Report i- of Rochester Milk Survey by the Committee on Public Safety of the Common Council Charles E. North, M. D., Director December, 1919 Class. ^Smi-i Book_.S-kAA. Digitized by the Internet Arciiive in 2010 witii funding from Tine Library of Congress http://www.arcliive.org/details/reportofrocliesteOOrocli Report of Rochester Milk Survey by the Committee on Public Safety of the QqJ^sJzx. Common Council Charles E. North, M.D., Director December, 1919 S^'S ^\^o\ \ o; of B* Jul 23 1920 GENERAL INTRODUCTION In response to a widespread demand on the part of many of the citizens of Rochester for an official investigation of the high cost of milk, and the recognition by the city officials that the cost of milk had greatly increased in recent months, the Common Council of the City of Roch- ester planned to conduct a milk survey in accordance with the following resolution : City Clerk's Office, City Hall, Rochester, N. Y., July 10, 1919. To Whom It May Concern : I Hereby Certify, That at a session of the Common Council of the City of Rochester, held in the City Hall on Tuesday, April 22, 1919, an ordinance was adopted, of which the following is a true copy ; and that at the time said ordinance was adopted the Common Council of said City consisted of twenty-four members. By Ald. Hart — Be it ordained by the Common Council of the City of Rochester as follows : Section 1. The Committee on Public Safety of the Common Council is hereby authorized and directed to investigate and inquire into the distribution of milk used in the City of Rochester and the sanitary conditions surrounding the same and the cost thereof ; and as to the expediency of the purchase and distribution by the city of all milk used in the city; and as to the expediency and expense of any other method designed to secure the control by the city of the distribution of milk; and into the production of milk used in the City of Rochester and the sanitary conditions surrounding the same and the cost thereof ; and as to the expediency and expense of the production by the city on municipally owned farms of all milk used in the city; and to report to the Common Council the result of its investigation with such recommendations concerning the same as it deems proper. Sec. 2. The employment of one or more experts to assist said Committee in its investigation is hereby authorized, such employment to be without competition, at a compensation to be fixed by the Board of Estimate and Apportionment, and it is hereby declared to be impracticable to procure the services of such experts by com- petitive contract. Sec. 3. This ordinance shall take effect immediately. Adopted by the following vote : Ayes — Aldermen Cauley, Ward, Hart, Somers, Friedler, Rosenberg, Messinger, Kane, Steelsmith, Carroll, Chilson, Cook, Russell, O'Neil, Bareham, Stahley, Rap- pleye, Morgan, Hoffman, DePotter, Dentinger, Hannahs, Ruppel.— 23. Nays — None. And I further certify that said ordinance was submitted to His Honor, the Mayor of said City of Rochester, by whom the same was approved. Attest : JOSEPH A. CRANE, City Clerk. The present director of this survey was employed by the City of Rochester to organize and conduct a milk survey, beginning on July 8th, 1919. MILK SURVEY OF THE CITY OF ROCHESTER A SURVEY OF MILK SURVEYS In order that the proposed survey might be planned in a manner that would insure results of the most practical value to the city, con- sideration was first given to the work performed in previous milk sur- veys. All of these include plans of organization, subjects of study, and recommendations which are contributions to the plans for the Rochester Survey and a brief consideration of them will form the best possible introduction to the present Rochester Survey. The list of these surveys is as follows: Date 1911-12 1915 Place Rochester, N. Y. Detroit, Mich. 1916-17 New York State 1917 1917 1917 1917 1917 1919 1919 1919 1919 1919 Berkeley, Cal. New York City New England Pennsylvania, Maryland, Delaware Canada New York State Spokane, Wash. Winnipeg, Man. New York City New York State 1919 New York State Auspices Private U. S. Dept. of Agriculture New York State Senate and Assembly University of California Mavor's Committee on Milk Boston Chamber of Commerce Governors' Tri-State Commission Food Controller Council of Farms and Markets Chamber of Commerce City Council Private Governor's Commission on High Cost of Living New York State Recon- struction Commission (Committee on Food Pro- duction and Distribution) Directed by Dr. John R. Williams C. E. Clement and G. P. Warber Senator Wicks Elwood Mead Dr. Charles E. North, Chairman R. W. Bird, Chairman Dr. A. G. Gilbert, Secretary Dr. Clyde L. King, Chairman P. B. Tustin, Chairman W. A. Dana, Chairman J. K. McCormack, Chairman R. D. Hughes I. G. Jennings Martin H. Glynn and John H. Finley Thomas V. Patterson, Chairman Herschel H. Jones, Secretary 1911-12, Rochester, N. Y. ("The Economic Problems of Milk Dis- tribution in their Relation to the Public Health," by Dr. John R. Williams. Transactions of the Fifteenth International Congress on Hygiene and Demography, Washington, D. C, 1912.) The studies in this survey were confined strictly to the City of Rochester, and were conducted entirely under the auspices of Dr. John R. Williams, of Rochester, at his own private expense. The time con- sumed in the investigation was over one year and a half, and a number of investigators were employed by Dr. Williams. Not only because this survey deals particularly with the City of Rochester, which is the sub- ject of the main survey in our own report, but also because it was the first and by far the most comprehensive survey yet made of the cost of milk distribution and the unnecessary expenses connected with the same, it is desirable to consider the material in this report in some detail. It MILK SURVEY OF THE CITY OF ROCHESTER will also be interesting to compare the conditions prevailing in 1911 with the conditions prevailing in 1919. The first branch of Dr. Williams' study in Rochester consisted of a house to house canvass in 15 sections of the city, each containing from 100 to 700 homes. In all about 5,000, or about one-tenth of the homes in the city were visited. The results of this investigation are given in the table below : MILK SURVEY OF THE CITY OF ROCHESTER I— I Pi < m m W u w p p < > CO CO ^ 0^ W W W Pi aw o o w tn o o CO W < •uoipas SuiXjddns ui SJ3A-BJJ aajnqu^stp ;u3S3J(J S3|i:]/)j ■uoipas SuTXfddns ui pABj; pjnoAV J3jnqu;sip auo S3(:]^ •uoipas UI sj3;nqu;sip jo J3qiun|>^ •sj3;nqi.qstp Aq pajiddns satuoq jo jaquinjvj fe •JJITUI 3JO;§ u fe a •ApjBJ •XpAisnpxg •>lliuj pa^njaD fe •s^JBnb 2 \0 "^ CM t^r^-^Lo u-)i>,'^ ^^fMCNirvlCMr-HU-) .— 1 -^ ro CM uo 1 ■siJBnb e^2 •s^JBnb ^ ■s^j'enb 2/1 X •;aBnb \ •;jBnb •(is;jHnb) XiiBp pasn 51IXUJ jo ^unoiuy •SJB3X 5 japun U3jpiiq3 •ajdoad jo a3quin]y[ •sauioq JO jaqmnjvj U , Or-H^VO'-H'-l^'-H (M-^0<^rOui'^t^ON^^OCN]00"TJ^ .— I CM eg ■— I CVl T-H ^ CM ■— I,— (U-)U-)t^C\]00i-Ot^C\|t^>-nf*^CMCM u^ ro fO n >— 1 f-i 1— 1 vO fO C?\ '— I Cvjr>.Os .-(^ ^ CM i-nCMuoOOvOOsOOrOONrorgOrOLOO ^rOt^ONCMMDOOCMOOCMincDNOOO t^a\coi^M-a\oooTt-CM^o.-it^o -Oi-O-^vOfNl.— iro.— IC3N.— iCMCM-^LOO ,—( ,— I CM lO ro ■— I CM OOOOt^Ot^OOCMO'-'^ON'— ii-OiO,— ( CMOOt^'^.— 'f^.— i-^rOONON-^i-n r-iroO.— ivO>-0.— iro CM^^CJn 00 "^ 00 00 .— irOCMfOt^'-Orot^^O.-^ONON.— ivQ rOCMvOOOCMr-HTj-t^nioOONOOsCXJ CM UT^ O^J lO .— I vO -^ CM -^ CM (Mr-Ht^ o t* ho tuO C-c) o 0-5 c ^^ *^ '^ 03 oj ' ' o UOipag ,— iCMrr^ioOt^OOONO.— iCMPO-*"^ MILK SURVEY OF THE CITY OF ROCHESTER 7 Attention is called to the fact that the proportion of children under 5 years of age is greater among the poor than among the well-to-do, and that the use of store milk and Qondensed milk is confined largely to the laboring classes, which, it is suggested, is due to lack of refrigerators or ice. The most interesting part of this table shows the large number of milkmen going into each district. In section No. 4, 273 homes are sup- plied by 27 distributers travelling more than 25 miles, whereas one dealer could render the same service travelling not more than 2.6 miles. In section No. 8 are 57 distributers travelling over 30 miles supplying 363 homes, which could be served by one distributer travelling 1.7 miles. The report points out the great wastefulness of the present system of distribu- tion, due to duplication. Another important branch of this investigation consisted of a study of the cost of distribution. Information was secured from 173 dis- tributers. Almost all, excepting half a dozen, had no accounting system, and approximate costs were arrived at by enquiry into the businesses. The results of this enquiry are shown in the following table : 8 MILK SURVEY OF THE CITY OF ROCHESTE R TABLE No. 2 TABLE SHOWING THE TOTAL ACCOUNTING OF MILK DISTRIBUTERS IN ROCHESTER, GROUPED ACCORDING TO THE VOLUME OF BUSINESS DONE Schedules. Distributers selling daily- fe-r 3 O Distributers, number . Milk, retail, quarts Milk, 'wholesale, quarts Total milk sold, quarts. Men employed, number . . . . Horses employed, number . Wagons employed, number Length of route, miles . . . . Customers, number Value milk-room equipment. Value horses and wagons... Value real estate Total investment Interest, depreciation on investment. Cost of coal and ice Milk shrinkage, waste, etc Maintenance horse and wagon Daily wages, labor Cost of bottles Total cost distribution. Amount paid producer Total cost to distributer. Milk receipts, retail . . . . Milk receipts, wholesale Cream receipts 25 101 2,887 21,368 129! 2,411 3,016 29 34 26 199 1,885 $2,407 8,B15 $11,222 $ 6.17 ,/,8.92 4.35 25.30 5.60 7.38 $57.72 128.71 23,799 133 160 137 1,053 13,915 $17,295 45,105 $62,400 $ 34.17 42.25 36.59 152.50 48.95 77.36 $392.82 999.55 $186.43|$1,392.37 $213.31 1.00 6.75 $1,535.05 138.26 60.84 Total receipts Labor profit Labor loss . , $220.06 $37.59 3.96 $1,734.15 $341.78 44 17,180 3,415 20,599 99 101 92 616 9,490 $16,750 28,495 $44,245 $ 25.16 39.03 28.55 101.00 74.20 74.89 $342.83 880.44 $1,223.27 $1,254.67 195.87 106.20 $1,556.74 $333.47 8,900 6,000 14,900 95 65 50 641 9,800 $38,450 25,035 96,700 $160,185 $ 45.15 17.20 14.55 100.00 193.06 21.00 $390.98 886.40 $1,277.38 $628.00 314.50 67.51 $1,366.01 $78.58 173 50,335 11.947^ 62,314 356 360 305 2,509 35,090 $76,902 107,450 96,700 $278,052 $ 110.65 107.40 84.04 378.80 321.81 180.63 $1,184.35 2,895.10 $4,079.45 $3,685.03 548.63 241.50 $4,876.96 $791.42 MILK SURVEY OF THE CITY OF ROCHESTER 9 The report points out that the above tabulation indicates that most of the milk distributers make only a very meagre living, in many cases the income being much less than that of laborers and unskilled mechanics. The third branch of this investigation consisted in a most unique experiment to determine the cost of distribution under a single service system. It was assumed that an ideal delivery system would consist of one truck and a crew of men supplying one, section of the city. Accord- ingly, an electric truck was furnished by an electric vehicle company having a capacity of 1,000 pounds. In place of milk, several pigs of lead which equalled in weight a load of milk were carried. Besides a driver there were two clerks supplied with apparatus for accurately measuring distance and time. There were two men who carried fictitious bottles of milk from the truck into the homes. Each was equipped with a steel basket similar to that used by milkmen containing 2 quarts and 3 pint milk bottles filled with water. Literature relating to the pure milk movement was deposited in the milk boxes of each house in place of milk, and notations made regarding conditions at the house which would equal in time the labor performed by the present milk peddlers. Each stop made by the truck was timed with a stop watch, and recorded. The distance travelled was measured by an odometer, and confirmed by map measure- ments. Each operation by the delivery men was measured and recorded upward of 200 times. Previous to the experiment a number of ordinary milkmen were timed without their knowledge to secure an average of the time occupied by them in going from the wagon to the house and return to it again. This experiment in milk delivery was conducted in the well- to-do 4istrict and again in one of the crowded sections of a poor district. The results of this experiment are recorded in the table on next page. 10 MILK SURVEY OF THE CITY OF ROCHESTER TABLE No. 3 TABLE^EXPERIMENT IN MILK DISTRIBUTION Streets. Baden, Catherine, Vienna, Morris, etc. Barrington, Dartmouth, Westmin- ster Road. Rutgers. Families Hving in single houses, number 248 202 154 248 Families living in double houses, number. 52 Families living in apartments, number 23 Total families visited in section, number Houses having milk boxes, number 604 11 593 1.3 785 1.6 1.7 30 78 H. m. s. 46 2 34 45 1 25 15 359 297 Houses having no milk boxes, number Average amount milk used daily in homes, quarts Total amount milk used daily in section, quarts Total length streets in section, miles 52 3 1,077 2.5 Distance travelled bv truck in section, miles 2.4 Distance travelled by present peddlers in supplying sec- tion, miles Stops made bv truck, number 38 67 Average time required to go from truck to each two houses, leave milk, and return to truck Total time of experiment Total time truck was in motion H. m. s. 62 2 40 2 Total time truck was standing still 1 19 15 In the first, or well-to-do section, the truck travelled 2.4 miles to supply milk which the regular milkmen were supplying in this territory by driving 38 miles. In the poorer section, the experimental truck trav- elled 1.7 miles to make deliveries which were being made by the local milkmen with a travel of 30 miles for the same work. In the well-to-do district where families used an average of 3 quarts each it was estimated that 1,077 quarts of milk could have been distributed in 2 hours, while in the poorer district where the families used 1.3 quarts, it was estimated that in 2 hours the experimental truck could deliver 785 quarts. These figures represent the work of men physically untrained for active work. As a result of the experiment, the author concluded that 1 truck drawn by 2 horses and manned by 3 men could deliver an average of 3,200 quarts of milk in 1 working day. As an example of the economy under this ideal system compared with the waste under the old system, the author quotes a number of instances in various districts of the city, among which is the following: MILK SURVEY OF THE CITY OF ROCHESTER TABLE No. 4. 11 UNDER PRESENT SYSTEM 29 men at $1.16 per day $33.63 34 horses and 26 wagons, mainten- ance 26.00 Total $59.63 UNDER MODEL SYSTEM 3 men at $2.50 per day $7.50 4 horses, daily maintenance 5.00 1 truck, maintenance 25 1 motor truck, part of day 2.00 Superintendence 6.00 Total $20.75 After quoting several other instances, ,the author compares the pres- ent cost of distribution for the entire city of Rochester with the proposed cost of distribution under a model system of distribution : TABLE No. 5 UNDER PRESENT SYSTEM 356 men,, and in many cases their fam- ilies. 380 horses. 305 wagons. 2,509+ miles travel. $76,600 invested in milk-room equip- ments. $108,000 invested in horses and wagons. $2,000 present daily cost of distribution. $720,000 yearly cost of distribution. UNDER MODEL SYSTEM 90 men. 50 horses. 25 horse-drawn trucks. 300 miles travel. $75,000 equipment for sanitary plant. $30,750 equipment of horses and trucks. $600 estimated daily cost of distribution. $220,000 estimated yearly cost of distri- bution. and comes to the following conclusions : "There is little question that if the milk supply of Rochester were to be dis- tributed by one agency properly organized and equipped, a saving to consumers of at least $500,000 yearly could be effected." In order to bring more vividly before the minds of the readers the enormous waste of the competitive system of distribution, the author ap- pends a series of illustrations showing the number of milk wagons at present engaged in distribution in the several districts of the city, and makes the following suggestion : "The City of Rochester owns its water works, collects its own ashes, operates an incinerating plant for the sorting and disposal of garbage and controls the col- lection of its garbage. All of these activities bear an important relation to the public health, but none the less does milk. Why, therefore, should not cities con- trol their own milk supplies to the end that the people may have pure, wholesome milk at the same minimum cost?" One example of these illustrations is given on the opposite page; 12 MILK SURVEY OF THE CITY OF ROCHESTER b TABLE No. 6 ^0 MILK SURVEY OF THE CITY OF ROCHESTER 13 >1915, Detroit, Mich. (U. S. Department of Agriculture, Bulletin No. 639. "The Market Milk Business of Detroit, Mich., in 1915," by C. E. Clement and C. P. Warbor.) The data was collected during the months of September and October, 1915. The methods of enquiry consisted of an examination of the dealers' books and an inspection of the business. The subjects covered included : Statistics of the supply, cost of col- lection in the country, cost of handling in country stations, investment in the country, freight, investment in city plants, investment in delivery equipment, average daily sales, cost of handling in city plants, cost of delivery labor, cost of delivery expense, loss on surplus. This report is most interesting because of numerous tables showing the different costs. It points out that previous to the adoption bv the City of Detroit of a milk pasteurizing ordinance there were 158 retail dealers, and three months after passing of the ordinance there were only 68 plants in which milk was prepared for distribution. The chief recommendations are that country plants be standardized in building and equipment, and that there is economy in the sale of milk from city stores. 1916-1917, New York State. (New York State Assembly Commit- tee; Senator Chas. W. Wicks, Chairman.) This survey occupied a period of about six months under an appro- priation of $25,000. Methods of enquiry included: Public hearings, at which witnesses were examined representing dealers, producers, and consumers; exam- ination of dealers' books by expert cost accountants, and of producers' accounts. Subjects covered included especially the milk supply of New York City; the statistics of the supply; investment in the country; freight; investment in city plants ; investment in delivery ; average daily sales ; cost of handling, labor ; cost of delivery, other expenses ; loss on surplus ; and also a study of dairy farm costs, including cost of labor, cost of feed, other farm expense ; and prices charged consumers. Figures were obtained from all of the larger milk companies in New York City, and from many dairy farms. The report shows that the in- crease in cow population in New York State has failed to keep pace with the increase in human population. The Committee concludes that : "During a period of several years the dairy farmer, laboring industriously and thriftily as he might, was not able to secure such reasonable price from the sale of dairy products in this State as to earn a fair labor and invested capital return. The Committee is constrained to believe that the average dairyman is as thrifty and 14 MILK SURVEY OF THE CITY OF ROCHESTER efficient in his chosen pursuit as the average man in other walks of Ufe. We doubt if there is any group of men in any corresponding industry so well informed as to their craft, so keenly interested in its progress, and so eager for success as the dairy farmers of the State of New York." The Committee's investigations included dairy farms producing milk for the City of Rochester, and milk companies distributing milk in the City of Rochester. The conclusions of this Committee regarding distribution are ex- pressed as follows : "UNNECESSARY COSTS OF DISTRIBUTION" "This business is conducted on an extremely competitive basis. * * * js^ . large part of the cost arises from the bitter- competition existing in the distribution of the product * * * ^j^ army of solicitors and sales agents are main- tained * * * Overhead charges attributable to this work amount to an alarming sum * * * It is customary to refer to the fact that four or six or ten milk wagons and milk drivers visit the same block * * * but this ignores the really greater expense of the silent army of retainers * * * '^o\_ only do we find in single blocks these wagons and horses, but on the same block six solicitors ; six route superintendents ; six staffs of clerks and bookkeepers. The distribution of milk is a public service which, to be put upon an economic basis, requires public regulation to the end that all unnecessary services even of a com- petitive kind may be eliminated." "DISTRIBUTION OF MILK SHOULD BE A REGULATED PUBLIC SERVICE" "It is safe to assert that the consumers in the City of New York pay several millions of dollars annually for the privilege of having all the numerous purveyors of this necessity of life engage in attempts to serve him * * * y\ milk supply is as much a daily necessity and even more so than gas or electricity." "It certainly seems as if the dairymen of this State and the distributers with their invested capital, and the consumer, should co-operate to the end that these unnecessary competitive wastes be eliminated and the dairymen's milk brought to the consumer at the lowest possible expense." "The investigations of the Committee lead to the conclusions that under the present competitive system it takes almost as many men to bring the dairymen's milk to the consumer as there are dairymen engaged in the production of milk with all their employees. This is the result of the purely competitive basis upon which the business is handled. Three or four milk stations are being maintained with a separate force of employees to collect or receive the dairymen's milk at many points where one well equipped station with a competent force could do all the collecting at one-fifth the present expense. This unnecessary duplication of service follows with all its attendant overhead and capital investment from the country milk station until the bottle of milk is finally deposited at the consumer's door. A large part of this, in the judgment of this Committee, could and should be eliminated. * * * The only solution possible is to limit and leave only those in the field which the service actually requires. This is just as obvious in the case of milk as it is in gas or any other daily necessity supplied in small quantity to the consumer. "It is believed by the Committee that a State Department * * * should be created to provide ways and means * * * ^o consolidate this service, not only MILK SURVEY OF THE CITY OF ROCHESTER 15 in New York, but in every city of the State, to the end that the expense thereof be reduced to a minimum * * * The dairymen of the State, ignoring and dis- regarding the law has so organized as to protect his own interests * * * Those who contend that these matters had best be regulated by the law of supply and demand pay no heed to the evident situation that the law of supply and demand has absolutely ceased to operate. " THE MILK TRUST " "There is no milk trust controlling the purchase and sale of market milk in the City of Buffalo. There is none in Rochester ; there is none in Syracuse ; there is none in Utica; there is none in Albany; nor in any city between Albany and New York, nor in any town or village of the State. There is no milk trust controlling the purchase and sale of milk in the City of New York. Instead there is sharp and' bitter competition, so far as the records of this Committee discloses, in each and every one of the places. There are four stations in many places where one could collect the milk. There are four outfits of station managers and employees in many places where one could do the work. Ever^^ intelligent person wlio has ever discussed the question concedes that there are four horses and wagons, four or five or six groups of solicitors ; four or five or six separate organizations and overhead charges duplicating work that one of each could well perform. "There is too much capital already invested in the business * * * Here, then is the waste and the loss * * * Instead of introducing more expensive com- petitors in the field to waste more money of the consumer, the State should endeavor by judicious legislation, to permit the elimination of all unnecessary investments both of labor and capital and effectively control the business operations of the remainder." 1917, Berkeley, Cal. (University of California, College of Agricul- ture, Circular No. 175. "Progress Report on the Production and Dis- tribution of Milk," by Elwood Mead.) The information in this survey w^as obtained during the months of June and July, 1917. The methods of enquiry consisted in the mailing of questionnaires to producers and dealers, and an inspection of the dealers' milk factories and of dairy farms. The subjects of enquiry included: Statistics of the supply (of the cities of San Francisco, Oakland, Berkeley, Alameda, and Richmond) ; average daily sales; losses on surplus; dairy farm costs; cost of labor, feed, other farm expense; prices paid to farmer; prices charged con- sumers. The conclusions of this survey are : "(1) The distributers service at present is badly organized, and there is in many cases a serious waste of labor and money which ought to be corrected; (2) Duplication of pasteurizing plants in a needless addition to distribution costs." Under recommendation the report states : 16 MILK SURVEY OF THE CITY OF ROCHESTER "(1) What is needed is comprehensive and expert public oversight that will study the needs of a city as a whole and co-ordinate the work of producers and distributers so as to eliminate inefficiency and waste, and insure prices based on the value of the services rendered ; (2) What is needed in San Francisco Bay cities is the creation of some expert authority to study whether the present location of our dairying districts makes possible the provision of a milk supply as cheaply as it could be furnished from some other district or districts where land is cheaper even if farther removed. (3) The economies of distribution should be studied, not to determine in what direction the distributers have failed, but what could be saved by a carefully planned distributing system which would eliminate duplication of routes, needless pasteur- izing plants, and overhead charges." 1917, New York City. (Report of Mayor's Committee on Milk; Dr. Charles E. North, Chairman.) Methods of enquiry included : Public hearings of dealers, producers, consumers; examination of dealers' books by expert cost accountants; examination of dairy farm costs by cost accountants; questionnaires to dealers, producers and consumers ; field work by farm inspectors on farm costs ; by city inspectors in house to house canvass. Subjects of enquiry included: Statistics of New York City supply; cost of freight ; dairy farm costs, including the cost of labor, cost of feed, other farm expenses ; country hauling ; prices received by the farmer ; milk dealers' costs, including investment in the country; investment in the city; average daily sales; cost of handling, labor; cost of handling, other expenses; cost of delivery, labor; cost of delivery, other expenses; loss on surplus. The house to house canvass covered 2,200 homes by 250 investiga- tors, including a population of 12,439 people, showing the milk consumed by children of different ages and by adults. This stirvey included studies of the cost of production on dairy farms in all the states shipping milk to New York City, and on the city end of the line a careful study of the cost of distribution of milk in quart bottles from retail wagons, of the sale of bottled milk from grocery stores and milk stores, and the sale of wholesale milk in cans. The investigation gave much consideration to the food value of milk and received the testi- mony of the leading authorities on this subject. The conclusions of this survey were : "1. Milk is the most valuable and the cheapest of human foods even at present prices. 2. For drinking purposes New York City now uses only about 700,000 quart? daily. The city should use about 2,000,000 quarts daily for drinking in an ideal diet. 3. The cost of milk production at present prices is 7 cents per quart and the prices asked by the Dairymen's League are justified. 4. The cost of distribution as shown by the dealers' accounts is justified and not large enough to prevent business losses. MILK SURVEY OF THE CITY OF ROCHESTER 17 5. The cost of production can be reduced by (a) eliminating low-producing cows. (b) collective hauling of milk. (c) collective buying of grain. 6. The cost of distribution can be reduced by abolishing competition and duplication through centralizing the distributing system into a single company or public service corporation." 1917, New England. (Boston Chamber of Commerce. "The Milk Question in New England," R. W. Bird, Chairman; Dr. A. C. Gilbert, Secretary.) The methods of enquiry included an audit of the dealers' books by expert cost accountants, and the examination of dairy farm costs by farm inspectors. The subject of enquiry included: Freight, the cost of handling, the cost of labor, and factory cost, loss on surplus, and dairy farm costs, in- cluding labor, feed, other farm expense ; country hauling, and a statement of prices received by the dairy farmer. The Committee's recommendations include: "1. That the farmers through their association or community groups establish their own delivery system from the farms to the railroad shipping station, and wherever possible own their own receiving stations at the railroad. 2. The question of surplus (milk) is one of the most aggravating causes for the high price of milk to the consumer. The farmer should study this condition carefully and endeavor to bring his cows to a producing state in a more uniform manner than at the present time, because if he does not the loss due to surplus must ultimately be borne by those who produce it and not by the consumers as at present." The recommendations to milk dealers include among the others : "That early morning deliveries be discontinued and that all deliveries be made by daylight ; That all bottles be charged for, and credited when returned; The use of a standard blank bottle." The Committee confesses its inability to express an opinion on the subject of co-operative or centralized milk delivery. 1917, Pennsylvania, Maryland, Delaware. (Report of the Governor's Tri-State Commission ; Bulletin No. 287 ; Pennsylvania State Department of Agriculture, Dr. Clyde L. King, Chairman.) Methods of enquiry included : Public hearings, at which appeared witnesses representing dealers, and consumers ; questionnaires addressed to dealers and producers. The subjects covered included: Statistics of the milk supply of Philadelphia, Pa., Wilmington, Del., and Baltimore, Md. ; the cost of handling at country milk stations; freight: delivery charges, labor; de- 18 MILK SURVEY OF THE CITY OF ROCHESTER livery charges, expenses ; and the cost of milk production on dairy farms, including labor, feed, other expenses ; and country hauling. The report gives consideration to the food value of milk and the sani- tary character of milk, and also to the surplus problem. It includes many tables and diagrams of great interest to students of this subject. Among the most important conclusions and recommendations are the following: "On costs of production, the Committee recommends : ( 1 ) Keeping only high producing cows ; (2) Co-operative methods of hauUng milk." Under distribution the chief recommendations are that: "Milk distributive plants be hereafter regarded as quasi public businesses, and subject to governmental regulation; The cost per quart for pasteurizing milk, including the investment for plant and operating costs, decreases with increase in the size of the plant and in the amount of milk handled. There are economies in route service certainly up to the point as heavy as one vehicle can serve. Herein lies the greatest economy In large scale service. There is much saving in overhead charges. The public is interested In -the milk distribution business as a public utility not only because of the, economies in large scale distribution, but also because competi- tion, as in railways and other public utilities, is ruinous If real, and worthless as a price protector to farmer and consumer if unreal. The price of milk is as vital, certainly, as the charges for common carriers, or for electricity, or gas, or street railways. The sanitary safety of milk Is certainly as vital as, if not more vital than, the sanitary safety of water. The price for milk depends largely upon the economies In production and milk distribution. Milk Is a food that is absolutely requisite for babies and growing children. We have given careful consideration to the alternatives to recognizing the milk business as a quasi public business. Among these alternatives are : (1) Public ownership of pasteurizing plants In order to give equality of eco- nomic opportunity to the small dealers ; (2) Co-operative retail delivery by dairymen ; (3) Public ownership of the milk distributing plants; and (4) Farmers' stations within the city for co-operative wholesale milk delivery." The subject is summarized by the statement that: "The Commission recommends that the milk distribution business be regarded as a public utility." 1917, Canada. (Report of the Milk Committee Appointed by the Food Controller for Canada to Investigate Milk Supplies for Urban Municipalities; Ottawa; November 24, 1917. P. B. Tustin, Chairman'.) Methods of enquiry included public hearings of witnesses represent- ing dealers and producers, and questionnaires addressed to dealers and producers. The preliminary statement by the Food Controller says : MILK "survey of THE CITY OF ROCHESTER 19 "Although any action taken by the Food Controller must necessarily be limited to the period o£ the War Measures Act, the Committee's recommendations have in view more than temporary relief from the excessive spread between the prices paid to the producer and the prices charged to the consumer. The report is being given widespread circulation in the hope that thereby a permanent solution may be found of the problem of reducing the high cost of distributing milk." The subjects of enquiry included: The cost of milk production, farm labor, cow feed, and other expenses ; the use of milk in by-products ; the food value of milk; the spread in various cities; bottle losses, and possible savings. The report also contains a statement of the experience of the City of Regina, Sask., in consolidating the milk business. The conclusions and recommendations of this report are, in brief, as follows : "(1) That the price of milk paid to producers generally has not been found to be exorbitant, taking into consideration all existing circumstances; (2) It has been proved successfully that milk and all its products, including skim milk, are the cheapest forms of animal foods on the market today, and that the price of milk has not increased to the same extent as have the prices of other food. (3) The producer received for his milk delivered at the city dairy an average price of from 6c to 8c per quart, while the retail consumer is paying from 10c to 13c per quart. This difference, commonly called "the distributers' spread," varies, according to the evidence submitted, from 2.75c to 6.50c per quart. (4) That this excessive "spread" or difference between the producers' price and the consumers' price is caused chiefly by the excessive number of distributers, and that it varies in about the same ratio as the number of distributers. (5) In Ottawa, where one dairy handles about 75% of the milk, the spread is only 3.25c per quart, while in Toronto where there are about 90 distributers it is 5.25c." The report estimates possible savings as follows : Excess dairy costs .25c per quart " delivery costs .75 " " " bottle loss costs 125 " Total 1.125c " " and on this basis an annual saving of over $1,500,000.00 could be effected in city distribution in Canada. The second chapter of the report contains recommendations for the reorganization and unification of the business of milk distribution. The principal recommendations are as follows: "(1) We recommend that the distributers' "spread", or the difference between the price paid for milk delivered at the city dairy and the price charged to the consumer, be fixed on a basis of reasonable costs of distribution as shown by the evidence submitted." 20 MILK SURVEY OF THE CITY OF ROCHESTER Following the suggestion that the Dominion be divided into zones, the report states : "We recommend that based upon present conditions the following maximum spreads be fixed, and ma/Je effective December 1, 1917, subject to reduction when conditions warrant : British Columbia 5.25c per quart Alberta S.25c " " Saskatchewan and Manitoba 5.25c " " Ontario and Quebec 5.00c " " Maritime Provinces 5.00c " " In Ottawa, a city of 100,000 population, 75% of the business was shown to be in the hands of one distributing firm, which operates on a spread of 3.25c per quart. This illustrates the advantages to be obtained by the single unit delivery system. * * * 'phg manager of the firm stated that under a single delivery system, he could reduce the "spread" to 3c. We recommend that where the Provincial Committee decides that economic waste could be eliminated or reduced by reorganization, such reorganization should be carried out by three competent men as local commissioners, selected by and coming under the approval of the proper authorities; one representing producers; one representing distributers; one representing consumers. The local commission thus constituted should proceed to reorganize and consolidate the milk business." The following plan is suggested for the reorganization and consoHdation : "1. The most efficient plants and equipment should be selected; 2. The property comprised in the consolidation should be appraised by two valuators, one appointed by the Food Controller, and one appointed by the owner. The results of such proposed reorganization would be: (1) A reduction in price to consumers; (2) One management, one bookkeeping system, reduction in overhead charges, release of a large number of men ; (3) Saving in charges for supplies in large quantities, including producers' supplies ; (4) More sanitary quality of milk; (5) A great saving in heavy expenditures for the prevention of the spread of tuberculosis resulting from the absolute prohibition of the sale of milk from cows that have not been tested and found free from tuberculosis, unless it was safe- guarded by pasteurization ; (6) Infant mortality would be reduced; (7) Typhoid and other preventable diseases would be reduced; (8) Inspection and control of the milk supply by municipal authorities greatly facilitated." 1919, Neiv York State. (Report submitted to the Legislature of New York State at Albany, April 18, 1919, under the title : "Preliminary Report of the Council of Farms and Markets of its Investigation of the Cost of Production and Distribution of Milk in New York State." W. A. Dana, Chairman.) Methods of enquiry included: Public hearings of witnesses repre- senting producers and dealers; examination of dealers' books by cost accountants ; questionnaires addressed to producers and dealers. , MILK SURVEY OF THE CITY OF ROCHESTER 21 The subjects of enquiry included : A study of the milk supply of the cities of Glens Falls, Syracuse, Utica, Binghamton, Poughkeepsie, Middleton, Watertown, Albany, Olean, Batavia, Lockwood and James- town, N. Y. In some cities complete information was obtained. In other cities, partial information. 'Complete records and costs of milk production were secured from thirty representative agricultural regions surrounding Syracuse, Canton, Middletown, Binghamton, Watertown, Utica, Poughkeepsie; including cost of feed, labor, and other dairy costs. Statistics of the cost of distribution from 26 distributers in Utica, Syracuse, Binghamton, Batavia, Lockport, Watertown, Middletown, Jamestown, Poughkeepsie, were obtained, including the cost of operating milk plants and milk delivery systems. The conclusions and recommendations of this report, briefly, are as follows : "(1) The Council is firmly of the opinion * * * ^h^t i^j^g producers gen- erally have not been making any large profits ; (2) That in nearly every city there are too many dealers and that there is a large duplication of routes, several wagons serving customers in the same block; (3) The problem of surplus has also been an acute one; (4) That the overhead on account of an expensive plant and a large amount of capital is so great that no company, even though handling practically all o£ the milk of the city, could show a large profit with such an overhead; (5) That the entire system of distribution in the up-State cities should in some way be made more efficient. (6) It has been advised that * * * ^j^g cost, of distribution in Philadelphia has been reduced to approximately 4.5c ; (7) That in the City of Ottawa it has been reduced to about 3.5c; (8) The evidence indicates that the spread of about 5c per quart between the cost of milk at the city distributing plant and the prices received for retail milk would cover the cost of bottling and distribution in these cities under present con- ditions. 