
 With the exception of fire department employees, all employees 
 were required, at the time of our survey, to come to the auditor 's office 
 and receive and receipt for their warrants. They might then be taken 
 across the hall and cashed in the treasurer's office. The practice had 
 been recently inaugurated by the auditor of sending a man from his 
 office in an auto, together with the deputy treasurer, to the several 
 fire houses and paying the men located there, the procedure being for 
 the auditor's representative to deliver the warrants and receive signa- 
 ture on the warrant book and for the treasurer to cash them after en- 
 dorsement. We were informed by the auditor that, beginning May 1st, 
 it was his intention also to pay all park employees at the place where 
 they are working. This procedure should be extended as far as pra- 
 ticable to all employees engaged outside of the city hall. For exam- 
 ple, employees in the court house should not be required to go across 
 the city to the city hall twice a month for their pay, because in so doing 
 the tendency is for them to quit work earlier in order to reach the city 
 hall before closing time and thereby to cause in the aggregate a large 
 loss of time paid for by the city and county. 
 
 Jurors' and Election Warrants Discounted 
 
 The fact that a large proportion of persons serving as jurors or 
 as election clerks find it necessary to accept a discount on their war- 
 rants in order to have them cashed is another indictment of the present 
 auditing and accounting procedure. We were informed that a drug- 
 gist across the street from the city hall discounts the warrants of elec- 
 tion clerks and judges because the warrants and payroll for the pay- 
 ment thereof are not ready for a week or two after the services have 
 been rendered ; also that two brokers — one in the court house and the 
 other in the criminal courts building, discount jurors' certificates be- 
 cause it is too far for many jurors to go to the city hall to have the 
 certificates cashed. 
 
ACCOUNTING AND AUDITING 529 
 
 LICENSE PROCEDURE 
 
 Too Much "Red Tape" Procedure 
 
 The present procedure incident to the issuing of licenses is too 
 complicated. It causes licensees unnecessary inconvenience, and the 
 city unnecessary clerical work. The successive steps in issuing licenses 
 are as follows: 
 
 1 — All applicants for licenses are required to fill out an applica- 
 tion. This may be done either in the auditor's office or the 
 office of the excise commissioner (except that all applica- 
 tions for liquor licenses must be made to the latter). 
 
 2 — All persons applying to the auditor's office, and many do be- 
 cause the license inspectors are located there, must take 
 their applications downstairs to the excise commissioner 
 and obtain his signature thereto. 
 
 3 — The applicant must then return upstairs and take the applica- 
 tion to the treasurer's office, pay the required fee and get 
 a receipt. This latter is made in triplicate, the original go- 
 ing to the applicant, the duplicate to the auditor's office, 
 and the triplicate being retained by the treasurer. 
 
 4 — The application, which is received with the license fee from the 
 applicant, is then sent by the treasurer to the auditor, so 
 that the chief license inspector can make the necessary en- 
 tries on his files of license reference cards. 
 
 5— The applications are then sent downstairs again by the auditor 
 to the excise commissioner, who makes out the licenses. 
 The latter official also makes the necessary entries in a file 
 of license reference cards similar to that kept in the audit- 
 or's office. 
 
 6 — The licenses are then sent by the excise commissioner to the 
 treasurer, who signs them and makes the necessary entries 
 in a file of license reference cards, which are also similar 
 to the files kept in the auditor's office. 
 
 7 — The licenses are then sent by the treasurer to the auditor, where 
 they are cheeked to the cards and signed by the auditor. 
 
 8 — The licenses are then returned by the auditor to the office of 
 the excise commissioner, where they were made out origin- 
 ally. They are signed by the excise commissioner, and some 
 are mailed to the licensees. Peddler, junk wagon, express 
 wagon, herdic, cab, milk wagon, ash hauler and coal wagon 
 licensees are required to come to the office of the excise 
 commissioner and surrender their receipts before being 
 given their licenses. 
 
 It is to be noted that persons applying to the auditor's office must 
 go back downstairs to the excise commissioner, and then upstairs again 
 
530 DENVER 
 
 to the treasurer. Also that even after paying the required fee they do 
 not receive a license. In fact, as noted above, several kinds of licensees 
 are required to make a second trip to the city hall to get their licenses. 
 
 It is also to be noted that three complete sets of license reference 
 cards are maintained in the same building. 
 
 The "red tape" of the present procedure is perhaps more appar- 
 ent from the following graph in which a solid line represents the ap- 
 plication, and a dotted line the license, the application starting on the 
 circuitous course at the auditor's office. 
 
 Should be Issued by Treasurer 
 
 All license forms should be made out by the treasurer upon re- 
 ceipt by him of the amount of license fee required by ordinance, ex- 
 cept that licenses for which the approval of the mayor, commissioner 
 of safety or other officer is requisite, should not be issued until written 
 approval of such officer is obtained. 
 
 Each license should be made out in triplicate. The original should 
 be delivered to the licensee, who should present it to the auditor or his. 
 deputy for validation and thus comply with the charter requirement 
 that licenses be signed by the auditor. All duplicate licenses should be 
 transmitted to the auditor at the close of each day and used as a basib. 
 for entry in the license register, and also the making of such other 
 records as may be necessary. These duplicates will then be available 
 for the license inspectors of the police department, but when not in 
 use should remain in the files of the auditor's office. The triplicate 
 copy of each license should be retained by the treasurer. 
 
 The original copies of all licenses should be made on safety paper. 
 Documents which have a varying date of termination or which may 
 be issued for varying months should include a graduated coupon on 
 the right-hand side of the document so devised that when cut with 
 an angle cutting rule at the time of issuance, the highest amount (which 
 shall be the amount received) will remain on the document and the 
 other half of the coupon will remain on the duplicate license whicn is 
 turned over to the auditor. 
 
 Inspection of Licenses Too Costly 
 
 Inspection of licenses is a function of the auditor's office and is. 
 under the supervision of a chief license inspector, who receives $150 
 per month, and who has seven assistants, each receiving $100 per 
 month. The chief inspector and one assistant remain in the office and 
 the other six men are engaged on inspection work. They are all an 
 pointed by the auditor. F 
 
 The inspectors are required to report at the auditor's office each 
 morning, and also again in the evening. For them to come back to the 
 office again in the evening is, of course, a waste of time. They make 
 no daily reports of work performed. The only thing which partakes 
 in any way of the character of a report consists of the stubs which they 
 

 
 
 
 
 
 k 
 
 
 
 £ 
 
 0: 
 
 
 Vg 
 
 S 
 
 K 
 
 
 ^ 
 
 
 V 
 
 °>l V 
 
 
 Vj 
 
 f* 
 
 
 £ VI 
 
 i\ 
 
 
 
 v <o 
 
 K 1 
 
 
 
 
 
 Vi * 
 
 
 
 
 
 §b 
 
 
 
 
 \> 
 
 
 
 
 
 
 3- 
 
 v 
 
 X^ \ 
 
 <0 
 
 
 o 
 
 
 
 
 Q; Q!) 
 
 
 ,0^ 
 
 / / u 
 
 
 ^ * 
 
 V 
 
 I > 
 
 ,<y/ 
 
 ' 8 
 
 
 ^ ^ 
 
 
 
 
 J v s X , 
 
 
 
 
 
 
 aV/ / ' 
 
 £ <* 
 
 
 
 
 / / * 
 
 A 
 
 U4 
 
 
 «o 
 
 
 
 S S ' 
 
 
 
 X^ X / 
 
 
 
 K ^ 
 
 k { 
 
 
 
 N, ^ 
 
 0| 
 
 
 X / 
 
 ^ K 
 
 N» | 
 
 
 / / 
 
 o 
 
 
 / 
 
 
 
 o 
 
 
 
 
 
 
 
 
 
ACCOUNTING AND AUDITING 531 
 
 return of renewal notices which they have delivered. The inspectors 
 are not assigned to any particular district, but each man devotes his 
 attention exclusively to certain kinds of licenses. 
 
 All licenses except ash haulers' and milk licenses and liquor li- 
 censes expire six months or a year from the date of issue, no matter 
 what the date may be. Of the exceptions, the first expires June 1st, 
 and the second July 1st. The excise commissioner estimated that 90 
 per cent of the liquor licenses were dated December 11, 1913, and that 
 98 per cent of them ran for six months. 
 
 It is obvious that under the present practice each day some licenses 
 expire, and therefore a considerable inspection task is involved in 
 maintaining an administrative control over the situation. 
 
 However, there is no need of so much inspection, nor hence of so 
 many inspectors. In fact, two regular inspectors should be sufficient 
 instead of eight, and the $7,200 paid the extra six might be saved or 
 used for other purposes. To make such a plan practicable needs simply 
 a readjustment of the licensing periods, so that practically all licenses 
 will terminate at fixed dates, the same as ash haulers' and milk licenses 
 do now. The adoption of such a plan would so simplify the inspection 
 problem that the policeman on each beat could easily perform the in- 
 spection. This might best be accomplished by setting aside certain 
 dates as license inspection days, say, one each quarter or each six 
 months, and require each policeman to render a written report on all 
 licensable businesses or occupations in his beat. Blank forms would of 
 course be furnished them for that purpose. This is the method followed 
 in many cities with satisfactory results. The license inspectors attached 
 to the auditor's office would be enough to maintain administrative 
 control through records kept by them, and also to perform intermit- 
 tent inspections as a test or check upon the police and to produce the i 
 desired moral effect on them and on licensees. 
 
 The license inspectors now deliver renewal notices. This might be 
 done with equal facility by. the police. From whatever angle the sit- 
 uation is viewed, the answer remains the same. License inspection is 
 work which should be done by the police. 
 
 Excise Commissioner 
 
 The excise commissioner is appointed by the commissioner of 
 finance and receives a salary of $3,000. Under the old charter, he was 
 chairman of the fire and police board. Although this board exists now 
 only in name, the excise commissioner nevertheless continues to exer- 
 cise the power granted to this board under an old ordinance to make 
 rules relative to licenses. The excise commissioner is now under the 
 department of finance, whereas the authority exercised was granted 
 to officials named under, the department of safety. 
 
 The staff of the excise commissioner comprises three men, one of 
 whom acts as counterman, sends out notices, etc., another writes li- 
 censes, approves bonds, and keeps records, while the third operates the 
 card system. 
 
532 DENVER 
 
 In the same way that the commissioner of safety acts alone as a 
 board, and has minutes recorded of his board actions, so the commis- 
 sioner of excise has formal minutes recorded of meetings of himself 
 to approve license applications three times a week, although in practice 
 the applications are actually approved from day to day. The duties 
 of the commissioner consist chiefly of inspection incident to the trans- 
 fer of liquor licenses, of which there are now 475. 
 
 On the basis of a population of 213,000, there is now one liquor 
 license to every 450 population. With the adoption of the license pro- 
 cedure suggested herein there would be no need for the staff now em- 
 ployed by the excise commissioner. In fact, the inspection work per- 
 formed by him personally might with equal facility and advantage be 
 performed by one of the two inspectors of the auditor's office — or in 
 event the office of excise commissioner be abolished, a third inspector 
 might be added to the auditor's staff for that purpose. Hearings on 
 the granting or transferring of liquor licenses might then be held by 
 the commissioner of finance or by council acting through a committee. 
 In any event no liquor license should be issued or transferred except 
 after a written report has been rendered by the police bureau, stating 
 ivhether there are any reasons why the license should not be issued or 
 t,rans Terra d » 
 
BUDGET 533 
 
 BUDGET 
 Defects of Present Methods 
 
 The making of the annual budget for the city and county of Den- 
 ver is the most important annual governmental event of the year to 
 the citizens thereof. The budget is to a large extent the work program 
 for the ensuing year. Far too little attention has been given to its 
 preparation. A basis has not been afforded in the budget for efficient 
 administration in the several departments throughout the year. 
 
 The budget being based on departmental estimates, it follows that 
 such estimates should be carefully prepared according to a well con- 
 sidered method; that they should not only contain sufficient detail to 
 inform the council and the public fully as to amounts requested, but 
 should also contain comparisons with previous fiscal periods in |>rder 
 that judgment may be reached understandingly. 
 
 In preparing the estimates for the 1914 budget not only was there 
 a failure to standardize in any way the kind of information desired, 
 but the estimates were not even prepared on uniform blanks. Each 
 department head followed his own fancy and set forth his estimates in 
 whatever grouping and detail he desired. 
 
 One of the most serious defects of the 1914 budget was that it 
 contained no information relative to the number of persons to be em- 
 ployed, or anything as to their titles or rates of compensation. More- 
 over, no .salary ordinance was adopted. Lump sums were allowed in 
 the budget to the various departments and bureaus, and the commis- 
 sioners were free to make appointments and fix rates as they saw fit, 
 provided the total did not exceed the amount appropriated. Section 
 15 of the 1914 appropriation ordinance sets forth very clearly the 
 method followed : 
 
 It shall be the duty of each head of a department here- 
 under to file with the auditor of the city and county of Denver 
 a sworn statement of the salaries to be paid in such depart- 
 ment, and when such statement be so filed it shall be the 
 authority of the auditor of the said city and county of Denver 
 to make payment thereon in accordance therewith. 
 
 No matter from what angle the 1914 budget is viewed, there is 
 practically no uniformity of classification in it. For example, in the 
 department of safety $679,620 is appropriated in only three items, i. e., 
 for the fire, police and sheriff's departments. In the department of 
 improvements $710,278 is appropriated in sixteen items, some of which 
 are bureaus and some divisions. Differing both from the departments 
 of safety and improvements, $586,435 is appropriated for the depart- 
 ment of social welfare in thirty items, the detail of the latter not being 
 confined to departments (bureaus) as in "safety," or to bureaus and 
 divisions as in "improvements," but showing separately the amounts 
 allowed for salaries and expenses. 
 
534 DENVER 
 
 "With respect to transfers, very little administrative control is pos- 
 sible. If an appropriation is about to become over-expended, all that 
 is necessary is for the commissioner having supervision thereof to re- 
 quest the auditor to make a transfer thereto from such fund as he 
 may designate. So long as the transfer is made between appropria- 
 tions of the same department, no action by council is necessary. The 
 wide latitude thus allowed is more clearly understood when it is re- 
 membered that there are only five departments, and that the provision 
 above cited means that the amount allowed any one of them may be 
 manipulated in any way desired so long as it is not exceeded. 
 
 Section 32 of the charter (old section 245) makes it unlawful to 
 incur, allow, contract for, pay or render payable in any one month auy 
 expenditure or demand in excess of one-twelfth part of the amount 
 of the appropriation. To administer this provision of the charter as 
 it is | set forth would be greatly to hinder the current operations of the 
 government. As a matter of fact, practically no attention is given to 
 it in actual practice. Nevertheless, the 1914 budget contains the same 
 provision in several different sections. In fact the budget provisions 
 are contrary to the charter provisions. For example, the last para- 
 graph of section 32 of the charter states that "appropriations provided 
 to meet the expenses' of elections, assessor's department and the de- 
 partments of health, highways, sprinkling, libraries and parks shall be 
 exempt from the pro rata requirements." Notwithstanding this ex- 
 emption, the 1914 budget nevertheless specifies that appropriations for 
 the assessor's department and also for the department of health, high- 
 ways and sprinkling shall "be paid out as nearly as practicable in 
 twelve equal installments. ' ' 
 
 Not only is the entire idea of pro rating the total appropriation 
 on a monthly basis fundamentally wrong, but the use of the word 
 "paid" in the budget provision would nullify whatever value there 
 might otherwise be in the plan. This is obvious when it is considered 
 that the supplies used during any particular month may not be paid 
 for until two or three months subsequent thereto ; also that quantities 
 of supplies are often purchased and paid for in advance for subsequent 
 consumption during the year. Probably what was intended was to 
 pro rate the appropriation on a consumption basis or a liability basis. 
 
 Due to charter and statutory defects an anomalous condition exists 
 with respect to the budget for both county and district courts. Instead 
 of the entire expense of these courts being included in the city budget, 
 there is only included an amount to pay for jurors' and witnesses' fees 
 in criminal cases, fees of assigned counsel, bailiffs and stenographers, 
 and supplies. The judges are paid direct by the state, while all em- 
 ployees of the court, other than bailiffs and stenographers, are paid 
 out of the fees received, not even a report thereof being made to coun- 
 cil or the auditor. This condition should be corrected and the courts 
 brought within budgetary control. 
 
 Another defect of present budget methods is that practically no 
 publicity has been given to the budget processes. There is no publica- 
 tion of the estimates except that after they have been cast into con- 
 
BUDGET 535 
 
 tract form the initial draft thereof is published in the official news- 
 paper, the same as is done with all other ordinances. So far as the 
 public is concerned, or civic organizations representing the public, it 
 has been left quite in the dark with respect to what was intended to be 
 done. 
 
 Apportioning Budget Accounts to Particular Districts 
 
 A discussion of budget defects would not be complete without 
 calling attention to the fact that section 39 of the charter (old section 
 346) provides that in all appropriations and expenditures of public 
 money for fire and police protection, care and maintenance of streets, 
 the furnishing of light, and of water, the council shall set aside for and 
 expend in that part of the city and county included within the limits 
 of ,the municipalities annexed to the city of Denver, or consolidated 
 with the city and county, its just share in proportion to the assessed 
 valuation, as near as may be, to be distributed among the sections com- 
 prised by the former municipalities in the same proportion, and the 
 water, light service, and fire and police protection of such former 
 municipalities shall not be curtailed. 
 
 We are informed that this is an old provision adopted at the time 
 of the annexation of some of the outlying communities, but that it is 
 not observed. We do not suggest any change in procedure in this 
 respect. To observe this provision and apportion the public funds for 
 fire and police protection, street maintenance, etc., on the basis of the 
 assessed valuation of any part of the city would be nothing less than 
 ridiculous. The charter provision should be repealed. 
 
 Suggestions for Correcting Existing Defects 
 
 In order that the budget for the city and county of D'enver may 
 be properly prepared and administered, suggestions are made herein 
 with respect to the following: 
 
 1 — The appropriation bill or ordinance 
 
 2— The budget 
 
 3 — Appropriation for "personal service " 
 
 4 — Appropriation for "materials,-" "supplies" and "equipment." 
 
 The Appropriation Bill, or Ordinance 
 
 It is recommended that the form of appropriation bill or ordinance 
 be so arranged that the only classification of items will be a total 
 amount for each principal organization unit, subdivided to show the 
 amount authorized to be expended for each general class of objects 
 of expenditure. For example, the form in which the item would ap- 
 pear for the police department would be as follows : 
 
 Personal service 
 Purchase of supplies 
 Purchase of materials 
 Purchase of equipment 
 
536 DENVER 
 
 Purchase of service by contract and open market orders 
 Contingencies. 
 
 The Budget 
 
 It is recommended that the form of "budget" prepared and sub- 
 mitted to council and made the subject of public hearings provide for 
 giving to citizens and to the legislative officers the following : 
 
 1 — An appropriation bill or request for appropriations in the form 
 in which they are to be passed and with such conditions as 
 may be desired. 
 
 2 — Summaries of financial statements reflecting present conditions 
 and past results, viz : 
 
 a — A balance sheet or statement in the form of a summary 
 exhibit showing what the city owns, what the city owes 
 and the amount of free surplus, i. e., the excess of as- 
 sets over liabilities, or vice versa, the reserve for deficit. 
 
 b — An operating account or summary of revenue and ex- 
 penses. 
 
 c — A surplus account, showing an analysis of the increases 
 and decreases of the excess of assets over liabilities or 
 vice versa. 
 
 d — A debt statement, showing gross debt, net debt and bor- 
 rowing power. 
 
 e — A fund statement, showing the general fund, bond fund, 
 special fund, and trust fund resources available, the 
 unappropriated balances, the unencumbered balance of 
 appropriation, and the reserve for contracts and open 
 market orders. 
 
 3 — Summary of Estimates. 
 
 a— Comparative summary of actual and estimated revenues, 
 
 showing actual revenue of the past two years and the 
 estimated revenue for the current and next ensuing 
 years, classified by character or method of raising 
 them. 
 
 b— A comparative summary of actual and estimated ex- 
 penditures, showing actual expenditure for the past 
 two years and the estimated expenditure for the cur- 
 rent and next ensuing years classified by 
 
 (1) "Organization units " 
 
 (4) "Character of expenditure," distinguishing ex- 
 penses for capital outlay, fixed charges, etc. 
 
 (2) "Functions," or kinds of activity 
 
 (3) "Objects of expenditure," or things purchased 
 
 (5) "Funds" or classes of funds to be charged. 
 
BUDGET 537 
 
 4 — Supporting detailed schedules of estimates. 
 
 a — A detailed analysis of actual and estimated revenues, 
 
 showing amounts of estimated revenues for the current 
 and next ensuing years and of actual revenues for the 
 two preceding years, classified by character or method 
 of raising them, and by organization units in which 
 such revenues accrue. 
 
 b — A detailed analysis of actual and estimated expenditures 
 by "functions," showing the amounts of estimated ex- 
 penditures for the current and next ensuing years, 
 .classified by "organization unit" and by "functions" 
 and "processes," and also, where obtainable, showing 
 the "unit costs" of actual expenditures for each func- 
 tion or process during the expired months of the cur- 
 rent year, compared with the unit costs for the same 
 functions or processes for each of the two preceding 
 years. 
 
 c — A detailed analysis of expenditures by "objects," show- 
 ing the amounts expended during each of the last two 
 years, classified by objects or kinds of things pur- 
 chased, following the same general classification as in 
 the summary expenditure analysis by departments in 
 which the purchases were made. Also a further de- 
 tailed analysis of each item in this summary classifica- 
 tion to show by code reference to specifications and 
 purchase catalogue the quantities of materials, supplies 
 equipment purchased and the average price paid. 
 
 Thus the above would be what would constitute the "budget" or 
 document of publicity, as distinguished from the appropriation ordi- 
 nance and tax levy. 
 
 Appropriation for Personal Service 
 
 It is recommended that a schedule of "positions," with standard- 
 ized salaries and grades in accordance with our recommendations in 
 this report, be submitted as a document supporting the items for 
 "personal service" in the appropriation ordinance, this schedule to 
 be made a condition attached to expenditures of appropriations for 
 personal services. 
 
 Appropriation for Materials, Supplies and Equipment 
 
 It is recommended that a schedule of standard "specifications" 
 and "regulations governing contracts and purchases" be enacted and 
 submitted as a document supporting the items for supplies, materials 
 and equipment; this schedule to be made a condition attached to the 
 expenditure of appropriations for these purposes. 
 
538 DENVER 
 
 Need for a Balance Sheet 
 
 What in common business parlance is known as a balance sheet 
 is a statement, on one side of which is a summary of things owned 
 and on the other side of which is set forth what the institution owes 
 — that is, the liabilities are balanced off against the assets, the result 
 being surplus or deficit. For the purpose of understanding present 
 financial conditions it is necessary to classify assets and liabilities in 
 such a way that the obligations which are to be met out of general 
 revenues may be set up against the assets that are available for meet- 
 ing them. It is also necessary to show separately obligations in the 
 nature of loans for which sinking fund provisions have been made 
 or which are to be considered in relation to properties acquired for 
 continuing use. In municipal finance no different methods need be 
 employed than in a private corporation to enable the citizen to un- 
 derstand financial conditions. 
 
 The public hearing on the budget recommended elsewhere herein 
 would serve the same purpose as an annual meeting of a corporation. 
 A balance sheet statement is always one of the most essential docu- 
 ments to be submitted at an annual meeting. This has been wholly 
 lacking from the budget in Denver. 
 
 Need for an Operating Account 
 
 Another instrument which is always shown at an annual meeting 
 of stockholders in private corporations is what is known as an oper- 
 ating account. The balance sheet as a picture of present conditions 
 is in the nature of an instantaneous photograph taken on a particular 
 day. The operating account is in the nature of a biograph, that is 
 to say, through the operating account may be shown the revenues and 
 expenditures as they have accrued from month to month during the 
 year and the totals at the end of the year. In thinking about the 
 future as well as thinking about the present, it is necessary to know 
 what the expenditures have been for each purpose and to have these 
 so classified as to show the current expenses as distinguished from 
 capital outlays, fixed charges, etc. As opposed to these expenditures, 
 it is necessary to know whether the expenses have been covered by 
 revenues and to what extent borrowing has been resorted to in order 
 to meet capital outlays, etc.— that is to say, the citizen as well as the 
 officer should know whether the city is running ahead or behind 
 financially. Denver has never had placed before it an operating ac- 
 count, either as a part of a budget or at any other time. 
 
 Need for a Surplus Account 
 
 In addition to a comprehensive statement of revenues and ex- 
 penses, it is necessary to know whether there has been a net increase 
 or decrease m the current surplus or deficit. This is affected not only 
 by the excess of revenues or expenses, as the case may be, but also 
 by a large number of other things, such as: writing off of uncollect- 
 ible taxes; discount or premium on sale of municipal credit; losses 
 or waste of stores; losses through bank failures, defalcations etc 
 
BUDGET 539 
 
 Exact information of this kind has not been made available in the 
 past as part of the statement of affairs before appropriations were 
 made and tax levies fixed. 
 
 Need for Debt Statement 
 
 A balance sheet does not give all the information required about 
 indebtedness. The statutes and also the Denver charter place certain 
 restrictions on borrowing power. Complete data in summary form 
 should be included as a part of the budget so as to afford a compre- 
 hensive picture of the entire debt situation. 
 
 The ICeeel for a Fund Statement 
 
 Council is not in a position to think about future funding unless 
 it knows the. condition of each of the different funds or classes of 
 funds. It is necessary to know the unappropriated balance or re- 
 serves of each fund, the unexpended balances of appropriations, the 
 amount of the unexpended balances which are unencumbered by con- 
 tracts, open market orders, etc. To make all of such data available, 
 a revision of the present accounting system in the auditor's office is 
 necessary, the need thereof being more fully set forth in that part of 
 this report relating to accounting and auditing. However, the in- 
 stallation of a proper system might be made in a short time, and it 
 would then be possible to prepare adequate fund statements as a part 
 of the budget for the use of council and also for the information of 
 the public. 
 
 Comparative Summary of Revenue Estimates 
 
 The estimates o£ revenues which are prepared and submitted 
 should be in such form as to lend themselves to clear thinking about 
 two questions, viz: (1) revenue raising policy to be adopted and (2) 
 adequacy of return. Both of these ends are subserved by arrange- 
 ment of items of revenue estimates according to the character or 
 method of providing income to the city. As bearing on the question 
 of revenue policy, it is desirable to clearly distinguish between taxes 
 in their several forms, local assessments, leases, privileges, licenses, 
 franchises, etc. Each of these methods of raising revenue has an 
 important bearing on the economic and social relations in a com- 
 munity which must be taken into account in deciding whether the 
 revenues shall be produced through the exercise of' one power or an- 
 other of the government. From a summary picture of the amounts 
 produced every question of policy can be raised and considered in 
 relation to the return derived from such imposition. 
 
 Comparative Summary of Expenditure Estimates 
 
 Before decision is reached as to what amount should be appro- 
 priated by the city, the proposed expenditures should be analyzed and 
 presented in as many different ways as there are relations to be con- 
 sidered. (1) It is necessary to know the amounts requested by each 
 
540 DENVER 
 
 organization unit or officer to whom appropriation is to be made. 
 (2) It is desirable also to have clearly set forth the amount asked for 
 for each kind of activity or class of work to be carried on — a state- 
 ment needed to understand what is to be done with the services and 
 supplies to be purchased. (3) With a view to determining what con- 
 ditions should be attached to the funds, it is necessary to have an 
 analysis which will indicate the amounts requested for personal serv- 
 ice, supplies, materials, equipment, etc. — a statement needed as a 
 basis for considering items of appropriation (4) To lay the founda- 
 tion for thinking about the method of financing, it is desirable to 
 have an exact statement as to what amount would be needed for ex- 
 penses, what amount for capital outlay, fixed charges, etc. (5) As a 
 means for determining what is to be the amount appropriated from 
 each class of funds, it is necessary to have the analysis which will 
 show to what fund or class of funds the estimated expenditures are 
 to be charged. 
 