1919, Spokane, Wash. (Report presented to the President of the Chamber of Commerce by a special Committee called "The Milk Com- mittee appointed by the Chamber of Commerce," dated April 25, 1919.) Methods of enquiry included: Questionnaires addressed to pro- ducers and dealers ; field work, including inspections of the producers' and dealers' businesses. Subjects of enquiry included : Statistics of the supply of Spokane ; losses on surplus milk; per capita consumption; food value of milk; milk prices compared with other food; and the cost of production and of distribution. The conclusions and recommendations include the following: 22 MILK SURVEY OF THE CITY OF ROCHESTER "We conclude 'that the producers as a class are losing money in their dairy activities at the present time * * * that they have not as a class been making an adequate return for the investment, risk, and work necessary to produce milk, and that they are entitled to a better price than they are now receiving if production and the dairy industry are properly encouraged ; That we find many of the producers unskilled in the proper handling of the herd, using cows which have no place in the dairy herd, using unintelligent feeding methods, quite a few without any knowledge of cost accounting; We conclude that the consumer has not a sufficiently full knowledge of the value of milk as a food and its positive necessity especially for the younger genera- tions * * * and that the price of milk has been increased less during the war period than any other food product. We conclude that in the distribution of milk the distributer has made no more than a modest profit, and we believe the distributers are not making any unusual or improper profit in the spread between the price they pay to the producer and the price at which they sell to the consumer. We find most of the large distributers with side lines of activity which we believe are profitable, such as making ice cream and butter. If any relief is to be had, it must be through the concentration of agencies. It occurs to us that the overhead cost of maintaining so many agencies is the chief contributing cause of the cost to the ultimate consumer. It has been suggested that a municipal plant be installed * * * but we be- lieve that this would not bring the results hoped for on account of the peculiar nature of the business. Neither de we believe that any organization by the producers through which they will market their milk direct will be successful. Some members of your Committee have believed that the situation could be met by licensing by the city a monopoly in the hands of private capital * * * retaining the power through the city commissioners of audit, and control of prices and profits, as well as of methods and expenses. Should such a monopoly be desired by the public (which should be consulted before any definite plan is adopted) we believe that in justice to all present vested interests, those particular distributers who were forced to discontinue should not suffer loss, but their properties should be paid for at a sound and solvent price, either through the monopoly thus created, or by direct tax, as it would not seem fair to confiscate their properties or their business without a reasonable payment. * * * If the city reserves the licensing power; the absolute control of all milk and of milk products sold in the city; the control of a proper and fair profit which the monopoly would be allowed to make; requires frequent reports and also makes frequent audits of accounting of such monopoly; we believe the very best results could be obtained, for both the producers and the consumers, in economy and in qualities. The prices could be changed as conditions changed. The monopoly distributer should be allowed to make a stipulated return on his investment * * * and the consumer should in such case feel that he was getting as much as his money should buy without any unusual or unfair middle-man's profit. The objection to this plan which seems fatal is that the public, in our judg- ment, would not be willing to allow such a monopolistic distributer a fair profit for his investment, energies and efforts, and would attempt to confine him to a rate of 7% or, perhaps, 8% on his invested capital, with only modest salaries, and in this way would destroy the initiative, as private capital does not ordinarily like to go into a hazardous business where the possibilities of profit are so limited. MILK SURVEY OF THE CITY OF ROCHESTER 23 If private capital could be obtained from suflficiently public spirited individuals to be and remain indifferent as to profits above a nominal rate, such a plan could be worked out." 1919, Winnipeg, Can. (Report made to the Mayor and Common Council of the City of Winnipeg, dated April 8, ,1919, by L. D. Hughes.) Methods of enquiry: These were limited to an inspection of the dealers' business and accounts. The subjects of enquiry included: Statistics of the supply; dealers' investment in plant and buildings; cost of handling; cost of delivery; average daily sales; loss on surplus; sanitation of dairy farms and milk dealers' plants. The report recommends that a commission of three members be ap- pointed to act as a city milk commission, one member to be elected by the producers, one to be elected by the Winnipeg Trades and Labor Council, and one elected by the Greater Winnipeg Board of Trade. In addition, one member of the City Council, and one member of the City Health Department should be appointed ex-officio members, and attend all meet- ings of the commission. The duties of the commission would be to ap- point a manager for the municipal milk plant, and to set the price of milk paid to the producer and the price paid by the consumers from time to time. The summary and conclusions of the report include the following: "In my opinion the only v/ay in which the City of Winnipeg can enter into the retail milk business in a manner satisfactory to the city, the producers, and consumers of milk, is to obtain a monopoly of the business within the limits of the City of Winnipeg. "I would therefore recommend that the City of Winnipeg purchase the milk businesses of the existing companies. "The following out of this plan would enable the city to erect the most modern type of building on the continent. The annual saving effected by following the above plan would be $230,348.00." The report then discusses the suitability of existing plants, and pre- sents figures showing the capital invested by two of the largest companies, and a tabulation showing present costs of distribution, and annual savings to be effected by the monopoly, and also the estimated cost of building and equipping a new mtmicipal milk plant. It concludes as follows : " * * * the milk consumers will be able to obtain pure milk at the lowest possible price. Infant mortality would be reduced. Tuberculosis, typhoid, infant diarrhoea, and other communicable diseases * * .* would be reduced to a minimum. The impetus given the dairy business as a result of the producers having a voice in the setting of prices * * * would build up a prosperous dairy com- munity surrounding the city. 24 MILK SURVEY OF THE CITY OF ROCHESTER Inspection by officers of the department of health would be greatly facilitated, as all milk coming to one plant before being retailed to consumers could be thor- oughly inspected." 1919, New York City. ("A Study of the New York City Milk Problem," published by the National Civic Federation, by I. G. Jennings.) Methods of enquiry: Questionnaires to dealers. Subjects of enquiry: Prosecution of milk dealers by New York City Department of Health ; inefficiencies of production ; profitable and non- profitable cows ; volume of milk produced on dairy farms ; inefficiencies in the delivery of milk; country hauling; city retail delivery; sanitary control ; bacterial tests ; payment of premiums to the producer ; country laboratories ; regulation by state comniiissions ; legal status of a state com- mission; public ownership of the milk industry. This report suggests the appointment of a state commission and municipal ownership of the milk business, and submits evidence indicating that a state commission could be appointed under the police powers of the state with such legal powers as would permit the licensing and regulation of the milk industry, and the fixing of prices ; and that municipal owner- ship also could be made legal under the state constitution. The greater part of the report is devoted to a detailed discussion of legality of a state milk commission and of municipal ownership. The author quotes authori- ties and precedents and apparently establishes satisfactory legal authority for the institutions mentioned. 1919, New York State. In a report published August 25, 1919, en- titled, "Preliminary Statement of the Commissioners appointed by Governor Smith to report to him in the matter of the High Cost of Living," signed by Martin H. Glynn, late Governor of the State of New York, and Dr. John H. Finley, Commissioner of Education, being special commissioners appointed by the Governor, the Commissioners devote the main body of the report to the milk problem. They point out the numerous investigations which have been made, and say: "Despite all these investigations, the price of milk has rapidly risen since 1916, and from present indications it is likely to go still higher during the coming winter." The report calls attention to the variation in prices in different cities, although the prices paid to the producers are approximately the same, and especially that the price of milk in Philadelphia is 2 cents a quart cheaper than in New York City. Regarding the importance of milk to the community, the Commis- sioners say: MILK SURVEY OF THE CITY OF ROCHESTER 25 "If milk were a mere commodity without which human beings might live in health and vigor, the State of course would have little concern in this transac- tions, but since in every community there are many persons, especially children, mothers, and invalids, for whom it is as much a necessity of life as a supply of pure water, the State has not only a rightful reason for enquiry as to whether there are exorbitant profits in its sale, but a compelling reason for interfering if there are." Their recommendations include the following : "We further recommend that you require all district attorneys of the State of New York, as you' have already required the district attorney of New York County, to give immediate and most diligent attention to any violation of existing laws within their respective districts." "We are disposed to put the emphasis for the present on bringing about such open co-operation between dealers and consumers as will insure a fair price. To that end we recommend, therefore, that you cause to be appointed first of all in New York City a fair milk price committee consisting of nine members : The State Commissioner of Health, the New York City Commissioner of Health, the New York City Commissioner of Markets, three members to be named by the Governor of the State, three members to be named by the Mayor of the City of New York. We further recommend that you follow this plan in the formation of the milk committees in other cities of the State, upon the request of the local officials. "If this plan should, however, be found ineffective in securing fair prices, we would then be prepared to recommend * * * jj^g following as the nucleus of a tentative legislative program for placing the distribution of milk on a public utility basis. "1. That there be created a State Milk Commission to regulate the milk dis- tribution business in cities of the first and second class. 2. That all milk distributers in cities of the first and second class be required to secure a license from the proposed Commission, and such Commission be author- ized to refuse a license to any distributer who can not establish proof that the business he proposes to conduct is of public interest. 3. That the proposed Commission be given full power to regulate the rates which shall be charged on milk for the service rendered by the distributing agencies, and to limit the profits of such agencies to what it may deem to be a fair and rea- sonable return on the investment. 4. That the proposed Commission be given full authority to require the in- stallation of uniform cost accounting systems by all distributing agencies in first and second class cities, and to inspect and audit such accounts at any time. 5. That the Commission aid and assist all municipalities desiring to establish municipally owned distribution of milk and act as an advisory board and be in position to recommend the most effective method to be used in establishing muni- cipal distribution of milk, including the acquisition of privately owned distributing systems. 6. That all the muncipalities of the State be authorized to acquire and operate milk distributing systems within their boundaries when such acquisition and opera- tion are approved by this Commission. 7. That the proposed Commission promote co-operation between the produc- ing and distributing elements of the milk industry; that it make from time to time investigation of the cost of producing milk, and publish for the information of the 26 MILK SURVEY OF THE CITY OF ROCHESTER public data as to volume and cost of production in this State ; that it conduct educa- tional campaigns for promoting the wider use of milk as a food and co-operate with municipal health departments and other agencies in making special studies of the needs for the greater use of milk in the feeding of children. 8. That the Commission make special study of the problem of providing milk at a minimum cost to the children of the poorer sections of the larger cities, and co-operate with the municipal departments of health in providing milk for the feeding of infants at the lowest possible cost. 9. That the Commission co-operate with the New York City Department of Health to make a special study of the conditions under which loose milk is sold in the city, and endeavor to eliminate all possible danger of contamination of milk sold in this manner. 10. That the proposed Commission be empowered to revoke a dealer's license for due cause after public hearing and after due notice in writing. 11. That any municipality in addition to cities of the first and second class may by formal action of the governing body of the municipality place themselves under the jurisdiction of this Commission." 1919, New York State. The Reconstruction Commission of the State of New York was appointed by Governor Alfred E. Smith on January 21, 1919. It consists of thirty-six members, representing all of the large cities of the State of New York ; these are divided into two general com- mittees, and nine special committees deahng with the various public prob- lems and readjustments following war conditions. Among these is a Committee on Food Production and Distribution, consisting of ten members, of which Mr. Thomas V. Patterson of New York City is chairman. This Committee haye given much study to the milk problem, and drawn up a draft of recommendations to the Governor for state legislation, which is as follows: "1. That the distribution of milk be considered a public utility to be controlled and regulated as such. 2. That legislation be enacted authorizing the formation of trade associations and consolidation of food businesses, subject to public control as our other public utilities of the State. 3. That all dealers in cities of the first and second class be required to secure a license and that the regulating authority be authorized to refuse a license to a dealer who cannot establish proof that the business he proposes is to be conducted in the public interest. 4. That the regulating authority have the power after a public hearing and proper notice in writing to revoke a dealer's license for due cause. 5. That the provisions of the law at present relating to licensing in this in- dustry be amended to avoid conflict. 6. That the regulating authority be given full power to regulate the rates which shall be charged in the sale of milk for the service rendered by the distribut- ing agencies and to limit the profits of such agencies to what it may deem to be a fair and reasonable net retvirn on the investment. 7. That the regulating authority be empowered to regulate the methods of handling all milk and that it be its duty to recommend whatever measures are necessary to accomplish economies, mechanical or otherwise. MILK SURVEY OF THE CITY OF ROCHESTER 27 8. That municipalities be authorized to acquire and operate milk distributing systems within their boundaries when such operation is approved by the regulating authority. 9. That the regulating authority be empowered to apportion territory for dis- tribution among competing companies when such apportionment would result in greater economy. 10. That municipalities other than those of the first and second class may, by formal action of the governing body of the municipality, place themselves under the jurisdiction of the regulating authority. 11. That the regulating authority maintain offices in each of the cities under its jurisdiction in order to carry out its functions effectively." PLAN AND SCOPE OF THE ROCHESTER SURVEY Methods of Enquiry. These methods induded the following: (1) Public Hearings. Public hearings of viatnesses representing milk producers, milk con- sumers, and the investigators employed by the survey. (Twenty-two hearings in all were held, covering the period from July 8th to December 1st.) The stenographer's notes and exhibits were used as material in preparing this report. (2) Examination of Books of Dealers. (The accounts of five of the largest dealers and 15 of the small dealers were examined by the expert cost accountants employed by the survey. Accounts of only four of the large dealers were sufficiently ac- curate to justify detailed tabulation. All of the others were so incom- plete that they could be 'used only as a basis of estimate.) (3) Questionnaires. Questionnaires were sent to the following : (a) To milk dealers on hauling and freight. (b) To milk dealers on the volume of milk purchased and sold. (c) To milk dealers on valuation of properties. (d) To milk producers on country hauling. (e) To milk dealers of all large cities in the United States and Canada on spreads, as well as prices and quantity of milk pasteurized. (f) To health officers of all large cities for milk statistics and milk regulations. (g) To health officers of all cities in New York State on prevalence of human tuberculosis. (h) To institutions in Rochester on milk purchased and milk used. (4) Field Work. (a) Inspection of milk dealer's business; volume of business transacted; volume of work for each operation; number of men employed; number of hours of labor. 28 MILK SURVEY OF THE CITY OF ROCHESTER (b) Inspection of dairy farms to determine farm costs; personal interviews with producers with notes on annual costs of production. (c) Sanitary inspection of dealers' milk plants in city. (d) Sanitary inspection of dairy farms in the country. (e) House to house canvass in the city to determine quantity of milk used, and uses of milk by consumers. (f) Weighing and measuring of school children to determine under- nourishment. (g) Inspection of costs of distribution in the City of Ottawa, Canada, (h) Inspection of the costs of distribution in the City of Philadelphia, (i) Inspection of costs of distribution in the City of Baltimore. (j) Inspection of operation of Price Fixing Commission in the City of Detroit. (5) Special Studies. (a) Work performed by previous milk surveys and by milk commissions. (b) Work performed bj'^ the Rochester Health Department and of Rochester milk regulations compared with milk regulations of other cities. (c) Infant milk depots. (d) Undernourishment in school children, and dispensing of milk, and school lunches. II SUBJECTS OF ENQUIRY The subjects of enquiry in their order are as follows: 1. General Introduction. (a) Resolution by Common Council of April 22, 1919, authorizing the milk survey. (b) A survey of previous milk surveys ; their organization, scope, recom- mendations, and results. (c) Plan of present milk survey, its organization and scope. 2. Statistics of the Rochester milk supply. (a) Producers. (b) Dealers. (c) Milk sales. 3. House to house canvass to determine milk used by consumers. 4. Weight and height of school children to determine percentage and degree of undernourishment. 5. Milk supply of institutions to determine per capita consumption. 6. Food value of milk for children and adults ; commercial value and public health value compared with other foods. 7. Relation of milk to infant mortality. 8. Cost of producing Rochester milk. (a) Inspection of Rochester farms. (b) Cost accounts for total supply. (c) " " " small producing cows. (d) " " " large producing cows. (e) "■ " " small herds. (f) " " " large herds. (g) " " " producers in dififerent sections. 9. Cost of hauling and freight. (a) Country hauling by farmers. (b) Freight to Rochester; by truck or wagon; by trolley; by railroad. (c) Trucking in Rochester to milk plants. 10. Cost of distribution. (a) Report on dealers' cost accounts from books. (b) Labor costs obtained by inspectors of plantV (c) Plant charges obtained by inspectors. (d) Costs for large dealers. (e) Costs for small dealers. (f) Total cost for the city. 11. Appraisal of investment by Rochester milk dealers. (a) In land. (b) In buildings. , (c) In machinery. (d) In delivery equipment. 30 MILK SURVEY OF THE CITY OF ROCHESTER 12. Control of milk supply by Rochester Health Department. (a) Reports of work performed by Department of Health for ten years. (b) Rochester milk regulations. (c) Milk regulations of other cities compared with regulations of Rochester. (d) Tuberculosis. 13. Sanitary condition of Rochester milk supply. (a) Report of sanitary inspection of dairy farms. (b) " " " " milk dealers' city plants. (c) " " " " milk stores. (d) Report of bacterial tests on Rochester milk supply. 14. Pasteurization. (a) The adoption of pasteurization in the United States and elsewhere. (b) Attitude of authorities towards pasteurization. (c) Necessity for pasteurization in Rochester. ORGANIZATION OF THE WORKING FORCE Committee on Public Safety of the Common Council. Director of public hearings. Director of the survey. Supervisor of dairy farms inspection. Four dairy farm inspectors. ' Supervisor of inspection of city milk plants. Four city milk inspectors. Certified accountant on dealers' cost accounts. Three assistant cost accountants. Supervisor of house to house canvass. One hundred and fifty volunteer workers on house to house canvass. Supervisor of weighing and measuring school children. Twelve public health nurses. Bacteriologist. Supervisor of statistical tabulations. Two assistant statisticians. One secretary and six stenographers and clerks. in STATISTICS OF THE ROCHESTER MILK SUPPLY Information as to the number of persons engaged in the different branches of the milk industry of Rochester, the volume of business which is transacted daily, and other general facts regarding the business were obtained from a number of sources. The list of milk dealers was obtained from the Department of Health, and also the number of dairy farms. From the dealers themselves figures were obtained as to the number of quarts of milk received daily, and the number of quarts sold through different channels of trade. The numbers of employees, horses and wagons, were obtained by personal inspection of the factories by inspectors in the employ of the survey. According to the records of the Health Department, there are 745 dairy farms sup- plying the City of Rochester. From the dealers' own statements as to the number of producers from whom they purchase milk, the inspectors obtained the figure 779. The information obtained from these sources is shown in Table No. 7. TABLE NO. 7 STATISTICS OF ROCHESTER MILK SUPPLY Total number of dealers 136 Quarts received daily 82,075 Total daily sales 77,579 Daily sales — Bottled milk retail 57,305 Quarts " —Bottled milk wholesale 11,386 " " —Can milk wholesale 8,888 " Milk received by motor truck 24,985 " " wagon 3,018 " " railroad 48,163 " " trolley 5,909 " Number of proprietors 137 Number of employees . , 299 Number of wagons 207 Number of automobiles 71 Number of horses 228 Number of dairy farmers 779 Quarts of pasteurized milk 44,110 Per cent, of pasteurized milk 57% Number of dealers handling 500 quarts or less 101 Per cent, of supply handled by them 34.2% Number of dealers handling 500 to 1,000 quarts 23 Per cent, of supply handled by them 19.2% Number of dealers handling 1,000 quarts or more 11 Per cent, of supply handled by them 46.7% Number of pasteurizing plants _ 24 Number of dealers producing own milk 16 The dealers furnishing milk for Rochester may be divided into three groups, according to the quantity of milk sold by them ; the first group containing dealers selling less than 500 quarts daily ; the second group of 32 MILK SURVEY OF THE CITY OF ROCHESTER dealers selling from 501 to 1,000 quarts daily; and the third group of dealers selling over 1,000 quarts daily. The number of dealers in each group of those selling raw milk and pasteurized milk, and the quantity of raw and pasteurized milk sold by them is shown in Table No. 8. TABLE No. 8 RAW MILK AND PASTEURIZED MILK «^ ^ ^ ^ tl'rt ^ «+H >. ■^ >> i O U -a 0.-75 tj a T3 ^ quarts AMOUNTS AND COST OF OTHER DAIRY PRODUCTS USED WEEKLY Amount Price Cost Buttermilk 140 quarts $ .090 $ 12.59 Skimmed milk 524.5 quarts .051 26.51 Condensed milk 1,197.75 cans .149 178.10 *Cream 192 quarts .614 116.61 Butter 2,224 pounds Number of families reporting butter 1,057 Number of families reporting oleo 59 *2 quarts donated. MILK USED DAILY FOR DRINKING By children 692 quarts By adults 128 quarts Unclassified 240 quarts (Unclassified milk distributed by income groups added to milk used daily for drinking.) Total by children 882 quarts Total by adults 178 quarts FAMILIES USING NO MILK Number of families 88 Number of adults 208 MILK SURVEY OF THE CITY OF ROCHESTER 35 CHILDREN IN FAMILIES USING NO MILK Number o£ children under 1 year. Number of children 1 to 6 years. . Number of children 7 to 16 years. 19 110 145 One question in the inquiry referred to the race to which the famiUes belonged. In determining the race, American born parents were put down as Americans, while foreign born, parents were put down as belonging to the race from which they came. The results of this question are shown in the following tabulation : NUMBER OF FAMILIES— 1330 American 691 Italian 243 German 100 Jewish 56 Canadian 43 Russian 45 Irish 33 English 26 Polish 25 Holland 17 Scotch 10 Austro-Hungarian French Greek Swiss Belgian , Danish , Colored , Roumanian Swedish Assyrian Not reported 10 8 1 2 1 3 2 3 1 1 9 A study of the results of this inquiry presents a number of features worthy of special notice. The real object of the study was to ascertain whether the family income bore any relation to the amount of milk used and to the milk consumed by children. As a first step toward determining this, it is desirable to note the relation of the income to the number of persons in the family — especially to the number of children in the family. The figures in the tabulation accordingly were sorted with this object in view and the results are shown in Table No. 10. TABLE No. 10 SUMMARY OF FAMILY QUESTIONNAIRE Relation of Income to Number of Persons J S"-H 3 O Per Cent, of Total Families Reporting Inc. Number of Persons Per Family Children. < Income Per Week. o vO _o 13 c o t« ;-. +H Omh o o ^ CO ., CO . . IS fc^ ^^ X O < ^ < Ph < Ph Cl, Under 20 $16.17 174 $10.38 64.2% $ .90 5.6% 8.7% 20 to 24 21.58 26.48 237 236 12.81 14.43 59.4% 54.5% 1.12 1.36 5.2% 5.1% 8.7% 25 to 29 9.4% 30 to 39 32.77 218 15.62 47.7% 1.46 4.5% 9.3% 40 to 49 47.18 144 15.59 33.0% 1.47 3.1% 9.4% 50 and over 56.08 86 19.97 35.6% 1.87 3.3% 9.4% Income not given.. 235 16.79 1.57 9.4% MILK SURVEY OF THE CITY OF ROCHESTER 37 Figures in Table No. 11 show that the famiUes with smaller incomes spent a larger percentage of the income for food than the families with larger incomes, and that families with small incomes also spent a larger percentage of their incomes for milk than families with larger incomes. The percentage of the total food expense spent for milk does not show so great a difference. Families with incomes under $20.00 seem to spend a slightly smaller amount of their food money for milk than families with incomes above $20.00. The figures in the last column show this. The relation of the quantity of milk to the number of children in a family is the most important item in this special inquiry. The total num- ber of quarts used per day in each of the income groups and the quarts used by children, are given in Table No. 12. TABLE No. 12 SUMMARY OF FAMILY QUESTIONNAIRE Relation of Income to Amount of Milk Used ^ bo MH .TS bJ3 C O Per Week. rts of Used Day. of M Child Day rinkin 2u itage uired unt o: Used Income 3 —. (L) i^P^ a ;- u-^o "li- Oi^^pH rtP^f^ u -'i'' P <'^ a "^ Ph Under 20 L03 1 .19 .19 17.8% 31% , 20 to 24 L22 1 .20 .22 8.4% 28% 25 to 29 1.51 .24 .27 4.2% 48% 30 to 39 1.54 .26 .27 5.0% 50% 40 to 49 1.48 1 -24 .28 2.9% 54% SO and over .... 1.87 .39 .34 2.4% 69% Income not given 1.60 .32 .35 4.2% 71% *The amount of milk required was calculated from the standard of the Associa- tion for Improving the Condition of the Poor, New^ York City. The standard is as follows : Children under 6 years One quart Children 6 to 16 years One-half quart Adults One-third quart NOTE: Of the 1,330 families, 88 or 6.6% used no milk. These families include 5.9% of the total number of adults and 7.7% of the total number of children. The most interesting feature of the figures in Table No. 12 is shown in column No. 3, where it appears that in families with incomes of less than $20.00 per week, the children receive only .19 quarts of milk per day for drinking, while in families with larger incomes there is a prog- ressive increase in the quantity of milk fed to children and in families having incomes of $50.00 a week and more, the children receive .39 quarts pf milk daily, or just twice the quantity of milk, received by children in the families first mentioned. If we compare the amount of milk fed to 38 MILK SURVEY OF THE CITY OF ROCHESTER the children in the famiHes of each of the income groups, with the amount of milk recommended for children by some of the leading food experts, we find that the children in group No. 1, or families with incomes under $20.00, were receiving only 31% of their requirement. These percentages are shown in the last column of Table No. 12. It appears also that there is a progressive increase in the percentage of milk received in each income group, until in families where the weekly income is $50.00, or over, the children are receiving 69% of their milk requirements. The conclusion which must be reached from these data is that in all of the families visited the children are receiving less than their milk re- quirements and that the income of the family has a most close relationship to the quantity of milk purchased and the quantity used by children. The children, especially in the families with small incomes, are not receiving the milk necessary for their growth and development. ,j One of the methods of testing the accuracy of the work performed in this inquiry, is to compare the amount of milk used by the entire list of families with the amount used by the City of Rochester during the same period at the time the inquiry was conducted as follows : Total population of families visited 7,122 Estimated population of the City of Rochester 290,000 Percentage of total population in the families visited. . 2.456% Total amount of milk used by these families 1,911 Qts. Daily The total milk sold daily in Rochester 77,580 Qts. Percentage of the Rochester milk supply used by fam- ilies visited 2.463% Therefore the percentage of the total population visited in this in- quiry corresponds very closely with the percentage of the total milk supply used. These figures justify the belief that the families visited fairly repre- sent the character of the population of Rochester, both in the different age groups and the quantity of milk which is used by them. On this assumption, using the figures obtained in this inquiry as a basis, the milk consumption of the entire City of Rochester for the entire population is presented in Table No. 14. TABLE No. 13 FIGURES FROM 1330 FAMILIES For Other Should Drinking. Uses. Total Use. Population. Quarts. Quarts. Quarts. Quarts. Children— 1 to 16 years... 3,578 882 428 1,310 2,717 Adults— over 16 years 3,554 178 423 601 1,181 Total 7,112 1,060 851 1,911 3,898 MILK SURVEY OF THE CITY OF ROCHESTER 39 TABLE No. 14 ESTIMATED AMOUNT OF MILK USED BY CHILDREN AND ADULTS OF ROCHESTER COMPARED WITH QUANTITY RECOM- MENDED BY FOOD AUTHORITIES For Other Should Drinking. Uses. Total Use. Population. Quarts. Quarts. Quarts. Quarts. Children— 1 to 16 years... 145,693 35,768 17,358 53,126 110,633 Adults— over 16 years 144,307 7,218 17,156 24,374 48,102 Total 290,000 42,986 34,514 77,500 158,735 The distribution of the families in the city districts visited was pur- posely arranged so as to give so far as possible a cross-section of the entire population of the City of Rochester. The fact that the population of the families visited gave almost the same percentage of the total popula- tion as the quantity of milk consumed to the total milk supply of the city is a substantial reason for believing that the families visited did represent fairly a cross-section of the city. On this basis the age distribution of the children and adults in the families visited if applied to the entire city would indicate that the population of the entire ctiy of Rochester is divided as follows : Children under 1 year 9,854 Children 1 to 6 years 65,720 Children 7 to 16 years 70,119 Adults over 16 years 144,307 Total Population 290,000 In the testimony of Professor McCollum, delivered at one of the hearings, it was stated that on the basis of his careful experiments as to the milk requirements of animals and of human beings, he believed that every person, young and old, should consume not less than one quart of milk a day, or its equivalent. This would mean that the population of Rochester of 290,(X)0 should consume 290,000 quarts of milk daily. If we use the figures which are accepted by the New York Associa- tion for Improving the Condition of the Poor as representing the milk requirements of children and adults, children under 6 years would use one quart each; children 6 to 16, one-half quart, and adults, one-third quart. If these amounts of milk are applied to the population of Roch- ester, as above indicated, it would make it necessary that the children from 1 to 16 years in Rochester should use not less than 110,633 quarts daily for drinking and other purposes, and the adults over 16 years should use not less than 48,102 quarts for drinking and other purposes. This would require a total milk supply of 158,735 quarts, as compared with 77,500 quarts which was being used at the time the house to house canvass was conducted. This means that both children and adults are now using less than one-half of the quantity of milk which is required for the promotion of growth, and the maintenance of health and strength. IV UNDER-NOURISHMENT IN SCHOOL CHILDREN One of the most vital questions, if not the most vital question, con- nected with the problem of municipal milk supply, is the under-nourish- ment of children of school age and under school age. Wonderful dis- coveries made by the leading research workers in the chemistry of foods and nutrition, have shown that during the growing period of children, milk is a vital factor. In other parts of this report appears the testimony of Professor McCollum, emphatically showing that there is no substitute for milk for the growing child. The highest legal authorities agree that any action on the part of municipalities to increase their legal powers for the control over municipal milk supplies, must be based, not on economics alone, but on evidence that the health of the people is being injured through the present system of milk supply and distribution. There would be no real reason for the present milk agitation in Rochester or any other cities, if it cannot be demonstrated that public health is being injured. In the background of all movements and investigations connected with milk supply, is the idea that children are not receiving all of the milk which they require, and that some damage is being done to their health and welfare because of present conditions in the milk business. It is for the above reason that no branch of the milk survey of the City of Rochester is of more importance than the inquiry into the rela- tionship between the milk supply and the nourishment or under-nourish- ment of children. Recognizing this, the directors of the Survey early in the month of August undertook to make arrangements for a systematic examination of school children in Rochester. The program presented to the city authorities at that time was one which called for the determina- tion of the weight and height of all school children and also the securing of information as to their diet, especially with reference to the quantity of milk consumed by them. These plans were presented and approved by the Mayor and the Chairman of the Committee on Public Safety, and the director of the Survey was ordered to proceed with the investigation. The co-operation of the Board of Education was necessary in order to carry out these investigations in the Public Schools. This co-operation was secured and plans perfected for carrying out this work, when in- formation was received that the Bureau of Health intended to perform a similar investigation of its own. In order to avoid a duplication of effort therefore, and as a matter of courtesy to the Bureau of Health, the directors of the Survey sought the co-operation of the Bureau of Health in carrying out this work. The Health Officer, Doctor Goler, stated how- MILK SURVEY OF THE CITY OF ROCHESTER 41 ever, that he was equipped with a force of nurses sufficient only to secure information from 11 Public Schools. For this reason the director of the Survey asked the city authorities to furnish to the Health Bureau a suffi- cient force of nurses and other workers to carry out the weighing and measuring of school children in all of the 47 Public Schools in the city. The Commissioner of Public Safety consented to furnish such facilities and in accordance with this plan notified the Director of the Bureau of Health that such facilities would be furnished. This offer, however, was declined, and as a consequence, the Bureau of Health failed to carry out this work in more than the 11 schools above mentioned. Information was secured through the Board of Education as to the milk consumed by the children in all of the 47 Public Schools of the city. The children were classified into two classes^milk drinkers and non- milk drinkers. The report blanks used included the following items : School Number, Grade Number, Child Number, Age, Sex, Race, Height, Weight, Milk Consumed and Under-nourished. Through the Superintendent of Schools information concerning every school child was obtained on all of the above subjects, excepting height and weight. In the expectation that complete reports would be received from the 47 schools, the complete tabulations of the results from the 11 schools where height and weight were also obtained, was not attempted. For the purpose of showing what results could be achieved were this work com- pleted^ there is presented below a statement of a portion of these tabula- tions which have been prepared. In Table No. 15 is presented the statistics of the 11 schools in which the children were weighed and measured, showing how many children of each sex and race were in each school and the number of milk drinkers and non-milk drinkers. TABLE No. 15 STATISTICS FROM ELEVEN PUBLIC SCHOOLS Per Cent. Number Per Cent. Number Number of Total Drinking Drinking Race. Males. Females. Total. Children. Milk. Milk. Anglo-Saxon 1,499 1,499 2,998 29.9% 1,843 60.5% Jewish 894 819 1,713 17.1% 1,328 77.5%> Latin 2,040 1,990 4,030 402% ' 2,112 52.4%o Teutonic-Scandinavian. 348 310 658 6.6% 360 54.7% Slavic : 284 286 570 5.7% 350 61.4% Other Races 23 33 56 .5% 40 71.4%> Totals 5,088 4,937 10,025 100.0% 6,033 60.2% A detailed statement of the children of each age from 4 to 16 of the Anglo-Saxon race — males — drinking milk and non-drinking milk and their total height and weight and average height and weight is presented in Table No. 16. 