 Supporting Detailed Schedules of Estimates 
 
 The summary tables or statements above referred to should be 
 brief enough to enable one using them to get a very quick impression, 
 and, if possible, each statement should be capable of being presented 
 on one page. The various relations and facts having been presented 
 in summary form, the questions which may be raised with respect to 
 each of the several items making up the summary statements should 
 be answered in detailed schedules or supporting documents, so as to 
 enable the citizen or the officer to go into any subject intensively 
 if he may wish. 
 
INDEBTEDNESS 541 
 
 INDEBTEDNESS 
 Bonded Debt 
 
 The general city bonds outstanding December 31, 1913, amounted 
 to $1,436,300. The other bonds outstanding at that time, as set forth, 
 in the annual report of the auditor, were park district bonds, $2,511,- 
 000; improvement bonds, $804,300, and local improvement bonds. 
 $4,778,300, making a grand total of $9,529,900. 
 
 The citizens of Denver have a dual control over the amount of 
 bonded debt which may be incurred. In the first place, there is a 
 charter limitation of three per cent on the assessed valuation, except- 
 ing, of course, bonds for public utility purposes from which the city 
 will derive revenue, and secondly the charter prescribes that bond 
 issues must be approved by vote of the people. 
 
 Some of the outstanding bonds are serial in form, and some an? 
 dependent upon sinking fund provisions for their redemption. For 
 example, of the general city bonds outstanding, those issued in 1904 
 are dependent upon sinking funds, while those issued subsequently 
 are serial, as shown by the accompanying table . 
 
 It is suggested that hereafter only serial bonds be issued. Through- 
 out the country sinking funds are becoming obsolete as a method of 
 paying indebtedness, because however well they may be administered, 
 it is a cumbersome method of accomplishing the desired result. Not 
 only is there the initial obligation to keep the funds properly invested, 
 but equitable assessments upon the taxpayers during the period of the 
 loan involves complicated mathematical computations if the debt is to 
 be paid at maturity. Evidence is abundant in cities, counties and states 
 throughout the country of funds to which proper contributions have 
 not been made from year to year, with the result that upon maturity 
 of the loans these funds were found to be short of the amounts neces- 
 sary to pay the debts for which they were created. 
 
 The serial method of paying debt not only obviates the administra- 
 tive requirements of the sinking fund method, but it also is cheaper 
 and imposes a lighter burden upon the taxpayers. Moreover, its opera- 
 tion is so simple that it is easily understood by the average citizen. 
 
 The last legislature of Massachusetts passed a law that neither the 
 state nor the cities or counties within the state might issue sinking 
 fund bonds — that only serial forms were to be used. In Denver none 
 of the sinking funds was on an actuarial basis at the time of our sur- 
 vey. Two of the so-called sinking funds noted in the above table, those 
 for the Auditorium bonds and voting machine certificates, are used 
 only for clearance purposes. These two are unnecessary and should be 
 abolished, inasmuch as the debt is being paid serially. 
 
 The auditor realizes that the operation of sinking funds is a scien- 
 tific matter and that the only proper method for making annual pay- 
 ments to such funds is on the basis of actuarial computations. He 
 stated that it was his desire to place funds on such a basis. How- 
 
542 DENVER 
 
 ever, each year council has levied a millage for sinking fund purposes 
 irrespective of the amounts which should be paid into the sinking fund. 
 In other words, the levy for sinking funds was fixed first and then 
 pro rated on a percentage basis to the several funds. The levy of 1913 
 was $80,392.63, and of 1914 was $80,380.33. Although practically the 
 same amount was levied in each year, they were distributed to the 
 several funds on a basis which varied widely as between the two years. 
 The procedure followed heretofore should be corrected. Bach year 
 there should first be ascertained the correct amount due the sinking 
 funds, and such amount should then be included in the tax levy. 
 
 In connection with the citation of the Massachusetts law with re- 
 spect to the kind of bonds permitted to be issued, it is worthy of notice 
 that Massachusetts has also adopted a definite schedule of maturities 
 for the several purposes for which bonds may be issued. The object of 
 this schedule is to coordinate so far as possible the life of the bonds 
 with the life of the assets to be purchased from the proceeds of the 
 bonds. The condition has been found to exist in that state, as it does 
 in many communities throughout the country, of issuing bonds for a 
 period two or three times as long as the life of such assets. Denver 
 would do well when planning subsequent issues to adhere to the Massa- 
 chusetts principle. 
 
 In order that the highest prices may be realized from bond sales, 
 they should always be advertised in advance. We were informed that 
 this has been done in practically all cases, but that in some recent in- 
 stances when it became necessary to secure bond money for preliminary 
 work on improvements, some of the local improvement bonds were sold 
 at par without advertising. The procedure in such cases was for the 
 treasurer to deliver the bonds to the persons who desired them, on 
 approved requisitions made to the board of public works. These were 
 six per cent bonds and naturally a desirable investment. It is sug- 
 gested that hereafter when it becomes necessary to sell bonds in so 
 small installments that in the judgment of the board of public works 
 advertising would be too expensive, form letters requesting bids be 
 prepared and sent to the local bond nouses. 
 
 Temporary Loans 
 
 The city and county government has no power under the charter 
 to issue temporary loans. During the first part of 1914 a large amount 
 of warrants accumulated and it was impossible to pay them because of 
 the fact that collection of taxes was delayed. These outstanding war- 
 rants practically amounted to a temporary loan and it was necessary to 
 pay interest on the amount thereof. "While there are usually some war- 
 rants outstanding, yet the condition above referred to will probably 
 not exist again. 
 
INDEBTEDNESS 
 
 <j w *i t> 
 
 B 
 
 B 
 B 
 
 543 
 
 p 
 re 
 
 b; 
 b' 
 
 cd 
 O 
 
 CD 
 
 4 
 
 td 
 o 
 B 
 
 
 CD CD 
 
 •a 
 
 CD 
 
 CD 
 
 » c? 
 
 
 re re 
 
 11 
 o 
 
 re 
 
 
 CD CD 
 
 CD 
 
 CD 
 
 CD O 
 
 
 B B 
 
 B 
 
 B 
 
 CO H» 
 
 
 C+ !T+ 
 
 c+ 
 
 H- 
 
 
 >T] O 
 
 o 
 
 2-1 
 
 
 
 CD CD 
 
 re 
 
 B^ 
 
 
 
 t. 1, 
 
 b. 20, 
 
 c-+- 
 
 vT 
 
 o 
 
 p 
 
 c-t- 
 CD 
 
 
 M M 
 
 M 
 
 h-i 
 
 
 CD CD 
 
 CO 
 
 CO 
 
 
 o © 
 
 o 
 
 O 
 
 
 
 00 rf^ 
 
 rf^ 
 
 03 
 
 
 
 a "' 
 
 Q 
 
 re 
 
 to 
 
 3j 
 
 
 S r* 
 
 e* 
 
 -P 
 
 "o> 
 
 CD 
 
 B 
 
 
 CD 
 
 _1 
 
 K— 
 
 o 
 
 
 
 
 o 
 
 hj 
 
 
 3. 
 
 — 1 
 
 M 
 
 b 
 
 p 
 
 
 ej. 
 
 x> 
 
 CO 
 
 © 
 
 VI 
 
 
 Htj 
 
 _1 
 
 h-» 
 
 
 p 
 
 
 p 
 
 e-t- 
 CD 
 
 O 
 
 
 o 
 
 CD 
 
 re 
 
 c£ 
 
 CD 
 
 
 CD 
 P 
 CD 
 
 
 
 
 CD 
 9= 
 1-1. 
 
 
 
 Vj 
 
 
 
 
 
 
 
 CD 
 
 
 
 
 
 
 
 P 
 
 
 
 
 
 
 
 1-1 
 
 
 
 
 
 
 
 
 
 
 
 -93- 
 
 
 
 
 <fr 
 
 o 
 
 I-* 
 
 
 
 
 
 £s> 
 
 !■£»• 
 
 )-> 
 
 C2 
 
 *> 
 
 to 
 
 CO 
 
 M 
 
 CO 
 
 ~3 
 
 I- 1 
 
 S-0 
 
 P o 
 
 © 
 
 J 50 
 
 CO 
 
 oo 
 
 J.O 
 
 00 
 
 "en 
 
 o 
 
 "© 
 
 "go 
 
 B B 
 
 o 
 
 O 
 
 o 
 
 o 
 
 o 
 
 fn B 
 
 o 
 
 © 
 
 © 
 
 © 
 
 © 
 
 B'^ 
 
 CKJ 
 
 b 
 
 © 
 
 Q 
 
 b 
 
 © 
 
 © 
 
 © 
 
 ° 
 
 o 
 
 o 
 
 ■ee- 
 
 
 
 
 ■&■ 
 
 
 -3 
 
 
 CO 
 
 to 
 
 
 B B 
 
 CO 
 
 -J 
 
 05 
 
 co 
 
 
 J-> 
 
 JNS 
 
 to 
 
 -a 
 
 M 
 
 "h- 1 
 
 "co 
 
 CO 
 
 "#» 
 
 CO 
 
 B F 
 
 CO ™ 
 
 to 
 
 -a 
 
 <33 
 
 M 
 
 © 
 
 U1 
 
 CO 
 
 co 
 
 h- 1 
 
 ^ 
 
 bo 
 
 GO 
 
 © 
 
 CO 
 
 in 
 
 • as 
 
 CD 
 
 O 
 
 h- 1 
 
 -3 
 
 i- 1 
 
 
 -ee- 
 
 
 
 
 ■m- 
 
 
 -j 
 
 
 to 
 
 M 
 
 to 
 
 W 
 
 o 
 
 rf*- 
 
 en 
 
 CO 
 
 M 
 
 "h-> 
 
 © 
 
 CO 
 
 © 
 
 p 
 "en 
 
 "^ 
 
 p -^ 
 
 -a 
 
 to 
 
 CO 
 
 oo 
 
 CO 
 
 g- 
 
 *- 
 
 p 
 
 © 
 
 oo 
 
 en 
 
 ^ 
 
 to 
 
 co 
 
 b 
 
 rf^ 
 
 CD 
 
 M 
 
 o 
 
 CO 
 
 
 CO 
 
 co 
 
 
544 DENVER 
 
 AUTOMOBILE SERVICE 
 
 Central Garage Merely a Storehouse 
 
 Most of the automobiles owned by the city, except those belonging 
 to the police and fire departments, are stored in what is known as the 
 central garage, which is located in the repair shop building and is 
 under the supervision of the commissioner of finance. It is nothing 
 more than a storehouse, however, because each car is assigned to some 
 particular department or official, and each has its own driver, the 
 latter being under no central supervision whatsoever. 
 
 Have Cars Subject to Requisition 
 
 An inquiry into the uses made of the various cars indicates that 
 three of them might, with advantage, be pooled and made subject to 
 requisition by any of the city departments upon approval of some 
 central authority. These three are the Pierce-Arrow, assigned to the 
 commissioner of finance, the Stoddard-Dayton, assigned to the sheriff, 
 and the Chalmers, assigned to the mayor. 
 
 Install Service and Cost Records 
 
 Abuses arising from misuse and overuse of city owned automobiles 
 are a subject of criticism in many cities. To prevent such abuses some 
 cities have installed a system of service and cost records for each car. 
 This should be done in Denver. At the present time not only are no 
 service records maintained, but no accounts are kept of the cost of 
 supplies and repairs on any particular machine. In fact, there is only 
 one machine (that assigned to the commissioner of finance) for which 
 it would be possible to compile the repair cost from the records which 
 are maintained in the repair shop. "With respect to the other cars, 
 each department requisitions tires from time to time, and the cost 
 thereof is charged against the appropriations of the particular depart- 
 ment, together with supplies, materials and equipment used for sundry 
 other purposes. Similarly, many parts, fittings, etc., are purchased 
 direct by the departments and not shown on the repair shop records. 
 Likewise, no reports are made showing the trips made and distances 
 traveled. It is therefore impossible to ascertain the cost per mile of 
 any of the city automobiles. In short, there is almost an absolute lack 
 of data which any administrative official would need if an intelligent 
 and efficient control over the city ears were to be exercised. 
 
 Nothing to Indicate Ownership 
 
 To render the problem of administrative control still more diffi- 
 cult, the signs which at one time were painted on the sides of the cars 
 have been removed, and there is now nothing on any of them to indi- 
 cate that they are owned by the city. In this connection we submit 
 that as a matter of principle each piece of equipment of every kind 
 which is loose and movable should have some designation thereon in- 
 dicating that it is owned by the city and county of Denver. Particu- 
 
AUTOMOBILE SERVICE 545 
 
 larly is this needed on wheeled vehicles, and above all on automobiles. 
 Although the signs may have been removed in good faith to prevent 
 criticism of misuse when in fact certain instances may not have been 
 misused, still the fact remains that the presence of signs on the city 
 cars would tend to prevent misuse. 
 
DEPARTMENT OF FINANCE 547 
 
 Part II — Sundry Commissions and Offices Not Under 
 Departmental Jurisdiction 
 
CIVIL SERVICE COMMISSION 549 
 
 PART II— SUNDRY COMMISSIONS AND OFFICES NOT UNDER 
 DEPARTMENTAL JURISDICTION 
 
 CIVIL SERVICE COMMISSION 
 
 Supplemental to the discussion of civil service under this head, 
 those phases of it which are peculiar to the department of safety and 
 the department of improvements are also discussed in those sections 
 of the report relating thereto. 
 