42 MILK SURVEY OF THE CITY OF ROCHESTER TABLE No. 16 ANGLO-SAXON MALES MILK DRINKERS NON-MILK DRINKERS u Jg (-< CJ r- (U _2 ■S *i > 2-S ^ ^ OJ r3 ^, 10>^, 12 and 12^^. In 1918 it started with 13^^; went down to 12, 12>^, 13, 15 and 16. In 1919 it started with 14 cents, and today it is 15 cents a quart. Q. Those changes were due to changes in the market price of milk? A. Yes. O. What did the New York Milk Committee, which you represent, have to do with the establishment of these stations ? A. They started the milk station experiment in New York City. Q. How many stations did they establish of their own ? A. Thirty-one. Q. Before the city took them over? A. Yes, and they added to them since until now they have sixty. Q. About how many babies a day are fed at these stations? A. In 1918 there were 46,182 individual babies. By Mr. Pierce: Q. A quart to a child? A. In 1918 there were 5,815,425 quarts of milk dispensed. Q. Have you analyzed that to show what is given to a child ? A. Per capita daily? No, I have not; it does not mean that each one of those babies had a quart of milk a day during the year, but there were that many individual babies registered at the stations. By Dr. North: O. Do these stations operate the year around? A. They do, yes. Q. Are they so located that children in any part of the city can get milk there? A. No, I would not say that; they are located according to the need of the community. If you have a community where there are ten children that need milk stations very badly you would not prefer that community in locating a station to a community that had a thousand 74 MILK SURVEY OF THE CITY OF ROCHESTER children needing it very badly. Milk stations favor congested sections where the baby population need milk station service. Q. That is, the stations are located in the most congested districts? A. Yes, in those congested districts the milk stations are always within walking distance of any mother in the district. O. Now, were the Milk Committee's expectations realized in the establishment of these stations by any marked effect on infant mortality? A. Yes, they were. Q. Suppose you go into that very fully? A. Perhaps we can cover that very briefly by giving the infant mor- tality rate. The rate in New York City for 1906-1910, that is before the milk station period, was 135.8; that is, out of every thousand babies 135 died under one year of age; 1911-1915, you recall that the milk station drive was in 1911, the infant mortality rate was 102.2 per thou- sand ; in 1916 it was 93.1 ; in 1917, 88.8 ; in 1918, 91.7. The milk stations in New York City have helped reduce the infant mortality rate since 1910 from 135 to 91. By Mr. Pierce: Q. How much do these stations cost the city per year? A. The milk stations today are costing the city, each station in round numbers, $3,000 a year; that includes nursing, cleaning, medical and immediate supervision, but does not include the pro rata distribution of the Health Commissioner's salary nor the salary of the Chief Director of the Bureau of Child Hygiene. By Mr. North: Q. Is that the average cost? A. $3,000.00 is the average cost. A station of two hundred babies can get along with one nurse and a part time doctor; a station of six hundred babies will require a nurse, two assistant nurses and a doctor, that has at least two or three clinics a week. Q. The salaries of those nurses and doctors are all paid by the city? A. Yes. O. Are they open all day or only in the morning? A. They are generally open only in the morning and the nurses are out in the field visiting mothers and babies in the afternoon, until late in the afternoon when they come to the station and fill out their records. Q. Do the mothers bring the babies to the stations? A. Yes, for the baby clinics. Q. Have you got a compilation showing the work that has been performed by these stations and the number of babies that have been taken care of by each station? A. I have a very complete cost sheet here of our 31 stations; of course, that does not apply today except in proportion as to .what costs MILK SURVEY OF THE CITY OF ROCHESTER 75 were at that time. I think for the benefit of the record it might be well to put in, that during September, 1911, our 31 stations cost $9,227.35. It does not show here the number of babies, but the number of babies were 31,128, I think, something like that, but the cost per baby was .0634, that is, it is six and one-third cents a day was the actual cost to us. Q. To take care of one baby? A. ' One baby for one day. Q. Is there any way in New York City that the infants and chil- dren can get milk as cheaply as they can get it at the milk station? A. No, there is not. Q. There is no way? A. No. O. They are getting the cheapest milk there that they can get of that grade ? A. For the quality. May I add there that the charge is sometimes made that the milk dealers are killing the babies because of the high price of milk. My personal opinion is that milk dealers killed the babies of New York City when they were selling milk at 4 cents a quart. Dur- ing those times the infant mortality rate was over 200 per thousand. Q. How do you account for that ? A. That milk cannot be produced and sold and delivered to the consumer in a sanitary character and was not so sold and delivered when milk retailed at four cents a quart. The result was that milk contributed, because of its unsanitary character, to the high infant mortality rate. New York City has the best, or as good a milk supply as any other city in the world, and has the least infant mortality rate of any large city in the world. It is all because of the fact that the people of New York City have been educated to realize the value of a safe milk supply for infants' feeding. Q. You consider the quality of the milk has got to be taken into consideration in feeding infants and children as well as the price? A. I think the quality of the milk comes far before the price. Price has nothing to do with it if the quality is not there. O. What kind of milk were the people buying for their infants and children before these stations were established ? A. Milk that would not to-day, according to all the recommenda- tions of the National Commission on Milk Standards, come up to Grade C pasteurized. Q. The lowest grade of milk sold in the city? A. Yes. Q. Where were they getting it ? A. There were a lot of small dealers in the city, a lot of dairy 76 MILK SURVEY OF THE CITY OF R OCHESTER farmers surrounding the city hauling their milk in, or in most cases the producer was the milk dealer as well. Q. Was this milk delivered to the homes of the people or did they go to the stores to get it? A. They went to the stores to get it. O. Does New York City permit the sale of dipped milk at the present time? A. Unfortunately, yes. Q. Is that dispensed in grocery stores ? A. Yes. Q. Has the Milk Committee disapproved of the distribution or dis- pensing of dipped milk ? A. We disapprove of the dispensing of dipped milk. Milk cannot be safely handled except in a single container. O. Has the Milk Committee any evidence that the children that have been fed upon dipped milk from grocery stores are any worse off than those that have been given bottled milk from the infant milk sta- tions, or that have been fed upon good bottled milk? A. I have not just the figures with me, Dr. North, but my impres- sion is that the baby death rate among the babies fed at our milk stations on Homer milk was 57 per cent, lower than the baby death rate through- out our city fed on good and bad milk. Q. Has the Milk Committee in its work taken into consideration the records made by other investigators in New York of the mortality of children fed on loose dipped milk from grocery stores as compared with the mortality of children fed on good bottled milk, for example, such work as was done by Dr. Park and Dr. Holt? A. Yes, it has those records. O. Now, will you tell us something about the effect or influence on infant mortality of this system of infant feeding. I think you have some mortality records to show us there, of the results of infant feeding? A. In 1913, 54.8% of the babies at the milk stations were breast fed. In 1918, 67% were breast fed. In 1913, 19.6% of the babies were mixed fed. In 1918, 17% were mixed fed. In 1913, 25.5% were bottle fed. In 1918, 16% were bottle fed. It shows that the educational propa- ganda for the benefit of the mother, through the milk station, has induced the mothers of New York to increasingly nurse their babies at the breast, and the mixed feeding percentage of mothers has decreased, and the bottle fed percentage of mothers has decreased. Now, what is the pur- pose of that? In our work we found that of the babies registered at our stations who died, 6.5% were breast fed, that is, the infant mortality rate per thousand breast fed babies registered at our stations was 6 5; MILK SURVEY OF THE CITY OF ROCHESTER 11 that is, this much out of a thousand, or 11 out of two thousand died. Of the mixed fed babies, 24.2 per thousand died. Of the babies that were bottle fed, 30.7 per thousand died. Your mortality problem limits itself to the infant that is artificially fed. The ratio — do you want this put in record ? Q. Yes, sir? A. The ratio of deaths of these three groups of feeding are as follows : For every breast fed baby, four mixed fed babies die ; for every breast fed baby, I mean, every breast fed baby that dies, four mixed fed babies die ; for every breast fed baby that dies, five bottle fed babies die. You have ten babies who die; one of them is breast fed; four are breast and bottle fed, and five are bottle fed. If any community will realize and understand that fact, that in itself will do a whole lot to pre- vent this unnecessary loss of infant life. Q. Do these stations sell milk for the mothers themselves to drink ? A. They do. I am under the impression that a very great per centage of the milk supply that goes through the stations in New York City goes to the mother rather than the baby. Q. Do you consider that the establishment of those infant milk sta- tions in New York City is a success? A. I do. O. And do you think that every city should have such stations? A. The problem is a problem of ignorance. Infant mortality per se is not a milk station problem. Milk stations will prevent unnecessary loss of infant life more quickly than any other agent that can be used. As I said before, you have got to have that milk as a bait to get the op- portunity to educate the mother in the care of her infant and herself. O. Supposing you consider the milk as a commodity offered for sale to the mothers of infants in the congested districts, would you say that the City of New York is justified in paying the cost to maintain these stations so that this milk can be sold at the lowest price to the in- fants and mothers ? A. I would, yes. Q. You think the city is justified in paying that charge? A. I think it is a mighty good investment for a city. Q. Now, can you show us something about the mortality under one month ? A. The actual condition is this : This chart shows what happens to one thousand expectant mothers in New York City. Assuming that you have a thousand mothers that are pregnant and you have control of them until one year after the birth of their babies, this is your result: Out of that thousand, 4.7 mothers die from causes due to pregnancy and 7B, MILK SURVEY OF THE CITY OF ROCHESTER confinement; 43.4 of those mothers give birth to still born babies, their babies are dead before they are born; 35.2 of those mothers lose their live born babies through death during the first month of birth. Ignoring the fact that five of the mothers die and take your potential baby lives from conception until one month after birth and you divide them into three groups of those who die ; one-third are born dead ; the second third die during the first month after birth, and the last third die during the remaining eleven months of the first year. Two-thirds of those potential lives are gone before there is any possible chance of them availing them- selves of the milk station machinery. That is for New York City. Mr. Pierce: That is, two-thirds of those who die? The Witness: Yes. Q. Then in our figures that we have been considering on infant hiortality which has been the cause for this milk agitation, two-thirds of the children who die have no relation at all to the milk agitation ? A. Not in the least. O. They die before the end of the first month? A. They do. Q. Then, only one-third of the number of children that have been quoted so often as the reason for the milk agitation really have anything to do with the milk supply? ' • . A. Just one-third, yes. O. Now, have you some more figures on that point? A. I have the same figures for the City of Rochester that I have just quoted for New York City. This is from the vital statistics of Rochester for 1917: Out of one thousand expectant mothers in Roch- ester that year, 4.6 died from causes due to pregnancy and confinement • 39.0 gave birth to dead babies ; 40.9 lost their babies through death during the first month after birth. You have the grouping in three groups, the same here as in New York City. In New York City the line goes down gradually from the second month down ; in Rochester it does not do that ; the second month is lower than the third month, and the fourth month is lower than the third or fifth month; this is pro-rated from the sixth month on, because my figures do not have the exact distribution, but it shows graphically what the situation is. O. That is to say, in Rochester one-third of the babies w6o die under one year of age are babies who would be affected by the milk supply ? A. Yes. Q. And two-thirds are not affected? A. Are not affected. A. The problem, then, in infant mortality does not concern itself MILK SURVEY OF THE CITY OF ROCHESTER 79 only with that last and third group of babies that die ; it concerns itself far more with the two previous groups. The New York Milk Committee realized that fact when it started the milk stations in New York City, but it also realized that it could not go back so far as to reach with medical nursing and care the expectant mother unless it had the milk station with its milk as a bait for getting the mother with the baby. That ■was the third group. Consequently, in connection with the milk stations we started a program of providing pre-natal care for expectant mothers ; the mother took the milk, brought the baby to the milk station and the nurse found out she was pregnant and she would get her registered as an expectant mother and she would be provided with care during het pregnancy and for one month after her confinement. That is the outline of the work. What did that work accomplish? It means that the group of mothers which now, I think, run between seven and ten thousand on our records, it means that the maternal deaths of our mothers receiving pre-natal care, show a reduction of 69 per cent, over maternal deaths throughout the city as well. O. That is the mothers who patronize those stations? A. Yes, and who receive pre-natal care. It means that the records show a reduction of 22 per cent, in still births; it shows a reduction of 28% in the deaths under one month. All told, it caused a reduction of maternal deaths of 69 per cent. ; of still born babies, 22 per cent. ; of deaths under one month of 28 per cent. • The position occupied by the City of Rochester among American cities in the number of infants under one year of age who die annually has often been thought to be a position of leadership ; that is to say, that Rochester, if not at the top, is near the top of the list because of the ex- ceedingly small death rate of children under one year. Because of this impression, it will be useful to refer to the annual report of the New York Milk Committee which shows the infant death rate, under one year, in all of the large cities of the United States. In their report of the figures for the calendar year 1918, the position occupied by the principal American cities and the death rate of infants under one year is shown. Extracts from this report, showing exactly the position which Rochester now occupies, are given in the tabulation below, which shows that Rochester is 54th in the list of cities from which statistics were compiled for 1918 by the New York Milk Committee : 80 MILK SURVEY OF THE CITY OF ROCHESTER INFANT MORTALITY STATISTICS For the Year 1918 Deaths Per 1,000 Infants City. Under 1 Year of Age. 1. Brookljne, Mass. 35.4 2. Madison, Wis 38.1 3. Pasadena, Cal 43.8 4. East Orange, N. J 53.0 5. Berkeley, Cal 56.5 6. San Francisco, Cal 57.2 7. Maiden, Mass 60.2 8. Everett, Mass 61.6 9. Alameda, Cal 62.2 10. Salt Lake City, Utah 63.3 11. Boise, Ohio 63.4 12. Seattle, Wash 63.4 13. Chelsea, Mass 65.8 14. Newport, R. 1 65.8 15. Newton, Mass. 66.6 16. Quincy, Mass 67.2 17. Lima, Ohio 69.2 18. Grand Rapids, Mich 70.8 19. Portland, Ore 71.7 20. Evansville, 111 72.2 21. Reno, Nev. ...._ 72.3 22. Minneapolis, Minn 72.3 23. Oakland, Cal 72.7 24. Haverhill, Masss 73.0 25. Mt. Vernon, N. Y 73.6 26. San Jose, Cal 76.5 27. Lynn, Mass 76.8 -28. Canton, Ohio 77.0 29. Los Angeles, Cal 77.4 30. Decatur, 111 78.1 31. Fort Wayne, Ind 78.7 32. Spokane, Wash 79.4 33. Joplin, Mo 80.6 34. Wichita, Kan 81.3 35. Lincoln, Neb 81.8 36. Stamford, Conn 82.8 37. Concord, N. H 83.4 38. Poughkeepsie, N. Y 83.8 39. Dayton, Ohio 84.0 40. Duluth, Minn 86.0 41. Galveston, Tex 86.1 42. St. Paul, Minn 86.4 43. Jamestown, N. Y 86.6 44. Amsterdam, N. Y 86.9 45. Quincy, 111 87.0 46. Springfield, Ohio 87.2 47. Peoria, 111 89.3 48. New Haven, Conn 89.5 49. Jackson, Mich 90.2 50. San Diego, Cal 91.5 51. Sacramento, Cal 91.6 52. New York, N. Y 91.7 53. Harrisburg, Pa 92.1 54. Rochester, N. Y. 93.4 VIII COST OF PRODUCING ROCHESTER MILK The determination of the cost of milk production presents many serious difficulties. The majority of dairy farmers do not keep cost accounts. On the other hand, there is no class of business men who carries so many business transactions in his head, or can give more accurately from memory the history of financial transactions than the dairy farmer. The different sizes of dairy farms, the different condi- tions of location and soil, the methods of feeding, sizes of herds, amount of labor employed, vary to so great a degree that the figures for each farm differ to a considerable extent from the figures obtained from other farms in the list. An entire year's accounting must be obtained from each farm investigated if the figures are to fairly represent the a^'erage cost, for the reason that seasonal changes greatly affect volume of milk pro- duced and the cost of feed. In approaching the organization of this work, it was recognized that consideration should be given to the methods of investigation previously used. It was believed by the Director of the Survey that the best insur- ance that could be given to the correctness of the methods adopted for the present inquiry would be obtained through consultation with Professor G. F. Warren, Professor of Farm Management, at Cornell University, because he is recognized as the highest authority in this country on farm economics. At the request of the Director of the Survey, Professor Warren came to Rochester and furnished copies of the report blanks used by him in his own inquiries of the cost of milk production. He also designated some of his own assistants to furnish further advice on this subject. H. E. Babcock, State Director of Farm Bureaus, volunteered to secure for the Director of the Survey men who had been engaged in country farm bureau work and had had extensive experience in compiling farm cost accounts. As a result of this co-operation, four inspectors were employed who could qualify in an unusual manner for work of this character. These men were in the field for an average period of nine weeks, and during that entire time were engaged in making detailed studies in consultation with dairy farmers as to their cost items. The preparation of the report blanks used by them was done after consultation with E. G. Misner, Professor of Farm Management at Cornell University, who assisted in preparing a modification of former report blanks adapted especially to the work proposed. Mr. C. P. Clark, who had had considerable experience in supervising investigations of cost accounts and statistical work, was made supervisor of the entire investigation of the cost of milk production. 82 MILK SURVEY OF THE CITY OF ROCHESTER It is believed consequently that the methods of obtaining the in- formation, and the personnel of the investigating staff, was as reliable as it was possible to obtain for such a survey as this. During the period of nine weeks when the men were in the field, they visited every dairy district from which Rochester obtains its milk supply. The number of districts visited and the number of dairy farms in each are shown in the table below : District. Number of Farms. Bliss 24 Wayne and Livingston Counties 33 Monroe County 84 Total 141 The general summary of the information obtained from these farm.s is given in Table No. 23 : TABLE No. 23 GENERAL DATA FROM 141 FARMS Number of farms 141 Number of cows 2,314 Total milk produced (pounds) 14,654,115 Total milk sold wholesale (pounds) 14,060,306 Total milk sold wholesale (quarts) 6,539,677 Percent of Rochester supply furnished by 141 farms 21% (Based on average consumption of 85,000 quarts per day.) Total expenses $659,958.06 Returns other than wholesale milk 69,911.36 Net costs $590,046.70 Total receipts for wholesale milk 471,729.10 Total loss $118,317.60 Acres per farm 131 Value per acre $158 Acres of pasture per farm 28 Value of pasture per acre $72 Average number of cows 16.4 Value of cows per head $126 Production per cow (pounds) 6,333 It is believed that the location of the farms was such that they fairly represent the character of the farms supplying milk to the City of Roch- ester. Information obtained from the milk distributors and from the Department of Health indicate that the number of dairy farms supply- ing Rochester milk varies from 700 to 800. The best figure obtainable by this survey is 778 dairy farms. The 141 farms from which cost accounts were obtained are believed to be a sufficient number to furnish accurately figures showing the cost of producing milk on the entire list of farms, because they were not MILK SURVEY OF THE CITY OF ROCHESTER 83 only located in every dairy district, but represented every type of dairy farm, large and small. The farms were not selected, but were taken just as they came on the roads on which the inspectors traveled. The cost of milk production on all of the farms has been compiled, and the figures added together to show the cost of producing milk per 100 pounds and per quart. This summary is given in Table No. 24 : TABLE No. 24 SUMMARY OF COSTS OF PRODUCTION ON 141 May 1, 1918, to May 1, 1919 Per Cwt. Depreciation on cows .0756 Interest on cows at 6% 1241 Grain and other concentrates 1.0721 Succulent feed 6805 Hay and other dry forage 6048 Total feed except pasture 2.3574 Interest on feed and supplies at 6% 0417 Pasture 2424 Bedding 1651 Human labor 1.2116 Horse labor 0975 Use of buildings .1422 Use of equipment 0791 Bull service 0351 Miscellaneous costs 1219 Total cost 4.6937 Returns except wholesale milk .4972 Net cost (difference) 4.1965 Price received 3.3550 LOSS 8415 FARMS PerQt. .00163 .00267 .02305 .01463 .01300 .05068 .00090 .00521 .00355 .02605 .00210 .00306 .00170 .00075 .00262 .10092 .01069 .09023 .07214 .01809 The significance of Table No. 24 is that the actual cost on all of the 141 farms visited for producing 100 pounds of milk was $4.19, or $ .09 per quart. The price received for this milk during the year was only $3.35 per 100 pounds, or $ .072 per quart, showing a net loss to these 141 milk producers of $ .84 per 100 pounds, or $ .018 per quart. The figures in this summary are obtained from the details in the report blanks and can be best understood by arranging these details in a number of ways, indicated by the tabulations which follow. In Table No. 25 is shown the total quantity of feed and of labor required by each cow per year, and per 100 pounds of milk : 84 MILK SURVEY OF THE CITY OF ROCHESTER TABLE No. 25 QUANTITY OF FEED AND LABOR REQUIRED Per Cow. Per Cwt. of Milk. Grain and other concentrates 2,635 lbs. 41.6 lbs Succulent feed 10,493 lbs. 165.7 lbs. Hay and other dry forage 3,769 lbs. 59.5 lbs. Human labor 211 hrs. 3.33 hrs. The number of cows on the farms, their value at the beginning of the year, May 1st, 1918, and the number of cows purchased, the heifers that became cows, and the value at the end of the year are shown in Table No. 26 : TABLE No. 26 INVENTORIES, PURCHASES AND SALES OF COWS BEGINNING OF YEAR Number Price Total Value Cows on hand May 1, 1918 2,282 $123.21 $281,160 Cows purchased 673 120.05 80,792 Heifers that became cows 124 101.98 12,645 Total $374,597 END OF YEAR Number Price Total Value Cows on hand May 1, 1919 2,306 $130.21 $300,275 Cows sold 737 86.06 63,427 Cows died 34 Cow hides 22 11.84 260.50 Total $363,962.50 Value at beginning of year, plus purchases, plus heifers that became cows $374,597.00 Value at end of year, plus sales 363,962.50 Depreciation (difference) $ 10,634.50 Average inventory of cows — Number. 2,314 Average inventory of cows — Total value $290,841 .00 Value per head 125.69 From these figures it appears that the depreciation was $10,634.50 on all the farms for the year covered by the inquiry. This depreciation is the amount of money required for replacement, or to make up for losses through the sale or death of animals, and the cost of keeping the herds up to their full production. The inventory showed an average of 2,314 cows, and the value placed on these animals by the owners was $290,841.00, or $125.69 per head. These figures differ from the total value at the beginning and at the end of the year because of the shifting of cows during the year, and because of the buying of fresh cows and the selling of dry ones. MILK SURVEY OF THE CITY OF ROCHESTER 85 From a business standpoint it is of some interest to know the amount of money invested in land and buildings on these farms. The number of acres used for dairy purposes cannot be accurately separated from the total number of acres in the farms, therefore, the total acres in these farms is the figure given. The investment in land and buildings is shown in Table No. 27 : TABLE No. 21 INVESTMENT IN LAND, BUILDINGS, ETC. Acres in farms 18,515.5 Average value per acre $158 Total value of farms $2,926,828 Acres of pasture 3,490.5 Value of pasture per acre %1Z Total value of pa.sture $254,025 Acres of pasture rented in addition to the above 470 Value of buildings used by caUle $290,058 Value of equipment used by cows 41 ,956.23 Value of average feed and supplies on hand for cows. . 97,652 The totals of the amount of grain and other concentrates fed are shown in Table No. 28: TABLE No. 28 GRAIN AND OTHER CONCENTRATES Per Cent, of Total Price Total Amount. Pounds. Per Ton. Value. Home grown grain 19% 1,176,094 $48.02 $28,240.06 Wet brewers' grain (reduced , to dry basis) 17% 1,024,159 24.65 12,623.80 Other purchased grains ." 64% 3,898,253 56.38 109,883.15 Total 6,098,506 $49.44 $150,747.01 It is important to note that 19% of the grain used was home grown. The price per ton on the home grown grain was based on the market price of such grains, less the cost of marketing. The wet brewers' grains were used to an unusual extent on some of these farms. The quantity was reduced to a dry basis in order that the amount and price might be fairly compared with the other grains fed. The low cost per ton of these brewers' grains is offset to a considerable extent by the increased cost of hauling over the cost of hauling other purchased grains. In re- ducing the wet grains to dry grains, the basis used was 65 lbs. of wet grains per bushel, and J4 lb. of dry matter to each lb. of wet grains. The estimates obtained for succulent feeds, hay and other dry forage, were based on the quantities used according to the best recollec- tions of the producers, and on the prices per ton at which these products are commonly rated. The figures for succulent feed are given in Table No. 29, and for hay and other dry forage in Table No. 30 : 86 MILK SURVEY OF THE CITY OF ROCHESTER TABLE No. 29 SUCCULENT FEED Per Cent, of Total Amount. Tons. Corn silage 83% 10,066 Soiling crops, roots, etc 17% 2,074 Total 12,140 Price Total . Per Ton. Value. $8.11 $81,596.00 6.79 14,077.00 $7.88 $95,673.00 TABLE No. 30 HAY AND OTHER DRY FORAGE Per Cent, of Price Total Total Amount. Tons. Per Ton. ■ Value. Hay and Alfalfa 76% 3,328 $22.78 $75,803.68 Corn Stover 17% 741 8.88 6,578.50 Straw, Bean Pods, etc 1% 292 9.08 2,650.50 Total 4,361 $19.50 $85,032.68 The labor of the operator or owner and other unpaid labor is charged on the basis of the estimates furnished by the operators. The figures for paid labor are made up from the actual wages paid plus the cost of board, and the number of hours the labor was employed. The rates per hour, when one considers the wages paid in other lines of industry, are certainly not too high. As a matter of fact, the average loss sustained of $ .8415 per 100 pounds subtracted from the total labor charge of $1.2116 in Table No. 24 shows that all the labor actually received after paying all other costs was only $ .11 per hour for their labor instead of $ .349 as charged in Table No. 31 : TABLE No. 31 - HUMAN LABOR Per Cent, of Rate Total Total Labor. Hours. Per Hour. Value. Operator 51%o 246,909 $.416 $102,606.44 Other unpaid labor 13% 65,443 .280 18,338.03 Paid labor 36% 176,134 .281 49,413.52 Total 488,486 $ .349 $170,357.99 The total value of the operators' labor, as shown in Table No. 9, was $102,606.44. The value of the other unpaid labor was $18,338.03, making a total for unpaid labor of $120,944.47. The total losses as shown in Table No. 23, were $118,317.60. This assumes that all labor was paid. If the unpaid labor amounting to $120,944.47 was not included in the ex- penses, it would leave to the farmer a profit of $2,626.87 to apply to the wages of the unpaid labor. The number of hours the unpaid labor was employed was 312,352, as shown in Table No. 31. If only $2,626.87 was available to pay for this, the unpaid labor actually received $ .0084 per MILK SURVEY OF THE CITY OF ROCHESTER 87 hour, or less than Ic per hour. If the labor of the farmer's wife and children was not charged for, and all of the $2,626.87 above other ex- penses, including paid labor, remained for the operators themselves, each operator would have received $ .0106 per hour for his own labor. TABLE No. 32 RETURNS EXCEPT MILK SOLD WHOLESALE Amount. Price. Value. Appreciation on Cows Milk used by Families 160,223 qts. $.071 $11,374.82 Milk Retailed, used for butter and fed to stock 118,869 qts. .070 8,268.43 Manure recovered 20,612 tons 1.77 36,429.00 Feed bags . . . . 627.00 Calves born (value at birth) 1,831 7.22 13,211.75 Total $69,911.00 Table No. 32 shows the receipts from other sources than milk. If there were appreciation or increased value in cows it would appear in this list of items. It is set down as one of the items, but no figures are placed opposite this item, for the reason that there was no appreciation on the farms as a whole. The milk used by the farmers' families is charged for at the average League price for the year. The slight difference between this figure and the figure actually received, as shown in Table No. 24, is more than made up by the cost of hauling milk to the shipping station for the milk which was shipped from the farm. Some small quantities of milk were retailed by farmers themselves, and these amounts are included in the receipts. The producing territory was divided into three regions because the character of the farms semed to indicate a natural division of this kind. The more important points of difference between the character of the farms in these regions is shown in Table No. 33. TABLE No. 33 COMPARISON OF CONDITIONS IN THREE DAIRY DISTRICTS Farms Dairy Cows Acres Value Acres of Value Region. Visited Per Farm, of Land. Per Acre. Pasture. Acre. Bliss, N. Y. 24 15.8 180.3 $54.00 60 $32.00 Wayne and Livingston Counties 33 22 179.2 134.00 33 86.00 Monroe County 84 14.3 98.5 197.00 17 109.00 The farms located in the Bliss regions are for the most part devoted to milk production, having comparatively small sources of income outside of the income from milk. The farms in Monroe County are many of them engaged in the production of apples and other fruit as well as general farm crops and are located near enough to the City of Rochester to make it convenient to haul considerable quantities of wet brewers' 88 MILK SURVEY OF THE CITY OF ROCHESTER grains from Rochester to the farm. The differences in the cost of pro- ducing milk in these three regions are shown in Table No. 34, and in Tables Nos. 35 and 36 are shown the quantities of feed and labor per cow and per 100 pounds of milk in each of these three regions. TABLE No. 34 COMPARISON OF COSTS OF PRODUCTION BY REGIONS Wayne and Monroe Bliss. Livingston Counties. County. Number of Farms 24 33 84 Summary of Costs Per Cwt. of Milk : Depreciation on Cows $.0785 $.0715 $.0772 Interest on Cows at 6% 1806 .1247 .1135 Grain and other Concentrates 1.2054 .8919 1.1411 Succulent Feed 4143 .7295 .7040 Hay and other Dry Forage 1.0608 .5383 .5553 Total Feed except Pasture $2.6805 $2.1597 $2.4004 Interest on Feed and Supplies at 6% . .0424 .0439 .0404 Pasture 3207 .2395 .2295 Bedding 1165 .1576 .1780 Human Labor 1.5391 1.0624 1.2287 Horse Labor 1471 .0684 .1034 Use of Buildings 1589 .1207 .1503 Use of Equipment 0713 .0710 .0847 Bull Service 0907 .0367 .0241 Miscellaneous Costs 1331 .0943 .1342 Total Cost 5.5594 4.2504 4.7644 Returns except Whilesale Milk, per cwt.. .6799 .4561 .4849 Net Cost (Difference) 4.8795 3.7943 4.2795 Price received per Cwt. Milk 2.9093 3.3963 3.4157 Loss per Cwt. Milk 1.9702 .3980 .8638 Production per Cow (pounds) 4334 6053 7133 TABLE No. 35 QUANTITIES OF FEED AND LABOR PER COW Wa3me and Monroe Bliss. Livingston Counties. County. Grain and other concentrates 1,833 lbs. 1,867 lbs. 3,356 lbs. Succulent Feed 4,673 lbs. 11,949 lbs. 11,441 lbs. Hay and other Dry Forage 4,707 lbs. 3,346 lbs. 3,731 lbs. Human Labor 178 hrs. 183 hrs. 239 hrs. TABLE No. 36 QUANTITIES OF FEED AND LABOR PER 100 LBS. MILK Wayne and Monroe Bliss. Livingston Counties. County. Grain and other concentrates 42.3 lbs. 30.8 lbs. 47.0 lbs. Succulent Feed 107.8 lbs. 197.4 lbs. 160.4 lbs. Hay and other dry forage 108.6 lbs. 55.3 lbs. 52.3 lbs. Human Labor 4.10 hrs. 3.03 hrs. 3.35 hrs. MILK SURVEY OF THE CITY OF ROCHESTER 89 It has often been pointed out in the past that large producing cows produce milk more cheaply than small producing cows. It was recognized that one of the most important branches of the study of milk production should aim to bring out this difference. There- fore, all of the farms have been classified according to the volume of milk which they produced per cow each year, from less than 4,000 lbs. per cow to more than 9,000 pounds per year. Their average production, the number of farms in each group, the average number of cows per farm and the cost of production per 100 pounds and per quart of milk, are all shown in Table No. 37 : TABLE No. Z1 EFFECT OF PRODUCTION PER COW ON COST OF PRODUCTIOJST Production Per Cow No. of No. of Cows Cost of Production Group. Average Pounds. Farms. Per Farm. Per Cwt. Per Qt. 4000 or under 2841 9 17.8 $7,103 $0.1527 4001 - 5000 4674 16 18.4 4.884 .1050 .5001-6000 5446 '27 17.9 4.365 .0939 6001 - 7000 6472 39 16.3 4.024 .0865 7001 - 8000 7487 23 14.6 4.01 1 .0862 8001 - 9000 8326 15 17.3 3.715 .0799 Over 9000 9751 12 12.1 3.898 .0838 It is obvious, that as in past investigations of this kind, the small producing cows produce milk at a much greater expense than the large producing cows. Thus, in the last column, it is to be noted that farms having cows producing an average of less than 4,000 pounds per year, produce milk at a cost of more than 15 cents per quart, while farms having cows producing an average between 8,000 and 9,000 pounds a year, pro- duce milk at a cost of about 8 cents. Cows producing over 9,000 pounds per year, apparently produce milk at a slightly higher cost than cov/s be- tween 8,000 and 9,000 pounds. This irregularity is a circumstance which may be due to unusual irregularity in costs, or to the fact that there were too few farms in the last group. In Table No. 38 is shown the relation of the production per cow to the hours of human labor and to the cost of labor: TABLE No. 38 RELATION OF PRODUCTION PER COW TO LABOR Hours of Human Labor Production Per Per 100 Lbs. Rate Rate Per Cow. Cow Milk. Charged. Received. 4000 or under 170 6.0 $0,363 —$0,291. 4001 - 5000 192 4.1 .361 — .035 5001-6000 196 3.6 .347 + .085 6001 - 7000 213 Z.Z .330 + .137 7001-8000 21Z 3.1 .349 -f .152 8001-9000 221 2.6 .353 + .253 Over 9000 266 2.1 .387 + .232 90 MILK SURVEY OF THE CITY OF ROCHESTER In Table No. 38 it is to be noted that the number of hours of human labor per cow increases gradually with the increase in the volume of milk produced. This is because of the length of time required to milk large producing cows, and because the feeding and other services require more time for large producing cows than for small producing cows. The use of brewers' grains on the farms with larger producing cows required more time for the hauling of grain. On the other hand, when these hours of labor are compared with the quantity of milk produced, the opposite condition is true. It is seen from. Column No. 3 that the hours of labor per 100 pounds of milk are very much larger with small producing cows than the hours of labor per 100 pounds of milk for the large producing cows. In short, less labor is required in connection with the production of the same quantity of milk from large producing cows than small pro- ducing cows. In the last two columns it will be noticed that the rate charged for the human labor was nearly the same for all cows; but that the rate re- ceived increased from a loss of 29 cents per hour to a maximum gain of 25.3 cents. While this did not pay the cost of the labor, yet the last column shows that the increase in the volume of milk produced per cow- brought in a much larger labor income. The quantity of feed required to produce 100 pounds of milk is shown for each of the same groups of farms producing from less than 4,000 to over 9,000 pounds per cow annually, in Table No. 39 : TABLE No. 39 RELATION -OF PRODUCTION PER COW TO FEEDING Pounds of Grain Pounds Succulent Feed Pounds Dry Forage Production Per Per 100 lbs. Per Per 100 lbs. Per Per 100 lbs. Per Cow. Cow. Milk. Cow. Milk. Cow. Milk. 4000 or under 1381 48.6 5194 182.8 4738 166.8 4001 - 5000 1661 35.5 7087 151.6 4752 101.7 5001 - 6000 2023 37.1 11285 207.2 3199 58.7 6001 - 7000 2480 38.3 11263 174.0 3410 52.7 7001 - 8000 3250 43.6 10657 143.1 4074 54.7 8001 - 9000 4342 52.1 12880 154.7 3548 42.6 9001 and over 4245 43.5 12578 129.0 3874 39.7 Table No. 39 shows clearly that while the pounds of grain per cow increases with increased production, the pounds of grain per 100 pounds of milk are approximately the same. The pounds of succulent feed also increase gradually with the production per cow; but decrease per 100 pounds of milk produced. The pounds of dry forage per cow diminish with an increase in production and also to a much larger extent diminish per 100 pounds of milk. The number of cows in each of these groups and the quantity of milk produced by them as well as the percentage of the total milk sold to the City of Rochester in each group is shown in Table No. 40: MILK SURVEY OF THE CITY OF ROCHESTER 91 TABLE No. 40 PRODUCTION PER COW AND THE TOTAL MILK SUPPLY Production Number of Total Number Milk Sold Per Cent, of Per Cow. Cows in Group, of Cows. Wholesale. Total Milk Sold. 4000 or under 160 6.9% 419,182 Qts. 3.0% 4001-5000 294 12.7% 1,306,895 Qts. 9.3% • 5001 - 6000 483 20.9% 2,509,025 Qts. 17.8% 6001 - 7000 637 27.5% 3,967,796 Qts. 28.2% 7001 - 8000 336 14.5% 2,417,615 Qts. 17.2% . 8001 - 9000 259 11.2% 2,070,025 Qts. 14.7% Over 9000 145 6.3% 1,369,768 Qts. 9.7% From Table No. 40 it appears that 28.2 per cent, of all the milk supply of Rochester is furnished by cows producing between 6,000 and 7,000 pounds of milk yearly and that this is the largest group both in respect to farms and in respect to cows producing milk for Rochester. One of the influences which is a most important factor in the cost of milk production and which has not received the recognition that it deserves, is the number of cows in a dairy herd. The volume of milk produced by each cow has been given an immense amount of study by dairy colleges and dairy farmers. On the other hand, it has been com- monly assumed that cows of small production would be unprofitable, re- gardless of the number of such animals in a dairy herd. It must be recognized that the "boarder" cows, or cows producing less milk than will pay their expense, are always a loss. On the other hand, the number of cows in a herd, by increasing the volume of milk produced, reduce to a great extent the cost of the milk, correspondingly reduces the loss on such boarder cows. The effect of the number of cows on the cost of production is shown in Table No. 41 : TABLE No. 41 EFFECT OF NUMBER OF COWS ON COST OF PRODUCTION Number of Cows. Number Production Cost of Production. Group. Average. of Farms. Per Cow. Per Cwt. Per Qt. Under 10 1.1 24 6,635 $5.22 $0,112 10-14 11.9 44 6,846 4.41 .095 15 - 19 16.1 36 6,507 4.14 .089 20 - 29 22.6 27 6,080 4.20 .090 30 or over 41.6 10 5,682 3.47 .075 From the above table it appears that there were 24 dairy farms hav- ing herds averaging 7 .7 cows, and that these individual cows produced an average of 6,635 pounds per year at a cost of $5.22 per 100 pounds or 11.2 cents per quart. Contrasted with this, on 10 farms averaging 41.6 cows, producing only 5,882 pounds each, the cost of milk production was only $3.47 per 100 pounds, or 7.5 cents per quart. The effect of the number of cows on labor, buildings *and equipment cost is shown in Table No. 42 : 92 MILK SURVEY OF THE CITY OF ROCHESTER TABLE No. 42 EFFECT OF NUMBER OF COWS ON LABOR, BUILDING AND EQUIPMENT COSTS Human Labor Hours Rate Building Equipment Number Hours. Per Cwt. Rate Received Cost Cost ■ of Cows. Per Cow. Milk. Charged. Per Hour. Per Cow. Per Cow. Under 10 276 4.16 .3C8 —.067 $14.68 $5.10 10 - 14 246 3.60 .359 —.074 10.15 6.19 15 - 19 217 3.33 .362 —.139 9.70 4.60 20 - 29 194 3.19 .336 —.080 7.61 4.79 30 or over 155 2.72 .310 —.293 4.09 3.23 From Table No. 42 it is clear that the number of hours of labor per cow is greatly diminished by increasing the number of cows in a herd, thus reducing the labor cost. The number of hours of labor per 100 pounds of milk is also diminished to a marked degree with an increase in the number of cows per herd. While the receipts for labor per hour are greatly increased, the cost of buildings per cow and the cost of equip- ment per cow are greatly diminished by an increase in the number of cows. This simply means that increase in the volume of business result- ing from large herds reduces all of the costs. The number of cows contained in each of the herds of different sizes and their percentage of the total, the quantity of milk produced by the herds of different sizes and its percentage of the total, are shown in Table No. 43 : TABLE No. 43 NUMBER OF COWS AND TOTAL MILK SUPPLY Per Cent, of Number Number of Total Number Total Milk Per Cent. Total of Cows. Cows in Group. of Cows. Sold Wholesale. Wholesale Milk. Under 10 184 8% 1,130,058 lbs. 8% 10- 14.... 524 23% 3,417,332 lbs. 24% 15-19.... 579 25% 3,632,938 lbs. 26% 20-29.... 