 Organization 
 
 On February 14, 1913, an amendment to the charter was adopted, 
 effective in June, 1913, putting all positions and employments under 
 civil service regulations except a few exempt positions. The civil 
 service commission was reorganized in June, 1913, and its energies 
 since that time have been devoted to the preparation of new rules and 
 classifications and to the holding of examinations for placing em- 
 ployees under the jurisdiction thereof. 
 
 The commission comprises three members, appointive, under the 
 charter, by the mayor. At the time of our survey the staff consisted 
 of a secretary, an examiner, a recording clerk and a stenographer. It 
 is to be noted in passing that this size staff should prove adequate for 
 conducting all of the work of the commission for a long time to come — 
 even though a complete efficiency system for all city employee's be 
 installed, and the writing of payrolls of all departments be centralized 
 in the office of the commission as hereinafter recommended. 
 
 Examinations for placing the employees under civil service protec- 
 tion were non-competitive. While it is unquestionably better to hold 
 non-competitive examinations' than to hold no examinations whatso- 
 ever, we submit that it would have been better to have made the ex- 
 aminations competitive. The old employees would still have had the 
 advantage of their experience in and knowledge of the local govern- 
 ments as against outside competitors. Moreover, an advanced marking 
 might have been given the former if desired. In either case, it would 
 have resulted in weeding out whatever incompetents were on the city 
 and county payrolls instead of blanketing them under civil service 
 protection — which is what non-competitive examinations usually 
 amount to. 
 
 Need for Standardization of Salaries 
 
 Credit is due the new commission for its efforts to improve the 
 classification of employees. The new classification is based upon that 
 in use in Chicago. While it is a marked improvement upon the former 
 classification, yet it is to be noted that what is needed is a complete 
 efficiency system which will not only classify the employees, but pro- 
 vide adequately for their promotion and demotion on definite factor 
 ratings given them in the respective departments. The trouble in 
 Denver with respect to the civil service regulations is the same as that 
 
550 DENVER 
 
 in most cities, namely, that it is potent mostly in keeping employees on 
 the city payrolls irrespective of their relative efficiency. The Denver 
 situation is particularly bad because of a charter provision (new sec- 
 tion 301, old section 201), which provides that — 
 
 ' ' When the force in any department is reduced, the per- 
 son last certified to such department for employment shall be 
 first laid off; and when the force in such department is in- 
 creased, persons suspended shall be reinstated in the order of 
 their original certification." 
 
 Thus it becomes incumbent upon a department head when reduc- 
 ing his force to lay off the person or persons last certified, irrespective 
 of the fact that such person or persons may be the most useful of any 
 on the roll. Also when a department head wishes to increase his force 
 he is compelled to appoint (reinstate) those who have been laid off, 
 even though they may have proven to be ineffective and useless em- 
 ployees. There are bound to be many complaints about civil service 
 in Denver so long as this provision remains in the charter. It should 
 be repealed without delay. 
 
 In adopting a real efficiency system more flexibility should be 
 provided than exists at present. At the present time if an employee 
 has been placed under civil service regulations, administrative officials 
 at the heads of departments, bureaus, etc., are unable to give such em- 
 ployee even so much as a five dollar promotion without the latter go- 
 ing through the process of an examination. Since administrative offi- 
 cials are held responsible for results, it is obvious that means should 
 be placed in their hands for securing such results. In short, that they 
 should be enabled to recognize and reward meritorious service, and, 
 on the other hand, to discourage inefficiency. Such power should of 
 course be exercised only within certain limitations, to be definitely 
 prescribed as a part of the system. An adequate standardization of 
 positions and the methods of appointment, promotion, demotion and 
 transfer would 
 
 1 — Help administrative officers by enabling them to administer 
 
 more effectively 
 2 — Help the council by eliminating all requests for salary increases, 
 
 because increases would be made automatically and only on 
 
 the basis of written records currently built up 
 3 — Help each employee by affording a definite means whereby, 
 
 if efficient services are rendered, promotion is assured. 
 
 Appropriations Should Not be Curtailed 
 
 A tendency to curtail the appropriation for the civil service com- 
 mission was manifested in the 1914 budget. In fact the amount ap- 
 propriated was sufficient only for the first few months of the year. 
 A supplemental appropriation was made and the spirit which led to 
 the making of the supplemental appropriation should control in the 
 future. Having established a civil service commission and provided 
 for the administration of certain rules and regulations, the council 
 should not fail to appropriate adequately to carry out its own ordi- 
 nances and the provisions of the charter. 
 
JURY COMMISSIONER 551 
 
 JURY COMMISSIONER 
 
 Organization 
 
 The jury commissioner is appointed for a maximum term of two 
 yars by the board of judges, comprising the judges of the county, dis- 
 trict and juvenile courts. He receives a salary of $3,000 a year. His 
 office staff comprises a deputy and such temporary assistants as may 
 be granted by the council. 
 
 Improved Method of Preparing Jury List 
 
 The jury law of 1911 requires the jury commissioner to prepare 
 and certify at least annually a list of persons qualified to serve as petit 
 jurors. This list must include not less than two such persons for every 
 one hundred inhabitants of said county and not more than two for 
 every seventy-five according to the latest census, state or federal. 
 
 In preparing this list the present commissioner has inaugurated 
 a plan which will undoubtedly prove of much benefit to the entire 
 county. Instead of selecting names of persons without regard to the 
 business houses where said persons are engaged, as was formerly the 
 practice, and thereby embarrassing many firms by making excessive 
 drafts of jurors therefrom, he is establishing a card index system 
 which will enable him to select jurors upon a percentage basis, so that 
 the minimum number possible will be selected from any one business, 
 house in a given year. The list (card index) of available jurors is 
 based upon lists furnished the jury commissioner by the business firms 
 of this city. The plan appears to have many advantages. Its use will 
 begin with the next jury wheel, about July 1, 1914. 
 
 Selection of Jurors 
 
 * Inasmuch as the general public is unfamiliar with the character 
 of safeguards thrown about the process of selecting jurors, we quote 
 here a brief excerpt from the law relating thereto (laws 1911, Ch. 159). 
 It is provided that the names on the jury list shall be written on slips — 
 one name on each slip. 
 
 "They shall be uniform and shall be so folded as not to 
 permit the writing or printing thereon to be seen. The jury 
 commission shall, in the presence of the county clerk and one 
 or more of the members of the appointing board, deposit these 
 slips in a box prepared therefor and the jury commissioner, 
 county clerk, and one or more of the members of the appoint- 
 ing board, shall lock and seal, each using his own separate 
 seal, and deliver said box to the county clerk to be held by 
 him." 
 
 "The several courts of record, or any judge thereof, shall 
 from time to time signify to the clerk of such court the num- 
 ber of jurors required to be summoned, and said clerk shall 
 then go to the office of the county clerk and in the presence 
 of the jury commissioner, the county clerk and one or more 
 
552 DENVER 
 
 members of the appointing board, shall open the box and 
 draw the required number of names and gertify same to tie 
 sheriff, who shall summon them for jury duty according to 
 law. Said box shall be cylindrical in form, of adequate size, 
 suspended in a suitable frame, and so devised as to be turned 
 with a crank, and thoroughly to mix the slips. Said box shall 
 be provided with an opening only large enough to admit a 
 man's hand. The clerk, before drawing therefrom, shall turn 
 the crank a sufficient number of times thoroughly to mix the 
 slips. He shall then, without seeing the names on any slip, 
 draw out of the box one slip, and continue to draw in like 
 manner, one slip at a time, until the required number has been 
 drawn. When the drawing is finished the box shall be locked 
 and sealed by the jury commissioner, the county clerk and one 
 or more of the members of the appointing board, each using 
 his own separate seal, and shall not again be opened nor the 
 seals broken until another drawing, except in pursuance of 
 law." 
 
 Present System Adequate 
 
 It must be recognized that the preparation of lists of jurors and 
 their selection for any particular panel honestly must always depend 
 upon the integrity of the officials responsible therefor. We did not 
 witness an actual process of selecting jurors' names from the wheel. 
 However, in so far as any system can guarantee to a community fair 
 and impartial juries, the present system of selecting jurors, as sup- 
 plemented by the proposed plan of preparing jury lists, is adequate 
 if properly operated. 
 
ELECTION COMMISSION 553 
 
 ELECTION COMMISSION 
 Organization 
 
 The election commission consists of three members, all of which 
 are elected. Except immediately before the holding of elections, when 
 judges of election and extra clerical help are engaged, the staff of the 
 office consists of one secretary, who is also a lawyer, and one clerk, 
 who is retained at $3.00 per day. 
 
 It is the duty of the commission to supervise all elections^ primary, 
 general and municipal, and to supervise the registration of voters. In 
 the supervision of elections the commission designates the judges of 
 election, designates the places at which the polls shall be located, 
 places advertising in connection with the election, conducts the official 
 canvass of the vote, provides all printed material, such as ballots, sta- 
 tionery, registration book, ballot boxes, and supplies used in connec- 
 tion with the election, receives nominating petitions, and provides for 
 the registration of electors. 
 
 Commissioner of Safety to be a Member of Election Commission 
 
 On June 1, 1915, in accordance with the charter provision, which 
 goes into effect that date, the personnel of the election commission and 
 its plan of organization will be changed. The commission will then 
 consist of the commissioner of safety, the city auditor and one com- 
 missioner elected at large. All of the functions of the present commis- 
 sion will be transferred to the new commission. 
 
 The supervision of elections may be said to be one of the most im- 
 portant functions of government. In no department are honesty, in- 
 tegrity, courage, and efficiency more necessary than in that depart- 
 ment, which has for its function the protection of the franchise of the 
 citizens. 
 
 For many years in American cities elections were affected in one 
 way or another by the police. Indeed, the history of municipal gov- 
 ernment shows that the use of the police in controlling elections and in 
 defeating the will of the people at the polls by an abuse of their power 
 was for many years a part of the political program. Not only did this 
 tend to destroy the efficiency of the police, but it likewise served as 
 an aid to corrupt practices. There is always the temptation to use the 
 police in connection with elections. It took many years of determined 
 effort to remove the police from politics ; in those cities the attempt has 
 succeeded, while in others they continue to be a part of the partisan 
 political machinery. Nothing can be more destructive of police effi- 
 ciency and nothing more conducive to fraud in elections than the use 
 of the police by politicians at election time. 
 
 If the present law, which designates the commissiouer of safety 
 as a member of the election commission, goes into effect, Denver will 
 take a step backward in the matter of honest elections. 
 
554 DENVER 
 
 In discussing the defects of the law, there is no intent to refer to 
 the incumbent of the office of commissioner of safety. By making the 
 commissioner of safety a member of the elections commission, the two 
 large uniformed bodies, namely, police and fire forces, will unquestion- 
 ably be "thrown" into politics, regardless of how efficient or how 
 honest the incumbent of the office of commissioner of safety may be. 
 To have a commission composed of the city auditor and the commis- 
 sioner of safety, places the machinery of the elections into the hands 
 of officials who would be parties at interest, if renominated. 
 
 The fact that the present election commissioners are in practically 
 the same position with regard to their own re-election does not in any 
 way affect the situation. Both the auditor and the commissioner of 
 safety, if they efficiently perform the functions now imposed upon 
 them by law, are responsible for departments which need their con- 
 stant attention and supervision. 
 
 The conduct of an election is by no means a simple matter. The 
 work of the election commission needs constant attention, and to this 
 end the commissioners should be restricted from holding any other 
 office or engaging in any other business. Denver, with its three elec- 
 tions a year, differs from other cities in this respect. 
 
 Repeal of Law Recommended 
 
 The repeal of this statute is recommended and the adoption of a 
 law creating an elective commission which shall be appointed rather 
 than elected is urged. 
 
 Method of Selecting Judges of Election Defective 
 
 In municipal elections the judges of elections are selected and ap- 
 pointed by the members of the commission, each member being entitled 
 to appoint one out of each three judges in every polling place in the 
 city. In state elections the judges of elections, while officially ap- 
 pointed by the commission, are selected and nominated by the chair- 
 man of the county central committees of the two parties casting re- 
 spectively the highest and next highest vote in the preceding election. 
 
 The county central committees are required to submit 'the names 
 of those designated by the precinct committee. The commissioners 
 have no power to request that the nomination of persons whom they 
 believe to be unqualified be withdrawn. 
 
 No Special Qualifications Required for Appointment 
 
 The judges of election are the officers through whom the com- 
 mission conducts the registration of the voters and the counting of the 
 votes at the polling places. In their respective precincts they are ex- 
 actly what their title indicates, judges of elections. They pass upon 
 the qualifications of the voter to vote, and protect, in theory at least, 
 the franchise of the voters by preventing persons not entitled to vote 
 from exercising the franchise and by securing an honest count of the 
 ballots cast. In the performance of this function they must pass upon 
 
ELECTION COMMISSION 555 
 
 quasi legal matters in that their interpretation of the law at the poll- 
 ing places is practically final. 
 
 Although these judges of elections are required to pass upon ques- 
 tions involving an interpretation of the election law, they are not re- 
 quired to have any special fitness or any special qualifications for this 
 work. Whether they can read and write legibly, whether they have 
 any knowledge of the election law, whether they have an understand- 
 ing of the qualifications of voters, whether they understand the method 
 of counting ballots, or indeed, whether they can add a column of fig- 
 ures, are questions upon which the election commission has no informa- 
 tion. Appointees are not even required to produce character certifi- 
 cates. Thus, the entire election machinery is a matter of political 
 patronage, and this important function of government is practically 
 left in the hands of the ward politicians. While the theory that the 
 judges of election are in effect watchers protecting the interest of the 
 representative political parties participating in the election, may or 
 may not be a true assumption, the fact remains that all judges of elec- 
 tion should be required by law to have such qualifications as would 
 be productive of efficiency in the conduct of elections. 
 