611 26% 3,581,400 lbs. 26% 30 or over 416 18% 2,298,578 lbs. 16% A review of the figures shown in Tables Nos. 37, 40 and 41 indicates that if the dairy herds averaging less than 5,000 pounds of milk per cow were eliminated, it would eliminate 12.3 per cent, of the supply and milk which now costs from 10 to 15 cents per quart to produce. If all herds with less than 10 cows were eliminated, it would remove 8 per cent, of the supply and milk now costing 11.2 cents per quart to produce. HEARINGS ON THE COST OF PRODUCTION In determining the cost of production for Rochester one branch of the investigation had to do with the securing of information from wit- nesses regarding the cost of production on dairy farms operated by them. MILK SURVEY OF THE CITY OF ROCHESTER 93 These witnesses were dairy farmers producing milk for the City of Rochester, who were selected by the local officers of the producers' or- ganization, known as the Dairymen's League. The object in permitting the Dairymen's League to select their own witnesses was in order that they might present their own case to the Survey in their own manner and from their own point of view. The possibility of their purposely choosing witnesses who would testify to costs higher than the average cost of Roch- ester producers was fully recognized. For this reason the director of the Survey was prepared to receive these costs only on the basis of the producers' own selection, with the understanding that so far as the Sur- vey was concerned its main dependence would be placed upon producers' costs secured through the Survey's own investigators. This testimony of these witnesses in so far as it referred to special cost items and the total cost of producing milk on their farms, is given in part below. This testimony is not given in full as much of it had to do with discussions not directly concerned with cost items. Portions of the testimony which are abstracted were the portions of greatest importance to the Survey. Freeman Gilmore^ produced as a witness on behalf of the Dairy- men's League, first being duly sworn, examined by Mr. Fuller, testified: O. You live where? A. I live in the Town of York. O. And what is your business? A. Farming. O. And how many cows do you keep ? A. From 45 to 50. O. And your milk is sold where ? A. In Rochester. O. And it is shipped in, is it? A. Yes, sir. O. You made some figures as to the cost of production, have you not ? A. Yes, sir. Q. How large is your farm? A. 433 acres. I might state right here that the farm is divided by a highway, and that the dairy barns are on one side by themselves, and our dwelling house and horse barns, etc., are on the other side of the road. Q. How much do the oats total? t A. $312.50. O. Cotton seed meal ? A. $61.80. Now, then there was 12,024 pounds there, $211.01, that was not bought in car load lots but at a local mill, but the price was 94 MILK SURVEY OF THE CITY OF ROCHESTER the wholesale price. And then I bought a bran substitute, 27,760 pounds at $33.00, total $459.04. Then we bought 25,700 pounds of oil meal at $51.50 and that came to $663.93. Might add we hauled the above feed, $78.00. Now, then, I fed in hay, the following: 75 tons at $18.00, $1,350.00, and there was 288 tons of ensilage, which I estimated at its feeding value, $6.00, $1,628.00; and then 30 tons of straw at $5.00, $150.00. Now then, the total hours of labor spent on the cows; one man I paid $60.00 a month and boarded him, and I put it in at $900.00. There is another man I paid $780.00, and one man milked mornings, $109.50. Now, then, I had another charge of a man, $600.00, I have had every morning to see that the milk is properly cooled and looked after. There is a rent of land for pasture purposes ; I estimate that it would take 3 acres for a cow, $15.00 an acre, makes a total of $700.00. I have aver- aged taxes on the entire farm and I figured, I think, $1.13 an acre, and that is $158.20. Q. That is charged to the cattle? A. Yes. Now, then, in the use of the dairy buildings; there is 3 silos and the dairy house, cattle barn, hay and grain barn, and an ice house, and a shed for sawdust. I estimate the value of that at $10,000.00, about 6 per cent, interest on it, $600.00, and a depreciation of 4 per cent., $400.00. The insurance on it for 3 years is $165.00 ; that makes an aver- age of $55.00 a year. I have a list here of equipment: 57 eight gallon cans; 4 five gallon cans; 8 pails, $1.25, $10.00; milk wagons, $110.00; 3 shovels, $1.75 each, $5.25; 1 shovel at $1.00; 3 brooms, etc. I put the total depreciation on that at $201.33. Q. What did you put the total value? A. $604.00. Then I had an investment in cows of 48 cows at $150.00 each, figures $7,200.00; the interest on them at 6 per cent, is $432.00 and the depreciation less the salvage is $1,152; and one bull at $150.00, and charged interest on him at $9.00; on the water supply, which consists of tile and pipe lines and derrick and wind-mill, gas engine, engine house, hydrants, etc. I estimated the cost of and placed them at $1,700.00, and the interest at $102.00; depreciation at 7 per cent., $112.00; gasoline, 55 gallons at 1554- There is a slight discrepancy on that be- cause I estimated that about 70 per cent, of the water supply went to the barn; as a matter of fact, I think 90 per cent, of that went to the cow barn; it did not alter the figures materially, but I have not seen these fi'gures until this afternoon, going over them a second time; but the water supply for the entire farm, I figured it at 70 per cent ; I think that is a low estimate. Now, under miscellaneous, there was, insurance on cows, $2,000.00, $12.00; salt, $18.00; lanterns, 6 lanterns, $7.50; hot water heater, $15.00; I figured the interest and depreciation at $4.40; 7 MILK SURVEY OF THE CITY OF ROCHESTER 95 cords wood, $56.00 ; $9.30 for cleanser powder, and fly spray, $10.00, and lime $10.50, and the cooling tank and drinking trough, $85.00, 10 per cent, $8.50; sawdust, $65.00; depreciation, $20.00; 31;^ tons of ice, $118.13; freight on ice, $45.33; hauling ice, $42.00; total, $404.94. Q. Your next item is for your windmill and tank, etc. ? A. Yes. O. And you figure your interest and depreciation on that at $160.00? A. 70 per cent, on the water supply wou^d make that $160.00. O. And that makes a total expenditure of how much ? A. $12,305.48. Q. Now, your credit on here is what ? A. 420 tons of manure at $1.00 a ton, $420.00; and 43 calves at $7.00, $301.00. Q. xA.nd you produced how many pounds of milk? A. 279,078 pounds. Q. And that is approximately 5,600 pounds per cow ? A. Approximately. O. How much do you figure your milk cost you? A. Four dollars and a fraction. Q. Around $4.30? A. Around there. Q. Have you calculated anything for your own service? A. Yes. Q. How much? A. $600.00. I figure my time is worth more than that. Q. About how much would that be an hour? A. I cannot tell you how much. O. Would it be thirty cents an hour? A. For a year? Q. Yes, on an average right straight through? A. About two dollars a day, would it not ? Q. About a ten-hour day? A. I ought to be worth two dollars a day, I think. Phelps Hopkins, produced as a witness, first being duly sworn, examined by Mr. Fuller, testified: Q. Mr. Hopkins, you reside where? A. Pittsford. Q. What is your business? A. Farmer, Q. And you have been engaged in that business all your life? A. Why, no, I lived on a farm all my life. 96 MI LK SURVEY OF THE CITY OF ROCHESTER Q. Will you describe your farm? A. 220 acres, general farming; about 35 acres of woodland; about eight acres pasture, and the rest of the farm is used in growing wheat, silage, corn, some potatoes, oats and some barley, and last year I aver- aged thirty-two cows. O. About what is the value of your farm, Mr. Hopkins, per acre? A. About $200.00. Q. And that is located how far from Rochester? A. Five miles and a half from the city line, Cobb's Hill. Q. You ship your rnilk into Rochester how? A. By trucks, automobile trucks. Q. You have kept some accounts as to the cost of the production of milk, have you ? A. Yes. O. And you have brought here in court your books showing your accounting system ? A. Yes. Q. Will you describe how you kept those accounts ? A. Yes. At the first of the year all the books start, March 15, 1918. Q. Your fiscal year ends the 15th of March. A. Yes. We take an inventory of everything on the farm at the beginning of the year, including everything on the farm, horses, cattle, equipment ; all equipment is listed in detail ; the same with individual animals; all food on hand, hay, straw, silage, are all inventoried at their either appraised value or what they are worth on the market. Q. Are you a Cornell man ? A. Yes. O. What course? A. Two years special course. O. And you may also state the method in which you keep your accounts during the year? A. Yes, I will. A separate book; two different books are used,^a ledger and labor book. The ledger is composed of different industries on the farm, such as crops and cattle and a lot of smaller industries, pumping water, etc. The labor book is composed of the same industries practically and the labor each day is written up; how much time is spent on labor, man hours and horse hours. Also, a chore sheet is kept, which is time spent on the chores. Then at the end of the next year, the books are closed once a year, labor is computed by hours, the cost per hour; the total charge against labor, including board as well as the cash and rent of tenant house, and all those things enter into it and a charge of MILK SURVEY OF THE CITY OF ROCHESTER 97 labor against it and labor is computed, cost per hour and charged to various enterprises. The same way with horse labor and then the in- ventories are balanced up and a new set of books started. That is in general the practice of the books. Q. And you start in again after the end of the fiscal year? A. Yes. O. Now, have you made for me computations in reference to the production of milk? A. I have. Q. And you say, your year begins and ends on the 15th of March? A. Yes. Q. Your computation then runs on quantities from the 15th of March, 1918, to the 15th of March, 1919? A. Yes. Q. What was your total cost? A. $8,961.51. Q. What were your total credits? A. $7,936.26. Q. And what was your net cost of milk? • A. $4.20 per hundred. Q. That was your cost? A. That is not last year's figures ; those are present prices. Q. I mean, present prices, what was it? ■ " A. $4.20. Q. How many pounds of milk did you produce? A. 188,960. ; IX COST OF COUNTRY HAULING Each day a large amount of labor on the part of dairy farmers and horses is expended in hauling milk from the farms to the point of ship- ment. For the purpose of securing information as to the number of men and horses employed in this work, and the points from which milk is shipped, a form of questionnaire was prepared and mailed to all of the 778 dairy farms producing milk for Rochester. Replies were received by mail from 276 producers, from which the following information was obtained : Number of producers 276 Producers' own wagon to railroad platform 163 Producers' own wagon to Rochester 10 By truck with other farmers to railroad platform 6 By truck with other farmers to Rochester 64 By dealers' truck to Rochester 13 Shipping to Rochester by rail 119 Shipping to Rochester by trolley 68 Amount of milk produced daily 35,565 Qts. Amount of milk received from producers' own wagon to railroad plat- form 22,799 " Amount of milk received by producers' own wagon to Rochester 1,492 " Amount of milk received by truck with other producers to railroad platform 767 " Amount of milk received by truck with other producers to Rochester. . 7,313 " Amount of milk received by dealers' trucks to Rochester 1,630 Arriount of milk received by railroad to Rochester > 17,420 " Amount of milk received by trolley to Rochester 7,710 " Amount' of milk delivered by producers living on trolley line (18 men) 1,564 Although all of the 778 producers did not reply to the questionnaire, the replies received from 276 of them were from every dairy district, and it is believed that these replies were sufficient in number and suffi- ciently well distributed to furnish a fair estimate as to the labor per- formed in the handling of milk from the dairy farms to the point of ship- ment. It will be noted from the table that 163 producers hauled milk in their own wagons to the railroad platform, either the steam railroad or the trolley railroad, while 10 producers hauled milk from their farms directly into the City of Rochester, and 6 producers hauled milk to the railroad platform with other farmers. The number of trucks hauling milk to Rochester owned by farmers or owned by dealers was not ob- tained. It is therefore not possible to form an estimate as to whether these trucks were fully loaded, or whether they represented less than a full load. If we give attention especially to the hauling of milk on the country end of the line by the farmers themselves from the reports of the inspectors, it is estimated that the average distance traveled by each farmer is 2 miles, and that the length of time required for taking milk out of his milk house, loading it onto his wagon, hitching up his horse. MILK SURVEY OF THE CITY OF ROCHESTER 99 driving to the shipping point, delivering his milk, securing his empty- cans, returning to the farm and unhitching his horse, is a total of IJ/2 •hours. This estimate would apply to the 163 farmers hauling milk in their own wagons to the railroad platform. It would also apply to the . 10 farmers hauling milk directly to Rochester, if we eliminate the length of time spent in hauling milk within the city limits. It is fair to assume of the 6 farmers hauling milk jointly not more than 3 wagons would be employed, and therefore only 3 of these farmers would be engaged at one time. This would make a total of 176 farmers out of the 276 from whom reports were received who were engaged daily in hauling milk from their farms to the shipping point. The value of labor per man hour is estimated at $ .349, and horse labor $ .194, which are the average rates on the 141 farms on which cost of production records were obtained. This makes $ .543 per hour for 1 man and 1 horse. For ly^ hours the cost is $ .814. If we multiply this by 176 farmers, the daily cost is $143.26 under the present system of hauling. If we assume that the same proportion of farmers are hauling milk in the entire list as in the list reporting, it would mean that, out of the total 778 farmers, there are 496 who haul their own milk, and if we apply the same costs, the daily cost is $403.74. It is recognized that from a business standpoint the most economical system of hauling is a co-operative system. Under this arrangement large trucks travel on the main roads capable of carrying not less than 30 cans each, and some of them carry much larger loads than this. The dairy farmers living on side roads, or whose houses are located on lane- ways back from the main road, find it necessary to hitch up a horse and carry the milk by wagon to the main road. The farmers living directly on the main road may carry their cans by hand to the platform. Such a system as this has been adopted on a large scale by many dairy districts. It is estimated that a fair allowance for the average time required to take milk out of the milk house and carry it to the main road and re- turn with empty cans would be one-half hour to each farmer. If we use the same cost for man and horse, this would amount to $ .271 per half hour. Applying this to the 176 farmers reported as hauling milk wotild make their daily costs for carrying milk from the milk house to the main road, $47.75. Applying the same figure to the total number of farmers estimated hauling, which is 496, would make the daily cost of carrying milk to the main road $134.56. The cost of trucking on the main road in the dairy districts where this is performed is charged for at the rate of %c per quart of milk. . Applying this charge to the milk handled by the 176 farmers reporting would make the daily cost of trucking on the main road $62.64. If we 100 MILK SURVEY OF THE CITY OF ROCHESTER assume that the same proportion of milk was carried by the 496 farmers estimated as hauling, the daily cost of trucking on the main road for their milk would be $176.53. This would make the total cost under a co-operative system for the 276 farmers reporting $110.39, and for the 496 estimated as hauling, $311.09, showing a total daily saving over the present individual system for the 176 farmers reporting of $32.87, or $11,997.55 yearly. The savings under the trucking system for the 496 farmers estimated as hauling would be daily $92.65, or yearly $33,817.25. It is recognized that these figures are only estimates and therefore not necessarily a close statement of what actually could be done under the co-operative system. It is also recognized that the geography of the dairy districts will determine to a large extent whether a co-operative trucking system on main roads can be installed to advantage. It is a fact, however, that in every dairy district there are main roads reaching from the remotest farm to the point of shipment, and there are but few of them where it would not be possible for a wagon starting from the re- motest point to pick up milk from side roads and from lane-ways so that by the time it reached the shipping point it would be carrying a full load. On the return journey this same wagon can leave at the entrance of the side roads and lane-ways the empty cans which it received from the shipping point. Every investigation made of the business of country hauling has shown that in most dairy districts there are excessive numbers of wagons and horses being used by the dairy farmers for this purpose, the cost of which must be charged by them in the price demanded for milk. Here seems to be one of the branches of the producers' business which would lend itself to a decided economy if, through a local committee, the terri- tory could be districted and a trucking system established which would provide for full loads rather than the small number of cans now carried per wagon. The milk produced by the 176 farmers hauling their own milk was 25,058 quarts, or about 143 quarts per farm, which is 3}4 40-quart cans, or 4% 32-quart cans, so that these farmers were actually carrying be- tween 3 and 4 cans each. The average 2-horse farmers' wagon can carry at least 30 cans, while trucks adapted for the purpose can carry between 40 and 50 cans; consequently, instead of the 176 farmers daily hauling milk to the shipping point, the same milk could be hauled in less than 20 trucks. If we assume the milk produced by the 496 farmers estimated as hauling from the entire producing territory is in the sam^ proportion, instead of 496 wagons and horses and men the same milk, could be hauled on less than 56 trucks. MILK SURVEY OF THE CITY OF ROCHESTER 101 TABLE No. 44 Farmers Total Reporting. Farmers. 276 778 Hauling own milk 176 496 Present cost $143.26 $403.74 Cost to main road 47.75 134.56 Trucking on main road 62.64 176.53 Total estimated cost $110.39 $311.09 Total daily saving $32.87 $92.65 Total yearly saving $11,997.55 $33,817.25 X DEALERS' DISTRIBUTION COSTS The center of the milk problem in all cities is considered to be the cost of milk distribution. While there are some economies which could be secured through better business methods in the production of milk by the dairy farmer, it is well recognized that these are difficult to estab- lish and would require a considerable number of years. On the other hand, the inhabitants of every large city and the public officials are carrying on their agitation on the high cost of milk, prin- cipally with the thought in mind that the cost of distribution is excessive and that through some reorganization in the industry, or perhaps through municipal control or ownership, these costs can be greatly reduced. In approaching this problem in this survey, a new method of in- vestigation was planned. In all previous surveys the main dependence for the investigators into the cost of milk distribution has been the work of expert cost accountants who have devoted the greater part of their time to the examination of the dealers' books and the checking up of vouchers with book entries to determine whether these entries were cor- rect or not. The reports handed in as a result of the work of the expert account- ants have, in every survey where this work has been done, presented to the investigators only a financial statement which the books themselves contained. Such financial statements are unsatisfactory in two respects. In the first place, the methods of bookkeeping in the milk industry have never been standardized. Consequently the financial statements taken from dealers' books rarely correspond. For this reason, even though the financial statements may be correct, it is impossible to make accurate comparison of cost items between one milk company and another milk company. The second and more serious cause for dissatisfaction with such figures is that they in no way reveal to the investigators what are the reasons or causes for these expenses, or whether the expenses are justi- fied. Consequently, in all surveys whose main dependence has. been placed on the work of auditors, it has been impossible for the directors of such surveys to draw conclusions or to make recommendations based on any accurate knowledge of expense items, or to state whether such expense items are justified or whether they could be reduced. In order to overcome these difficulties in this Survey, a new plan was inaugurated which consisted in a study of the conduct of the busi- ness itself outside of the dealers' books. These studies were made by MILK SURVEY OF THE CITY OF ROCHESTER 103 inspectors in the employ of the Survey, who personally visited all of the large milk companies in the City of Rochester and a considerable number of the small dealers and, by personal observation of the work performed in these milk plants, took notes of each operation, the number of em- ployees, the time occupied and the cost of performing every branch of the business. The dealers' books were not neglected, as expert accountants were employed to take a statement from the dealers' books, chiefly for the reason that the factory charges or expenses outside of labor charges could not be obtained by inspection. The expert accountants employed by the survey were unable to find in the City of Rochester, however, more than four dealers who kept books in such a manner that the accounts could be relied upon. They visited 15 of the small milk dealers but were unable to secure figures from them which were sufficiently reliable to justify a report. The new plan pursued in this survey consisted, in short, of making a careful study of the conduct of the business itself as the main depend- ence, rather than to place dependence upon an examination of the dealers' books. In making these inspections of the milk factories, it was necessary to standardize the work by drawing up report blanks which could be used by each inspector so that the reports handed in would be uniform and also comprehensive. The points observed in connection with the con- duct of the business included : (1) The total units of operation, such for example as the quantity of milk received, the quantity of milk bottled, the number of bottles washed, the riumber'of cans washed, etc. (2) The number of persons employed in each operation. (3) The total number of hours of labor. (4) The wage rate per man hour. (5) The total cost of the operation. (6) The unit cost of the operation, for example, the cost per quart for milk received, the cost per bottle for bottles washed, the cost per can of cans washed. There were more than 36 different operations examined in this way in these different milk factories. In addition to the examination of the milk business of the dealers of Rochester in this manner, similar examinations were made of the largest milk business in the City of Ottawa, Canada ; of the largest busi- ness in the City of Philadelphia, Pa., and of the largest milk companies in the Cit}^ of Baltimore. 104 MILK SURVEY OF THE CITY OF ROCHESTER The l-easons for the conducting of these examinations in these other cities were because it would be of great value in judging of the efficiency of the work in Rochetser to be able to make comparisons between the total costs and the individual cost items in Rochester and similar cost items of other cities, and also because in the cities of Ottawa and Phil- adelphia economies have been instituted which might point the way toward the adoption of similar economies in Rochester. In assembling all of the facts and figures accumulated by the in- spectors and the cost accountants, it is recognized that the tabulation of these results could be drawn up in a number of different ways. The chief object which must be kept in mind in putting together these figures is the total cost for the City of Rochester. This means that the milk business of the City of Rochester must be looked upon as a unit. The inhabitants of the city are not particularly interested in the business of any individual dealer but in the business of the city as a whole. There- fore, the object of the tabulations which have been made has been to get together under a single head all of the different cost items for all of the dealers in the city so that a single simple statement can be made showing what the total milk supply for the entire city costs and what each of the different branches of expense connected with this supply costs. In order to accomplish this, the figures must be assembled first for the individual dealers. This was done on a series of cards or report blanks on file in the office of the survey. It has not been thought neces- sary to present the individual costs of each individual dealer separately. In order, however, to secure an accurate statement for the entire city, it has been necessary that the costs of each dealer should be set down in some form and the best method seemed to be to divide the dealers into three groups for this purpose: the first group being dealers handling 500 quarts of milk or less ; the second group dealers handling from 501 to 1,000 quarts; and the third group dealers handling over 1,000 quarts. Before presenting these tabulations one other consideration is de- sirable. The cost of labor naturally belongs in a separate division from the cost of supplies and other plant expenses. Labor, being the human element in the business, lends itself to reorganization and business effi- ciency more easily than the purchase of supplies or other plant charges. Consequently, in this work, labor is separately considered and the payroll and salaries have all been studied from the standpoint of the labor per- formed as a separate problem. In Table No. 45 are presented the labor costs for the first group of milk dealers, handling 500 quarts or less. MILK SURVEY OF THE CITY OF ROCHESTER 105 — ' (M LO r^ ON ro • vq LO 00 (~o CM .-H f\i LO i_o LO vQ c\i CD CNJ ro ^ ■sjnoq UH]^ t^LO'0'-'~!fONOLOLOLO • O CO O oo_r^ t>" " oj (\i vd on'K lo CO nO GO CNJ >— I ■ CJN 00 ■ LO 0\ •U3UI J3qiun|y[ OnCMloOOOOlOloO"^ • CO ON ^H r-^ (^ vo • r— I LO r^ n ■— I •SS3J JO -sjboOS ^"I -AT333J sjajHap JOJ j^joAV JO s;iun jBioj^ OOlonOvOO'^^hOjW^oltiCnioOO O'+OvjO.— i^loloO^J^t— 'roo'^<^ O nO O O_00 <^^On -^ CO ,— , t-h_ -i- ^h lo rf " ^^ ^^ 00" ^ O" ON t^ r '^' '-^ no" On" cm" lH' .-T m CM CMCM CM r-H,— ,_, ai u (j{jOA\ JO ;ran J3j) ISOD JTUQ CN] C3N CO CO 00 CO ro "^ '^ COOlOOCnOnI^'tJ-lO oroo<:oN(xiONTj-oo r^-— iontcooooo-i-lo oovioocoO'-'foON OOC^lCSOOOroQ ooooooooo ■ ON On .— < ON On O • n ro 10 On lO) (XI O CO "+ nO ro O LO LO 00 Og ,— I LO O O O O O Q O O O O O o ■ mo 00 (M nOCNJ 00 1S03 joqBj Xjrep i-e;ox unoq J3d 3;b^ "sjnoq UBj/\[ •U3UJ JO jaquinjsj ■>{jOAV JO s;iuQ O -^ ^ O)/^ CO ^ O CM •or^CM'-^^LO -OvO 0\_^t^ lo_^-^_^On_lo_o NO <^__ NO^Tt O ^_^CM t^ ^^t^ NiDro rCod'trT-^'o" ^p '-''o'rNi'io'cNf o'r-T c s co^ 13' 106 MILK SURVEY OF THE CITY OF ROCHESTER In Table No. 45 attention is called especially to column No. 6, in which are set down the unit costs for each item of expense; thus, for example, in this list it costs 2.1 mills to wash a bottle; 2 cents to wash a can, 3 mills to pasteurize and cool milk, 3 cents to fill a can, etc. In the last part of the tabulation are given the totals for the entire group and also a statement of the cost for each class of milk, including retail bottled milk, wholesale bottled milk and wholesale canned milk. 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R. to Plant. 25.52 .0009114 1 10.92 .0006920 24.901.0006504 61.34 .0007473 Stable 35.85 .0012625 15.37 .0005489 6.29 .0002246 9.75 .0006178 5.04 .0003193 9.281.0005880 1 35.541.0009283 1 9.851.0002573 . 26.541.0006933 81.14 30.26 42.11 .0009886 Garage .0003686 Engine Room . . . .0005130 Refrig'tion Plant 2.13 .0000760 1 3.271.0002072 1 8.161.0002131 13.56 .0001652 Plant Protection 1 1 4.171.0001089 4.17 .0000508 Office Force . . . . 29.80 .0010642 14.52 .0009201 1 71.471.0018740 115.79 .0014107 Collectors 90.18 .0032201 34.541.0021878 1 57.611.0015047 182.33 .0022215 Superintendence. 1 49.381.0012899 49.38 .0006016 Miscellaneous . . . 3.66 .0002319 1 21.221.0005543 24.88 .0003031 Canvassers 1 1 24.45 .0006387 24.45 .0002978 Administration . . 1 116.64.0030470 116.64 .0014211 Total |$670.97 I.023943C |$318.14 .020159? |$1039.40|. 0271584 $2029.51 .0247145 In Table No. 51 it appears that the total labor costs in dollars for group No. 1 is $670.97 and that the cost per quart for handling and delivering milk by group No. 1 is .0239. Group No. 2 dealers, handling from 501 to 1,000 quarts, have a daily payroll of $318.14 and the cost per quart for milk handling is .0201, which is less than the cost in the previous group. On the other hand group No. 3, which includes dealers handling more than 1,000 quarts daily, has a daily payroll of $1,035.93, and a cost per quart for milk handling of .0270. This is the highest cost of all. It must be remembered, however, that this group, with one ex- MILK SURVEY OF THE CITY OF ROCHESTER 117 ception, are dealers who operate pasteurizers and therefore have more expensive machinery and also a larger daily payroll. In the last two columns of this tabulation appear the total labor costs for the entire city based on the volume of milk received daily. POSSIBLE REDUCTIONS IN LABOR COSTS Each of the operations performed in connection with milk handling by the dealer has been treated by this survey as a separate enterprise. Independently of the methods of bookkeeping by the milk companies, the inspectors employed have visited the plants of the large milk dealers and taken careful notes concerning the different operations performed, the number of men employed, the volume of work performed by them, and the cost, basing this cost on the wages of the men and the number of hours they work. This has made it possible to express the work per- formed in "man hours" and the wages in dollars per man hour. These methods have been used for 54 out of the 136 milk companies in Roch- ester. In these 54 were included all of the large companies and a suffi- cient number of the small companies to furnish information which would fairly represent the costs of the labor performed by all of the small companies. From the information obtained in this way the cost of each of the operations performed has been figured separately from the other opera- tions, and the total cost for the entire City of Rochester obtained. The cost of the same list of operations has been obtained in the same way from milk companies in the cities of Baltimore, Philadelphia, and Ottawa, Can. The costs from these other cities are compared with the costs for the City of Rochester as the best means of determining whether Roch- ester costs are lower, higher, or the same as those in other cities. Each of the different milk operations is separately discussed in the following paragraphs and tabulations : MILK RECEIVING At the time the figures were obtained in the month of August the average quantity of milk received by the City of Rochester daily was 82,075 quarts. From the reports obtained by the inspectors 173 men are employed in this work for a period of 113.9 hours, which is at the rate of 721 quarts per man hour at a cost of .000611 per quart, and a yearly cost of $18,315.70. In the same way, the figures, for all of the other com- panies in all of the cities visited were obtained. A comparison of these figures is shown in Table No. 52. 118 MILK SURVEY OF THE CITY OF ROCHESTER TABLE NO. 52 MILK RECEIVING Number of Company. ^ > 1-1 'S a u 3 (U <-H in O o o u n (u O cr i- ji; It Oh O a u ^ 1 2 3 4 5 6 7-R, Av. 20,417 23 32 16,056 13 22.5 4,346 5 10.5 64,800 5 48 9,000 7 7 8,000 6 5.5 82,075 182 130.5 43,070 7 14.25 638 713.6 413.9 1,350 1,285.7 1,454.5 629.0 3,022.4 Present Rochester cost Rochester cost under centralized system Saving under centralized system . . . .000428 .000427 .000628 .000286 .000271 .000280 .000680 .000125 .000680 .000213 Yearly Cost $20,359.70 6,395.90 .000467 $13,963.80 From Table No. 55 it appears that the present Rochester costs are .000680 per quart, or a daily cost of $20,359.70. An inspection of the number of quarts per man hour for which the apparatus is washed in these different companies shows four companies with over 1,200 quarts per man hour, and one of these with over 3,000 quarts per man hour. If we assume that 2,000 quarts per man hour is a fair estimate for effective washing of apparatus, this would be only % of the efficiency of the best company, and but 40% more than the efficiency of 2 others in the list. If we apply the Rochester wage scale for apparatus washing of .427 to 2,000 quarts per man hour, the cost per quart for washing apparatus under a centralized system would be .000213, and a yearly cost for the entire Rochester milk supply of $6,395.90. This would effect a saving of .000467 per quart, and $13,963.80 per year. PASTEURIZING AND COOLING The figures for pasteurizing and cooling for Rochester must be divided into two parts, for the reason that while many of the large dealers operate both pasteurizing machines and milk coolers, the majority of small dealers do not operate pasteurizers, but only operate a cooling ap- paratus, consequently in presenting these figures we have listed separately the figures for those dealers who operate both pasteurizers and coolers and those who operate only coolers. The volume of milk which is pas- teurized and cooled was 47,373 quarts daily, and by these dealers there were employed 37 men for 79.7 man hours who pasteurized and cooled milk at the rate of 594.4 quarts per hour at a cost of .000841 per quart. 122 MILK SURVEY OF THE CITY OF ROCHESTER The dealers who were cooHng milk only did not all of them report cool- ing charges. The number reporting cooling charges were handling 33,266 quarts with 118 men employed for a total of 64.3 man hours at the rate of 517 quarts per man hour, at a cost per quart of .000790. These figures are tabulated in Table No. 56. TABLE NO. 56 PASTEURIZING AND COOLING Number of Company. rt N C 3 'a 5S 1 .. 2 .. 3 .. 4 .., 5 .. 6 .. 7-R, *7-R, Av. Av. 20,417 16,056 4,346 64,800 9,000 8,000 47,373 33,266 43,070 '->-' in O o ^ ^^ o O p 2 10 2 14 2 10 1 10 1 5 1 3.66 37 79.7 118 64.3 3 11.5 2,041.7 1,146.8 434.6 6,480 1,800 2,185.8 594.4 517 3,745.2 Present Rochester Costs, for companies bottling, pas- teurizing and cooling •Present Rochester costs, for companies cooling only Total present Rochester costs Rochester costs under centralized system Savings under centralized system (*Cooling charge where no pasteurizing is done.) .000199 .000323 .000675 .000059 .000203 .000195 .000841 .000790 .000096 .000841 .000790 .000091 .000750 Yearly Cost $14541.60 9,595.85 $24,137.45 2,723.40 $21,414.05 If we apply these figures to the volume of milk mentioned at the Rochester rate of .50 per man hour, the present cost for companies both pasteurizing and cooling amounts to $14,541.60 per year, and for the companies cooling only $9,595.85 per year, or a total of $24,137.45 per year for the quantity of milk reported. Under a centralized system milk can be pasteurized by large sized machinery. The manufacturing com- panies many of them build machines capable of pasteurizing 12,000 lbs. of milk per hour, which is at the rate of more than 5,500 quarts per hour. It will be noted in the table that one large company handling 64,800 quarts daily pasteurizes at the rate of 6,480 quarts per hour. Assuming under a centralized system that Rochester could pasteurize milk with ap- paratus which would handle 5,500 quarts per hour the cost would be .000091 per quart, or $2,723.40 per year. In presenting these figures it is necessary to bear in mind that in the tabulation above only 47,373 quarts MILK SURVEY OF THE CITY OF ROCHESTER 123 were pasteurized out of a total of 82,075 quarts received by the City of Rochester at the time these figures were obtained. This is 57% of the entire Rochester supply, therefore the costs for pasteurizing milk are costs representing the pasteurization of only 57%, and would be much larger annually if all of the milk of Rochester were pasteurized by the present system. In presenting figures for the centralized system we are assuming that the entire Rochester supply of 82,075 quarts is pasteurized by modern apparatus. The saving per quart under the methods used in the centralized sys- tem as compared with the present Rochester methods of pasteurizing is .000750. The annual saving by the adoption of the centralized method over the present costs for milk which is both pasteurized and cooled and for the milk which is cooled only is $21,404.05. If a pasteurizing ordi- nance were put in force in Rochester without any effort to centralize the business, and the same pasteurizing costs which exist at present were ap- plied to the entire supply the total cost for pasteurizing under present conditions by the present methods would be $25,192.00 yearly. BOTTLING AND CAPPING The figures presented for bottling and capping include all of the Rochester milk companies which are bottling milk, both in quart bottles and in pint bottles. The total number of bottles which are filled daily, both quarts and pints, is 83,503. For this work there are employed in Rochester 224 persons for a period of 286.9 hours, who bottle and cap bottles at the rate of 291 per hour at a cost of .001351 per bottle, or $41,182.95 yearly. A comparison of these figures with the figures ob- tained from other companies is shown in Table No. 57. TABLE NO. 57 BOTTLING AND CAPPING Number of Company. u ^ Tr^ O »o -C OT.S "SS r° B H ^ u- 1 2 3 4 5 6 7-R, Av. 15,229 13,540 4,650 90,000 7,690 8,320 83,503 46,034 13 10 4 21 6 4 224 6 Present Rochester costs Rochester Costs imder centralized system 75 203 53 255.4 12 387.5 192 375 24 3204 12.5 665.6 286.9 291 56.5 814.7 vstem n .001430 .001184 .000701 .000799 .001089 .000585 .001351 .000438 .001351 .000561 Yearly Cost $41,182.95 17,111.55 Savings under centralized system 0007901 $24,071.40 124 MILK SURVEY OF THE CITY OF ROCHESTER It will be noted in the column entitled "Bottles per Man Hour," in Table No. 57, that the number of bottles filled and capped in Rochester is considerably lower than the number for 5 of the milk companies in the list. ,By the use of a proper type of machinery and proper arrangement for bringing bottles to the machine and taking them away, the work can be done most rapidly and efficiently. By such methods it will be noted that one company fills and caps bottles at the rate of 814.7 per man hour and another at the rate of 665.6 per man hour. If we assume that a fair estimate for Rochester would be 700 bottles per man hour, the cost of capping and bottling' would be .000561 per bottle, or $17,111.55 per year. This would mean a saving on the cost of each bottle of .000790, and a yearly saving of $24,071.40. CAN FILLING The figures obtained from the companies given in Table No. 58 on can filling are incomplete. Complete figures were secured from only 4 companies in addition to the average for the City of Rochester. The total number of cans filled in the City of Rochester each day is 638. In this work there are 17 men employed for a total period of 20.8 hours at the rate of 31 cans per man hour, and at a cost of .012978 per can, and a yearly cost of $3,022.20. TABLE NO. 58 CAN FILLING Number of Company. 1_ c« o <" c5 03 o 1-.' c/) c 6^ Cost per can. 1 215 93 638 121 sts . 1 1 1 2 17 1 2 4 5 2 20.8 3 43 46 31 40 .005725 .007505 .012978 .010578 .012978 .008844 2 3 ................... 4 5 7-R, Av 8 Present Rochester co Yearly Cost $3,022.20 Rochester costs under Savings under cer centralized sy stem . . 1 2,059.61 tralized systen .004134 $ 962.59 If we assume that cans can be filled at the rate of 45 per man hour, and use the Rochester wage scale of .398, under a centralized system the cost of filling 1 can would be .008844, which gives an annual cost of $2,059.61. This shows a saving in the filling of 1 can of .004134, and an annual saving of $962.59. MILK SURVEY OF THE CITY OF ROCHESTER 125 DRIVING RETAIL ROUTES AND WHOLESALE ROUTES Much difficulty is always encountered in drawing up a statement of the cost of milk delivery, for the reason that some milk companies con- duct a business almost wholly composed of retail milk, others a business in which both retail and wholesale trade are factors, and others a busi- ness which is practicaly limited to the wholesale trade. In the matter of delivery wagons, some companies divide their business so that retail milk is carried entirely by retail wagons, while wholesale milk is carried by wholesale wagons. Other companies, on the other hand, carry all classes of milk on the same wagons and conduct what is called a mixed delivery system. In order to arrive at a fair estimate of the cost of milk delivery, therefore, it is necessary to take into consideration these differ- ent methods of delivery. Some of the companies which are delivering milk at the lowest cost use the mixed delivery system, carrying all classes of milk on the same wagons. In the City of Rochester the milk com- panies represent all of the types of delivery above mentioned. A comparison of the cost of delivery in Rochester with the cost of delivery by the other companies in the list is shown in Table No. 59. 126 MILK SURVEY OF THE CITY OF ROCHESTER TABLE No. 59 DRIVING RETAIL AND WHOLESALE ROUTES Number of Company. o ^^ 1-. .