 While the law holds the commission responsible for the honest 
 conduct of elections, it does not give the commission the power to de- 
 mand that judges of elections nominated by the representative polit- 
 ical parties shall be men of good character and of sufficient education 
 to enable a proper performance of their duties. Therefore, it is rec- 
 ommended that the law be amended and that all persons nominated 
 by the representative parties to serve as judges of election and all 
 those selected by the commission in municipal elections shall be re- 
 quired to file a written application upon a specially prepared printed 
 form, upon which they shall be required to furnish sufficient informa- 
 tion concerning their history, education, occupation and qualifications 
 to enable the commission to determine their fitness for appointment. 
 
 Clerks of election should be required to do likewise. The law 
 should give power to the commission to refuse to appoint any person 
 who, in the opinion of a majority of the commissioners, is unfit either 
 by training or character to hold such a position. If it be deemed wise 
 that the nomination should come through political parties, the com- 
 mission, while not having the power to nominate, should have at least 
 the power to reject those nominated. 
 
556 DENVER 
 
 PROCEDURE 
 
 Marking of Ballots with Ink Unnecessary 
 
 Electors are required to mark their ballots with, pen and ink. The 
 marking of the ballot with ink is an unnecessary procedure which has 
 resulted in disfranchising many voters, due to careless use of ink and 
 accidents in the booth. It should only be necessary for the voter to 
 mark his ballot with a lead pencil, and pencils of uniform grade of 
 lead should be provided by the commission. This would be a more 
 convenient method for the voter of ordinary intelligence and it would 
 also be considerably more economical. 
 
 Judges Should be Prohibited from Marking Number of Ballots 
 
 Each ballot has two stubs at the top, upon each of which appears 
 the printed number of the ballot. Upon handing the ballot to the 
 elector the clerk removes the first stub. Upon the return of the ballot 
 ]>y the elector when voting the clerk removes the second stub, writes 
 the number of the ballot in the upper left hand corner, and pastes 
 down the corner of the ballot over the number. This is done pursuant 
 to law upon the theory that in the event of a dispute over- the right of 
 an elector to exercise his franchise at a particular election or a recount, 
 it will be possible by opening this corner of the ballot to determine 
 which ballot the contested voter cast. Thus, the secrecy of the ballot,, 
 to which protection every citizen is rightfully entitled, is destroyed. 
 Not only is the possibility of protecting the voter destroyed by this 
 practice, but it affords and requires entirely too much handling by the 
 judges of election. 
 
 The use of the second stub on the ballot is unnecessary and only 
 adds to the amount of labor and the opportunity for fraud. It is 
 therefore recommended that the use of the second stub on the ballot 
 be discontinued and that the practice of permitting and requiring 
 judges of election to number each ballot be abandoned. 
 
 Law Requires Many Precincts to Have Double Set of Judges 
 
 Chapter 76 of the laws of 1913 directs that in all precincts where 
 at the last preceding general election 300 or more votes were cast, the 
 election commission shall appoint or cause to be appointed three addi- 
 tional judges of election to supervise the canvass and make returns. 
 These additional judges are to be known as "counting judges." The 
 election commission is divided in its opinion as to what is meant by 
 "the last preceding general election." Thus, 45 or 126 precincts in 
 the city (dependent upon a court decision as to whether the last munici- 
 pal election or the last state election is meant) will fall within this, 
 class and necessitate the appointment of a duplicate set of judges. 
 
 Continuous Accounting Conducive to Fraud 
 
 This act requires that counting judges shall meet at 8 a. m. on 
 the day of election, organize, and select two clerks in each of those 
 
ELECTION COMMISSION 557 
 
 (45 or 126) precincts. The act further requires that at 8 o'clock, or 
 as soon thereafter as the counting judges shall have organized, they 
 shall receive from the regular board of judges all ballots that have 
 been cast up to that time, and that the receiving judges shall proceed 
 to use other ballot boxes for the reception of future ballots. .The 
 counting judges will then proceed to count the votes cast up to 8 
 o'clock in the morning. When they shall have canvassed the vote in 
 this ballot box they must return the empty box to the receiving judges 
 and exchange the same for a box containing the ballots cast since the 
 first count. This procedure provides for a continuous count, since the 
 judges having counted one set of ballots are directed by law to begin 
 the count of the second set, and so on until the polls close, and all the 
 ballots ha've been counted. 
 
 The procedure to be followed by the counting judges in making 
 these canvasses is the same as is ordinarily followed in the canvassing 
 of the vote under the present law after the polls have closed. 
 
 Section 8 of the law requires that the receiving judges, upon de- 
 livering a ballot box to the counting judges, shall certify the number 
 of persons voting and the number of ballots which should be found in 
 each box. This statement must be in writing. 
 
 Section 9 provides that watchers be permitted to observe the count 
 by the counting- judges, but it requires, under a penalty of imprison- 
 ment and fine, that all these judges, clerks and watchers and all other 
 persons present at the counting shall take, in addition to the oath 
 now prescribed, an oath that they will not in any manner make known 
 to anyone the results of the count before the closing of the polls. 
 
 No Prohibition Against Leaving Polling Places 
 
 This section, however, does not prohibit the counting judges, 
 clerks or watchers from leaving the room in which the count is being 
 conducted, nor does it state how much time shall elapse between the 
 exchange of ballot boxes, but merely states that as soon thereafter as 
 the counting judges have canvassed one set of ballots they shall pro- 
 ceed to canvass those cast up to that time. Thus, under this law in 
 45 or 126 of the largest precincts in the city there will be a continuous 
 counting and handling of the ballots. 
 
 This act, if put into operation, will encourage fraudulent practices 
 because of the inability of the commission to control the watchers; 
 and furthermore the judges in a district during a time in the day when 
 the voting is particularly light, could, if they desired, detect the man- 
 ner in which an elector votes. 
 
 Since the law would affect only 45, or at most 126 precincts out of 
 a total of 178, there would be many precincts in which the count must 
 proceed in accordance with the regular practice, and since at the an- 
 nouncement of the final vote at the close of the polls in one of those 
 districts having counting judges, any watcher may ask for a recount, 
 it will not necessarily facilitate the count. 
 
558 DENVER 
 
 Aside from the fact that the procedure required by the statute is 
 conducive to fraud and does not serve any particular advantage, since 
 it does not apply to the entire city, it is so loosely drawn as to be un- 
 workable. 
 
 The contention of the two members of the election commission is 
 well founded and the commission is justified in reapportioning the 
 districts to avoid the dangers of this procedure. The law would also 
 impose upon the city the additional expense of the salaries of 225 or 
 630 clerks and judges. No precinct or election district should have 
 more than 300 voters. Therefore, the law providing for the double 
 set of judges and the continuous count should be repealed. 
 
 School Houses Not Used as Polling Places 
 
 Private houses, stores and other types of houses are rented for 
 use as polling places. The commission is frank in stating that when 
 it does not interfere with the convenience of the voters, polling places 
 have been rented on a basis of political patronage and sometimes on 
 a quasi-charitable basis. 
 
 Not a single school in the city of Denver is used as a polling place, 
 first, because election day is not a legal holiday in the city ; and second, 
 because the plan of using the school houses has met with the disap- 
 proval of the school board. 
 
 It is needless to state in this report the many advantages-of using 
 school houses as polling places. It is recommended that the school 
 board grant permission to the election commission to use the school 
 houses as polling places. 
 
 The Use of Fire Stations Should be Discontinued 
 
 Many fire houses are used as polling places. While this practice 
 may be economical, it should be discontinued, first, because a fire 
 house should never have anything connected with it that may pos- 
 sibly interfere with the quick dispatch of apparatus in responding to 
 alarms; and second, because the uniformed police and fire forces 
 should be kept as much out of politics and political discussions as is 
 possible. 
 
 Method of Registering Voters 
 
 While it is necessary under the state law for an elector to register 
 with the election commission if he intends to exercise his franchise, it 
 is not necessary that the registration be personal or that he register 
 at each election. If he fails to vote at one general election, however, 
 his name is struck from the register and he is required under the law 
 to register or to be registered if he intends to vote at a succeeding 
 election. 
 
 The law permits a householder to register members of his family 
 and in some instances to register persons boarding or residing with 
 them to the number of three. Each person registering is required to 
 
ELECTION COMMISSION 559 
 
 take an oath and to sign his name in the register, but he is not re- 
 quired to sign his name at the time of voting. It is true that the 
 watchers or judges have the right under the law, in case they suspect 
 fraud, to insist upon an elector signing his name, but even this signa- 
 ture does not afford a comparison if the elector was registered by some 
 other member of his family or by his boarding mistress. 
 
 No Verification of Registration List 
 
 There is no verification or investigation of the list of registered 
 voters through the election commission or any other official body. 
 Thus, in certain sections of the city where the election judges fre- 
 quently change and the population shifts, it would be comparatively 
 easy for dishonest election workers to vote upon the names of persons 
 who registered many years ago, but since died or moved away. Of 
 course, to do this in accordance with the present method of registra- 
 tion, it would be necessary for them to do it each year. 
 
 Allowing persons to register three boarders or lodgers is a prac- 
 tice which, whether abused or not, at least lends itself readily to fraud. 
 
 Personal Registration Should be Required at Every Election 
 
 It is useless to spend great sums of money to develop efficient 
 methods of governmental control and administration if the will of the 
 people may be thwarted by corrupt election practices. So sacred 
 should be the ballot as a means of expressing the will of the people, 
 that every possible safeguard should be thrown about an election, and 
 the elector, in order that his right of franchise shall neither be inter- 
 fered with nor destroyed by dishonest election practices, should be 
 willing to suffer ordinary inconvenience and submit to honest inquiry. 
 
 Therefore, since the experience of other large cities has proved 
 that the absence of personal registration at each election is conducive 
 to fraud, it is recommended that a statute be created requiring that 
 electors be required to register personally at each election, or at least 
 at the general election. True, to require personal registration is to 
 inconvenience the voter to the extent of requiring him to answer a 
 certain number of questions and to sign his name once or twice a year, 
 but the voter who is unwilling to submit to this inquiry in an effort to 
 protect the franchise of the electorate of the city, is scarcely worthy 
 of the right to exercise a voice in the selection of the officers of his 
 city or his state. 
 
 Lack of Investigation Conducive to Fraud 
 
 Surely, Denver's elections have not been so wholesome and free 
 from fraud in the past as to warrant the election commission taking 
 for granted that the registration list represents only those legally en- 
 titled to vote. The fact is that the. commission does assume that every 
 name upon the registration list is there legally, because there is no 
 effort whatever to investigate or check the registration list to deter- 
 mine whether fraud is being perpetrated or not. The commission de- 
 
560 DENVER 
 
 pends entirely upon the election judges protecting the city against 
 false voting and illegal registration, but while depending upon^these 
 officers for this protection it does not even attempt to determine their 
 honesty, capability or intelligence. 
 
 The election officials, so-called judges of election, are the personal 
 selections of interested partisan politicians. It is argued that in each 
 polling place the two dominant political parties are represented on the 
 board of elections, but in precincts or districts where one or the other 
 of the dominant parties has a very large majority of the voters enrolled 
 in its organization it is not impossible for the dominant party in that 
 neighborhood to control the opposition judge. Then, of course, as al- 
 ready pointed out, there are neighborhoods in Denver where the pop- 
 ulation shifts and the judges change, so that the judges cannot protect 
 the city against the perpetration of election frauds. 
 
 Provision should be made by law for a careful investigation and 
 examination of the registration list. Eegistration day should be suffi- 
 ciently distant from election day to provide ample time for an ade- 
 quate investigation. Voters should be required to sign their names on 
 election day, as well as when they register, so as to provide a means of 
 comparison of signatures. 
 
 The commission does not take the ordinary precaution of securing 
 from the bureau of health a list of deaths of adults, so as to strike from 
 the list the names of persons having died. The bureau of health should 
 be required to furnish the election commission within two or three 
 weeks of each election with a certified copy of the list of persons hav- 
 ing died during the year who were 21 years of age or over. 
 
ELECTION COMMISSION 
 
 RECORDS 
 
 561 
 
 The records of the office consist of the poll books, the office regis- 
 tration books, and copies of the registration books used at the polls, 
 also a book in which the time of the temporary employees is recorded 
 and from which the payroll is made up. All supplies are purchased 
 upon requisition through the bureau of supplies. 
 
 Cost of Elections 
 
 The chief elements of expense of elections are salaries of judges 
 of election, clerks, rental of polling places, printing and advertising. 
 The following table shows the cost of the elections held since 1908 : 
 
 1908 (May 19th) $48,249.04 
 
 1910 (May 17th) 9,364.80 
 
 1910 (Sept. 6th) 27,492.35 
 
 1912 (May 21st)— 
 
 Judges and clergs, reg. . .$ 8,640.00 
 
 Judges and clerks, elec. . . 11,537.50 
 
 Office clerks, etc 8,755.00 
 
 Reg. and pol. places 4,460.00 
 
 Printing, ballots, etc.... 5,902.66 
 
 Publications 2,283.40 
 
 Miscellaneous expense. . . . 888.80 
 
 1912 Sept. 10th)— 
 
 Judges and clerks $ 9,460.00 
 
 Office clerks, etc 8,382.90 
 
 Polling places 1,690.00 
 
 Printing, ballots, etc 4,056.55 
 
 Publications 359.15 
 
 Miscellaneous expense . . . 333.80 
 
 1912 (Nov. 4th)— 
 
 Judges and clerks, reg...$ 7,014.97 
 
 Judges and clerks, elec . . . 10,070.00 
 
 Reg. and pol. places. . 3,440.00 
 
 Office clerks, etc 3,660.15 
 
 Printing, ballots, etc 3,336.27 
 
 Publications 3,200.70 
 
 Miscellaneous expense . . . 333.85 
 
 42,467.36 
 
 24,282.40 
 
 31,055.94 
 
 1913 (Feb. 14th) 24,256.39 
 
 1913 (May 20th) 29,868.17 
 
 1914 (Feb. 17th) 20,923.44 
 
 Records Inadequate and Improperly Maintained 
 
 This table of expenses was prepared by the secretary to the eom- 
 mission and was as nearly detailed as the records would permit. 
 