-I a ^ C a a !a L) L Retail Wholesale . . . Total 2. Retail Wholesale . . . Total 3. Retail Wholesale . . . Total 4. Retail Wholesale . . . Total 5. Retail Wholesale . . . Total 6. Retail Wholesale . . . Total '-R, Av. Retail Wholesale. .. Total 8. Retail Wholesale . . . Total 16,780 3,637 20,417 15,176 880 16,056 4,346 4,346 59,000 6,800 65,800 5,066 3,292 8,358 5,303 1,052 57,305 20,274 77,579 49 3 52 55 1 56 15 15 148 2 ISO 15 4| 19 26 2 28 304 179 25,2091 64 12,850] 38,059 1 445 18 463 495 2 497 157 157 2,528 20 2,548 97.5 24 121.5 208 16 .224 1,544.5 224.5 1,769 512 44.1 32.3 27.6 25.8 68.8 28.4 37.0 90.0 43.8 74.3 342.4 1,212.3 392.6 275.9 880 286.7 289.7 289.7 391.9 3,400 432 823 439.8 203.9 526.0 226.9 279 393.9 200.7 594.6 Present Rochester costs Rochester costs txnder centralized system. Savings under centralized system .013437 .018646 .015706 .015988 .011111 .01891 .012434 .005003 .010493 .007789 .002528 .005627 .010493 .006571 .003922 Yearly Costs $297,117.30 186,078.53 $111,038.77 In Table No. 59 is a statement of the number of quarts delivered per man hour, and also the number of quarts delivered per wagon. An inspection of the number of quarts per man hour shows that company- No. 8 handles 74.3 quarts per man hour with a trade consisting of about two-thirds retail and one-third wholesale business; and company No. 5 handles 68.8 quarts per hour with a business consisting of about two- thirds retail and one-third wholesale. It will be noted that the business for the City of Rochester, which is No. 7 in the list, consists of 57,305 quarts retail, and 20,274 quarts wholesale, a proportion which is not far from the proportion of retail to wholesale business above mentioned. MILK SURVEY OF THE CITY OF ROCHESTER 127 The number of vehicles used in milk delivery for both wholesale and retail trade in the City of Rochester is 207 wagons and 71 automobiles, or a total of 278. The reports indicate that 304 men are employed in the retail delivery and 179 in the wholesale delivery. The figure 179, how- • ever, includes a number of the men who are also working on the retail delivery. The total number of man hours consumed for Rochester is 1,769, and the rate of delivery both wholesale and retail is 43.8 quarts per man hour, and 279 quarts per wagon for all classes of trade. It will be noted that company No. 8 in the list delivers milk at the rate of 594.6 quarts per wagon ; company No. 5 at the rate of 439.8 ; com- pany No. 4 at the rate of 432; and company No. 1 at the rate of 392.6. A review of the volume of milk carried on the wagons of the com- panies in the list, and of the opportunities for efficiency under a cen- tralized system justifies the belief that the number of quarts per wagon delivered by the company showing the highest degree of efficiency, which is 594.6 quarts, could be approached under a centralized delivery system. The more correct method of measurement, however, is the number of quarts delivered per man hour. It will be noted that company No. 8 delivers 74.3 quarts per man h6ur, while company No. 5 delivers 68.8 quarts per man hour. We will therefore assume that under a centralized system as much as 70 quarts per man hour could be delivered. Using the average wage scale for the Cit}^ of Rochester for milk delivery of .46 per man hour gives a cost per quart of .006571, and an annual cost under a centralized system for the labor of milk delivery of $186,078.53. These figures show a total saving under a centralized system for each quart of milk of .003922, and a total annual saving on the entire supply of the city of $111,038.77. It must be remembered that these figures do not include the entire cost of milk delivery or the entire savings that can be effected on milk delivery under a centralized system. The figures here presented refer only to the pay roll or salaries of the milk drivers, and not to any other item of expense connected with the cost of distribution. Other such items, for example, as the cost of feeding horses, stable charges, the cost of wagons, depreciation, the cost of harness and other stable and wagon supplies, the cost of ice, etc., are all expenses belonging to the cost of milk delivery. These items will be discussed later on. The saving of $111,038.77 is a saving strictly limited to the pay roll, or salaries of milk drivers. If 70 quarts per man hour is a fair estimate of the number of quarts delivered, and each driver is employed for an 8-hour day, this would mean a total delivery for each man of 560 quarts daily. F'or the entire amount of milk sold in the City of Rochester at the time these figures 128 MILK SURVEY OF THE CITY OF ROCHESTER were taken, amounting to 77,579 quarts, a wagon delivery of 560 quarts per wagon would require only 139 wagons, instead of 278 now employed. This would be a saving of 139 wagons, and would mean therefore a re- duction of the present number of wagons by one-half. In the experiment in milk delivery conducted under the direction of Dr. John R. Williams in 1911, he concluded that one truck drawn by two horses and manned by three men could deliver an average of 3,200 quarts of milk in one working day of eight hours. This was at the rate of 400 quarts per hour for 3 men, or 133 quarts per man hour. In some cities where the distributing business is in the hands of companies having almost a monopoly, the use of two horses on a wagon and two men has greatly increased the number of quarts delivered per man hour. Under a cen- tralized system where the business of milk delivery was in the hands of one company it seems fair to believe that in many sections of the city larger delivery wagons than the ong-horse wagons now used could be used to advantage, drawn by two horses and operated by two or more men, with an increased volume of milk per man hour. The figures given above in our estimate are based on actual business conditions as at present existing in some cities. HAULING FROM RAILROAD PLATFORM TO MILK PLANT Many milk factories are so located in the city that they are some distance from the railroad terminals at which milk is received, conse- quently it becomes necessary to employ trucks for carting milk from the railroad platform to the milk factory. Considerable expense attaches it- self to the labor of loading and unloading these trucks, even though the actual distance traveled between the railroad and the milk plant is short. The variation in the distance and in the time consumed makes accurate comparisons of costs impossible. It is of value, however, to compare the cost of this work among the different companies in our list, for the reason that some economies can be secured through the trucking of milk under a centralized system, as com- pared with trucking the same milk under a competitive system. The comparisons of this work as performed by the different companies are shown in the Table No. 60. MILK SURVEY OF THE CITY OF ROCHESTER 129 TABLE No. 60 HAULING FROM RAILROAD PLATFORM TO MILK PLANT Number of Company. CJ IS a U O c a . a 1 20,417 16,056 4,346 65,800 6,343 2,740 54,072 43,070 3 6 2 7 2 1 93 9 20 37 10.5 66.0 6.00 3.00 138.8 81.00 1,021 434 414 997 1,057 913 390 532 .000323 .000789 .000702 .000397 .000751 .000475 .001134 .000754 .001134 .000442 2 3 4 5 6 7-R, Av 8 Present Rochester cost Yearly Cost 22,389.10 Rochester cost under ce ntralized syst em 8,723.44 Saving under centraHze d systen 1. . . . .000692 $13,665.66 111 Table No. 60 it appears that 54,072 quarts of the milk received by the City of Rochester arrives by rail and is carried in trucks, handled by 93 employees working 138.8 man hours, at the rate of 390 quarts per man hour, and at a cost of .001134 per quart. This means that the annual cost of trucking for the City of Rochester under present conditions is $22,389.10. This represents the milk hauled from the railroad to the numerous plants in the city which obtained their milk in this way. Under the present system not only is this milk hauled from the railroad in the trucks of the large dealers, but in the wagons of the numerous small dealers who obtained their milk from the railroad. A study of the number of quarts per man hour in the above table shows that two companies handle more than 1,000 quarts per man hour, and two other companies between 900 and 1,000. One thousand quarts of milk means only 25 40-quart cans, or 31 32-quart cans. This is not a very heavy load for a medium size truck, and it seems reasonable to believe that under a well organized trucking system one man could handle at least 25 40-quart cans, or 31 32-quart cans per hour, from the rail- road to the milk plant. On this assumption, using the average wage scale for drivers performing this work in the City of Rochester of .442 per hotir, the cost per quart under a centralized system would be .000442, and the annual cost $8,723.44. This would mean a saving per quart of .000692, and an annual saving of $13,665.66. 130 MILK SURVEY OF THE CITY OF ROCHESTER STABLE AND GARAGE Some of the companies in the Hst deliver milk only by the use of horses, others use automobiles to some extent. The labor in caring for horses and in caring for the automobiles used has been combined for all companies in Table No. 61. TABLE No. 61 STABLE AND GARAGE Number of Company. O a ^^ CL) o >> u O 6 ' go u 1 20,417 16,056 4,346 65,800 43,070 4 4 4 5.5 2 44 18 .000127 .000234 .000157 .000275 .000199 .00000 .000081 2 3 4 5 6 7-R, Av 8 Present Rochester cost . . . . Yearly Cost .00000 Cost under centralized syst em $2,080.00 Additional expense .000081 $2,080.00 The cost of the operation of laboratories is difficult to standardize, for the reason that the amount of work depends greatly on local condi- tions, and how much experimental work the management of the milk plant desires to carry out. In the plants listed in Table No. 63 it can be seen that the first three plants employ four laboratory workers each, while plant No. 8 employs only two such workers. Under a centralized system it is clear that only one laboratory would be necessary. A fair basis for the testing of the milk supply of Rochester under such a centralized sys- tem would be two laboratory workers, working a total of 16 man hours at a cost of .41 per hour. This would be a cost of .000081 per quart, or $2,080.00. OFFICE FORCE ■ Only a small number of the milk companies in the City of Rochester make any attempt to keep books. The cost accountants employed by the Survey found only four companies who kept books by methods sufficiently accurate to justify the use of the figures as a basis for the costs reported by them. The bookkeepers employed by these companies and the small amount of bookkeeping done by a number of the other companies in- cluded a total volume of business of 56,687 quarts- of milk. The total number of persons employed in keeping such accounts for Rochester is 72, working for a period of 297 man hours, at the rate of 191 quarts of milk per man hour, and at a cost of .002042 per quart. Included in these 72 persons are about 47 who work on an average of about two hours per day on their milk accounts. The bookkeepers employed by all of the com- panies, including Rochester, and the work performed is shown in Table No. 64. 134 MILK SURVEY OF THE CITY OF ROCHESTER TABLE No. 64 OFFICE FORCE Number of Company. ^3 a U O s £ 12; c H a go 1 20,417 16,056 4,346 65,800 9,000 8,000 56,687 43,070 31 20 • 5 51 5 6 72 Q 144.6 120 41 370 42.5 440 297.0 81.0 141 133 106 177 212 182 191 532 .002944 .003307 .003508 .002998 .002399 .001750 .002043 .000713 .002043 .000780 2 3 4 5 6 7-R, Av 8 Present Rochester costs . Yearly Cost $42,263.35 tralized syster n 23,366.75 Savings under centralizec . sj^stem .001263 $18,896.60 The present cost of the bookkeeping which is being done is $42,263.3.5 per year. An inspection of the work performed by the companies in Table No. 64 shows a most remarkable difference between the cost of bookkeeping in company No. 8, and the cost in all of the other com- panies. This low cost might be attributed to a difference in wage scales if one overlooked the number of bookkeepers employed, but an inspection of the table shows that plant No. 8 employs only nine bookkeepers to keep accounts for 43,070 quarts of milk, which is at the rate of 532 quarts per man hour. No other company in the list employs so small a number of bookkeepers for the volume of milk. It might also be as- sumed that the books of company No. 8 were not properly kept. This, however, is answered by an inspection of the costs in all other depart- ments of the business. A review of the tabulations will show that in the majority of the labor costs plant No. 8 has lower costs than the other companies, and this is convincing evidence that the business in plant No. 8 is well managed. The real reason for the low cost of bookkeeping in plant No. 8 is in the system of accounting which has been adopted. There is such a thing as too much bookkeeping and too much detail in the accounts which are kept of the milk business. What is required is to keep only such accounts as will furnish to the management the information necessary for administering the business in the most efficient manner. This seems to have been accomplished to a remarkable degree in the business of com- pany No. 8, consequently with such results in mind it seems proper to assume as a basis for a centralized system such a system of bookkeeping MILK SURVEY OF THE CITY OF ROCHESTER 135 as this. It is therefore assumed that under a centralized system for Roch- eter the number of employees in an accounting system of the same kind would work at the rate of 500 quarts per man hour. Applying the Roch- ester wage scale for bookkeepers of .390 per hour would make the cost 'per quart for the entire milk supply of Rochester for bookkeeping .000780 per quart, and the yearly cost $23,366.75. This would result in a saving of .001263 per quart, and $18,896.60 per year. In considering these savings it must be remembered that under the centralized system the costs suggested would provide an adequate book- keeping system for the entire milk supply of Rochester of 82,075 quarts, while the present costs for the city are applied to only 56,687 quarts. The extension of the bookkeeping system to the entire supply, therefore, in- cludes an expense which is not provided for by the present system. On the other hand, the economies under the centralized system are so great that they would show the savings indicated. The actual number of book- keepers necessary under the centralized system would be 24, working seven hours daily. COLLECTORS One of the most important items of expense in milk distribution consists in the labor of collecting money from milk consumers. The ma- jority of milk consumers pay cash for milk at least once a week. This cash is collected in most instances by the milk drivers. Among the larger companies, however, a few special collectors are employed for this pur- pose. In securing information from the Rochester companies regarding the cost of distribution, the number of hours spent by the milk drivers and by these special collectors and the cost were estimated independently of the cost of driving retail and wholesale routes. For the 82,075 quarts of milk received daily, the number of men engaged in collecting money from the reports obtained was 186. It seems probable, however, that all of the men engaged in driving both retail and wholesale routes at times take part in the work of milk collection. The men reported as doing this work were engaged for a period of 415.2 man hours daily which is at the rate of 128 quarts per man hour at a cost per quart of .002221 per quart. In assuming the yearly cost Sun- days are omitted as it is assumed that the collectors do not make a business ■of collection on Sundays. On this basis the yearly cost is $57,069.29. Under a centralized system the reduction in the cost of milk collections would depend chiefly on the reduction in the number of milk wagons and milk drivers. In the table on driving retail and wholesale routes it is estimated that the milk supply of Rochester could be delivered with 139 wagons as against the 278 wagons now used. A comparison of the cost of milk collection and of the work performed in this department of the 136 MILK SURVEY OF THE CITY OF ROCHESTER business by the companies whose figures have been used in previous tables appears in Table No. 65. TABLE No. 65 COLLECTORS Number o£ Company. u5 .j_j Cti (J a U O n '^ l-H a 1- ■ 1 20,417 65,800 8,000 17,187 43,070 5 5 3 21 3 30.5 49 28 69.5 19.50 669 1,342 285 1 247 2,208 .000336 .000257 .001000 .001448 .000172 .001448 .000236 2 3 4 5 6 7-R Av 8 Present Rochester costs Yearly Cost $9,081.20 tern. . . . 7,056.18 Savings under centralize i S3'stem .001212 $2,025.02 In Table No. 67 it will be noted that company No. 8, handling 43,070 quarts, employs only 3 men as miscellaneous workers, and that company No. 4, handling 65,800 quarts, employs only 5 such men. It seems fair to assume, therefore, that the Rochester milk supply of 82,075 quarts re- quires only six such men. Applying the Rochester wage scale of .358 per hour to these men, and assuming that they work nine hours each, or 54 hours daily, the total yearly cost would be $19,332. This would make a cost per quart under the centralized system of .000236 per quart, and a MILK SURVEY OF THE CITY OF ROCHESTER 139 yearly cost of $7,056.18. This shows a saving of .001212 per quart, and an annual saving of $2,025.02. It must be remembered in considering these figures that the number of quarts of Rochester milk in the above table on which the miscellaneous labor was reported was only 17,187 quarts, and that under the centralized system the labor is applied to the entire supply. CANVASSERS Two of the Rochester milk companies employ canvassers. These men are used to solicit new trade. Their services constitute a part of the present competitive system. Under a centralized system where there would be no competition canvassers would not be necessary. The present cost per quart for the services of these canvassers is based on 12,836 quarts handled by the companies which employ them. This is at the rate of .001905 per quart, and a yearly cost of $8,924.25. Under the central- ized system there would be no such item of expense, and therefore the annual saving would be $8,924.25. OFFICERS The 136 milk distributing companies in Rochester are all of them owned by proprietors or stock companies. In one sense, therefore, all of these companies are manned by officers. Since, however, the small dealers embody in the person of one or two men all of the functions of the business, the item of officers is limited strictly to the officers of the four large companies in Rochester which reported officers drawing salaries. This covers 23,836 quarts of the milk supplied, which is at the rate of 2,954 quarts per officer, and their salaries amount to .004893 per quart, and annually $42,573.60. Under a centralized system, it is esti- mated that not more than three officers would be required at salaries amounting to not more than $20,000.00 per year for three. This would be at the rate of .000668 per quart. Under the centralized system there- fore there would be a saving of .000225 per quart, and $22,573.60 per year. The above figures, it must be remembered, are based on the cost of officers' salaries for companies handling only 23,836 quarts of milk daily at the present time in Rochester, while under the centralized system the salaries would apply to the entire Rochester supply. The officers' salaries are tabulated in Table No. 68. 140 MILK SURVEY OF THE CITY OF ROCHESTER TABLE No. e OFFICERS TS aj t_i > u Number of Company. o O cn I-. lA >' QJ O li'S •^u^ a u J3 ^ h;^ jj OJ §P §o gc^ a ^ a u 1 20,417 1 002023 2 16,056 y 4,346 J 1 65,800 5 002693 3 .002257 4 5 9,000 3 3,000 .005966 6 8 000 2 4,000 .003427 7-R, Av 23,836 8 2,954 .004893 8 43,070 1 43,070 .000386 Yearly Cost Present Rochester cost . . . .004893 $42,573.60 Rochester cost under centr alized syst system .... em. . . . .000668 20,000.00 Savings under centralized .000225 $22,573.60 ECONOMIES IN MILK DISTRIBUTION Comparative Wage Scale The economies suggested in the above series of tabulations will un- doubtedly be criticised by some on the ground that the wage scale in the different companies is different, and this wage scale is the chief reason for the difference in costs. This possibility has not been overlooked by the Survey. It is fully recognized that the difference in wage scales would affect the difference in costs. In the estimates made above it will be remem- bered, however, that the economies suggested have not been based on the cost in dollars, but on the work performed per man hour in the majority of instances. Consequently, these economies are entirely independent of the wage scale, being based on the efficiency of the work performed in the operation and not on the prices paid to the labor. In order, however, to completely cover any question concerning the difference in wage scale, there is presented below a statement of the wages paid by four of the large milk companies of the City of Rochester and by the large milk company in the City of Ottawa, Canada. These wage , scales are shown in Table No. 69. MILK SURVEY OF THE CITY OF ROCHESTER 141 TABLE No. 69 COMPARISON OF EMPLOYEES' PAY ROLL AND VOLUME OF BUSINESS 301 101 132 47 119 . Number of emploj^ees on milk Total weekly pay roll Average rate per week Quarts of milk per day 113 $2,944.00 26.05 43,070 43 $1,345.00 31.29 9,000 53 $1,474.00 27.81 8,000 52 $1,365.00 26.23 9,075 8 $254.87 31.86 3,000 From Table No. 69 it will be noted that company No. 301, which is located in the City of Ottawa, Canada, has an average rate per week for labor of $26.05, while company No. 47, a Rochester milk company, has approximately the same wage scale. As a further means of comparing the wages paid by the different milk companies, the cost per man hour for performing each one of the more important milk operations has been independently determined for all of the milk companies in the list presented in the previous series of tabulations. This list includes three Baltimore milk companies, two Rochester milk companies, one Philadelphia, one Ottawa, and the average for the City of Rochester. ■ Those particularly interested in a comparison of these wage scales can note the cost for performing the labor of each one of the separate operations for each one of the companies mentioned. These figures are presented in Table No. 70. TABLE No. 70 WAGE SCALES PER MAN HOUR 1 2 .391 .304 .390 .269 .301 .286 .273 .204 .407 .371 .290 .302 .303 .279 .598 .603 .425 .444 .330 .342 .206 .236 .481 .48i * * .190 .214 .422 .443 .573 .690 .225 .376 7-R 4 5 6 Av. .437 .357 .535 .441 .365 .349 .390 .383 .458 .349 .400 .382 .385 .349 .408 .427 .385 .365 .427 .500 .409 .374 .349 .390 .393 .246 .349 .427 .398 .413 .800 .543 .461 .413 .619 .450 .452 .396 .803 .427 .442 .355 .328 .433 .414 .581 .450 .498 .600 .397 .750 .448 * * * .455 .257 .400 .261 .412 .534 .508 .318 .390 .246 .420 .439 .786 .794 .676 .346 .285 .358 .532 .506 Milk receiving Bottle washing Can Washing Apparatus Washing Pasteurizing and Cooling Cooling Only Bottling and Capping . . . . Can Filling Driving Retail Driving Wholesale Driving, Railroad to Plant. Stable Garage Engine Room Refrigerating Plant Plant Protection Experimental Office Force Collectors Superintendence Miscellaneous Canvassers .285 .272 .275 .260 .294 .271 .434 .291 .254 22>7 .372 .476 .500 .443 277 .403 .308 .362 .357 .426 .418 .418 .401 .391 .555 .479 .479 .208 .477 .379 .577 .381 *Combined with engine room charge. 142 MILK SURVEY OF THE CITY OF ROCHESTER The advantages of a centralized system as compared with the present system of doing business, so far as the labor charges are concerned, are shown in Table No. 71. TABLE NO. 71 SUMMARY OF ESTIMATED SAVINGS IN LABOR UNDER A CENTRALIZED SYSTEM {Data from Previous Tables.') Operation. Cost Under Present System. OJ-O > Estimated Cost Under Centralized System. > Estimated Savings. P Milk receiving Bottle crashing Can washing Apparatus washing .... Pasteurizing and cooling Cooling Bottling and capping . . Can filling Driving, retail and whole sale routes Hauling from railroad to plant Stable and garage Engine room and refrig- eration plant Plant protection Experimental Office force Collectors Superintendence ". Miscellaneous Canvassers Officers .0006471$ 18,315.70 Totals 02S812|$730,925.39 .001644 .000615 .000719 .000513 .000339 .001454 .000107 .010493 .000791 .001436 .000717 .000054 .001492 .002016 .000636 .000321 .000315 .001503 46,555.75 17,406.85 20,359.70 14,541.60 9,595.85 41,182.95 3,022.20 297,117.30 22,389.10 40,661.00 20,319.55 1,522.45 42,263.35 57,069.29 18,023.70 9,081.20 8,924.25 42,573.60 .000467 .000626 .000299 .000226 .000096 .000604 .000073 .006572 .000308 .000918 .000590 .000054 .000073 .000825 .001008 .000368 .000249 .000706 $ 13,211.20 17,730.76 8,450.76 6,395.90 2,723.40 17,111.55 2,059.61 186,078.53 8,723.44 26,003.00 16,714.08 1,522.45 2,080.00 23,366.75 28,534.65 10,428.05 7,056.18 20,000.00 .000180 .001018 .000316 .000493 .000756 .000850 .000034 .003921 .000483 .000518 .000127 *.000O73 .000667 .001008 .000268 .000072 .000315 .000797 ; 5,104.50 28,824.99 8,956.09 13,963.80 21,414.05 24,071.40 962.59 111,038.77 13,665.66 14,658.00 3,605.47 *2,080.00 18,896.60 28,534.64 7,595.65 2,025.02 8,924.25 22,573.60 .014062 $398,190.31 .011750 $332,735.08 Net. *Increase expense. In Table No. 71 have been assembled together all of the operations performed by the milk dealers of the City of Rochester under the pres- ent system, the cost per quart and the cost per year. Compared with this in the same table is shown the estimated cost of each of these operations per quart under the centralized system and the yearly cost. In the last two columns are stated the total estimated savings result- ing from the establishment of the centralized system. For labor alone it MILK SURVEY OF THE CITY OF ROCHESTER 143 is to be noted that the saving would amount to .00175 per quart, and an annual saving of $332,735.08 for labor. This would result from the sub- stitution of a centralized system working under such business conditions as already exist in the milk industry. This Survey presents this figure not as a matter of guess work; but as a figure which has been arrived at from close study, and comparison with the conditions actually existing in the milk industry to-day, which can be imitated by the milk industry of the City of Rochester. EXPENSES EXCLUSIVE OF LABOR In attempting to secure a statement of the plant or factory charges, it was found impossible to secure exact figures through the work of the inspectors since these charges, fof the main part, consisted of supplies, articles purchased, such fixed charges as taxes, interest, insurance, etc. Among the principal articles purchased were included glass bottles, milk cans, horse feed, coal, etc. For these items the main dependence was placed on bookkeepers or cost accountants. An expert firm of cost accountants was emplo3^ed who secured figures from four of the large milk dealers of the city whose books were kept in a manner which made these figures sufficiently reliable to justify a report. These figures have been assembled together and averaged in order to secure a statement of factory charges which would fairly repre- sent the average of all of these four large companies. They have been divided into figures for the retail business and for the wholesale business. These averages are presented in Table No. 72. 144 MILK SURVEY OF THE CITY OF ROCHESTER TABLE NO. 12 UNIT PLANT CHARGES BASED ON COSTS OF BIG DEALERS Factory. Factory supplies Light and power Coal Water Delivery. Hay and grain Blacksmithing Repairs to rolling stock Barn expense Ice Bottles Cans Caps Cases Office. Advertising Printing . Carfares Postage . . , Telephone Fixed Charges. Taxes Insurance Interest Allowances Stationery Depreciation on — Buildings Rolling stock Machinery and equipment Furniture and fixtures . . . . , Repairs to buildings Accounts charged off Sundries Rent Retail unit. Total .000756 .001630 .000663 .000109 .004012 .000929 .001065 .000144 .000152 .002720 .000187 .000459 .000446 .000558 .000485 .000166 .000149 .000227 .000854 .000661 .000735 .001525 .000419 .000823 .001113 .0012521 .000082 .0010271 .0008961 .0014241 Wholesale unit. .000215 .000824 .000276 .000045 .000828 .000194 .000222 .000034 .000127 .000739 .000947 .000100 .000118 .000026 .000161 .000135 .000673 .000419 .000242 .000165 .000254 .000547 .000622 .001219 .000041 .000451 .000106 .001020 .000141 .025668 .012267 Item .012267 represents the unit cost of plant charges for wholesale bottled milk. Substracting .000957 which represents bottle, caps and case charges, gives the figure .011310 which is the unit plant cost for wholesale can milk. All of the plants of the small dealers were visited by the inspectors and many attempts made to secure a statement of the expenditures by small dealers for supplies and other expenses independent of labor costs. It was found impossible, however, to secure from these men figures of sufficient accuracy to justify an independent report. Consequently, the MILK SURVEY OF THE CITY OF ROCHESTER 145 figures for factory costs, excepting labor, for the entire city, have been based on the figures obtained from the four large dealers above men- tioned. Using these figures as a basis for estimate and applying them to the milk supply furnished to the city for the three classes of milk — retail bottled milk, wholesale bottled milk, and wholesale canned milk, gives the results indicated in Table No. 73. TABLE NO. 72 ONE DAY'S TOTAL FACTORY COSTS EXCEPTING LABOR, FOR ALL MILK FIGURED ON BASIS OF BIG DEALERS' COSTS. Retail — Bottle Quarts. 57305 Unit Plant Cost Per Quart Sold. X .025668 = X .012267 = X .011310 = $1,470.90 Wholesale — Bottle 11386 139.67 Wholesale — Can . 8888 100.52 $1,711.09 From Table No. 73 it appears that the daily costs of supplies and other expenses for retail bottled milk is $1,470.90; for wholesale bottled milk, $139.67, and for wholesale canned milk, $100.52, making a total daily cost for the city of $1,711.09. POSSIBLE REDUCTIONS IN FACTORY CHARGES (Except Labor) Just how much the factory expenses would be reduced by central- izing the business is not easy to estimate. One must form a mental pic- ture of the present conditions in Rochester by taking into account the fact that 136 milk dealers are engaged in buying all of the supplies for their business. The majority of these purchase supplies at retail and, consequently, at prices much higher than the prices which are paid by the very large dealers who buy at wholesale. In addition to this it must be remembered that where there are 136 factories there is an enormous duplication so that the number of articles required is much greater ; for example, where milk is bottled each factory has its own bottle filling machine. As stated in a previous part of the report, there are 25 pasteurizing machines operated in Rochester. All of the equipment necessary for the washing of bottles and cans, for the care of horses, is duplicated in these factories. Consequently in purchas- ing supplies these purchases are constantly duplicated. As one method of measuring the reduction in these factories three items of expense have been selected. The first of these is heat, light and power. It is obvious that there would be great economy if all of the coal 146 MILK SURVEY OF THE CITY OF ROCHESTER consumed in the 136 factories were centralized in one or two large fac- tories. The reduction in steam boilers and in power plants would be so great that one would expect a great reduction in coal consumption. As a means of forming an estimate on this branch of the business, the present costs of light, heat and power for all of the companies in the list we have been using is presented in Table No. 74. TABLE NO. 74 HEAT, LIGHT AND POWER Number of Company. a ^ CO u O rt u lU , , >> o u p 1 2 ...... 3 4 5 6 7-R, Av. 6,419,255 5,539,240 1,265,820 2,678,005 1,754,212 28,316,335 12,364,485 $30,326 18,829 4,831 4523 5,046 52,244 23,412 Rochester cost under present system Rochester cost under centralized system. Savings under centralized system .004724 .003399 .003816 .001689 .002876 .001845 .001893 .001845 .001500 .000345 Yearly Cost $52,244 42,474 $ 9,770 In Table No. 74 it appears that Rochester is now spending $52,244 yearly for light, heat and power, at the rate of .001845 per quart. One company in the list is doing this same thing at an expense of .001689 per quart. There is no doubt that, as a result of centralization, the reduction would be considerably greater than the difference shown between these two figures. In order, however, t* be conservative, we have assumed that under a centralized system, by abolishing the numerous plants now existing in Rochester, and burning coal only in one or more centralized plants, this could be done at the rate of .001500 per quart. This would amount to $42,474 yearly, and result in a saving of .000345 per quart and $9,770.00 per year. HORSE FEED AND BEDDING The cost of horse feed and bedding was obtained from six of the companies in the list and for the entire City of Rochester. The figures show that there are 228 horses working on the milk wagons delivering milk in the City of Rochester, and that the feed costs $59,711.00 per year, which is at the rate of $261.89 per horse. In Table No. 59, on the subject of milk wagons and milk delivery, it is shown that Rochester milk could be delivered with a total of 139 MILK SURVEY OF THE CITY OF ROCHESTER 147 delivery wagons. This included automobiles. If the same proportion of automobiles now used, which is 7, should be used under a centralized sys- tem, there would be about 38 needed under such system. This would mean 101 vehicles drawn by horses and 38 by motor ■power. Under these circumstances, it is estimated that not more than 140 horses would be required to supply horse power for the one-horse and two-horse vehicles used under' a centralized system. Assuming that the cost of horse feed per year for these horses would be the same as the present cost, which is $261.89, the total yearly cost for feeding 140 horses would be $36,664.60. This would result in an annual saving of $23,046.40, on the item of horse feed. These figures are presented in Table No. 75. TABLE NO. 75 HORSE FEED AND BEDDING Number of Company. o 1-1 § 2 Cost of hay and grain per year. t« o ^ .si . o O 1 82 63 25 26 29 228 125 $24,180.72 22,205.20 9,954.52 7,622.09 6,688.22 59,711.001 ■31,125.931 $294.89 362.46 398.18 293.16 230.62 261.89 249.00 Yearly Cost $59,711.00 36,664.60 2 3 4 5 6 7-R, Av 8 Present Rochester cost .... *Rochester cost under centralized Savings under centralized syst( system . . . ;m $23,046.40 '(Assuming 140 horses.) LOSS ON BOTTLES One of the most important items of expense and one which has re- ceived more popular attention perhaps than any other item in the milk business is the loss on bottles. It is commonly believed by the average citizen that the loss on milk bottles ranges somewhere between two and five cents per quart. The actual cost of milk bottles at the present time is $8.00 per gross for quarts and $6.75 per gross for pints. This means a cost per quart of .0555 per quart bottle, or a little more than 5j^ cents. It is undoubtedly true that many bottles are broken and lost, and unnecessarily so, and that a considerable saving in expense would result 148 MILK SURVEY OF THE CITY OF ROCHESTER if these losses were reduced. The actual condition of affairs in the City of Rochester has been determined by summarizing the amount of money paid yearly for new glass bottles by the Rochester companies which keep such accounts and applying this same item of expense at the same rate to those Rochester companies which do not keep accounts. This method of estimate it is believed is entirely fair for the reason that the smaller milk dealers who do not keep accounts undoubtedly sustain greater losses on milk bottles and are put to a greater expense in the purchase of milk bottles at retail than are the larger milk dealers. The total number of milk bottles handled by the City of Rochester each day, including quarts, pints and half pints, is 83,503, and annually this amounts to 30,478,595. The total number of bottles purchased by all of the dealers in Rochester annually is 1,332,432. At this rate each glass bottle in Rochester makes 22.8 trips before it is broken or lost. The ex- pense of replacing these broken and lost bottles must be paid for by each quart of milk sold, and amounts to .002720 per cjuart under present con- ditions. This is an annual expense on bottles for the entire city of* $68,196. Similar figures have been obtained from all of the other companies in the list and are presented in Table No. 76. TABLE NO. 76 LOSS ON BOTTLES Number of Company IS 'o •yj a 2 "o tn ^ n Yearly bottles purcbased. p. ^ a o 1^ o" '^' d o Yearly expenditure for bottles. 1 15,229 13,540 4,650 72,000 7,690 8,320 83,503 46,034 5,558,585 4,942,100 1,697,250 2,806,850 3,036,800 30,478,595 16,802,410 455,760 442,684 106,560 100,454 82,252 1,332,432 391,219 12.2 11.1 15.9 34.8 36.9 22.8 42.9 .004196 .004584 .003213 .002645 .002805 .002720 .002024 .002720 .001377 $23,325 2 22,657 3 5,454 4 - 5 5,142 6 4,210 • 7-R, Av 8 68,196 20,023 Present Rochester costs . 68,196 ralized syste ized system 38,997 Savings undei ■ central .001343 $29,199 From Table No. 76 it appears that the number of trips made by the glass bottles of Rochester before they are broken or lost is greater than the number of trips made by bottles from companies Nos. 1, 2 and 3. On the other hand, company No. 8 handles its business in a manner which MILK SURVEY OF THE CITY OF ROCHESTER 149 results in its bottles making nearly 43 trips before they are broken or lost. Figures obtained from company No. 8 for the month of August showed that during that month the glass bottles of that company made 51 trips before they were lost or broken. Under a centralized system, where there is no competition and where all of the bottles are of the same type and stamped with the same name, and collected and delivered by the same wagons, the loss on bottles would be reduced to its lowest terms. If milk consumers co-operated to reduce these losses, the life of the milk bottle would be greatly increased. Forty trips would seem to be a fair estimate for the bottles of the City of Rochester under a centralized system. This would mean an ex- pense per quart of milk sold of only .001377, and an annual cost for glass bottles of $38,997. The savings under the centralized system would be therefore .001343 per quart, and $29,199 per year. Taking the average reduction in cost on savings resulting from the centralized system on the items of heat, light and power, horse feed and bedding, and loss on bottles, the figures show a percentage reduction of 34.4 per cent. For purposes of comparison the same items of factory expense were obtained from milk companies in the cities of Ottawa, Canada, and Balti- more, Md. Company No. 8, located in Ottawa, Can., finds that the cost of factory supplies is, in many instances, higher even than the figure of the United States. It is lower, however, on horse feed. It seems fair to assume, therefore, instead of a reduction of 50 per cent., a reduction of about 34 per cent., as indicated by the three largest factory cost items above men- tioned, should be made. Applying this percentage to the entire factory costs of Rochester under the present system would result in a cost under a centralized system of $409,572, which is at the rate of .014464 per quart. This would result in the saving, under the centralized system, in factory expenses, of $214,975.85, which is at the rate of .007592 per quart, as shown in Table No. 77 . 150 MILK SURVEY OF THE CITY OF ROCHESTER TABLE No. n TOTAL FACTORY EXPENSES (EXCEPT LABOR) Company Number 2 u O rt a >!^ 73 o o^ Total Daily Factory Costs Except Labor. a-o •so p 1 2 3 4 6,419,255 5,539,240 1,265,820 2,678,005 1,754,212 28,316,335 2,364,485 r costs . . . . nder Centra entralized S $179,672.00 178,785.00 65,952.00 55,653.33 52,976.13 624,347.85 129,652.20 lized System vstem $ 492.25 489.82 180.69 152.47 145.14 1,711.09 355.21 .027989 .032276 .052102 .020781 .030199 .022056 .010485 .022056 .014464 5 6 7-R, Av 8 Present Rochestt Rochester cost u Yearly Costs $624,547.85 409,572.00 Savings under C .007592 $214,975.85 In Table No. 78 it is to be noted that under the present system the total expenses outside of labor for the operation of the milk factories of Rochester amount to .022 per quart, or $624,548.00 per year, while under a centralized system these costs would be only .0144 per quart, or $409,572.00 yearly. Centralization reduces these expenses so that there would be an annual saving amounting to .007592 per quart and $214,976.00 yearly. TABLE No. 78 SUMMARY OF ESTIMATED SAVINGS IN PLANT CHARGES UNDER A CENTRALIZED SYSTEM Cost Items. Under Present Sys pem o2 *^in rt bo — > ■gCD H Horse feed and bedding Bottles Heat, light and power. . All other expenses (except labor) .002109] $59,711 .0024081 68,196 .0018451 52,244 .0156941 444,397 .001295 .001377 .001500 .010292 Totals 0220561 $624,548| | .014464 $36,655 38,997 42,474 291.436 ,572 .000814 .001031 .000345 $23,046 29,199 9,770 .0054021 152,961 .0075921 $214,976 MILK SURVEY OF THE CITY OF ROCHESTER 151 FREIGHT The milk supply of the City of Rochester comes into the city through four channels : 24,985 by motor truck. 3,018 by wagon. 48,163 by railroad. 5,909 by trolley. The milk which comes by truck, wagon and railroad is paid for by cwt. The milk which comes by trolley is paid for by the quart. The entire cost of freight per day and per year is shown in Table No. 79. TABLE No. 79 COST OF TRANSPORTING MILK FOR THE CITY OF ROCHESTER Quarts Cwt. Rate Total Daily Cost Motor truck Wagon 24,985 3,018 48,163 5,909 531.5 64.2 1,025 < 30c cwt. 30c cwt. 24c cwt. /2C qt. ;165,805 $159.45 19.26 Railroad Trolley 246.00 29.55 Cost per year 82,075 $454.26 Unit cost per quart 005534 Estimated saving in freight under a centralized system at 10% is $16,580.50. In Table No. 79 it appears that the yearly cost of freight is $165,805 ; the cost per quart is an average of a little over 5^ cents. Under the present system there is no way whereby the cost of this freight can be reduced. Under a centralized system, on" the other hand, the milk would be shipped from the country to the city to one distributor instead of to 136 distributors as under the present system. The shipping of the milk from the country to one city distributor would make possible a rearrangement of the channels of shipment in several respects, that is, the milk which comes by motor truck would be centralized so that each motor truck would carry as nearly as possible a full load, and the total number of motor trucks would be reduced. The milk which comes by wagon in the same way would be centralized so as to provide full wagon loads. The milk which comes by railroad, instead of being subdivided into separate lots for the different shippers and different distributors, would all belong to the same lot and therefore could be packed in car- loads, some of which might constitute entire carload shipments and secure the freight reduction which the railroads grant to full cars. The milk which is shipped by trolley in the same manner, instead of being shipped 152 MILK SURVEY OF THE CITY OF ROCHESTER in separate lots, would all be shipped to the same distributor and land at the same receiving station. These changes, all of them, would result in economies in the labor connected with the loading and unloading of the milk, and would, without question, reduce the work of the railroads and trolleys and the work of the trucks and wagons. It is difficult to estimate accurately just what this reduction would be. The experience of large milk companies in other cities in the reduc- tion of freight rates would indicate a possible reduction of 10 per cent, in the cost of freight in large lots over the cost of handling milk in small lots. It is believed that the reduction would be greater than this but, for the purposes of this survey, an allowance of only 10 per cent, in the cost of freight will be made. This amounts to a total of $16,580.50. LOSS ON SURPLUS One of the items which is commonly overlooked by persons not familiar with the milk industry is the loss on surplus milk. Contracts between milk producers as a rule provide that the distributor shall accept all of the milk which the producers furnish. There is no constant rela- tionship between the supply and the demand. At certain times of the year, especially in the spring months when cows are put out on pasture, there is as a rule a production of milk far in excess of the market de- mands. In some years, during the months of May and June, this surplus exceeds the market demands by as much as 80 per cent. As a rule, during the months of July and August, when the hot weather dries up the grass and flies are numerous, there is a shrinkage in the production of milk by dairy cows, which results in an actual deficiency, so that the quantity of milk produced by the regular milk producers supplying the milk dealers of Rochester and other cities is less than the market demands. This deficiency is made up, if possible by bringing into the city market milk from outside source of supply, such as butter factories, cheese factories, condensed milk factories, etc. The successful milk dealer is compelled to arrange his business so that such deficiencies, if possible, will not occur. This means that, for most of the months of the year, the dealer is compelled to carry a surplus of milk in excess of market demands which ranges annually from 5 to 20 per cent, of his total business. This surplus milk cannot be marketed at the flat price of fluid milk, but must be made up into milk products such as condensed milk, butter, cheese, powdered milk, buttermilk, cream, etc. The market price for these milk products as a rule brings in to the dealer less money than he would receive if the surplus milk could be sold at full fluid milk prices. Consequently, in every milk company there is an annual loss of money due to the manufacture and sale of surplus milk. In most large cities this loss is estimated at about Yi cent per quart. MILK SURVEY OF THE CITY OF ROCHESTER 153 The figures obtained from the City of Rochester from the four large milk companies whose accounts show losses on surplus have been applied to the entire milk supply of the city. It is believed that such an estimate of the annual Rochester loss on surplus is a fair one since the smaller milk dealers as a rule sustain greater losses on surplus milk than do the large milk dealers, for the reason that the small dealer is not equipped with facilities for manufacturing his surplus milk to advantage. Conse- quently, any estimate based on the loss on surplus of the large dealers is more conservative than it is believed the actual losses of the small dealers really are. On this basis figures for Rochester, together with the figures taken from the other milk companies in the list, are presented in Table No. 80. TABLE No. 80 LOSS ON SURPLUS Number of Company. J^-d ^ rt O O^ 1-. a •SO rt in ot/5 Freight or trucking. . . . Labor (Table No. 71).. Factory, other than labor (Table No. 11).... Loss on Surplus .005855 .025812 .022056 .004237 .057960 $165,805 730,925 624,548 119,976 .005270 $149,2251 .014062 398,190 .014464 409,572 .003500 99,118 .000585 .011750 .007592 .000737 $16,580 332,735 214,976 20,858 Totals $1,641,254 .037296 $1,056,105 .020664 $585,149 From Table No. 81 it appears that the total cost of selling milk in the City of Rochester under the present system is .0579 per quart, amount- ing to a yearly cost of $1,641,254, while under the centralized system the cost would be .0372 per quart, or $1,056,105 per year. Under the cen- tralized system the savings therefore would be .02 per quart, and $585,145 per year. MILK SALES The sale of milk by the City of Rochester at the prices charged by each class of dealers has been assembled in the form of a tabulation with the object of showing the prices charged by dealers handling under 500 quarts, dealers handling from 501 to 1,000 quarts, and from 1,000 quarts and upwards. It is commonly believed that the small dealers charge less money for milk than the large dealers. The daily sales of milk for each of these groups of dealers and for each class of milk, including retail bottled milk, wholesale bottled milk, and wholesale canned milk, have been put together and presented in Table No. 82. MILK SURVEY OF THE CITY OF ROCHESTER 155 o W pq < 1— 1 r- ■^CO 1 toi ro vOio i ■*! oKro 1^1 ro to ,- -■ C3 >< •aniBA to OMO 1 O 1 H ro-n"^" o' C3 o 09- ^ vO O O (V) fa •33HcI 00 chON 00 < 3SBJ3AY CM eg eg eg H O ■ i'^l ^ •s^JEnO '^.-iCJl to tV.LO-* (<■ o\ to n r^ n o Tj- 00 o eg to r< < u •ani^A ,-H CO .— 1 to r-( 00 O. H in w ►4 < W r^ ON o !>. u o ifi 00-- O l^ W o •33Ud CO r^ o t-v 0\ O •— 1 o P ,-H ^_ ' ^. "I. <^J "*„ 00 •siJenQ o — t^ CO' >^ o r^ t<- CM H Q t^vOC rh HH CS trie to u ►J •aniTJA Ttroir 00 CM >^ o £/3- m- < Q O to tr On" (J ONcg^t & < ■30Ud ^ CO f S w .— * »— J T— t-H o o 00'^'* NO o W roocc 00 ^ ■sjjBnQ 00 On tr forg'Tt CO fe 1 ,__, i CM ON tr NO rgooc OOnOC 00 i_! ON 00 rv to < in •aniKA On to t— r^ (Nf— Tc- tvT H 09- <^ O 00^f«" 00 CO S J ■33Hd CO CO o: CO CO c<~ to CO < *— H r-H r— *— ( < S o^ o< to o O •s^jEnQ -^ OnO- CNf—'CNJ CO rg -- eg to H o ^ > ir S -2 "C '. 1;:^ 1- « • Di D ^ cro c , ', c/2 ^2 ^ P:^ W O -• c rt < to-^ in c '^ e2 P c i e 156 MILK SURVEY OF THE CITY OF ROCHESTER In Table No. 82 it appears that the small dealer selling under 50! quarts charged an average price for retail bottled milk at the time these figures were obtained (in the month of August) of .13348, while dealers selling from 501 to 1,000 quarts charged a trifle less. Dealers selling from 1,000 quarts upwards charged the most. For wholesale milk in bottles the small dealers charged slightly less than the other dealers, while for wholesale canned milk they charged as much as. one cent less than the dealers in the next class, and almost two cents less than the large dealers. In examining these figures, however, it must be borne in mind that the large dealers are pasteurizing milk and that this adds to their cost. It is also true that the large dealers make greater expenditures for the washing and sterilization, refrigeration and other items of expense connected with the care of milk than is done by the small dealers. In the last part of this tabulation will be noted the total selling prices for the entire City of Rochester average and the total value of the milk sold each day, which amounts to $10,001.45. This means that the milk sold by the City of Rochester at these prices would bring in an income annually of $3,650,529.25. XI SUMMARY OF MONEY INVESTED IN THE BUSINESS OF MILK DISTRIBUTION BY ROCHESTER MILK DEALERS In order to arrive at a fair statement of the money invested in the milk business of Rochester, the dealers have been divided into groups, according to the size of their business. The dealers operating pasteurizing machines have been grouped separately for the reason that their in- vestment includes a much larger item for machinery, because the pas- teurizers, which form the most important part of their equipment, are not included in the equipment of the othir dealers. Every one of the 25 dealers operating pasteurizers was visited by the Inspectors of the Survey, and through conference with them, an estimate was made of the value of their land, buildings, machinery and delivery equipment. In addition to this, nine of the smaller dealers, handling raw milk, were visited, and similar estimates formed of the value of the land, buildings, machinery and delivery equipment owned by them. The figures obtained from the dealers visited in this way were used as a basis for estimating the value of the land, buildings, machinery and equipment owned by the remainder of the small milk dealers. Values were pro-rated in accordance with the number of quarts handled by each dealer. The figures obtained in this way are presented in Table No. 83. TABLE NO. 83 SUMMARY OF INVESTMENT OF ROCHESTER MILK DEALERS With Pasteur- izers. Without Pasteurizers. Investment Not Reported. a 1) o when these figures were obtained was .072551. Adding this price to the other items of expense for each class of milk sold in Rochester, including retail bottled milk, wholesale bottled milk and wholesale canned milk, the entire cost of handling Rochester milk is obtained. The selling price and the profit and loss are shown in Table No. 85. TABLE NO. 85 TOTAL COST PER QUART (THREE CLASSES) OF ROCHESTER MILK, AUGUST, 1919 Expense Items. '6 Cost of fluid milk .072551 .005534 .004237 .028149 .025668 .072551 .005534 .004237 .021572 .012267 .072551 Freight .005534 Loss on surplus .004237 Labor charges .018711 Factory expense .011310 Total .136139 .135380 .116161 .112890 .112343 Selling price .107770 Loss .000759 .003271 .004573 From Table No. 85 it appears that during the month of August there was an actual loss on all three classes of milk sold by all dealers in the City of Rochester. While these losses were slight, yet they constitute convincing evidence that, under present conditions, the conduct of the business in Rochester at the prices stated was not profitable. It must be borne in mind that the month of August is what is known as a short month ; that is to say, due to the vacation period, the quantity of milk sold in Rochester is less than the normal quantity demanded by the city. It has been stated that the volume of milk required by the city averages at least 10 per cent, more than the volume of milk sold in August. If this is so, such an increase in volume would wipe out the losses noted in the above table and would enable the milk dealers to make a moderate profit during some months of the year. This could only be accomplished, however, through an increase in the retail price and pro- vided the price paid to the producer did not correspondingly increase. The report of the expert cost accountants who examined the cost accounts of four of the large dealers in Rochester for the business trans- acted during the year ending December 31, 1918, shows that one dis- tributor made an annual profit of $3,824.43 ; anotlfer an annual loss of $19,374.93; another a profit of $3,147.92; and another a loss of $2,156.30. 160 MILK SU RVEY OF THE CITY OF ROCHESTER These profits and losses are based exclusively on the business of buying and selling fluid milk, and do not include the business of buying and selling cream. It is believed that in some of the companies mentioned the business of buying and selling cream brings in larger profits than the fluid milk business. The profits and losses above mentioned are additional evidence that at present prices under the existing competitive system the fluid milk business does not produce large profits. CONTROL OF MILK SUPPLY BY ROCHESTER HEALTH DEPARTAIENT The City of Rochester has no milk regulations of its own. In the fall of the year 1914, the New York State Public Health Council at Albany published a Sanitary Code containing a chapter on Milk and Cream. Regarding enforcement of these regulations, the Code states in regu- lation 15, as follows: "Regulation 15. When to take effect. Every regulation in this chapter, unless otherwise specifically stated, shall take effect throughout the State of New York, except the City of New York, on the 16th day of November, 1914." This means that these regulations shall apply to every city and town and village in the State of New York. Review of the character of the regulations contained in the report makes it very clear that every grade of milk, both raw and pasteurized, existing in the State of New York, in towns and villages as well as in cities, is recognized and perpetuated by this report. In short, the State authorities, in issuing these regulations, did so with the full knowledge that the same must be adapted to and available for country villages as well as for cities. A special provision is made in the regulations on behalf of first- class cities and other municipalities which may desire to safeguard their milk supplies by more modern methods than those provided for in the regulations, which is in these words : "Regulation 14. Supplementary regulations of local authorities. The health authorities of any municipality may, in their discretion, increase the stringency of these regulations, or add to them in any way not inconsistent with the provisions thereof." This means that Rochester, or any other city, may adopt milk regu- lations of their own, provided these are not inconsistent with the mini- mum requirements of the State regulations. From the reports published by the Bureau of Health of the City of Rochester during the past ten years, a tabulation has been drawn up showing the work performed. Reports are incomplete and therefore the tabulation is lacking in several important points. There is no complete report published lat^ than the year 1917. The figures reported are shown in Table No. 86. MILK SURVEY OF THE CITY OF ROCHESTER 161 < w Q < w >^ Oh W CO - w H CO W D O O O O U ■paisa; xwesj^ ■suxooa >iiitu AjO J^ •o\orxirir^ij-5(M.— I LO • t^ rt O r^ <\) 00 t^ 00 ■^ r-i (M rj- rr) Tt- c«^ r<^ {¥5 "SUIOOJ Jtjiiu (•a;p) •S3iqB;s AV03 (■^luo) ?M 'spijos 's;bj s;unoD i^uapBg isa; juauiipag 00 • r^iT) 00 -OOOn 00 ^o '-I • Tf m ON o\\o XI • ^ oor^ro v3 fM Tj- vo 00 CO 00 rO CNJ CM .-i (M r-H O • f^ 10 O .— • 00 O vO n . ro ON 00 \0 fO t^ r^ r-i ^ --I --H r-l (M t^ t^ rviOMn\OCM-^u-)(\joo\-* I^OnnOuTJ^nO"— iCM\DrliO 10 O LO UO OO^tN jJOAV AjoiBJoqBj JO jaqtunjv^ "saopadsui y[[]m JO jgquin]^ •S3su30i| s,J^:^nqu; -sip JO aaqutn^ ■SUIJEJ AjiBp JO jaquin^ ■^ • o 00 CO r\i nO vo M^ M- -T 12 fp ifj 00 ro O (M ro \0 On £2 1^ Cn) '-' (Nl r<| CM f>.' (Nl X. 10 • (M O rf- CM CM ■^^C rj- . '—I • 00 O CM On u-^ 00 On \0 • O O .—• O O •— I VO t— 1 r-( ~ ' ' ' '' '' ^ ^^^^^^^ ■ On CO • 00 ■CMONCMt^C7\Cy~)ONt~^ (N • J^ .— I Tj- ON 3" 00 NO -^rl" lo. 4 3 50 31 20 7 No. 40— 44°F 5 45_49°F. 45_49°F. . . . 45 49°F... . 26 50—54° F. 50—54° F. . . . SO— :54°F 49 55_59°F. 55— 59°F. . . . 60— 64°F. . . . 55—59° F 20 60— 64°F. 60— 64°F . 26 65_70°F. 65—70° F.... 65— 70°F 2 Hours OF Milking Milk Delivered for Shipment A.M. 4:30 No. 3 . 57 . 44 . 30 ; 3 P.M. 2:00. 4:00. 4:30. 5:00. 5:30. 6:00. 6:30. 7:00. No. 3 A.M. 6:30. 7:00. 7:30. 8:00. 8:30. 9:00. 9:30. 10:00. 11:00. No. P. M. No. 3 6:00 1 5:00 15 28 6:30 1 5:30 9 32 7:00 3 6:00 42 30 7:30 6:30 29 7 8:00 1 7:00 27 9 8:30 7 3 9:00 2 5 1 From Table No. 87 it is evident that the dairy cows were in ap- parently healthy condition, being periodically examined physically by a veterinarian in accordance with the State law. On only 20 farms out of the 141 were the cows tested for tuberculosis. This test was voluntary, as there is no State or City regulation requiring same. All farms reported employees free from disease. It is noteworthy that on 31 farms distillery waste was used for feeding cows. It is neces- sary to use this with extreme care and most cities now prohibit the use of such cow feed. Regarding the sanitary condition of the buildings and equipment, there was very little fault that could be found. The external appearance of these farms was uniformly good. This is due chiefly to the activity of the Health Bureau of the City of Rochester which has made a special 178 MILK SURVEY OF THE CITY OF ROCHESTER effort in the inspection of dairy farms and as a result of these inspections brought the majority of farms to a condition where they would give a good sanitary score. Under the heading of "Sterilizing," it is noteworthy that only four farms are supplied with steam boilers and that only two farms have a stove and hot water boiler in the milk house. One hundred and thirty- two farms report their source of hot water supply as the "Kitchen Stove." Unless the kitchen stove in a farm house has special arrangements for^ furnishing hot water in excess of ordinary household needs, (such as a wash boiler or large kettle) it commonly happens that there is not suffi- cient hot water at all times to properly sterilize milk cans and milking pails. The sterilization of milk cans and milk pails is the most vital of the sanitary operations in the entire list and unsanitary milk is commonly due to neglect of such sterilization. COOLING Under the head of "Cooling" it is noteworthy that only 52 out of 141 farms were supplied with ice. The number is undoubtedly much smaller this year than in other years, due to the unusual shortage of ice last winter. In a climate such as the Rochester climate, where a large crop of ice can easily be obtained each year, there is no reason why every dairy farmer should not have an ice supply sufficient to cool his milk with ice during hot weather. The cooling of the milk as performed on these dairy farms is carried out chiefly by the use of well water pumped into tanks in which the milk cans were placed. The report shows that on 81 of the farms the tempera- ture of the tank water was from 50 to 70 degrees. These temperatures are too high to permit sufficient cooling of the milk or prevent the growth' of bacteria. The temperature of the morning's milk was taken on 108 of these farms and ranged as shown in the tabulation, from 50 to 70 degrees, and the temperature of night's milk on 87 farms had the same range. On the greater number of these dairies, both morning's an,d night's milk ranged between 50 and 60 degrees. This is as cool as it was possible to make the milk with such water as was available for cooling purposes. The hours of milking both morning and night were determined on most of the dairy farms, and hours at which milk v/as delivered to rail- way stations and trucks for shipment. The inquiries show that on 93 farms out of the 141, the milk was delivered in the morning for shipment by 8:00 A. M. In general, the sanitary condition of the dairy farrns compares favor- ably with the sanitary condition of dairy farms supplying milk to other cities. ,vIILK SURVEY OF THE CITY OF ROCHESTER 179- SANITARY CONDITIONS OF DEALERS' MILK PLANTS IN CITY OF ROCHESTER Four city milk inspectors were employed in the work of making sanitary inspections of the milk factories in the City of Rochester. They used a standard form of report blank, on which were noted the conditions of plants and their equipment, the methods used in the performance of all operations, milk handling, the temperatures of pasteurization and of cooling milk, and the efficiency of the processes of washing and steril- izing. In addition to this, other minor features of the conduct of the business were noted. One hundred and thirty-two milk delivery stations in the city were inspected in this manner, out of a total number of 136. Detailed reports of these inspections were delivered to the office of the Survey and by the statisticians summarized in the form of a tabulation as indicated in Table No. 88. TABLE NO. 88 REPORT ON MILK PLANTS— SANITARY OPERATIONS EQUIPMENT Yes. No. 1. Building — Located among sanitary surroundings 116 16 2. Floors — Constructed of water-tight materiaL 128 2 2a. Floor properly graded and drained 120 4 3. Walls and Ceilings — Constructed of hard material Ill 17 3a. Smooth 105 16 3b. In good repair Ill 14 4. Drainage — Sufficient floor drains 128 2 4a. Disposal satisfactory 123 5 4b. Plumbing in good repair 122 5 5. Light — Sufficient (at least 8% floor area) 116 11 6. Ventilation — Sufficient 121 6 7. Milk Handling Rooms — Separate from stables, etc 125 4 8. Refrigerator — Properly constructed 106 7 9. Water Supply — Adequate ._ 125 4 9a. Tap or hose bibb connection ." 115 20 9b. Running hot water convenient 107 21 10. Lockers — Provided for employees 105 23 10a. Conveniently located 105 9 10b. Suitable and adequate 104 12 11. Water Closets — Provided 115 12 12. Water Closets — Properly enclosed and ventilated 120 2 12a. In good repair 120 12b. Doors self-closing 5 3 13. Waste Receptacles — Suitable if required 44 8 14. Screens — In windows and other openings 44 69 15. Dressing Room — Conveniently located 115 13 15a. Hot running water 113 8 15b. Soap 114 9 I5c. Common towel prohibited 26 14 16. Milk Handlers — Clothing of white wash material 34 94 16a. Apparently in good health 123 4 17. Stable for Horses — Sanitary 105 8 18. Milk Wagons — Suitable if required. 119 3 19. Bottle Filler — Suitable 80 3 180 MILK SURVEY OF THE CITY OF ROCHESTER 19a. Machinery 97 Or, by hand " 30 20. Bottle Capper — Suitable 39 3 20a. Machinery 9 Or, by hand 112 21. Pumps and Pipes — Sanitary construction 83 6 22. Pasteurizer — Sanitary construction 23 4 23. Cooling Device — Sanitary construction 80 3 24. Vats — Sanitary construction 112 4 OPERATION Yes. No. 1 . Milk Receiving — Separate 2 32 a. Receiving tank sanitary and clean 95 18 b. Milk filter clean and sanitary 114 9 c. Milk protected , 112 5 d. Inspected for taint, temperature, sourness 109 7 2. Bottle Washing — Bottles brushed 120 1 a. Hot alkaline wash water 126 1 b. Rinsed with clean water 124 3 c. Sterilized 74 .53 d. Apparatus used 82 32 e. Bottles inverted or protected 119 7 f. Stored in sanitary place 115 7 g. Bottle racks washed 94 29 3. Can Washing — Cans brushed 128 a. Hot alkaline wash water 131 b. Rinsed with clean water 129 2 c. Apparatus used 27 90 d. Sterilized _._ 101 25 e. Lids cleaned and sterilized same as cans 99 40 f. Proper can racks provided 123 7 g. Cans free from rust and seams 129 2 h. Shipment cans cleaned before return 131 1 4. Apparatus Washing — Including a. Pipes, pumps, pasteurizer, cooler 25 3 b. Taken apart daily 114 6 c. Apparatus used 53 17 d. Brushed with hot alkaline water 124 e. Rinsed with clean water 124 f. Sterilized 79 44 g. Steam hose connection 74 44 4h. Boiler Pressure Lbs. No. ' Lbs. No. Lbs. No. 10 1 70 15 3 75 20 1 80 30 1 90 40 11 100 50 7 110 55 1 120 60 26 130 5 140 1 150 9 160 165 170 180 2 190 200 45 1 4i. Apparatus protected after sterilizing 112 MILK SURVEY OF THE CITY OF ROCHESTER 181 Pasteurizing 1. Milk heated to : 2. Milk held at: Temp'ture. 140.: 142 144 No. . 4 . 10 . 4 . 4 Temp'ture. 140 142 144 No. .. 5 .. 11 .. 4 145 145 .. 2 3. Milk cooled to : Temp'ture. No. All but one held 30 minutes. One held at 20 minutes only. 34. 35. 36. 38. 40. 42. 45. 47. 50. Yes. Temperature control 17 Temperature recorder 22 Steam — Hot water heater 19 Mixing in holder 18 Exposed during process , 5 Steam supply adequate 22 Ice supply or refrigeration adequate 21 Pasteurizer — Capacity No. 5 2 17 Cooling a. Raw milk cooled to : Temp'ture. 34 35. 36. 38. 40. 42. 43. 45. 46. 48. 50. No. 2 3 1 10 46 6 2 18 3 3 5 b. Raw milk held at : Temp'ture. 32 34. 35. 38. 40. 41. 42. 43. 45. 46. 48. 50. No. 1 1 5 14 n 1 10 1 13 2 1 5 c. Cooler protected . . . . d. In sanitary place . . . . e. Storage cooling vats- f . Ice water clean -concrete Yes. 115 112 103 95 Bottling and Capping : Yes. b. Bottling by automatic device 113 c. Hands not allowed to touch bottles 53 d. Bottle tank covered 114 e. Caps clean and protected 113 8. Can Filling — Filled in clean manner. a. Lids protected b. Paper, if used, clean 20 11 9. Wagons — Retail, clean 114 a. Wholesale — clean 61 b. Railroad platform — clean 52 10. Stable — clean 101 Lbs. 28,381 No. 8 9 3 18 No. 10 72 6 4 1 6 1 5 i 9 182 MILK SURVEY OF THE CITY OF ROCHESTER MAINTENANCE OF PLANT Yes. No. 1. Floors— Clean 110 11 2. Washed daily 95 26 3. Walls and Ceilings — Clean 90 31 4. Properly painted 75 25 5. Windows — Clean 71 47 6. Rubbish — Not allowed to accumulate 43 76 7. Spitting and smoking prohibited 101 18 8. Waste Cans — Clean 66 9 9. Water Closets — Clean 71 5 10. Milk Handlers' Clothing — Clean ^1 23 11. Street Clothing — Not in milk rooms 35 85 GENERAL a. Milk tested as to temperature on arrival . . . b. Degree 45 No. 3 50 S 53 1 55 1 56 1 Average Temperature. Degree 58 No. ? 62 1 64 7 65 1 66.. ? 67 .. ?. c. Milk tested for fats and solids Degree No. 68 5 69 1 70 4 72 1 75 2 Yes. 17 Yes. 11 No. 41 No. 23 Per Cent. Butter Fat. Number Per cent. 2 3.6 1 3.4 ' Per Cent. T. S. 1 12 e. Milk examined for bacteria count (by Health Bureau) 70 41 Colonies Per cc. No. 2... 1... 1... 1... Count 10,000 12,000 17,000 20,000 No. 2... 1... 1... 1... 2... Count 30,000 40,000 44,000 53,500 70,000 No. 1... 2... 1... 1... Count 80,000 114,000 250,000 400,000 g. Are caps and tags marked to show place and date of pasteuriza- tion, bottling or production ? h. Has there been any infectious disease in household of milk handlers ? i. Do you refuse milk suspected to be adulterated, dirty or infected? Yes. 22 69 No. 52 47 1 MILK SURVEY OF THE CITY OF ROCHESTER 183 EMPTY CONTAINERS RETURNED FROM ROUTES a. Per Cent, of Bottles Returned Dirty. Per cent. No. Per cent. No. Per cent. No. lA 1 4 2 20.. 5 V2 1 5 7 25 ..5 \Vi 2 8 2 40 2 1 9 10 20 SO 5 2 15 12 2 60 1 3 2 13 1 80 2 15 3 b. Per Cent, of Cans Returned Dirty. Per Cent. No. 100 9 30 1 5 c. What Steps are Taken to Insure Cleansing Before Return by Customer? Instructed to rinse bottles 5 Homes visited — Drivers held responsible 1 Nothing 38 d. What Do You Do in Regard to Empty Receptacles from Infected Homes? Never had any 1 Nothing 1 Refuse 8 Do not remove them 18 "From the summary of these reports it Avill be seen that in most in- stances the building and equipment of the city milk plants are in good condition. Among the exceptions worthy of notice are the following: (1.) In only 26 factories is a common towel prohibited. The use of paper towels is to be recommended where the cost of cloth hand towels is too expensive. (2.) In only 34 of the 132 factories visited were the employees dressed in white, washable overalls. (3.) Only 44 of the factories were provided with screens in the windows against flies. (4.) In only two factories was milk received in a separate room from the other operations. (5.) In 53 of the plants visited the glass bottles are not sterilized. (6.) In 25 of the plants the milk cans are not sterilized, and in 40 of th.em the lids of the cans are not sterilized. (7.) In 44 of the factories the apparatus used is not sterilized. THE PASTEURIZATION OF MILK Four factories were heating the milk not above 140 degrees. This is lower than the temperature decided upon by the highest authorities as necessary for the destruction of bacteria under commercial conditions. In five factories the milk pasteurized by the Holding method was not heated above 140 degrees, which is a temperature too low for effective results. All of the factories are using the Holding method of pasteurization. All but one held the milk for 30 minutes at the highest temperature. 184 MILK SURVEY OF THE CITY OF ROCHESTER which time is recognized as necessary for effective results. One factory held the milk at the highest temperature for only 20 minutes, which is too short a time. In the cooling of milk the report shows that in the pasteurizing plants, 9 were cooling to 40 degrees and below, while 13 were cooling to temperatures between 40 and 50 degrees. It is recognized for efficient pasteurization and the protection of the milk after pasteurization, that it should be cooled as the last step in the process, to temperatures below 40 degrees. Five of the pasteurizing plants were not provided with tem- perature controllers. All of them were prbvided with temperature recorders. In milk plants handling raw milk, temperatures to which milk was cooled were also taken. The report shows that in 62 of these the milk was cooled to 40 degrees or below, which is satisfactory, while in 37 the milk was cooled to temperatures of from 40 to 50 degrees. In 98 fac- tories raw milk was handled in cold storage rooms at temperatures below 40 degrees, while in 33 factories the raw milk received was held in cold storage in temperatures of between 40 and 50 degrees. One hundred and thirteen factories used machinery for filling bottles. In 53 factories the machinery is arranged so that the hands do not touch the bottles during bottlings. Temperatures taken of milk during August and September on its arrival in the city by inspectors, were taken from cans on the railroad platforms. Thirty-nine samples in all were tested. Of these, 7 were 70 degrees and above. 11 " 65 to 69 degrees. 12 " 55 to 64 > 6 " 50 to 55 3 " 45 to 50 " In the majority of these samples the temperatures were too high and would stimulate the growth of bacteria. Some of the bacterial tests were made by the Health Department during the month that inspections were recorded. With the exception of a few of the smaller plants where unsanitary conditions were found, the sanitary inspectors' reports indicate a fairly good condition of the city milk factories. Lack of sterilization and lack of proper cooling, which are always the two main faults in milk sanita- tion, are the most prominent faults to be found with the sanitation of these plants. BACTERIAL TESTS OF ROCHESTER MILK SUPPLY The sanitary character of the milk itself must always be considered independently of the sanitary condition of the farms and factories. To MILK SURVEY OF THE CITY OF ROCHESTER 185 determine the sanitary character of the milk, arrangements were made for carrying out some special bacterial tests. The University of Rochester, through its Department of Vital Economics, kindly offered the facilities of one of its bacteriological laboratories to the bacteriologists employed by the Survey. These laboratories were oflfered without expense to the Survey and every convenience that could be desired was provided. The Survey employed two bacteriologists at different times to collect samples of milk and make bacterial tests. The total number of samples tested was 350. A number of milk factories were visited and samples taken of the process of pasteurization in order to determine the efficiency of this process. In such factories samples were taken from the mixing tank in which the milk from the cans was poured and mixed before pasteurization. If passed through a clarifier before pasteurizing, sarnples were taken from the clarifier and from each pasteurizer. They were then taken from the heater after the milk was heated and from the holder after the milk was held at the re- quired temperature for the required period of time. Another set of samples were then taken from the cooler after cooling and from the bottle filler after the milk had passed through the filler, but before it entered the bottle. The last set of samples were taken from the filled bottles themselves. Another series of samples were taken from the rail- road platforms from the farmers' cans as they were received. The results of all this work are tabulated and summarized in Table No. 89. TABLE No. 89 SUMMARY OF TABULATION OF BACTERIOLOGICAL TESTS. 2. (Cans.) Raw Milk as Received: Bacteria per cc. No. of Samples Below 50,000 18 50,000 to 100,000 Z1 100,000 to 200,000 60 200,000 to 500,000 47 500,000 to 1,000,000 22 1,000,000 to 5,000,000 18 3. Samples from Mixing Tank : Bacteria per cc. No. of Samples 100,000 to 200,000 3 200,000 to 500,000 8 500,000 to 1,000,000 6 1,000,000 to 5,000,000 17 4. Samples from Clarifiers : Bacteria per cc. No. of Samples 185,000 1 190,000 1 186 MILK SURVEY OF THE CITY OF ROCHESTER 5. Samples from Heater : Bacteria per cc. No. of Samples 1,000 to 10,000 1 10,000 to 25,000 3 25,000 to 50.000 4 50,000 to 100,000 4 100,000 to 200,000 .................... 200,000 to 500,000 2 6. Samples from Holder: Bacteria per cc. No. of Samples 1,000 to 10,000 4 10,000 to 25,000 25,000 to 50,000 8 50,000 to 100,000 .■ 2 100,000 to 200,000 ' 2 7. Samples from Cooler : Bacteria per cc. No. of Samples 1,000 to 10,000 3 10,000 to 25,000 9 25,000 to 50,000 4 50,000 to 100,000 4 100,000 to 200,000 2 8. Samples from Bottle Filler: Bacteria per cc. No. of Samples 1,000 to 10,000 1 10,000 to 25,000 3 25,000 to 50,000 4 50,000 to 100,000 100,000 to 200,000 2 500,000 to 1,000,000 1,000,000 to 5,000,000 1 9. From Filled Bottles : Bacteria per cc. No. of Samples 1,000 to 10,000 4 10,000 to 25,000 5 25,000 to 50,000 11 50,000 to 100,000 11 100,000 to 200,000 6 200,000 to 500,000 3 500,000 to 1,000,000 4 1,000,000 to 5,000,000 2 From Table No. 89 it appears that out of 202 samples taken directly from farmers' cans, 18 contained milk testing from one million to five million bacteria; 22 from five hundred thousand to a million, and 47 from two to five hundred thousand. When one considers the nearby source of supply for the City of Rochester, it is not unreasonable to ex- pect milk to arrive in the city containing not more than two hundred thousand bacteria, if sanitary precautions have been carried out. Con- sequently, at least 87 of the samples of milk out of the 202 contained numbers of bacteria so large that they plainly indicated lack of proper sanitary precautions. MILK SURVEY OF THE CITY OF ROCHESTER 187 This is further indicated by the samples taken from the mixing tanks of the pasteurizing plants. Thirty-four of these were taken and 31 con- tained bacteria in excess of two hundred thousand, while 17 contained bacteria from one to five million — indicating very unsanitary milk. The samples taken from the heaters of the pasteurizers were 14 in number. Two of these contained bacteria of between two and five hundred thou- sand, and four bacteria from fifty to one hundred thousand. These six samples indicated plainly that the processes of heating were ineffective. The failure to destroy bacteria in the milk must be reported as due not so much to lack of proper temperature on the part of the heating appar- atus, for as the temperature seemed to be sufficient, the only remaining reason for these large number of bacteria after heating must be imper- fect cleansing and sterilization of the apparatus. Eighteen samples were taken from the holding tanks. Four of these contained bacteria between fifty and two hundred thousand, while eight contained bacteria between twenty-five and fifty thousand. These 12 samples all show plainly that the process of pasteurization was ineffective, since a first-class heating and holding process should result in milk which contains not more than ten thousand bacteria. Since the temperatures on most of these machines seemed to be sufficiently high, the chief reason for the large number of bacteria must be due to imperfect processes of washing and sterilization of the pasteurizing apparatus. The 22 samples taken from the cooling apparatus in the pasteurizing plants show the same indications of imperfections in the pasteurizing processes. Passage of the milk from the cooler does not indicate any marked increase in the numbers of bacteria, there being 10 samples containing bacteria ranging from twenty-five to two hundred thousand, which corre- sponds rather closely with the bacteria in the samples for the holding process. Samples of milk taken from bottle filling apparatus were 12 in all. Two of these contained bacteria between one hundred and two hundred thousand, one between two and five hundred thousand, and one between one and five million. There were 46 samples taken from filled bottles after all processes were complete. Six of these contained from one to two hundred thou- sand bacteria; three from two hundred to five hundred thousand, and four from five hundred thousand to a million, and two from one million to five million, making in all 15 samples out of forty-six, or 30% of the bottled milk samples in excess of one hundred thousand bacteria. All of these were bottles of pasteurized milk and the large numbers of bacteria in them plainly indicate unsanitary conditions in the washing 188 MILK SURVEY OF THE CITY OF ROCHESTER and sterilization of the bottles themselves, as well as the apparatus in the pasteurizing plants. It is to be expected that a first-class pastuerizing process will produce a glass bottle of milk containing no more than ten thousand bacteria per cc. There are numerous pasteurizing plants in other cities consistently operating in this way, so that the milk sold from the delivery wagons contains not more than ten thousand bacteria per cc. It must be said that the pasteurizing plants of the City of Rochester are not controlled by bacterial tests made either by the dealers themselves or by the city Department of Health. The failure to regularly make control tests by taking samples of bacteria from these pasteurizing plants, un- doubtedly prevents both the dealers and the Health Department from having any knowledge as to the efficiency of the pasteurizing processes. What has been said regarding the large number of bacteria in the pasteurized milk in Rochester can be said with even greater emphasis concerning the bacteria in the raw milk of Rochester. While the in- spectors did not take samples of bottled milk from the raw milk dealers, yet the samples taken from the cans of raw milk at the railroad platform plainly indicate what the character of the raw milk in bottles must be. Since the methods of handling milk by the raw milk dealers do not subtract in any degree from the numbers of bacteria contained in the cans received at the railroad; but, as a matter of fact, all of the processes of handling by the raw milk dealer necessarily add considerable numbers to the bacteria contained in the cans, the numbers of bacteria in the raw milk sold in bottles will be just as large and in many cases larger than were found in the canned milk as received at the railroad platforms. PASTEURIZATION Since the year 1900 when Nathan Strauss stood almost alone in openly advocating the pasteurization of all milk as a measure of public safety, there has been a steady growth of sentiment in favor of pasteuriza- tion, so that now the majority of the members of the medical profession who formerly opposed this measure have been won over to its favor. In like manner, practically every health officer of every large city in the United States and Canada, as well as in Europe, openly advocates pas- teurization. The National Commission on Milk Standards, chosen by the New York Milk Committee from the leading public health authorities in the United States and Canada, in 1912 at an official meeting passed the fol- lowing resolution: "The Commission thinks that pasteurization is necessary for all milk at all times, excepting certified milk, or its equivalent. The majority of the commis- sioners voted in favor of the pasteurization of all milk, including certified. Since this vi^as not unanimous, the Commission recommends that the pasteurization of certified milk be optional." MILK SURVEY OF THE CITY OF ROCHESTER 189 As a result of this sentiment, all large milk dealers in the United States and Canada have installed machines for pasteurizing milk and pasteurize their entire supply, with the exception of a small amount of special .milk at high prices, such as certified milk. The only raw milk sold in cities and towns outside of the small quantity of certified is the raw milk bottled by small milk dealers who cannot afford to install pas- teurizing machinery. New York City regulations require the pasteurization of all milk excepting that produced from dairies having cows which are tuberculin tested, employees who are free from disease, and from dairies which carry out exceedingly rigid sanitary precautions. In Table No. 90 is a list of 18 cities of the U. S. and Canada which have passed milk regulations of their own, among which is a regulation requiring the pasteurization of all milk not coming from cows tuberculin tested, and otherwise protected against infection. It will be noted that the total population of these cities is 17,810,000, the total milk supply 5,503,000 quarts, and the total quantity pasteurized is 5,351,000 quarts, which is over 97%. TABLE NO. 90 CITIES HAVING ORDINANCES REQUIRING PASTEURIZATION Name of City. a a o a u en Sacramento, Cal. . Minneapolis, Minn. Milwaukee, Wis. . . Cincinnati, Ohio . . Akron, Ohio Toronto, Can Indianapolis, Ind . San Francisco, Cal Spokane, Wash. . . Seattle, Wash . . . . St. Louis, Mo Los Angeles, Cal. Philadelphia, Pa. . Baltimore, Md. . . , Detroit, Mich Chicago, III Cleveland, Ohio . , New York, N. Y. , Total 70,000 400,000 500,000 425,000 190,000 500,000 310,000 500,000 140,000 400,000 750,000 650,000 1,800,000 675,000 1,000,000 3,000,000 1,000,000 5,500,000 24,000 qts. 140,000 " 192,000 " 120,000 " 80,000 " 192,000 " 48,000 " 128,000 " 28,000 " 84,000 " 140,000 " 197,000 " 550,000 " 140,000 " 340,000 " 800,000 " 300,000 " 2,000,000 " 22,000 qts. 126,000 " 188,000 " 120,000 " 76,000 " 192,000 " 48,000 " 120,000 " 24,000 " 64,000 " 104,000 " 188,000 " 533,000 " 136,000 " 340,000 " 790,000 " 300,000 " 1,980,000 " 17,81'0,000 5,503,000 qts. 5,351,000 qts. 1928 1071 12 50 42 65 24 80 40 25 4 51 57 30 225 74 38 700 250 161 30 35 65 18 80 40 12 4 15 35 13 83 37 38 267 250 43 190 MILK SURVEY OF THE CITY OF ROCHESTER In Table No. 91 is a list of twelve cities in the U. S. and Canada which have milk regulations not positively requiring pasteurization, but recognizing and defining it. This tabulaton shows the populaton, the total quantity of milk and the total quantity of milk pasteurized. From this it will be seen that in these twelve cities there was 602,000 quarts of milk sold daily, 420,373 of which was pasteurized, amounting to 70%. If we compare with the above conditions, conditions in the City of Roch- ester, we must note that out of a total milk supply in August for Rochester of 77,579 quarts there were 44,160 quarts pasteurized, which is a little less than 57% of the total supply. I TABLE NO 91 CITIES WHERE PASTEURIZATION IS NOT REQUIRED BUT IS RECOGNIZED AND DEFINED BY REGULATION Name of City. P-i OS. "75 a OS o Calgary, Alta. . . . , Canton, Ohio .... Rockford, 111 Winnipeg, Can. . . New Orleans, La. Omaha, Neb Hamilton, Ont. . . Toledo, Ohio .... Columbus, Ohio . Washington, D. C Duluth, Minn. . . . 