562 DENVER 
 
 After each general election the registration books must be copied 
 and clerks are employed at $3.00 per day for this work. After. the last 
 election the commission decided to experiment by having the names 
 copied at the rate of 1% cents per name, instead of on a per diem basis, 
 but neither the commission nor its secretary prepared a statement from 
 the records to determine whether the work was as efficiently done or 
 the exact difference in cost ; and from the kind of records maintained 
 such a comparison was impossible. 
 
 It is impossible from the time book kept to separate the cost for 
 the copying of the names, since all the employees are listed therein 
 without any statement as to the nature of their services. 
 
 It is admitted, alhough not supported by financial statements, that 
 the copying of these names on a 1% cent basis was more economical, 
 but the commission is somewhat divided in its opinion as to whether 
 the work was as efficiently performed, although in this case also there 
 are no records to support the contentions of the commissioners. 
 
 No Card Record of Voters Maintained 
 
 No card record of the voters is maintained. The copying of the 
 registration list itself after, general election seems to serve no good 
 purpose, and it is recommended that the commission seek legislative 
 action. If a personal registration law were adopted, the keeping of 
 this list would not be necessary. 
 
PUBLIC ADMINISTRATOR 563 
 
 PUBLIC ADMINISTRATOR 
 
 Organization and Duties 
 
 The following clause taken from the Colorado statutes affords a 
 brief statement of the duties of the public administrator of the county 
 of Denver. It relates to all counties of over 50,000 population : 
 
 "In all eases where any person shall die seized or pos- 
 sessed of any estate within this State, or having any right or 
 interest therein, and who shall have no relative within this 
 State who will administer upon such deceased person's estate, 
 it shall be the duty of the judge of the county court, upon the 
 application of the public administrator, or of any other person 
 interested in said estate, to commit the administration of such 
 estate to the public administrator of the proper county." 
 
 The public administrator was first appointed by the governor, 
 then the statutes were changed and the office was made appointive 
 by the county commissioners. Subsequently, in 1913 (Chap. 124, Acts 
 1913), the county judge was given the appointive power. 
 
 The present incumbent of the Denver office has been continued 
 therein for the past seven years. The business relating to his func- 
 tions as public administrator is conducted in a downtown office build- 
 ing. 
 
 Should be on a Salary Basis 
 
 At the time the county fee offices were placed on a salary basis 
 this office was evidently overlooked. The public administrator still 
 retains as his compensation all of the fees allowed by the statutes for 
 administering the estates turned over to him. 
 
 The public administrator informed us that there were about 50 
 cases in 1913, and that about 60 cases were pending at the time of our 
 survey, April, 1914. As the city and county grow in population the 
 fees of this office will increase. 
 
 Throughout the country arguments against the fee system of com- 
 pensating public officials have been accepted as sound. Even in 
 Denver, county officials who were formerly compensated by the fees 
 collected have, as noted above, been placed upon a salary basis. "We 
 see no good reason for making the office of public administrator an 
 exception, and therefore recommend that legislation be secured which 
 will require 
 
 1 — That all fees arising from the administration of estates by this 
 office, and also such interest on bank deposits as is not 
 credited to particular estates, shall be turned over to the 
 treasurer of the city and county of Denver 
 
 2 — That the expenses for conducting the office be provided by 
 appropriation in the annual budget, and 
 
564 DENVER 
 
 3 — That the amount thus allowed in the budget for any given year 
 shall not exceed the total amount of fees turned over to the 
 treasurer by the public administrator during the preceding 
 year. 
 
 Fully recognizing the relation of this office to the judiciary, we, 
 nevertheless, suggest that the statutory change as indicated would 
 have a salutary effect, in that it would bring the office within the 
 governmental organization and would establish a closer contact with 
 the financial, auditing and other administrative departments. As a 
 means of ^lustration it may be cited that the public administrator of 
 each of the counties within the city of New York is on a salary basis. 
 The fact that private administrators receive their compensation on a 
 fee basis is not analogous. For example, more estates are handled by 
 public administrators, the average size thereof is much smaller, all 
 relatives are in other localities, if indeed any are alive, and the char- 
 acter of the estates is different. 
 
 Should an Additional Fee be Charged 
 
 The present administrator suggests the desirability of securing 
 legislation which will permit of charging against the respective estates, 
 a fractional percentage to cover such overhead costs as rent, light, 
 heat, office supplies, stenography, etc., which cannot be made a direct 
 charge. Whether or not the present statutory fees are ample in this 
 respect would soon become apparent if the office were brought within 
 budgetary control as we have recommended. 
 
JUVENILE COURT 565 
 
 JUVENILE COURT 
 
 JURISDICTION 
 
 The functions of the juvenile court may be grouped as follows : 
 
 1 — The trial of juvenile delinquents 
 
 2 — The trial of juvenile dependency cases 
 
 3 — The supervision through probation of juvenile delinquents 
 
 4 — The trial of adults in all cases where a crime has been com- 
 mitted against the child, such as non-support of children 
 contributory delinquency, rape, etc. 
 
 5 — The hearing of all proceedings in adoption cases 
 
 6 — The enforcement of the mothers' compensation act 
 
 7 — Domestic relations cases 
 
 8 — The supervision of the detention home 
 
 9 — The trial of youths between 16 and 20 not classified as juvenile 
 delinquents. 
 
 Of these functions the greatest amount of time is consumed in the 
 trial of adult eases and the supervision of delinquent children through 
 probation. 
 
 The enforcement of the mothers' compensation act involves not 
 only the conducting of official hearings before the court upon applica- 
 tion of mothers for benefits from the mothers' pension fund, but also 
 investigation of the home conditions, history, and character of the par- 
 ent tending to prove whether or not the mother is a proper person to 
 care for the children with financial aid from the state. 
 
 In non-support proceedings there is the same necessity for investi- 
 gation. 
 
5G6 DENVER 
 
 ORGANIZATION 
 
 The juvenile court as at present organized was established in 1907. 
 Prior to that time and after 1901 the county court, through a branch 
 devoted to the trials of juvenile cases, constituted the juvenile court. 
 Before the establishment of the juvenile branch of the county court 
 in 1901, with few exceptions, cases of juvenile deliquency were prose- 
 cuted and tried in the same manner as adult criminals. The establish- 
 ment of the juvenile court in 1907 was pursuant to a statute which 
 separated the juvenile court from all other courts and created it as an 
 independent court of record. The present judge, who was originally 
 ■appointed while a judge of the county court to sit as judge of the 
 juvenile branch, was subsequently appointed in 1907 as judge of the 
 juvenile court, to which office he has since been elected four times. 
 
 Associate Judge a Woman 
 
 In his administration of the court the judge is assisted by a 
 woman, whose official title is clerk of the court, who sits as an asso- 
 ciate judge. Her duties include supervision of the probation officers, 
 of whom there are five, and service as division clerk, clerk to the court 
 and master in chancery. 
 
 As master in chancery she is in effect an associate or advisory 
 judge. In all proceedings affecting children, except when the judge 
 sits during a jury term in adult cases, she sits with him as a master in 
 chancery. All proceedings in the court, in which under usual criminal 
 procedure* a child would be a defendant, are conducted in chancery, 
 thereby changing the position of the child from that of defendant to 
 that of a ward of the state. Thus, no child is ever charged with a 
 crime in the juvenile court, and is dealt with "as far as practicable not 
 as a criminal but as being misdirected and misguided and needing aid, 
 help, assistance and encouragement." It is by virtue of the court sit- 
 ting in chancery that the judge is empowered to direct the clerk of the 
 court to sit as associate judge or master in chancery. In no instance 
 does she render decisions or pass sentence, but merely advises the court 
 as to the disposition of cases, and assists in the examination of the 
 children. The present incumbent has been clerk to the juvenile court 
 since 1903. 
 
 Officers and Attaches of the Court 
 
 The subordinate officers and attaches of the court and their sal- 
 aries as they appear on the payroll are as follows : 
 
 Salary. 
 
 Secretary to the judge $ 900.00 
 
 Clerk to the court 2,000.00 
 
 Court stenographer 2'00O.0O 
 
 Deputy clerk l^Oo'oO 
 
 Complaint clerk 1 200.00 
 
 Chief probation officer 1^500.00 
 
 Probation officers, 3, each 1^200^00 
 
 Probation officer, 1 900.00 
 
JUVENILE COURT 567 
 
 In addition to this staff there are a policeman and a deputy sheriff 
 assigned to the court. There is no bailiff or division clerk. The duties 
 of the division clerk are performed by the clerk to the court and the 
 duties of bailiff are performed by the deputy sheriff. 
 
 Payroll Should Show Actual Salaries Paid 
 
 In several eases the salaries of the officers and attaches of the 
 court as shown by the payroll are not the actual salaries received. The 
 changes in salary which do not appear upon the payroll are as follows : 
 
 The clerk to the court appears upon the payroll at $2,000 per year. 
 She receives, in fact, $1,820 a year, since she voluntarily contributes 
 $180 per year out of her salary to the police officer assigned to the 
 court. The court stenographer appears upon the payroll at $2,000 per 
 pear, while in fact he receives but $1,820, since he contributes $180 
 per year of his salary to the secretary to the judge. , Even the salary 
 of the judge shows upon the payroll as $4,000, while in fact he receives 
 but $3,580, since he contributes $35 per month of his salary to his sec- 
 retary. Thus, the secretary to the judge, who appears upon the pay- 
 roll as receiving $900 per year, because of the contributions from the 
 judge of the court and the court stenographer, in fact receives $1,500. 
 The chief probation officer appears upon the payroll at the rate of 
 $1,500 per year; he contributes $300 per year of his salary to one of 
 the probation officers, making his own salary in fact $1,200. The pro- 
 bation officer who receives this contribution appears upon the payroll 
 at $900 per year, but because of the contribution by the other proba- 
 tion officers he in fact receives $1,200. 
 
 This situation is due to the effort of the judge to provide addi- 
 tional probation officers and so increase the efficiency of the probation 
 system and at the same time practice economy. The salaries of the 
 attaches of the court have for the most part been fixed by statute. 
 The court could get no additional appropriation out of which to pro- 
 vide for the appointment of these ueeded additional probation officers. 
 The statute provides for the appointment of a division clerk, a bailiff 
 and a chief probation officer, and fixes their salaries. 
 
 The judge of the court requested the board of county commission- 
 ers to allow him to arrange the salaries of the employees of the court 
 so as to provide a fund which would permit of engaging the additional 
 probation officers without increased appropriation. The city attorney 
 advised the county commissioners in a lengthy opinion that it would 
 not be legal for the commissioners to authorize by resolution the as- 
 signment of salaries, but that the situation could be met as follows: 
 
 "Therefore, you should advise Judge Lindsey that it is 
 your desire that the payroll be made out in the usual way 
 and that so far as you are concerned you have no objection 
 to him and other officers dividing up their salaries with other 
 persons whom he may employ in the court according to his 
 own discretion." 
 
568 DENVER 
 
 According to this opinion the board of county commissioners author- 
 ized the judge of the court to arrange the salaries at his discretion so 
 long as the payroll showed the salaries as fixed by law. 
 
 Although every act in connection with this distribution of salaries 
 was made a matter of record and done with the consent and the sanc- 
 tion of the board of county commissioners and with no intention other 
 than to produce an efficient and economical administration of the 
 juvenile court, and, although the statute fixing the salaries may be 
 unwise, it would seem that the law should be complied with until it 
 can be regularly amended. A payroll should present an accurate state- 
 ment of the salaries ; and to ascertain the salaries actually paid it 
 should not be necessary to go back of the payroll. 
 
 It is clear that these salary changes were made for the best interest 
 of the court, and indeed represented a sacrifice on the part of the em- 
 ployees in order to produce efficiency; yet to permit such a practice 
 is only to lead to confusion and misstatement of fa,cts about which the 
 citizens have a right to know the truth. 
 
 The contribution by the clerk of the court to increase the salary 
 of the police officer assigned to the court is wholly unwarranted. 
 Policemen are forbidden by their rules to accept gratuities of any kind 
 and a detail to this court should not carry with it any perquisites or 
 additions in salary. 
 
 Probation Officers Qualified for their Work 
 
 There are five probation officers attached to the court. The city 
 is divided into four districts, to each of which is assigned a probation 
 the books of the court. 
 
 These officers are for the most part specially qualified to perform 
 probation work. All are college graduates and one is a minister. Their 
 previous training includes teaching in elementary and high schools, 
 social service work in connection with children's institutions, boys' 
 club work, and years of experience in probation work. They show by 
 their reports and the manner in which they handle the cases assigned 
 to them a good understanding of their duties and considerable discre- 
 tion as to the cases which should be brought to the court and those 
 which should be settled without court action. 
 
 The work performed by the probation officers for the year 1913 
 is shown by the following tables, prepared from the records of the 
 court : 
 
 Officer A 
 
 Total number of probationers on hand January 1st, 1914 . 40 
 
 of which number 5 were repeaters. 
 Total number placed on probation in 1913 65 
 
 of which 7 are repeaters. 
 
 Committed to State Industrial School 6 
 
 Committed to House of Good Shepherd 2 
 
 Committed to Peck's Training School 1 
 
JUVENILE COURT 569 
 
 Honorably excused 8 
 
 Removed from Denver 11 
 
 Dismissed 1 
 
 Probation expired 10 
 
 — 39 
 
 Probationers on Hand January 1st, 1914 60 
 
 Probationers on hand May 1st, 1914 22 
 
 Total probationers to date 88 
 
 Officer B 
 
 Total number on probation January 1, 1913 30 
 
 of which 7 were repeaters. 
 Total number put on probation during year 60 
 
 of which 11 were repeaters. 
 
 Total number committed during year 8 
 
 Total number honorably discharged during year. 30 
 
 Total number dropped because of removal or other reasons 12 
 Total on probation April 1, 1914 42 
 
 of which 8 are repeaters. 
 