67,000 85,000 75,000 200,000 400,0001 240,000 110,000 300,000 300,000 475,000 100,000 16,800 22.000 18,600 57,600 64,000 79,000 30,000 50.000 60,000 160,000 18,000 16,320 16,800 13,953 36,200 28,000 19,500 24,000 30,000 48,000 155,000 13,600 2 30 20 104 200 128 25 25 44 90 2 4 7 2 2 2 10 5 14 2,352,000 576,000 400,373 The evidence which is available regarding the value of the pasteuriza- tion of milk is now so abundant that it would be impossible in a survey of this kind to more than hint at the character or value of this evidence. Almost without exception every prominent health officer and sanitary scientist in the world is now on record in favor of pasteurization of public milk supplies, and the practice has become established not only by the in- dustry for economic reasons, but under the auspices of municipal health departments for public health reasons. TESTIMONY OF DR. W. A. EVANS One of the most distinguished public health authorities in America is Dr. W. A. Evans of Chicago. He holds the position of health editor of the Chicago Tribune, and his writings in this paper are syndicated in MILK SURVEY OF THE CITY OF ROCHESTER 191 — — — ^ , twenty other large papers in America. He also occupies the position of Professor of Hygiene and Sanitary Science in Northwestern Univer- sity Medical School. He was Health Commissioner of the City of Chicago from 1907 to 1911 inclusive, President of the American Public Health Association, 1917, is a member of the Executive Committee of the Chicago Welfare Society which operates infant milk depots in Chicago, and a member of the Medical Advisory Commission of the Council on National Defence. He is one of the most prominent writers and lecturers on public health in this country. Dr. Evans appeared as a witness at a public hearing held in the City Hall, Rochester, October 7th, 1919. His testimony in part was as follows : Q. During your period of official connection with the Department of Health in Chicago as Health Commissioner, was the subject of the control over the milk supplies of the City of Chicago a subject which came up for consideration? A. It was. Q. Will you state in your own way what consideration was given to the subject at that time, and what you did? A. The question of the mortality rate amongst infants was quite unsatisfactory, and it was one of the first things to which I gave attention when I assumed the duties of the office in 1907. I came to the conclusion that the milk supply was the most important factor in the situation and I conducted an investigation of the milk supply of Chicago and of other cities throughout the country with a view of determining upon a policy for the control of the milk supply. As the result of about a year's study, we came to the conclusion that the milk supply should be contr6lled by tuberculin testing and pasteurization, and so in July, 1908, we passed the Chicago ordinances requiring pasteurization, which ordinances have served as the basis for most of the milk ordinances passed by municipali- ties since that time. O. So far as you know, that was the first time that any American city passed such an ordinance ? A. I have always understood so, and I believe it to be a fact, that the ordinance passed in Chicago in 1908 was the first ordinance certainly of any large city, or city of importance, requiring pasteurization, making pasteurization compulsory. Q. What were the reasons why you yourself favored the passage of such an ordinance in Chicago? A. In the first place, it seemed to me that there was no other way to prevent the spread of milk-borne contagion, brought into the city where there was considerable distance between the point of production of milk 192 MILK SURVEY OF THE CITY OF ROCHESTER and the point at which it was used. It might be possible to prevent the spread of contagion of milk in a community where milk was produced on the same premises where it was consumed, or in close proximity thereto ; but in market conditions where the producer was out of range of the consumer, no other way of preventing the spread of contagion by milk was feasible. That was my conclusion of 1908 when the ordinance was introduced, and I am more firmly of my opinion now than I was. O. Did you have any reason to believe at that time that the milk supply was any worse than the milk supply of other cities ? A. No, I had rather thought that we had a better average milk supply than the milk supply of other cities. Since 1892, the city of Chicago has always had milk inspectors and laboratory control of the milk supply. In 1904 the city inspection service was supplemented by a country, or farm inspection service. Since 1904, Chicago has had for the control of its milk supply, an inspection service within the city limits, laboratory control, and a country or farm inspection service. All three of these services were in operation in 1907 and 1908, the period in which I was investigating the question and arrived at the conclusion as to the proper remedy. Q. Then you did not consider that the control of the milk supply by the use of city inspectors and country inspectors and laboratory was sufficient -to safeguard the milk supply for Chicago ? A. I did not then, and I do not now. I am very emphatic in my opinion on that point. Q. Had Chicago any time before or since the period you mention, suffered from epidemics of disease traceable to milk? A. It had periodically. Before 1907, and from 1907 to about 1915, we would uncover some epidemic of some kind or other, in which it was possible to positively demonstrate that the disease, the epidemic, had been spread by milk. In addition, there were reports of other instances in which we believed milk to be responsible for these diseases, in which we were not able to furnish convincing proof. It was our belief, but we could not demonstrate it. Confirmation of the validity of that opinion is had in the fact that since pasteurization became universal in 1917, there has been no milk-borne epidemic in that city. Furthermore, the general rate amongst certain diseases that are frequently milk-borne, has continuously declined. The death rate in Chicago since 1915 from typhoid fever has been at no time higher than 1.07 per 100,000. Q. Is that a very low rate compared with the rate in other cities? A. It is the lowest American rate, and the indications are, unless something very inopportune should happen in the remaining months of 1919, that the rate of 1919 will be much the lowest rate in the world. Not all of that is due to the pasteurization of the milk. The water supply MILK SURVEY OF THE CITY OF ROCHESTER 193 is purer than it was before; the disease is better controlled; but one of the considerable factors is the fact that the entire milk supply, with the exception of a small amount of milk that is sent in, is pasteurized not ,only by ordinance, but is under observation of inspectors and under laboratory control. As I have just stated, the Health Commissioner makes the statement that the number of milk-borne epidemics has been decreasing, almost in proportion as the milk supply became pasteurized, and there has been no milk-borne epidemic of any kind or sort, since all of the milk has entered the city going through the pasteurizing plant. Q. Are you familiar with the circumstances surrounding the epidemic of septic sore throat that occurred in Chicago about 1911 or 1912? A. In the winter of 1911 and 1912. Q. Will you state briefly the circumstances of that epidemic? A. The epidemic occurred among the patrons of one dairy in the greatest part. It was clear as the result of the investigation, that the epidemic originated among the patrons of one dairy. That there was connection between this epidemic of sore throat and the milk supply, there was no question. The difference of opinion arose as to how the infection happened to occur. Q. What was the nature of this disease you called sore throat ; was it ordinary sore throat ? A. No, it is a disease that is generally known as septic sore throat. My recollection is that there were several thousand cases that were re- ported as cases of septic sore throat. O. Do you remember whether there have been other epidemics of that same character traced to milk in America? A. Many such. Q. Large epidemics of septic sore throat? A. Large epidemics of septic sore throat, traced to infected milk supply. Q. But you do not think that if the milk has been properly pas- teurized it is possible for the milk to carry such infection ? A. I do not. Q. Do you think pasteurization destroys the infection? A. I do, and I think it is the only method of preventing just that accident. There is but one practical method of preventing human beings from consuming milk containing streptococci and that is by pasteurizing the milk, or otherwise cooking it. Q. That is, you feel from your knowledge and experience the ex- amination of cattle by veterinarians, the ordinaiy physical examination, is not sufficiently accurate to determine whether dairy cows are infected 194 MILK SURVEY OF THE CITY OF ROCHESTER with this germ or whether they have udders which are discharging the bacteria which might cause this disease ? A. I would say so. I would amplify that to this extent, as I have just said, a great deal has been written on the subject, many studies have been made; there is no unanimity of opinion on it. The only safeguard from the consumer's standpoint is to assume that there is no clinical method of telling whether the milk that comes from a particular cow contains streptococci or not, as the cow passes it, as it is milked. A health officer in my judgment in the present state of the case, is bound to pro- ceed upon the theory that there is no practical method of telling which milk contains streptococci, and which does not. Q. Do you know whether such soreness or disease in cows' udders is fairly common? A. It is. Q. Do you look upon it as a constant menace to a community, the presence of streptococci in milk? A. Yes, I do. O. Do you think that the marketing of raw milk in a community carries with it that constant threat ? A. I do. From the infection of cows do you say ; one of the threats that I had in mind in advocating the ordinance of 1908, and in standing for similar procedure for all cities since 1908. Q. You have been advocating pasteurization for all other cities since 1908? A. I have. O. Have there been many scarlet fever epidemics traced to milk? A. A very sad number. My interest in the subject immediately arose from a very extensive, most extensive epidemic of milk-borne scar- let fever occurring in Chicago — or beginning in Chicago, in about February, 1907, and extending until about May, in which there were many thousand cases of disease and in which the disease was very definitely traced to milk. Q. Do you consider the observation or the safeguards which can be cast around the employees connected with dairy farms and milk dis- tribution by any medical inspection, or inspection by milk inspectors, is sufficient to prevent human infection from getting into milk ? A. I don't, for the reason that most of the infection, certainly of the milk supply, is done by people who are not clinically sick. That is the people who infect the milk in the main are people who are carriers, are not people who are clinically sick of the disease that they are trans- mitting to the milk. I remember particularly one family in the southwest part of Chicago, the B, family, who were responsible for several epi- demics in my administration, and in a succeeding administration. In no MILK SURVEY OF THE CITY OF ROCHESTER 195 instance did we find the disease typhoid fever being imparted to the milk by people who were sick. There were carriers in this family, and these carriers were infecting the milk. The same thing holds true of every disease. The septic sore throat, diphtheria disease, is imparted, or the bacilli are imparted to the milk by people who are not sick, who are clinically well, and would be passed as well by any inspectors from the Health Department. Q. Pasteurization is a barrier against this infection? A. It is ; commonly speaking, it is a "Safety First" procedure. Q. Will the numbers of bacteria become very large indeed in raw milk, if it is not kept very cool? A. Thousands of millions; uncountable numbers. Q. What is the effect-of pasteurization on these large numbers of bacteria that come into the milk from contamination with dirt? A. The ordinance in Chicago specifies that the pasteurization must kill 99% of all the bacteria and 100% of what ordinarily are referred to as the disease or pathogenic bacteria. Q. You look upon pasteurization as a safeguard for infants and children ? A. I do. O. Now, in recommending the adoption of such an ordinance for Chicago, do you take into consideration the opinion of some scientists and medical men that the pasteurization of milk may damage its food value ? A. I did. Q. What is your attitude on that? A. That was a question that I investigated very thoroughly, and went around to many different cities and talked with health officers of those cities and with children's specialists practicing therein. I also con- ferred personally and by letter with children's specialists in Chcago and in many parts of the country. The prevailing opinion at the time the ordi- nance was passed, was that the process of pasteurization decreased the food value of milk; decreased perhaps in some slight measure the direct food value, but harmed milk in that it tended to increase the amount of scurvy and rickets said to be produced by milk. As the result of my investigation I came to the conclusion that there was no basis for that opinion and had no hesitation in so advising the City Council of Chicago and the people throvigh the public press and otherwise. There has been no increase in scurvy or rickets in Chicago. My judgment is that the process of pasteurization, its very general adoption as a community prob- lem makes no particular difference with regard to scurvy. I am a mem- ber of the Executive Committee on the Medical Board of the Infant Welfare Society in Chicago. All of our babies that are not breast fed are 196 MILK SURVEY OF THE CITY OF ROCHESTER fed pasteurized milk or other forms of milk which has been heated. We hear nothing at any of our 23 stations about increase of scurvy, mild or severe, as the result of feeding pasteurized milk. O. Has pasteurization been adopted by many other American cities since Chicago adopted it ? A. It has. Q. Has pasteurization been followed by the reduction of the milk- borne diseases in other cities as well as in Chicago ? A. It has. Another of the arguments used was that it put a prem- ium on uncleanly methods in the dairy farms and in the milk depots in the city. The fact that people spent money to purify milk, that fact that these large establishments were constructed,, were visible, were seeable, acted as an educational influence on the farmers. The farms and the dairies are cleaner now than they were before that ordinance, and in my judgment pasteurization has been one of the factors in bringing that about ; not the most important, but one. Q. Is there anything that the health officer of a city can do to prevent the pasteurization being used as a substitute for sanitation or as a substitute for cleanliness ? A. Oh, yes. In the first place, they have dairy inspection in the country and dairy inspection in the city; and they have laboratory con- trol. The ordinances, all of them that I am acquainted with, specify that the milk before pasteurization, must conform to certain requirem^ents, both as to bacterial count, and as to the sanitation of the place where it is produced and marketed. All of these are measures to prevent the marketing of very bad milk by pasteurizing it. Q. You think that an ordinance requiring the pasteurization of milk should include some standards for the milk before it is pasteurized? A. I do. There are such in the Chicago ordinances ; I think in practically all of the ordinances requiring pasteurization; all that I have knowledge of. Q. That is to say, you think that the milk has to qualify as to character in order to be fit for pasteurization? A. That is correct. Q. Now, in Chicago, do the inspectors of the Health Department go into the pasteurizing plants in order to see whether pasteurization is properly carried out? A. The custom in Chicago is to have all the plans for pasteurizing plants brought into the department to be passed upon there; so that the plans must first be approved of by the department. I don't think that that is required by the ordinances, but that is the custom, whether it is required or not. MILK SURVEY OF THE CITY OF ROCHESTER 197 Q. Do the inspectors take samples of the milk before it is pas- teurized ? A. Before its pasteurization and after pasteurization ; and then on occasions they take it at other steps in addition. Q. Their object is to determine the efficiency of the process? A. The ordinance requires that the apparatus used destroy 99% of all the bacteria, and all the pathogenic bacteria. O. Are you familiar, Doctor, with the opinion of other experts in the United States and Canada, men who are making a profession of public health work, on this same subject? A. I am. Q. You said you were a member of the Commission on Milk Standards, New York City. Does that Commission in your opinion con- tain men who are qualified to pass expert judgment on such a subject as this? A. It does ; I think so. Its personnel was very carefully selected. I think it is a very well balanced Commission. Q. How many members are there of that Commission? A. The membership changes; slightly less than 20. Q. Were you the first chairman of that Commission ? A. I was. O. Do you know whether the Commission of 20 men are unanimous in their opinion as to the desirability of the adoption of pasteurization by cities and towns? A. I do. The question has been voted on a half dozen times in one way or another since 1911. There is absolute unanimity of opinion as to the desirability of pasteurizing the general milk supply of the Com- munity. The vote on that question is always unanimous. We have up every year, the question of the advisability of obligatory pasteurization at all times of certified milk, and on that question we generally vote about half and half. On the matter of pasteurizing the general milk supply the vote is always unanimous and has been since about 1912. O. Do you consider that the personnel of that Commission justifies the conclusion that they are as well qualified as any commission that could be selected to pass on such a question as the adoption of pasteuriza- tion by municipalities? A. My opinion is that it is the best opinion available in America. Q. You don't think you could get any better opinion as to whether pasteurization should be adopted? A. My judgment is that it is the best that can be had anywhere for that matter — I said "America." Q. Do you know whether the findings of that Commission have been adopted anywhere? 198 MILK SURVEY OF THE CITY OF ROCHESTER A. Yes, they have been very widely adopted, changed as to details to suit local communities ; but the general trend of their conclusions has been the basis of every ordinance that has been passed, that I know of in this country in the last seven or eight years. O. Who are the prominent authorities in the country who oppose pasteurization ; are there any ? A. I don't think of any. O. Has there ever been any opposition to pasteurization in your Commission of the New York Milk Committee? A. Well there was in 1911, but there has not been since 1911. O. Do you know any health authority in the country who has op- posed pasteurization? A. Well, the only one that I know of in the country is Dr. Goler of Rochester. He was a member of the Commission in 1911, and when the proposition to endorse pasteurization was up, he voted against it, and everybody else voted for it; and my recollection is that there were 22 members of the Commission at that time, and the vote was 21 to 1 ; and then he did not like it; quit and went home. Q. Did he retire from the Commission then? A. I so understood. Q. He attended no other meetings ? A. He has never been a member since, and I understand he sent in his resignation and went home. Q. Do you believe in pasteurizing certified milk? A. I do. I voted for it. I mentioned the fact that we voted on it a great many years, and I am one of those who has constantly voted for it. I voted every time it has been up. Our agreement was that we would not abide by a majority vote on that proposition; that we would not recommend it as one of the recomendations of the Commission on Milk Standards unless there was an overwhelming opinion. And, therefore, as I said a moment ago, though there were many majority votes in favor of it, we have never recommended it as a compulsory requirement. Q. As a matter of fact, milk supply is the most important problem before the people of any food problem? A. The most important. Q. Yes? A. Oh, it is 90% of the health problem of the food question. Q. And it is the most difficult problem ? A. All other foods combined do not make up more than ten per cent, of the problem. MILK SURVEY OF THE CITY OF R OCHESTER 199 REPORT OF MEDICAL OFFICER OF HEALTH OF THE CITY OF TORONTO, CANADA. In a report published in 1915 by the Medical Officer of Health of the City of Toronto entitled, "The Safeguarding of Toronto's Milk Supply, with Special Reference to Pasteurization," there is contained a most concise summary of the more important facts to be considered in connection with the pasteurization of milk. After pointing out the great value of milk as a food, the report discusses the dangers of milk briefly as follows : "(1) Dangers from Bovine Tuberculosis. The total number of tubercular persons examined in the Research Labora- tory of New York City relative to type of tubercle bacilli was 438; and of these, 22, or iyz%, had tubercle bacilli of the bovine type (contracted from the cow). The 438 persons were divided into three groups, according to age: 1st. 297 persons, 16 years of age or over, among whom only one, or less than y^ of 1%, showed bovine tubercle bacilli. 2nd. 54 persons between 5 and 16 years of age, among whom 9, or 16^, showed bovine tubercle bacilli. 3rd. 84 children under 5 years of age, among whom 22, or 26J^%, showed bovine bacilli. The foregoing cases, with the addition of the total number of those exam- ined by other investigators (which Dr. Park accepted as reliable after a careful analysis), total 1,038; and of this number 101, or 9i^, showed tubercle bacilli of the bovine type. If the 1,038 cases are divided into three groups according to age we have the following: 1st. 686 persons, 16 years of age or older, among whom 9, or 1%%, showed bovine tubercle bacilli. 2nd. 132 persons, between 5 and 16 years of age, among whom 33, or 25%, showed bovine tubercle bacilli. 3rd. 320 persons, less than 5 years, among whom 58, or 26^^%, showed bovine tubercle bacilli. Dr. Park made the following significant statement which is contained in a recent annual report of the United States National Association for the Study and Prevention of Tuberculosis : 'When the diagnoses of cases entering Mt. Sinai Hospital and the Babies' Hospital of New York, were examined, it was found that the majority of cases of meningitis, supposedly due to the meningo coccus, were really tubercular in character. Fifteen per cent, of the cases of broncho-pneumonia and marasmus were also found to be cases of tuber- culosis.' " The report also quotes the findings of such leading authorities on tuberculosis as Dr. Ravenel of the University of Missouri; Professor Sims Woodhead of Cambridge University, England; Professor Delepine of Manchester, England; Professor Bang of Copenhagen; and sum- marizes their statements as follows : 200 MILK SURVEY OF THE CITY OF ROCHESTER "The uniformity of the findings of all these investigators is inspiring and convincing, their conclusions being that, conservatively estimated, twenty-five per cent, of all cases of tuberculosis under 16 years of age is of the bovine type. It is apparent then that tuberculosis, as contracted from cows through the medium of their milk, exists in children to a degree that cannot be longer disregarded by Departments of Public Health, and demands immediate action. To attempt to remove this danger of bovine tuberculosis by excluding from dairy herds all cattle suffering from tuberculosis would mean a milk famine, the cost would be prohibitive, and even then the milk would not be safe without pasteurization." The report then refers to typhoid fever, scarlet fever, and diphtheria, as follows : "(2) Typhoid Fever. The following table has been taken from a pamphlet recently issued by Dr. Charles E. North, Consulting Sanitary Expert, and Secretary of the Com- mission on Milk Standards, New York City. This table represents a few only of the 317 outbreaks of typhoid fever traced to raw milk: Glasgow, Scotland 500 cases from one raw milk supply. Cologne, Germany 270 " Port Jervis, N. Y 59 " Springfield, Mass 182 " Oakland, Cal 262 " Montclair, N. J 107 " Stamford, Conn 307 " These would have been prevented by pasteurizing the milk. (3) Scarlet Fever. 125 epidemics of scarlet fever traced to raw milk supply, of which the fol- lowing are a few examples : Buffalo, N. Y. Washington, D. C. 57 cases from one raw milk supply. 33 " " *' London, England 284 " Beverley, Mass 6 " " " Liverpool, England 59 " " " Mt. Vernon, N. Y 45 " " " Boston, Mass 195 " Pasteurization is the only means by which this danger can be eliminated. (4) Diphtheria. 51 epidemics of diphtheria have been examined of which the following are a few illustrations : Brooklyn, N. Y.. Los Angeles, Cal. Wellsvale, N. Y. Clinton, Ohio . . . , Highpark, Mass. . Warwick, R. I. . . 12 cases from one raw milk supply. 35 " 84 " 36 " 69 " 64 " No epidemics have thus far ever been traced to pasteurized milk. MILK SURVEY OF THE CITY OF ROCHESTER 201 (5) Septic Sore Throat. Considerable interest has been aroused during the past four or five years as the result of a high mortality due to septic sore throat. Many of these out- breaks have been traced directly to the milk supply, partially through contamina- tion by the handlers of the milk, who were affected or were carriers, and partially through an organism which is found in the diseased udder of the cow. Six hundred cases of sore throat in Stockholm in 1908 were traced to an abscess in the udder of a cow, which contained the same organism that was found to be responsible for the sore throat. This animal was one of a herd that furnished milk to those that became infected. This was one of the first observations made in this connection, and different outbreaks have been traced to this source since. A very exhaustive study was given to the outbreak in Boston in May, 1911, where 1,043 cases were traced to one raw milk supply. In Chicago, 111., an out- break of 10,000 cases was traced to one raw milk supply; in Baltimore, 602 cases; and in Cortland-Homer, N. Y., 669 cases. This disease seems to attack adults especially. , Pasteurization would have made these outbreaks practically impossible. It was on these findings, together with the information already in the possession of the Board of Health of New York, that they decided to pass an ordinance in 1912, requiring all milk not coming from cattle free from tuber- culosis, as determined by the tuberculin test, and not produced under conditions necessary for the production of a certified milk, to be scientifically pasteurized. This ordinance was not rigidly enforced until 1914. That it has been for the past year rigidly enforced is evident from the following extract taken from the Weekly Bulletin of the Department of Health of New York City, June 6, 1914 : 'The situation regarding compulsory pasteurization of all except the highest grade of milk sold in this city is extremely satisfactory, at the present time, about 99% of the city's supply being efficiently pasteurised. This represents an enormous improvement over conditions a year ago, and should make milk-borne disease a rarity in this city.' " The author, Dr. Charles J. Hastings, Health Officer of Toronto, then apologizes for presenting further arguments in favor of pasteuriza- tion by saying : "In all advances of science there are always a few who cannot keep pace with advancement, and they expect others to wait for them. It is therefore necessary to repeat and repeat over and over again. I am reminded here of Lord Cromer's address at the Annual Confer- ence of the British Research Defence Society in London in July, 1910, when the question of inoculation of animals was under discussion, in which he said : "It seems unfortunate that we should have to waste time on prob- lems that are so self-evident, in order to meet the objections of those who value the life of a guinea pig higher than that of a baby." He consoled himself by quoting the statement made by Mr. Cobden in the British House of Commons when endeavoring to bring about the repeal of the Corn Laws, which was as follows : 'I have come to the conclusion that the only way to get an idea into the heads of the British public is to repeat the same thing over and over again in slightly different language.' 202 MILK SURVEY OF THE CITY OF ROCHESTER This finds a fitting application in our present educative campaign in the necessity for pasteurization." (6) Effects of Pasteurization on Milk "The work done at that time by Schroeder and Cotton in connection with the experimental stations of the Bureau of Animal Industry was most valuable and has frequently been quoted since. They demonstrated that tubercular cattle discharged tuberculosis germs from their bowels almost constantly — at times to the extent of tens of millions per day. In demonstrating the efficiency of pasteurization, so far as the tubercle bacillus is concerned, they inoculated several hundred guinea pigs with the milk in its raw state from these tubercular cattle. Every one of the little animals showed general tuberculosis. Over 200 guinea pigs were injected with milk from the same cow after it had been pasteurized at a temperature of 140 degrees for thirty minutes. Not one of these developed any signs of tuberculosis." The author gives the names of numerous other authorities who have confirmed this work. He then submits statements from numerous authorities regarding the chemistry of milk showing that the temperatiu"es used in pasteuriza- tion do not damage milk in any way or change its chemical condition. Among other statements as to the food value of pasteurized milk is the following : " In a recent careful study carried on in Washington 351 babies fed on raw milk gained on an average of .4030 oz. a day, while 557 babies fed on pasteur- ized milk gained on an average of .4077 oz. One hundred and ten babies were fed for part of the time on pasteurized milk. During the raw milk period they gained on an average of .4312 oz. and during the pasteurized milk period an average of .4607 oz. Some of the leading authorities in England and United States are now advocating the use of boiled milk, the digestibility of which one might possibly suspect as being unfavorably affected. Dr. North in referring to the digestibility of pasteurized milk gives the following practical evidence : 'Fortunately New York City has the past three years carried out a gigantic experiment in infant feeding at its fifty-five (55) municipal milk depots, where babies are fed the year round, to the number of 18,000 daily in summer and 16,000 daily in winter. For three years all of this milk has been scientifically pasteurized. Records have shown that the babies have gained weight ; have kept well ; have shown no signs of rickets or scurvy, and in every way gave evidence that pasteurized milk is not inferior in food value or digestibility to raw milk. 'The death rate among infants during this period has been reduced from 125 per thousand to 94 per thousand, which places New York City in the lead of any large city in the world in the reduction of infant mortality.' Numerous other instances could be quoted of the unchanged nutritive value of pasteurized milk, but the foregoing are more than sufficient to demonstrate this fact. It was with a knowledge of these facts that the International Congress of Tuberculosis held in Washington in 1908, unanimously passed a resolution that MILK SURVEY OF THE CITY OF ROCHESTER 203 all milk not coming from herds shown to be free from tuberculosis, should be scientifically pasteurized. The National Association for the Prevention of Tuberculosis, the Canadian Association for the Prevention of Tuberculosis, and the Canadian Medical Association subsequently passed similar resolutions. It was with a knowledge of the dangers of transmission of tuberculosis, together with the dangers of the transmission of other communicable diseases and the dangers of diarrhoeal diseases through raw market milk, that prompted the Committee on Milk Standards, and subsequently, the American Public Health Association and the American Medical Association, as well as the Association of State and Provincial Health Officers, to pass a resolution that all milk not coming from herds free from tuberculosis, as demonstrated by the tuberculin test, and not obtained under conditions corresponding to those required for the production of certified milk, should be scientifically pasteurized before being used for human consumption. At the International Pure Milk Congress held in Brussels in 1907, the use of raw milk for infant feeding was officially condemned and pasteurization advocated. It was with a knowledge of these facts that the Minister of Agriculture for France in 1912 had legislation passed prohibiting the sale of any milk in France that had not been properly pasteurized. The Minister of Agriculture had behind him in this move a solid block of all the scientific and legislative powers, including : Professor Bordeau, of the College of France ; Professor Metchni- koff of the Pasteur Institute; the President of France, the Deputies, the Sen- ators, the Ministers, the Pasteur Institute, the College of France, and the Medical Faculty. Prof. William T. Sedgwick of the Massachusetts Institute of Technology, and President-elect of the American Public Health Association, says: 'I have long been a believer in the necessity of pasteurization and went on record to this effect in my first paper on milk supply and public health in 1892, reiterating the same views in Sanitary Science and Public Health the same year. The opinion then expressed I hold substantially in the same form and for the same reasons today.' Denmark, the country that practically leads the world in dairying and in efforts to control tuberculosis amongst cattle and hogs, goes so far as to require that all skimmed milk and buttermilk required for the feeding of animals must be pasteurized, and also all cream used for the manufacturing of butter or ice cream. One of the most valuable advances towards the more general control and safeguarding of the milk supply in the United States and Canada was the appointment of the Commission on Milk Standards. The appointment of this Commission was the direct result of the observations of the New York Milk Committee, that there was great incompleteness and lack of uniformity in the milk standards, milk ordinances and rules and regulations of public health authorities throughout the country for the control of public health supplies. In the report issued by this Committee, regulations of standards were pub- lished to govern milk supplies in the various municipalities permitting of modi- fications to meet certain local conditions. The one recommendation, however, which was universal was that all milk not coming from tuberculin tested cattle and procured under the conditions necessary for the production of a certified milk, should be efficiently pasteurized. As has been recently expressed in the New York Medical Record: 204 MILK SURVEY OF THE CITY OF ROCHESTER 'The antiquated, fetish-like arguments against pasteurization, like floating corks, keep bobbing above the surface ; but pasteurization has come to stay, and its success in everyday practice, year after year, and in the case of thousands upon thousands, yea, hundreds of thousands of infants v/hose lives have been saved by it, should quiet all hostile arguments.' " TESTIMONY OF MR. J. H. LARSON Mr. J. H. Larson, Secretary of the New York Milk Committee, appeared as a witness for the Survey at a hearing held in the City Hall, Rochester, on September 16, 1919, and testified on the subject of pas- teurization as follows : Q. Now, Mr. Larson, your work as Secretary of the New York Committe has made it necessary for you to keep in touch with the gen- eral milk problem in other cities of the United States, has it not? A. We very often receive requests for co-operation or for sug- gestions for milk control. Q. But in a general way do you make it your business to keep posted as to the progress in milk improvement in other cities of the United States and Canada ? A. We make it a business to take an interest in them. We do not keep an actual tabulation of facts. Q. During the period you have been employed by the Milk Com- mittee do you know whether or not there has been a tendency on the part of cities in the United States and Canada to adopt pasteurization of milk? A. Yes, there has been. Q. Do you think it is a good thing for any city to make pasteuriza- tion compulsory? A. I believe it is. Q. You believe it is? A. Yes. Q. Do you think that it adds to the safety of milk to pasteurize it ? A. Yes, I believe it does. O. Do you think that raw milk is not sufficiently safe without pas- teurization ? A. Milk, though it is the best food we have, is also the best medium we have for carrying germs of infectious disease ; bacteria grow in milk, and epidemics, typhoid, scarlet fever, sore throat, etc., all have been milk- borne, and that I have taken a part in investigating. I cannot feel that any raw milk is safe. O. Will you mention one epidemic that you personally have in- vestigated which makes you think that raw milk is unsafe ? A. Well, there was an epidemic at Cortland, New York. MILK SURVEY OF THE CITY OF ROCHESTER 205 Q. What did you find there ? A. This was an epidemic of septic sore throat. It was found that the infection came from the udders, I think, of two cows. Laboratory tests revealed this infection ; but not until, I believe, there were upward of 600 cases. Q. Six hundred cases of what? A. Septic sore throat, very severe cases. We had twelve deaths; one banker among them, a prominent citizen. Q. Where did this milk come from ? A. From a small producer outside of the city. Q. How was it distributed ? A. I am not positive whether it was distributed loose or in bottles. Q. Was it distributed by the producer? A. I believe it was ; yes. Q. Was it distributed only in Cortland? A. No, it was distributed also in Homer. Q. In the town of Homer? A. Yes, two miles from Cortland. O. Was there an epidemic there also? A. Yes, sir. Q. At the same time? A. Yes, and same cause. Q. What reason had you to believe that the epidemic was due to milk distributed by this farmer? A. Because it was in the herd of this farmer that the diseased udders of the cows were found. Q. Where were these cases found among the customers? A. On the milk route of this distributer. Q. Almost entirely confined to those people? A. The outbreak of the epidemic followed his routes ; there were many of course, contact cases. Q. But most of the cases — A. Most of the cases were on this route. The statistical evidence pointed absolutely to this possible source of infection. After that, the problem was to find out what was the cause of this infection and that was done as I said, and the bacteria found in those udders were the same, as found in the throats of the people who had this disease. O. Do you know what the attitude of the health officers and medical men of that town was? A. Yes. This was raw milk and raw because of the opposition of the medical authorities and profession of the municipality to the pas- teurization of milk because pasteurization was alleged to impair its food 206 MILK SURVEY OF THE CITY OF ROCHESTER value as well as to make it unfit for the delicate digestive organs of infants. Q. Do you know whether the attitude of the medical profession of that city was changed any by this epidemic? A. Yes. O. You think they changed their minds? A. Yes. Q. You think the medical men and health ofificer now favor pas- teurization of milk? A. Yes. O. Is it not a fact that after this epidemic they requested or asked whether some arrangement could not be made for pasteurizing milk for their city? A. Yes. Q. Was there any other epidemic or disease that you have investi- gated, due to milk ? A. Up until two years ago I had a part in investigating, I have per- haps for a period of four years, every epidemic in New York State that could possibly have a suspicion of being a milk-borne epidemic. I had a part in the investigation of septic sore throat in Poughkeepsie, New York, I think in 1915. Q. Will you describe as nearly as you can just what the nature of the conditions were that you found in Poughkeepsie ? A. Do you mean community conditions? Q, I mean the character of the epidemic and its outbreak? A. That epidemic in Poughkeepsie was an epidemic that came out with a great deal of violence. The attitude on the part of the officials was that it was a rather minor epidemic of scarlet fever. I think the health officer had as many as eighty-two cases reported ; something like that. I was asked to help on a field survey of this epidemic, and in going over the field, other investigators and myself found I think, nearly 800 cases of septic sore throat and scarlet fever in Poughkeepsie and the surrounding community. Q. Describe just how these cases were divided up and what the evidence was that you secured as to the cause of the epidemic? A. What do you mean by "division?" Q. Please describe what you found as to the way the cases were divided geographically and what evidence you found as to the cause of the epidemic? A. The first cases, or as it turned out later, the first case was found on a dairy farm near Wappingers Falls, south of Poughkeepsie; there was a small group of cases there. Q. How far is that from Poughkeepsie? MILK SURVEY OF THE CITY OF ROC HESTER 207 A. About six miles ; another group, a larger group, at Poughkeepsie, and another group at the New York State Hospital, which is four or five miles north of Poughkeepsie. In tracing the original cases, it was found that those cases had onset — these three groups of cases had onset on approximately the same day. The Health Officers in each community were looking for the source of the epidemic, independently of the Health Officer of any other community. Q. Did each one of those communities think they were having their own private epidemic ? A. Yes, and were busy looking for some manner of controlling it. Q. They did not think there was any connection between the three of them? A. No. Finally it was found that previous to the onset of the cases in these three communities, there was a case of a farm hand of one of the dairy farms supplying milk in the creamery at Wappingers Falls. This milk was traced to the consumers of Wappingers Falls and to the consumers in Poughkeepsie, and a part of the supply went up to the New York State Hospital. Q. That is, this creamery shipped milk to those three places? A. Yes. Q. Was the milk pasteurized ? A. As I recall it, it was not pasteurized, or it was a case of the milk being imperfectly pasteurized through the breaking down of the pasteurizing machinery. It was not properly pasteurized. Q. It was supposed to be pasteurized, but the machinery broke down? A. Yes. O. It broke down at the wrong time ? A. Yes. Q. It broke down as you found it, just at the time when scarlet fever existed on this farm that you refer to? A. Yes. O. Do you know whether the people and Poughkeepsie and these other communities were in favor of pasteurizing milk before that time? A. No, they were not. Q. They were opposed to it ? A. They were strongly opposed to it. O. Do you know anything about their attitude since the epidemic? A. Their attitude towards pasteurization was changed. Their at- titude towards reporting communicable diseases was changed and toward their old health administration has changed; they now have a substitute one. 208 MILK SURVEY OF THE CITY OF ROCHESTER Q. Have you seen the records of outbreaks of infectious diseases in other cities, in other countries due to raw milk? A. Yes, I have seen records of those. Q. You have a list compiled, have you? A. Not with me. Q. But you have seen the records? A. Yes. Q. And it is on those records that you believe milk should be pas- teurized ? A. Yes. Q. In order to prevent those outbreaks ? A. No epidemic has ever been traced to milk that was properly pas- teurized. Any number of epidemics have been traced to milk that was raw or improperly pasteurized. Mr. Frank E. Gannett, who appeared as a witness at a public hearing, held at the City Hall, Rochester, on July 23, 1919, gave the fol- lowing statement : I was much impressed too by Nathan Straus' book, "Disease in Milk, the Remedy, Pasteurization,' written by his wife. And this book makes a very clear case out of his long experience in New York City Milk Stations ; I believe, it extended over a period of twenty years, in which he reiterates again and again and again that the city's milk supply should be pasteurized in order to insure purity. And in the way of pasteuriza- tion I thought Rochester was far behind; in fact, in this book he gives a table showing that in New York City the pasteurization of the supply is 95%, while Rochester he gives only as 20%. I think if the pasteurization was carried on in one or two or three central plants it might be done cheaper than in a dozen or so plants; and what would be a further advantage, the city could see that the pas- teurization was properly done. This is just as essential as to have it pasteurized. I do not know that we have any protection now, or any guarantee, that the milk sold is pasteurized except the reputation of the dealer that handles it. We know that certain concerns are reliable and we depend upon them. Dr. John R. Williams of Rochester, appeared as a witness for the vSurvey at a hearing held in the City Hall, August 13, 1919, and testified as follows : O. Do you think that the milk delivered by the small dealers is as safe as the milk delivered by the large dealers ? A. I do not. Q. You do not, why not? A. Well, I base my answer on my personal observations that I do MILK SURVEY OF THE CITY OF ROCHESTER 209 not think the small dealer exercises the precautions that he should in the handling of