 Officer C 
 
 Total number of probationers on hand January 1, 1913. . . 78 
 
 of which 9 were repeaters. 
 Total number placed on probation during 1913 147 
 
 of which 32 were repeaters. 
 Total probationers in 1913 225 
 
 of which 108 were working boys from 14 to 20 years of age. 
 
 Disposition of same. 
 
 Committed to Boys' Industrial School 11 
 
 Honorably excused • • • • 46 
 
 Removed from Denver ■• 34 
 
 Dismissed (cases in other courts) 2 
 
 Probation expired • .2 
 
 Transferred to Mr. B. December 31, 1913. . .- 55 
 
 Probationers on hand January, 1914 75 
 
 225 
 
 Probationers on hand May 1, 1914 76 
 
 Non-support (domestic relations) cases 17 
 
 Officer D 
 
 Boys on probation January 1, 1913 — 
 
 Mled cases 2 ° 
 
 Voluntary delinquents ' 
 
 Total 33 
 
 Of whom 8 were repeaters. 
 
570 DENVER 
 
 Boys placed on probation during the year — 
 
 Filed cases *:' 
 
 Voluntary delinquents 6i) 
 
 Total 52 
 
 Of whom 7 were repeaters. 
 
 Total number of boys on probation during year 85 
 
 Total number of these repeaters 15 
 
 Disposition — 
 
 Committed to institutions ° 
 
 Honorably discharged ~2 
 
 Left city, etc 1° 
 
 Probationers on hand January 1, 1914 o7 
 
 Total 85 
 
 Boys on probation to May 1, 1914 — 
 
 Filed cases (boys now in city) 36 
 
 Filed cases (boys out of city) 4 
 
 Voluntary delinquents 17 
 
 On probation May 1, 1914 ; 57 
 
 Domestic relations cases 5 families 
 
 Involving 9 children 
 
 *Officer E 
 
 Boys on Probation and Domestic Eelations Cases 
 Under Supervision to May 1st 
 
 Boys on probation — - 
 
 Filed cases (boys now in city) 25 
 
 Filed cases (boys out of city) 1 
 
 Voluntary delinquents (in city) 26 
 
 Voluntary delinquents (out of city) 2 
 
 Total 54 
 
 Continued cases involving 9 boys 
 
 Domestic relations cases — 
 
 Involving 3 families 9 children 
 
 Total number of children 72 
 
 *Appointed during December, 1913. 
 
 The probation officers also performed social service work and 
 work of a semi-police character, by inducing girls who are placed on 
 probation to join girls' clubs and by frequently visiting moving picture 
 shows and dance halls to observe whether the law governing the admis- 
 sion of minors or forbidding the sale of liquor to minors is being 
 violated. 
 
JUVENILE COURT 571 
 
 COST OF MAINTENANCE 
 
 Cost of Maintaining Juvenile Court Not Excessive 
 
 In comparison with the cost of maintenance of the district and 
 county courts the cost of maintaining the juvenile court may be said to 
 be moderate for the number of cases handled. The work differs so 
 widely in its constructive nature from the routine trial of cases as con- 
 ducted by the district and county court as to warrant the expenditure 
 of additional funds for the juvenile court. As will be observed from 
 the table which follows, the trial of the adult cases which involves the 
 payment of jurors' and witness fees, forms a large item of the running 
 expenses of the court. The records of the trials and hearings show 
 only a part of the service for the constructive probation work and the 
 cases which are settled out of court require much of the time of the 
 attaches of the court. 
 
 The following table shows the expenses of the juvenile court from 
 tbe date of its establishment to January, 1914 : 
 
572 
 
 os 
 
 o 
 
 T"H 
 
 OS 
 
 OS 
 
 - 
 
 ' o 
 
 CXI 
 
 o 
 
 
 
 CO 
 
 CO 
 
 © 
 
 
 co 
 
 OS 
 
 cxi 
 
 o 
 
 
 T-i 
 
 rH 
 
 rH 
 
 OS 
 
 
 OS 
 
 q. 
 
 lO 
 
 
 
 1-1 
 
 in 
 
 rH 
 
 
 
 
 
 rH 
 
 o 
 
 o 
 
 © 
 
 
 tH 
 
 rH 
 
 © 
 
 CO 
 
 C-l 
 
 rH 
 
 © 
 
 © 
 
 CO 
 
 1-1 
 
 CO 
 
 o 
 
 co 
 
 CXI 
 
 OS 
 
 t- 
 
 rH 
 
 
 
 rH 
 
 CO 
 CO 
 
 rH 
 
 OS 
 CXI 
 
 oq_ in 
 
 in" 
 i-i 
 
 o 
 o 
 
 CXI 
 CO 
 
 o 
 
 ©■ 
 
 CO 
 CO 
 rH 
 
 rH 
 
 
 CO iH 
 OS in 
 
 OS 
 
 ■m- 
 
 © 
 CO 
 rH 
 
 o o 
 
 O CXI 
 
 © t-' 
 
 rH rH 
 
 O O 
 
 o © 
 
 co' CO 
 
 os O 
 
 © © 
 
 o o 
 
 ©' CO 
 
 <M © 
 
 o 
 
 in 
 
 co 
 
 o 
 
 o 
 
 © 
 
 CO 
 
 co 
 rH 
 
 
 DENVER 
 
 
 
 o 
 in 
 
 o 
 
 rH 
 
 o 
 co 
 
 O 
 CXI 
 
 o 
 
 q 
 
 CO 
 
 ■ q 
 
 os° 
 t- 
 
 i-H_ 
 
 in 
 
 co 
 
 CXI 
 
 co 
 
 in 
 O 
 
 CXI 
 
 cxi 
 
 rH 
 CXI 
 
 co 
 
 rH 
 t- 
 
 CxT 
 
 
 r-T 
 
 
 
 
 O 
 
 co 
 
 CD 
 
 O 
 OS 
 
 CXI 
 
 CO 
 
 o 
 o 
 
 co 
 
 q 
 
 
 OS 
 O 
 CXI 
 
 l> 
 
 rH 
 O 
 
 in 
 t- 
 
 o 
 
 CO 
 
 o 
 in 
 
 rH 
 
 o 
 
 co 
 
 o 
 o 
 
 o © 
 in in 
 
 cxi 
 
 co 
 
 CXI 
 
 in cxi 
 
 in 
 
 CO 
 CXI 
 
 o 
 o 
 
 OS tr- 
 ee rH 
 
 © 
 rH 
 co 
 C- 
 
 Cxf 
 
 © 
 cxi 
 
 cxi 
 
 CO 
 
 oo 
 
 ° 2 
 
 CO © 
 
 i-i Cxi 
 
 OS rH 
 
 ■<#_ 
 
 Cxf 
 
 © O 
 
 O © 
 
 © OS 
 
 in t- 
 
 © 
 o 
 
 © 
 
 in 
 
 © rH 
 O © 
 
 o co 
 in i-i 
 
 rH 
 
 © CO 
 
 © rH 
 
 iri co 
 
 t- T-H 
 
 in 
 os 
 
 t- 
 
 q 
 
 r-T 
 
 ■ee- 
 
 © 
 co 
 
 os 
 ■ee- 
 
 co 
 
 00 
 
 ■ee- 
 
 m 
 os 
 
 OS 
 
 ■ee- 
 
 
 t- 
 
 rH 
 
 q 
 
 
 CO 
 rH 
 
 CO 
 
 CO 
 
 q. 
 
 t-" 
 
 rH 
 
 ■ee- 
 
 CO 
 
 © 
 
 OS 
 
 ©a 
 
 © 
 © 
 
 in 
 t- 
 
 © 
 
 © 
 
 CD 
 
 cxi 
 
 CD 
 
 ■ee- 
 
 rH 
 CXI 
 
 t-' 
 
 OS 
 CXI 
 
 © 
 © 
 in 
 
 © 
 
 © 
 © 
 
 © 
 os 
 
 
 OS 
 
 la 
 
 © © © © 
 
 os q q q 
 
 co © cxi eo 
 
 cxi t- rH os 
 
 rH 
 
 u 
 cu 
 
 a 
 
 o 
 
 © © 
 
 in rH 
 
 CO CO 
 
 rH m 
 
 o © 
 in in 
 
 t- 
 
 rH 
 CXI 
 
 u 
 
 
 <D 
 
 ft 
 
 
 
 
 
 OS 
 
 o 
 
 aT 
 
 b!> 
 
 & 
 
 M 
 
 CCi 
 
 ft 
 
 CD 
 
 o 
 
 m 
 
 
 o 
 
 o 
 
 "o> 
 
 pq 
 
 PU 
 
 £h 
 
 in 
 
 OS 
 CO 
 
 cxT 
 
 in 
 
 cd 
 © 
 
 
 -* > 
 
 o 
 
 pi 
 
 1-3 
 
 CD 
 
 CO 
 
 cu 
 as 
 
 cu 
 CO 
 
 
 PI 
 
 Pi 
 
 o 
 
 u 
 ft 
 o 
 u 
 
 ft 
 ft 
 
 as 
 
 as 
 
 ft 
 
 m 
 
 © 
 
 
 00 
 
 
 
 in 
 
 
 oo 
 
 
 CO 
 
 
 os 
 os 
 rH 
 
 OS 
 
 OS 
 CXI 
 
 •rrj 
 
 
 
 
 
 cu 
 
 
 
 
 
 PI 
 
 
 
 
 
 0B 
 
 
 
 
 
 
 
 
 
 
 OS 
 
 
 
 
 
 02 
 
 
 
 
 
 ca 
 
 
 
 
 03 
 
 
 
 
 05 
 
 
 
 : a 
 
 li 
 
 
 
 o 
 
 
 a 
 
 
 
 C 
 s. 
 
 i a 
 
 OS 
 
 PI 
 
 as 
 
 T 
 
 c 
 
 i ea 
 
 5 " 
 
 i— i 
 as 
 
 a 
 
 -t- 
 
 o 
 
 P3 o 
 
 CO ^H 
 
 pi 
 o 
 cu 
 
 C 
 
 3 T3 
 
 c 
 
 
 
 t- 
 
 os 
 
 co 
 © 
 os 
 
 rH~ 
 r-t 
 
 ■ee- 
 
 rH 
 t- 
 
 iri 
 os 
 t-_ 
 
 co" 
 ■ee- 
 
JUVENILE COURT 573 
 
 QUARTERS AND EQUIPMENT 
 Need for New Equipment 
 
 The sessions of the court are held in the county court house. The 
 furniture and equipment are wholly inadequate and not of a kind 
 which will serve to impress children with the dignity of the proceed- 
 ings. In the work of the juvenile court every feature of the proceed- 
 ings, the conduct of the attaches, and the physical equipment of the 
 court play an important part, and the aim of the court should be to 
 impress the child's mind with the dignity of the occasion. 
 
 Denver has made great progress in the matter of caring for its 
 child delinquents and dependents. The substitution of chancery pro- 
 ceedings in place of criminal proceedings was a pioneer step. It 
 should now go further and remove the juvenile court from the county 
 court house to a separate building and equip it in such a manner as 
 to facilitate the conduct of business. 
 
 TRIAL OP CRIMINAL CASES 
 
 The Trial of Rape Cases Should Not Take Place in the Juvenile Court 
 
 It is the practice to try rape cases in the juvenile court. The trial 
 of such cases is a criminal proceeding in which the judge sits as a 
 criminal judge. The rules of evidence and procedure governing crim- 
 inal cases must be employed. Juries are drawn, witnesses heard, and 
 the juvenile court, intended only for the child, is converted into a 
 criminal court. 
 
 During the last year 42 eases of rape, seduction, and indecent lib- 
 erties were tried in this court, all of them taking up the time of the 
 court and the attaches in work distinctively criminal in its character, 
 time which should be devoted exclusively to problems of juvenile 
 delinquency. 
 
 It is recommended in the interest of a further development of 
 the probation system, and in order that the judge and the attaches 
 of this court shall have- more time at their disposal for the investiga- 
 tion and handling of children's cases, that the judge arrange with the 
 district attorney to have all rape cases, etc., tried in the district 
 courts. It is not urged that the statute giving the judge of the juvenile 
 court co-ordinate jurisdiction with the district courts be changed, or 
 that the judge abandon entirely observing these cases, but it is thought 
 that with the co-operation of the district judges and the district at- 
 torney the investigation of the children in such cases might remain 
 with the juvenile court, while the trial should be conducted before 
 another tribunal. 
 
574 DENVER 
 
 DETERMINATION OF THE CAUSE OF DELINQUENCY 
 
 Need for Medical Inspection 
 
 There is no medical inspection in connection with the juvenile 
 court work except that in some cases the children are subjected to a 
 physical examination. There is nothing more important in connec- 
 tion with the care of delinquent children than a search for the cause 
 of delinquency. The scientific treatment of juvenile delinquents can 
 only be accomplished through applying to each child the treatment 
 his specific case demands. 
 
 It is contended by the officers in charge of this court that in 
 cases where the child exhibits symptoms of a physical defect a physi- 
 cian is called in and the child examined, but experience in the han- 
 dling of children, and especially juvenile delinquents, proves that is 
 is unwise to wait until the child develops symptoms which can be 
 readily detected by persons other than physicians. 
 
 It is not claimed that every child showing a tendency to delin- 
 quency is physically defective or in need of medical attention, or that 
 every child arraigned in the juvenile court should be subjected to a 
 physical examination. 
 
 The care of juvenile delinquents divides itself into two parts, 
 one, skillful probation work by trained probation officers, and the 
 other, medical inspection accompanied by proper medical treatment 
 in cases where the delinquency is due to physical defects. Adenoids, 
 nasal obstructions and defects in the spine are commonly found in 
 juvenile delinquents, and near sightedness and defective hearing also 
 contribute to delinquency among school children. Even with a thor- 
 ough medical inspection in the schools, there are so many children ar- 
 raigned in the juvenile court who are not regular attendants at school 
 that a proper medical inspection in the court is needed. 
 
 It is therefore recommended that steps be taken to establish 
 physical inspection of children arraigned in the juvenile court. In 
 all serious cases the judge should have before him the certificate of 
 the physician before passing judgment. „ 
 
 ATTENDANCE RECORD OF THE JUDGE 
 
 Judge's Absence Permitted by Law 
 
 The records of the juvenile court show that during the last five 
 years, up to January 1, 1914, court was held on 1,137 days. Of this 
 number the present judge presided on 807 days. 
 
 The following table, prepared from the records of the court, 
 shows the number of days each year for five years that the present 
 judge has held court, and the number of days the court was presided 
 over by other judges : 
 
JUVENILE COURT 575 
 
 Number of Days Court Was Held and Name of Presiding Judge 
 
 1909 1910 1911 1912 1913 
 
 Ben. B. Lindsey 170 198 149 150 141 
 
 G. W. Dunn 22 
 
 F. W. Stover 2 
 
 C. R. Bassell 2 
 
 E. S. Class 42 40 71 84 
 
 F. Ashbaugh 66 
 
 F. C. Hood 1 
 
 Total days 238 238 219 234 208 
 
 The juvenile court is in session at all times, in that there is no 
 summer recess. The sessions of the court, however, are only held as 
 cases are presented and placed upon the calendar. But the 1,137 days 
 upon which court was held do not represent the entire work performed 
 by the court in the last five years, for many of its most important in- 
 vestigations, which cover many hours of work, are conducted in the 
 judge's private chambers upon days when the judge is not sitting in 
 court. The judge's absence from the court is permitted by statute so 
 long as he provides a substitute judge, provided the county is not re- 
 quired to pay the substitute. 
 
 RECORDS AND REPORTS 
 
 The juvenile court is a court of record and most of the records 
 maintained are mandatory, in so far as they relate to the trial cases 
 and the filing of information. The records in connection with the pro- 
 bation work may be changed and revised in the discretion of the court. 
 
 Records Deficient in Matters of History of Cases 
 
 While the records concerning the trial of cases may be said to be 
 complete and in accordance with the statutes, the records maintained 
 in connection with the probeftion work lack detailed histories of cases. 
 This defect will be remedied in the future through the use of the new 
 history chart recently put into use. 
 
 It is recommended, however, that for statistical purposes, the pro- 
 bation officers keep a separate history book in which should be re- 
 corded in detail all facts in connection with the probationer from the 
 time his case is assigned to the probation officer until he is taken off 
 probation. 
 
 Card Record of Cases Recommended 
 
 In that the records as at present maintained do not provide for 
 a convenient check upon "repeaters" (children coming into the cus- 
 tody of the court more than once) and do not provide statistics as to 
 the number of children violating their parole in cases where no sen- 
 tence is imposed, they are most deficient. 
 
576 DENVER 
 
 The court had a card record system of all cases which was recently- 
 abandoned for some reason which was not satisfactorily explained. 
 An index system was installed which, while it provides a means for 
 determining whether a child has ever been arraigned in the court, does 
 not furnish a convenient record, since this index merely refers to some 
 other record in the court. 
 
 A card record system should be installed, and all cards filed 
 alphabetically. To do this it would only be necessary to remove the 
 present history cards from the papers and file them alphabetically. 
 This would provide a record for past cases and establish a new card 
 for all future cases. The form of the present card is satisfactory. 
 
 Daily Time Sheets 
 
 While the probation officers file a daily service report, it does 
 not provide for the establishment of the cost of each probation case. 
 During the course of this survey the attention of the clerk of the court 
 was called to the inadequacy of this form and a time sheet was pre- 
 pared at once as per suggestions furnished and put into immediate 
 use. Through this time record it will be possible to establish the cost 
 of each probation case. The estimated cost at present, based on the 
 records of 1913, is given at $10.08 per year. 
 
CHARTER CRITICISMS 577 
 
 Summary of Charter Criticisms 
 
CHARTER CRITICISMS 579 
 
 SUMMARY OF CHARTER CRITICISMS 
 
 (References made herein by number to charter provisions relate 
 to the charter published as of February 17, 1914.) 
 
 The following summary of criticisms of the present Denver char- 
 ter does not attempt to point out all of the defects therein. The entire 
 charter needs revision. In fact Denver needs a new charter. The de- 
 fects which stood out most prominently during our survey are as fol- 
 lows : 
 
 General Defects 
 
 1 — The charter contains far too much matter of an administra- 
 tive character. Moreover, it is not sufficiently detailed 
 and in many instances not sufficiently correct to serve the 
 purposes of an administrative procedure. 
 
 Probably the greatest need of Denver's government is for a prop- 
 erly prepared administrative code, commonly known as a code of busi- 
 ness procedure, wherein would be set forth in logical sequence what 
 has been determined by experience of cities throughout the world and 
 by original research to be the best method of transacting each Mud of 
 city and county business. The preparation of such a ca4& need not 
 await upon the drafting of a new charter. It should provide — 
 
 (1) Complete procedure incident to purchasing, distrib- 
 uting and maintaining control over stores 
 
 (2) Standardization of specifications for supplies, mate- 
 
 rials and equipment 
 
 (3) A system of accounting and financial reporting 
 
 which will show — 
 
 . a — What the city owns and what it owes 
 b — What fund authorizations have been made by 
 the commission and what are the limitations 
 with reference to expenditures 
 c — Sinking fund provisions for retirement of 
 
 bonded debt 
 d — 'Conditions of trust funds __ 
 
 e — Functional expenses and unit costs 
 
 The accounting system shall also provide a central finan- 
 cial control over — 
 
 a — .Current expenditures 
 
 b — Accrual and collection of revenues 
 
 — City's purchasing and contracting relations 
 
 d— J&delity of custodians 
 
 (4) A system for the prompt and thorough audit of rerw 
 
 enue accruals, collections, expenditures and dis- 
 bursements 
 
580 DENVER 
 
 (5) A modern, scientific system of budget-making and 
 
 budget administration 
 
 (6) A method of standardizing the rates of salaries and 
 
 wages paid city and county employees, and a sys- 
 tem of efficiency reports and records which will 
 serve as a basis for employing, promoting, demot- 
 ing and discharging such employees 
 
 (7) A complete • procedure incident to the issuing of the 
 
 various kinds of permits 
 
 (8) Such special procedures and methods for certain 
 
 bureaus as police, fire, etc., as necessary to pro- 
 duce efficiency throughout the city government 
 
 (9) Detail forms for quarterly and annual reports of 
 
 each function and activity of the city, showing so 
 far as possible unit costs, percentages, comparisons 
 of results with preceding periods, graphic charts, 
 ietc. 
 
 (10) Local improvement procedure. 
 
 2 — The distribution of functions among the five departments is 
 illogical and does not preserve a proper co-ordination there- 
 of. For example, the maintenance and operation of public 
 buildings is not under the department of property but the 
 department of finance. Similarly, parks and playgrounds 
 are not under the department of social welfare, where one 
 would naturally expect them to be, but are under the de- 
 partment of property. Moreover the building inspector, 
 electrical inspector, electrician, boiler and elevator inspec- 
 tors, although having to do with engineering technique, are 
 not under the department of improvements — the technical 
 department of the government — but are under the depart- 
 ment of property. 
 
 3 — There is confusion of nomenclature throughout the charter. 
 Although the charter provides specifically for five depart- 
 ments of the government and places a commissioner in 
 charge of each of the five, it also permits many of the sub- 
 sidiary units to be known as departments. For example, 
 the police and fire organizations are known respectively as 
 departments, although they are both subordinate to the 
 department of safety. Similarly, the purchasing agent is 
 designated in the charter as the commissioner of supplies, 
 although he is subordinate to the commissioner of finance. 
 
 4 — The charter fails to require that the five commissioners shall 
 devote their entire time to the service of the city and 
 county. 
 
 5 — Several sections of the charter specify the exact salaries 
 which shall be paid to officials. The fixing of salaries is a 
 matter which should be left entirely to council. 
 
CHARTER CRITICISMS 581 
 
 6 — Section 316, and two or three other sections, in effect give 
 to department heads the power to create grades and fix 
 salaries. As noted above, this power should rest entirely 
 with council. 
 
 7 — Section 39 requires that appropriations and expenditures for 
 police and fire protection, maintenance of streets, street 
 lighting, etc., he apportioned to certain districts of Denver 
 on the basis of the assessed valuations of the property 
 therein. This section is bad from whatever point it is 
 viewed. 
 
 Special Defects Relating to Department of Safety 
 
 8 — Section 108 continues the existence of the old fire and police 
 board. Although the functions of this board have been 
 transferred by section 11 to the commissioner of safety, 
 the practice in some matters is for the commisioner of 
 safety to sit as a board and to keep minutes of his meetings, 
 while in other matters he acts pursuant to section 11. 
 
 9 — Section 115 specifies that revenues shall be paid into the pen- 
 sion fund. The principle of setting aside certain kinds of 
 revenues for pension fund purposes is unsound. The oper- 
 ation of a pension fund is a scientific problem and annual 
 credits thereto should be made only on the basis of actuarial 
 computation, otherwise there is a tendency for the fund to 
 accumulate an unwarranted surplus or in time become 
 bankrupt. 
 
 10 — Section 113 empowers the commissioner of safety to appoint 
 "special policemen, patrolmen and watchmen," with or 
 without pay, as may be deemed necessary. He should not 
 be empowered to make appointments of this character 
 which carry a salary, except within the prescribed rules of 
 the civil service commission. 
 
 Special Defects Relating to Department of Social Welfare 
 
 11 — Sections 11, 197 and related sections provide for a commis- 
 sion of charity and correction. This commission should be 
 abolished and the authority placed in the hands of a direc- 
 tor of a bureau of charity and correction. 
 
 12 — Section 196 provides for a coroner. The office of coroner 
 should be abolished and the duties transferred to other 
 departments and offices as indicated in the context of this 
 report. 
 
 13 — Section 199 relates to the superintendent of city and county 
 farm. This official should be under the direction of the 
 bureau of charity and correction, who should also have the 
 appointing power, subject to the approval of the commis- 
 sioner of the department. 
 
582 DENVER 
 
 14 — Sections 200-203 relate to the duties of the commission of 
 charity and correction, in place of which a director is rec- 
 ommended. 
 
 15 — Section 204 states that the superintendent of the detention 
 home shall be appointed by the juvenile court. It is ree- 
 mended that the director of the bureau of the juvenile court 
 be the appointing poAver. 
 
 16 — Section 211 relates to the health commissioner. It is recom- 
 mended that a trained health officer be appointed on the 
 basis of a competitive examination and without stipulation 
 as to years of practice of medicine or residence in the city, 
 county or state. 
 
 Special Defects Relating to the Department of Improvements 
 
 17 — The provisions of the present charter governing the initia- 
 tion, authorization and completion of public works im- 
 provements are ambiguous and contradictory. 
 
 18 — Section 154 needs complete revision. It is indicative of the 
 unscientific manner in which the charter has been pre- 
 pared. 
 
 19 — By permitting the chairman of the board of public works 
 (commissioner of improvements) to appoint the other two 
 members of the board, the charter in reality delegates to 
 the commissioner of improvements all of the powers of the 
 original board of public works. 
 
 20 — Legislative powers, properly exercised only by the council, 
 are delegated to the board of public works. General fiscal 
 duties, properly exercised only by the city financial offi- 
 cers, are also delegated to the board of public works. 
 
 21 — The retention of the board of public works confuses the ad- 
 ministrative, legislative and general financial duties. It 
 should be abolished. 
 
 22 — By providing that where the cost of local improvements is to 
 be assessed wholly or in part upon the property benefited, 
 the same shall be constructed by an independent contractor 
 or contractors, the charter legislates inefficiently on the 
 department of improvements. 
 
 23 — The definition of "paving" included in the charter is un- 
 scientific and thirty years out-of-date. 
 
 24— Macadamizing should not be considered as a permanent pave- 
 ment. 
 
 25— Permission to select the type of pavement to be used is dele- 
 gated to the property owners within the improvement dis- 
 trict, although it often happens that the citizen must be 
 protected against his own desires in pavement selection. 
 
CHARTER CRITICISMS 583 
 
 26 — Lack of a clear definition of assessable and non-assessable 
 pavements leaves an opening for great inequality and in- 
 justice in the local improvements law. 
 
 27 — Although assessments for local improvements are apportioned 
 on an area zone basis, the charter permits owners of prop- 
 erty to petition for or remonstrate against improvements 
 according .to the frontage of property owned. 
 
 Special Defects Relating to the Department of Finance 
 
 28 — Section 32 makes it unlawful for any department to incur lia- 
 bilities, contract for or pay in any one month more than 
 one-twelfth of any appropriation made for such depart- 
 ment. This provision is unsound and illogical and if ob- 
 served would greatly hinder current operations. 
 
 29 — Section 243 requires that certain payments be approved by 
 council before payment. As pointed out in our report, such 
 approval is at best only perfunctory and has no value, 
 while on the other hand, it involves unnecessary clerical 
 work and tends to delay payment. 
 
 30 — Section 96 places the inspection of licenses under the juris- 
 diction of the auditor. License inspection is a police func- 
 tion and should be transferred to the department (bureau) 
 of police. 
 
 Special Defects Relating to Civil Service 
 
 31 — Section 301 compels a department head whenever he desires 
 to reduce his force to lay off the last person certified, irre- 
 spective of the fact that such person may be the most effi- 
 cient employee in the department. It also compels the de- 
 partment head, whenever he desires to increase his force, 
 to reinstate persons suspended in the order of their orig- 
 inal certification, irrespective of the fact that such persons 
 may have proven to be inefficient and useless. 
 
 Special Defects Relating to Election Commission 
 
 32 — Section 247 provides that the commissioner of safety shall 
 be a member of the election commission. He should not be 
 included in its membership. 
 
 33 Section 250 relates to the appointment of election judges. 
 
 The methods of appointment should be thoroughly revised as in- 
 dicated in the context of our report.