milk. O. What precautions do you refer to? A. Well, I do not think they adequately wash and sterilize their bottles. I have caught small dealers on the street filling bottles out of cans and then taking them into the homes. Q. Well, what is your opinion regarding the safety of the raw milk handled by the small dealer, even if he should properly sterilize the bottles, do you think that milk is safe to use ? A. I think not. We proved that in one investigation. Q. How did you prove it? A. I am sorry I did not bring that with me, notwithstanding, I think I can tell you in part. I was called one time to see a man in the northern part of the city; he was taken ill in a strange manner. To make a long story short, he was taken ill, very acutely ill, with the disease we cQuld not recognize at the time. We made all sorts of examinations of him and many physicians were called into consultation and were not able to recognize the nature of his illness. In about three days another mem- ber of the family was taken ill in the same way. These two patients represented a condition which resembled typhoid fever. That is a dis- ease that never had been discovered in this part of the country. We thought we were dealing with typhus fever and we sent to Washington with the approval of the Health Offcer, and an expert was sent up here to assist in this investigation. Dr. Joseph Cole Parker, a bacteriologist of international reputation. With his assistance, or in fact, before he ar- rived, we determined the nature of this sickness. In the meantime, two other members of the family were taken sick. We had determined by this time that these were a very peculiar type of typhoid fever. These patients were covered with a rash which closely resembled measles ; they were covered from head to foot. While we isolated the organism from their bodies which made them sick, it did not re-act to the usual typhoid tests, nor did it check up with other strains of typhoid organisms after, the -manner employed in typhoid diseases usually. The husband was sick with this disease for more than six weeks; the wife was sick, acutely ill, for eighty- three days and two other members of the family were sick for a shorter period of time. This man had a little tailor shop ; it was necessary for him to employ all this time a physician ; he had several ; some of them he did not have to pay; he had to pay a very considerable physician's bill ; but not for these investigations altogether. I estimated that — well, after the discovery that these people had typhoid fever, we set out to determine where it came from, and we found this man got his milk from a small milk dealer and the milk came from a farm out in Walworth, so I went out there and took paraphernalia with me and with 210 MILK SURVEY OF THE CITY OF ROCHESTER the co-operation of the Health Officer there, and here I got samples of blood, stool and urine from the farmer on this milk farm and from his daughter. Both of them gave a history of being sick ; the father had had stomach trouble for several months previous, it was so diagnosed, and the daughter had just rallied from an attack of pneumonia. Both of these people were just alive with typhoid germs and this same peculiar' strain. We brought these samples back to Rochester and established the fact that those two organisms were identical. I made a note of the location of cow barns and the privy house ; the privy was mid way between the cow barn and the kitchen, and I have not the slightest doubt that there could be no question but what the filthiness of this farmer and the disease were connected. I made an estimate of the expense involved at the time to this little tailor's family and the other expense involved, and there was a loss of at least four thousand dollars in that one instance, doctor bills, nurse bills and so on. Q. Do you consider that there is a common danger of that kind from raw milk delivered ? A. I do. O. By small dealers? A. By all dealers, large and small. Q. Do you think that Rochester is exposed to such dangers through the raw milk it receives? A. I do. Q. Does that include other diseases besides typhoid? A. Yes, other diseases. Q. What do you think ought to be done to make that milk safe? A. Well, I pasteurize the milk in my home before I use it. Q. Do you recommend that all citizens of Rochester should pas- teurize the milk in their homes? A. I do, at the present time, because there is no regulation requiring its being pasteurized. Q. Would you be in favor of a regvilation requiring that it should be properly pasteurized ? A. Yes. O. By the dealer? A. Yes, under municipal supervision. Q. Do you think that it would lead to the advantage of the citizens of Rochester from a public health standpoint, if Rochester had a regula- tion requiring the pasteurization of all its milk ? A. I do. Q. Do you know approximately how much of the milk supply of Rochester is pasteurized at present? MILK SURVEY OF THE CITY OF ROCHESTER 211 A. I do not. Q. You know that Rochester has no such regulations ? A. Yes. I know that the Health Officer is opposed to that. Q. Do you think the advantages of pasteurized milk are greater than the disadvantages? A. I do not know any disadvantages. I do not know any patent disadvantages. There are alleged disadvantages, but I do not know of any real objection to it. Q. Getting back to pasteurization. The pasteurization of milk is now absolutely under the control and supervision of the municipality, is it not, in those plants that do pasteurize? A. Theoretically it is ; but practically I do not think so. Q. Do they not maintain their heat, uniform heat, and is not that evidenced by automatic records in these plants that have to be turned into the Health Bureau ? A. I have no confidence in the way it is done; the Health Officer is not in sympathy with it. I would not say this, but I do not believe that the Health Officer pushes the matter. I do not think the thing is regu- lated or controlled the way it should be. Q. He is not in sympathy with pasteurization at all ? A. No. CERTIFIED MILK COMPARED WITH PASTEURIZED MILK This testimony was given by Dr. Henry H. Covell of Rochester, Secretary of the Monroe County Medical Milk Commission, who ap- peared as a witness at a public hearing held in the City Hall, July 23, 1919. A part of his testimony was as follows: Q. You are Secretary of the Monroe County Milk Commission? A. Yes. O. What are the duties and objects of the Monroe County Milk Commission ? A. This Commission, appointed by the Monroe County Medical Association, has to do with the regulation and control of what is known as certified milk. Q. Who are the other members of the Commission now? A. Dr. J. W. McGill is the President of the Commission, and Dr. E. G. Nugent is the Treasurer. Other members of the Commission are Drs. J. R. Culkin, S. W. Little, Norris G. Orchard. There may be one or two more I do not recall at the present time. Q. You spoke of some one being Treasurer. Does this Commis- sion have funds? A. Yes. Q. Where does it get them ? 212 MILK SURVEY OF THE CITY OF ROCHESTER A. There is a small charge from the producers for certifying. Q. What does the Commission do with its funds ? A. Well, largely meets small matters of expense that they have; for instance, we pay the bacteriologist a small fee for his work. O. For examinations? A. For examinations of milk. There are small matters of book- keeping — all outside. Largely questions of that sort — no salaries to any- body outside of the bacteriologist. If the report from the bacteriologist indicates conditions that are not satisfactory to the Commission, I, or the members of the Commission as well, get in touch with the producers, or visit the farms where the milk is produced and try to locate the difficulty. Q. Now, the bacteriologist examines this milk for what purpose? What is the character of the examination ? A. He determines the number of bacteria per cubic centimeter; also the percentage of fat content; also, I suppose you might say, an ocular examination to determine whether or not visible dirt is present. Possibly, sometimes the temperature of the milk at the time of the ex- amination may be taken, but those four things are the main divisions of his examination. O. These samples are furnished by dealers to the bacteriologist? A. Through the medium of the distributer. I might say that among other things, the requirement is that the examination of milk to con- form with these requirements, shall indicate a bacterial content of not to exceed ten thousand per cubic centimeter. Q. How many farms produce certified milk to the City of Rochester ? A. Four at the present time. Q. Does any veterinary make an examination of the herds ? A. Twice a year we have the cattle examined for tuberculosis and incidentally for other conditions that may appear. There is a vast differ- ence betwen the production and handling of certified milk, and the pro-' duction and handling of the ordinary grade of milk. O. Your certification of milk means then that the premises, cattle and conditions generally under which it is produced, are made the sub- ject of examination by your Commission and that your Commission be- lieves it to be safe for consumption ? A. Yes. Q. Are the records of the tuberculin test that have been made on certified herds of Rochester kept on file ? A. Yes. Q. Do they find re-actors? A. Sometimes. Q. Even after all their precautions have been carried out? MILK SURVEY OF THE CITY OF ROCHESTER 213 A. Yes. O. So that even after every precaution has been exercised, there is alvirays a menace from cattle diseases ? A. Yes. Q. Do cows frequently have sore udders ? A. In my limited experience I should say "Yes" to that. Q. Is it not true that it is necessary to frequently examine a dairy^ herd in order to detect the presence of sore udders? A. Yes. Q. Would you look upon sore throats among dairy employees as a menace to the milk? A. Yes, sir. O. Does your examination require that these employees should be healthy with reference to throat health or disease? A. Yes. Q. Well, what is your view regarding raw milk over which these precautions are not exercised; do you think that the milk is less safe than the certified milk? A. I think it less safe. Q. Do you think it is dangerous ? A. The possibilities are very great. Q. Do you think the danger from cattle disease is very great? A. Yes, sir. O. Well, do you think that cattle that produce the raw milk supply of Rochester are examined frequently enough to protect the raw milk supply from cattle diseases? A. As a consumer of grade milk, or milk that is not certified, I must say that sometimes I have felt a little bit uneasy about the quality of milk that I have been receiving. Q. Well, you look upon these precautions you speak of as necessary, you say, to safeguard raw milk? A. I think so. Q. Then, where they are not exercised, the raw milk is not suffi- ciently well safeguarded to be consumed in a raw condition? A. I do not know exactly what to say in answer to that. Q. Well, would you say that the public health was not properly safeguarded in a raw milk supply over which these precautions were not exercised ? A. In a general way, possibly so. Q. You think there is danger in the fact that the raw milk is not safeguarded as well as certified milk? A. I guess I can answer that question in the affirmative. 214 MILK SURVEY OF THE CITY OF ROCHESTER Q. Under those circumstances would you recommend the raw milk which does not receive such safeguards as certified milk, had better be pasteurized ? A. I think so. Q. You look upon pasteurization as a proper public health measure ? A. I am in favor of it. O. To be applied to raw milk which is not protected as well as certified? A. Yes. O. Would you recommend that all the children of Rochester should use certified milk? A. Theoretically, I suppose "Yes"; but practically, it is too ex- pensive. Q. Well, what would you prescribe to the children of Rochester who cannot afiford certified milk? A. Apparently the only thing you could say would be "pasteurized milk." Q. You would not prescribe raw milk? A. I think not. Q. You would prescribe pasteurized? A. Yes. Q. Do you think it would make the raw milk safer to pasteurize it? A. I think it does. Q. Is that of sufficient advantage to a community to justify a regulation requiring it? A. I can imagine a situation might arise when that would be so. Q. Would it be a constant safeguard that would be to the advan- tage of the city? A. I believe so. Q. There is no reason why reasonable sanitary precautions cannot be enforced in addition to pasteurization ? A. Not that I know of. MILK SURVEY OF THE CITY OF ROCHESTER 215 TESTIMONY OF DR. GEORGE W. GOLER The attitude of the Health Officer of Rochester, Dr. George W. Goler, on the subject of pasteurization is indicated in his testimony de- livered as a witness at one of the public hearings held in the City Hall on July 16, 1919, which was, in part, as follows: "Then came the time of pasteurization. In our milk stations we tried to pasteurize the milk for a little while and then gave it up in disgust. We found that the milk that came to us was so dirty that we believed, by our advocacy of pasteurization, we were simply aiding the milk man in bringing into the city dirty milk and puttng off the day to be hoped for, when milk would be sold so comparatively clean that it might be pasteurized. People ought to know in regard to the milk of Roch- ester, if there is only two grains in a quart of milk, that every year the population of Rochester are drinking three tons of liquid manure. We say that three tons of manure ought to be an absolute limit. We want the men to keep it on the farm. We don't want it in the milk. Without going into detail, that is the main reason why, so far as I personally am concerned, that I have always fought pasteurization, because pasteuriza- tion to me was very similar to that plan of putting a little formaldehyde in the milk to enable the milk man to bring it into town without spoiling, or that he might sell it without purifying it." Q. You spoke about welfare stations. Tell us about those welfare stations. A. In those stations in the first years, we pasteurized milk, as I say, but we gradually gave that up, because we felt that the milk was so dirty, that is, the general milk supply was so dirty — we could get clean milk in the city — if we gave to the people of Rochester the impress of our opinion that pasteurization was a desirable thing, we should then simply put off the day when milk would be clean enough to be favorably influenced by that kind of pasteurization, which should not be pasteuriza- tion for the sake of the milk man ; but pasteurization for the sake of the family. Q. Doctor, what is the object of pasteurizing milk? A. There are several objects. The first object of pasteurizing milk is to make the milk so it won't spoil, and so the milk can sell. It is a milk man's process. The next object to pasteurize milk is to prevent dis- semination of infectious diseases, typhoid particularly. And still an- other object is to prevent the multiplication of certain organisms which no doubt further and aid in the production of acute bowel diseases of children. Those are the general objects. But the first object of pas- teurizing — you don't want to lose sight of the fact that the pasteurizing 216 MILK SURVEY OF THE CITY OF ROCHESTER of milk was first for the purpose of making bad milk keep so the milk- man could sell it. Q. The pasteurization of milk consists in heating to 145 Fahrenheit and keeping it there. A. I never attempted to develop it; but it is a sort of process — anything to heat the milk up to a temperature so the thing would keep in the beginning. Q. But there is a standard temperature for pasteurization? A. There is a standard temperature for pasteurization. Q. 145 or 150 degrees which you have quoted? A. And that process of pasteurization carried out as a supple- mentary measure is of value. The sanitary safeguards thrown around milk is a highly desirable procedure. Q. Now, there are certain organisms that will not kill? A. Yes, sir. Q. But the organisms which develop infectious diseases like typhoid and septic sore throat and scarlet fever, it will kill if it is raised to that heat ? A. We don't know anything about scarlet fever, so we don't know whether it will kill scarlet fever or not. It does affect typhoid, of course. Q. Now, you take the position, I understand. Doctor, that pasteur- ization is objectionable because dealers are likely to use it to cover up unsanitary milk and unsanitary conditions, to make dairy milk salable and more or less harmless ? A. Yes, sir. I won't subscribe to the latter part of that statement. If you mean the established method, a correct scientific method of pas- teurization, then I will subscribe to the latter part of your statement. O. Then there is no objection to carrying out strict sanitary meas- ures, and also pasteurizing milk? A. Given strict sanitary measures and scientific pasteurization, of course. Q. What are proper sanitary conditions? A. I want as little cow manure — and every other city — as we can possibly find in it. As I said this morning, we ought not to have more than three-quarters of a ton of cow manure in our milk a year. Q. What are the effects of cow manure in the human system? A. I don't think it has been determined. Q. It is a disgusting thought, isn't it? A. Doubtless makes children sick. The poorer the care, the dirtier the milk. Clean milk and good care are rather companionable. Dirty milk and bad care— how much is due to dirty milk and bad care, and how much to clean milk and good care, nobody knows. MILK SURVEY OF THE CITY OF ROCHESTER 217 Q. There are various cities in this country about the size of Roch- ester or larger, that require that all milk should be pasteurized and sold as pasteurized milk? A. Yes, sir. There are certain provisions in the State Milk Law of New York State which provide for it. Q. That is required as to the supply of the City of New York? A. I don't know. Q. Philadelphia, how about that? A. I don't know. I don't know about the pasteurization require- ments relating to any city at the present time. Q. Has there ever been agitation in the City of Rochester that you have known of, to get such a requirement in force? A. Oh, yes. The milk ordinance of the City of Rochester is the milk statute of the state, the Statute of the State Department of Health, and that is complied with. Of course you know the State Department of Health has a splendid statute under which it graded milk, i. e., Grade "A" for Grade "A" people who had Grade "A" pocketbooks ; Grade "B" for Grade "B" people who had Grade "B" pocketboks; Grade "C" for Grade "C" people with Grade "C" pocketbooks. That is a fine ordinance. If you had Grade "A" water that would be Grade "A" water absolutely protected from typhoid, Grade "B" would be some other kind of water. Grade "B" water would be the water now fed to a lot of residents in the neighborhood of Manitou. I just saw a woman who had typhoid as a result of drinking the water down there. We should have a comparison betwen the milk graded in that way as in the case of water. A, B, C grades indicate degrees of wholesomeness. It indicates the degree of care which the milk has been put through and the degrees of care with which it has been handled. O. How do you feel yourself about the sale of raw and pasteurized milkT A., I am in favor of the sale of raw milk until such time as suffi- cient sanitary safeguards are thrown around milk to make it safe for pas- teurization. I have never been in favor of pasteurizing all kinds of milk as in the pasteurization craze which passed over Rochester. Q. If pasteurization does do something towards rendering milk wholesome for human consumption, isn't it a mistake to delay pasteuriza- tion of the milk? A. I don't think so. Q. You advocate continuing sale of raw milk, which may contain those dangerous organisms which may be destroyed by pasteurization — to the people of Rochester? A. I do. 218 MILK SURVEY OF THE CITY OF ROCHESTER Q. You would kill them? A. No, it might contaminate them. It may kill a lot more people, and it may put off the evil day, as it doubtless does. Witness this hear- ing. I don't mean this is the evil day. This is one of the best milk days Rochester has had. Q. What do you think ought to be done, if anything, to the regula- tions here in Rochester in order to improve the supply of milk? A. Well, there are only some small though important changes in the regulations: those regulations for temperature, of the milk coming in; the regulation for a tubercular test; the better enforcement of the regulations relating to the cleanliness of dairies, so that one might bring it so that there were only two or three or ten per cent, that were below. Then, of course, the introduction of the ordinance for pasteurization. In order to clear up any doubt in the minds of the Health Officers of the State of New York as to what is meant by the term, "pasteuriza- tion," and to remove any obstacle in the way of the adoption of pas- teurization based on the ground that there are no standards for this process, the State Health authorities define pasteurization as follows : "Regulation 12. Pasteurization. Except where a dififerent standard of pasteuriaztion has been adopted previous to the 1st day of September, 1914, by the local health authorities, no milk or cream shall be sold, or offered for sale, as pasteurized, unless it has been subjected to a temperature of 142 to 145 degrees Fahrenheit for not less than thirty minutes, and no milk or cream which has been heated by any method shall be sold or offered for sale unless the heating conforms to the provisions of this regulation. After pasteurization, the milk or cream shall be immediately cooled and placed in clean containers and the containers shall be immediately sealed. No milk or cream shall be pasteurized more than once. This regulation shall take effect throughout the State of New York, except in the City of New York, on the 1st day of January, 1916." Consequently, since the 1st day of January, 1916, the heating of milk or cream by any other process than the process above designated has been illegal, and it is proper therefore to assume that, if other processes of heating have been used in Rochester, or in any other municipality, since January 1st, 1916, the same has been due to wilful neglect of the enforce- ment of the State regulations, either by milk dealers or local health officers. As previously stated, the City of Rochester has no milk regulations of its own. It has depended entirely upon the state regulations for the control of its milk supply. The attitude of the State Public Health authorities is one which makes it clear that cities of the first class are expected to pass regulations of their own which are most stringent than the state regulations. While the state authorities have given a clear MILK SURVEY OF THE CITY OF ROCHESTER 219 definition of pasteurization, yet the adoption of pasteurization by the cities of the state is entirely optional. Consequently, the fact that the City of Rochester has not adopted more stringent regulations since the state regulations were promulgated in November, 1914, and has not adopted any regulation requiring the pasteurization of milk since the state authorities defined pasteurization on the same date, is a responsibility rest- ing entirely on the shoulders of the public health authorities of the City of Rochester. 220 MILK SURVEY OF THE CITY OF ROCHESTER RECOMMENDATIONS In undertaking to make recommendations based on a survey of this kind, these recommendations would be expected to follow certain con- clusions drawn from the evidence presented. The material which has been collected in this report is of such a character that in each department of inquiiy it seems to lead so obviously to certain conclusions that the director of this survey believes these con- clusions appear on the face of the evidence presented in the previous pages and that they are sufficiently plain to any intelligent reader. Con- sequently, no attempt will be made to draw up a complete list of con- clusions. The following recommendations are presented in the belief that the material of this report and the conclusions which are so obvious form a basis which must be recognized as justifying the recommendations here- with presented. These recommendations are divided into four parts as they apply to four groups of persons, viz., to the city authorities, to milk producers, to milk dealers, and to milk consumers. RECOMMENDATIONS TO CITY AUTHORITIES 1. It is recommended that immediate steps be taken to bring about the centralization of the business of milk distribution in the City of Rochester, on the ground that the present competitive sysera is a menace to public health because of insufficient sanitary care of the product, and because of unnecessary and excessive expenses. 2. That the City of Rochester join with the City of New York and other cities of the State of New York in asking for legislation at Albany for the purpose of securing for the City of Rochester and other cities such additional legal powers as will enable the city to control the distribu- tion of milk, and that such legislation be asked for on the ground that such municipal control is necessary to properly safeguard public health. 3. That, in particular, the City of Rochester ask for amendments to the City Charter which will give to the city the following powers : (a) Power to establish and operate a municipal milk distributing business under municipal auspices, and to purchase the property of exist- ing milk distributers if necessary. (b) Power to grant a franchise to a public service corporation for the distribution of milk and for municipal control of the same in respect to profits and prices and in all other respects necessary to protect the milk consumer against the abuse of power by such a corporation. MILK SURVEY OF THE CITY OF ROCHESTER 221 (c) Power to examine the books and accounts of all milk dealers distributing milk in the city, and to subpoena such books and such dealers for examination by designated city authorities when the interests of public health demand such examinations. (d) That the legal status of the director of the Bureau of Health of the City of Rochester should be made identical with the legal status of the health officers of the City of New York, the City of Buffalo, and other first-class cities, so that this bureau, in its administration, will not be independent in any way of its responsibilities to the city government. 4. That, if the State Legislature will grant such powers for the control of the distribution of milk, any or all of these powers be made discretionary with the city and not mandatory. 5. That the city shall exercise such powers only in the event that the system of milk distribution provided by the milk industry proves itself to be inadequate for the proper safeguarding of public health through the practice of insanitary or imperfect methods or uneconomical service. 6. That the city authorities encourage the centralization of the business of milk distribution under the auspices of the. present industry with the object of avoiding, if possible, the establishment of muncipal ownership through the securing of efficient service under private owner- ship. 7. That the city immediately establish, as part of its sanitary code, milk ordinances and regulations suitable for a city of the first class, and in particular an ordinance requiring the pasteurization of all milk not produced from cows tuberculin tested and otherwise safeguarded against cattle diseases, human diseases and contamination, such requirements be- ing equivalent to the reqviirements for certified milk. 8. That the city require the pasteurization of all milk used by public institutions and take steps to provide a milk supply adequate for the needs of all of the inmates of public institutions. 9. That the city arrange to dispense milk through the public schools at cost, so that at least one half-pint bottle (one glass) of milk can be placed within reach of every school child every day at the school lunch hour, in accordance with the system in successful operation at the present time in the City of Seattle. 10. That, under the auspices of the Board of Education, the weight and height of every school child be determined and recorded annually, preferably in one of the fall months, and that the relationship of the diet of the child, especially with respect to the drinking of milk, be also recorded with the purpose of determining the degree of undernourish- ment of school children and providing against such undernourishment. (The data secured on this subject under this survey, although meagre and incomplete, emphatically demonstrates the vital importance 222 MILK SURVEY OF THE CITY OF ROCHESTER of milk to the growing child and suggests the great benefits which can be secured through systematic recording of the children's weight and height and steps to provide children with the milk required for their growing needs. In no other way can the city do so much for the welfare of its future citizens.) 11. That the city establish and maintain a sufficient number of infant milk depots, similar to those operated by the City of New York and elsewhere, for the dispensing of milk for infants and for children under school age to place within reach of the children of the poor, at a reasonable price, all milk required for such infants and children. These depots might be located in public schools or at other convenient points in the congested districts. The success of the New York infant milk depots justifies the City of Rochester in furnishing such a milk supply for infant feeding under such auspices. II RECOMMENDATIONS TO MILK PRODUCERS 1. It is recommended that the milk producers establish a milk factory for the handling of surplus milk, either in the City of Rochester or at some other convenient point. The milk producers' organization should assume entire responsibility for all surplus milk. Through the centralization of the manufacture of surplus milk into milk products, a great saving in loss from surplus would result. The producers' organization would then be in a position to furnish to the milk distributing concerns of Rochester exactly the quantity of fluid milk which the market demands and losses on surplus, due to lack of facilities for handling the same on the part of small dealers, would be entirely eliminated. In such a surplus factory the producers can control to better advantage the milk furnished by the individual members of their organization, making butter fat tests, milk measurements, and carrying out cooling and refrigeration much more effectively than is done under the present competitive system. 2. That milk producers establish a centralized hauling system for hauling milk from dairy farms to the point of shipment, thus eliminating the numerous individual farmers' wagons now engaged in such hauling. 3. That milk producers eliminate as rapidly as possible dairy cows which are unprofitable, by establishing throughout the milk producing territory cow testing associations which will include every milk producer. 4. That milk producers increase the size of their herds as the quick- est means of reducing the cost of milk production. 5. That the milk producers' organization agree upon a standard type and size of milk can, and that all producers use the same type and MILK SURVEY OF THE CITY OF ROCHESTER 223 size of milk can, for the purpose of reducing the cost of handling milk cans and increasing the efficiency of the washing and sterilizing of milk cans. Ill RECOMMENDATIONS TO MILK DEALERS 1. It is recommended that the milk dealers of the City of Roch- ester immediately take steps to centralize the business of milk distribution under their own auspices for the purpose of demonstrating to the City of Rochester that under such centralized system they can render to the city a service which will handle the product in such a sanitary and economical manner that their service will furnish satisfactory safeguards for the public health of the city. Only by rendering such efficient service as this can the milk distributers hope to retain the business of milk dis- tribution in the hands of private capital, and avoid the establishment by the city of complete municipal control. The advantages to be gained by the milk dealers under such cen- tralization, including economies in freight, hauling, plant operations, delivery, office charges, purchase of supplies, all other expenses, and administration charges, have been pointed out in detail in the previous pages in this report. IV RECOMMENDATIONS TO MILK CONSUMERS 1. It is recommended that every parent or guardian of children secure not less than one quart of milk daily for the use of every growing child in the City of Rochester, and that those persons who are informed regarding the vital necessity of milk and other dairy products in the diet of the child make it their business to convey this information to those less well informed, and that, through women's clubs and other consumers' organizations, publicity be given to the food value of milk as compared with other food, even at present prices, and that all of the consumers of Rochester be. made to realize that there is no substitute for milk in the diet of the growing child. 2. That milk consumers co-operate in reducing the loss on milk bottles by promptly returning to the milk dealer all milk bottles delivered to them, and that they also reduce the cost of bottle washing by return- ing the milk bottles in a cleanly condition. 3. That milk consumers co-operate in reducing the cost of collect- ing milk accounts by promptly paying the milk dealer for all milk re- ceived. (In many cities of the United States and Canada a milk ticket system is used. The milk consumer pays cash for milk tickets in advance, thus 224 MILK SURVEY OF THE CITY OF ROCHESTER making the collection of milk accounts unnecessary. This system has many arguments in its favor in a city of the type of Rochester.) RECOMMENDATIONS TO THE CITY AS A WHOLE In considering the milk problem faced by the City of Rochester, there are certain aspects which afifect the producer, distributor, consumer and city independently, and other aspects which affect these four groups of persons jointly. The excessive costs of milk distribution shown in the material pre- sented in this milk survey are costs which have grown up as a result of the competitive system. It must be recognized that the city itself is primarily responsible for the competitive system of milk distribution which now exists. Rochester is not alone in this responsibility, but the same is shared by all other cities of America which, by their antagonism to centralization and monopoly in the milk industry, have fostered within their limits the growth and development of the competitive system of milk distribution. Public attention which has now concerned itself in Rochester and other cities with the cost of milk and the relation of milk to public health has suddenly discovered this competitive system carries with it numer- ous unnecessary expenses. The remedy which is prescribed as a result of all milk surveys and all commissions and committees appointed to in- quire into the cost of milk distribution is, in every instance, centralization and monopoly. In short, the competitive system which the people them- selves have fostered and developed is now charged with the excessive cost of milk to the milk consumers, and held responsible for not providing milk at such prices as could be secured only under a monopoly. The attitude of the public mind toward the milk industry is there- fore inconsistent and unjust in that the remedy, viz., centralization and monopoly, which is universally prescribed, is a remedy which the indus- try itself has not been allowed to apply. Any efforts toward centraliza- tion and monopoly by the milk industry have been universally cried down by the public on the ground that the result would be a trust injurious to public welfare. The advantages of centralization and monopoly have become so obvious that the public has been entirely converted to the value of this remedy, and, in fact, convinced that centralization and monopoly con- stitutes the only remedy for reducing the cost of milk distribution. Before proceeding to apply such a remedy as this under municipal auspices, it would seem only fair and just to invite the milk industry itself to make a demonstration of the efficiency of its service to the public through the application of this remedy under its own auspices. MILK SURVEY OF THE CITY OF ROCHESTER 225 In three cities in America the milk industry has been tacitly per- mitted to adopt centralization to such an extent that monopolies are prac- tically in existence. These cities are : Calgary, Canada ; Ottawa, Canada, and Milwaukee, Wisconsin. An examination of the conditions in these cities shows clearly that these milk monopolies have not taken undue advantage of their power, but have, as a matter of fact, rendered to the cities named a service unequaled by the milk industries of any other cities on this continent. In these three cities the cost of milk has been kept at the lowest point, and the dealers' spread, or share of the milk price, has been lower than in any other cities. Consequently, in the City of Rochester, before proceeding to estab- lish a monopoly under municipal auspices, it would seem to be more consistent with purely American policies to permit the milk industry itself to apply the principle of centralization to the business of milk distribution, and to make a demonstration to the citizens of Rochester of the efficiency of the service which it can render under such central- ization. The business of milk distribution is highly specialized. Public ownership would furnish no guarantee of efficient service unless it could guarantee the same high degree of specialization which has already been developed in the present industry. Public ownership should be held in the background as a last resort. It should be applied only in the event that the industry itself proves incompetent to render efficient service. The proposition recently made by the executive officer of the largest milk company in the City of New York to the city authorities is one which deserves serious consideration by that city and by all other cities. This proposition is that a milk monopoly be organized by the milk distributers, but that the board of directors of such monopoly should include repre- sentatives of milk consumers and milk producers, and that a limitation of profits should be established, and that the books of the monopoly should be open to the public. This proposition has many features which would contribute to a satis factoiy solution of the problem of milk distribution, and is a remedy which, in the opinion of the director of this survey, should be tried in advance of the application of municipal ownership. The milk monopoly, under private ownership, would be in the public interests only . provided the public were properly safeguarded against the abuse of the additional power which the milk industry would thus secure. The only way in which such a power can be properly counterbalanced would be through the securing of such additional legal powers by the city itself that the city can at any time control such monopoly and take over the business of milk distribution under its own auspices. Therefore, the director of this survey, recommends that these two movements be inaugurated hand in hand. On the one hand the estab- 226 MILK SURVEY OF THE CITY OF ROCHESTER lishment of centralization under the auspices of the industry, and on the other hand the securing by the city of such additional legal powers as will effectively curb and control the action of such monopoly, with the ultimate purpose in the background of taking over the entire industry of milk distribution by the city in the event that the service rendered by the monopoly proves inadequate for the safeguarding of public health. The reorganization of the milk industry from the competitive system which now exists to a centralized system will necessarily require extensive readjustments and at least several months of time in order to prevent unnecessary losses and to do justice to all business concerns. The city authorities should allow a reasonable length of time for such a reorganization to be accomplished. If, after the expiration of such time, the industry shows no inclination to bring about such a reor- ganization, it will be proper for the city authorities to consider the cen- tralization of the industry under its own auspices. The feeding of infants and children presents a special problem. In order to place sufficient milk within reach of every growing child, the •municipality is justified in going into this branch of the milk business under municipal auspices. The best channels for milk distribution to children and infants are the public schools and infant milk depots. It is, therefore, recommended that the City of Rochester take im- mediate steps for municipal milk distribution for children and infants through the public schools and other infant milk stations. RECOMMENDATIONS OF THE PUBLIC SAFETY COMMITTEE OF THE COMMON COUNCIL Rochester, N. Y., Dec. 23, 1919. To the Honorable, the Common Council of the City of Rochester : Gentlemen — Your Public Safety Committee whom you directed by ordinance duly passed on the 22d day of April, 1919, to inquire into the several matters per- taining to the production and distribution of milk as afifecting the City of Rochester, as more specifically set forth in the resolution which is hereinafter contained, do respectfully report as follows : Your committee, upon authority granted by the Board of Estimate and Appor- tionment, employed Dr. Charles E. North of New York City, as director of the investigation, and such other assistants as he recommended. Much valuable assist- ance was given by organizations and individuals particularly interested in the subject, to all of whom the committee feels deeply indebted. Examination on the ground was made of about one hundred and fifty pro- ducers of milk shipped to the City of Rochester, in various localities, with a view to ascertaining what it actually costs to produce the milk. A careful survey was made of tlie plant and business of each dealer distributing milk within the Cityof Rochester, for the purpose of determining the actual cost of milk distribution within our city limits. Laboratory tests were made by the Committee's experts, of many samples of milk sold in the city and a careful inquiry was conducted into the character, quality and amount of milk and its products used in various institutions in the city and in private homes as well. The results of the investigation are submitted herewith in the form of tabula- tions and explanatory comment appropriately grouped in chapters. MILK SURVEY OF THE CITY OF ROCHESTER 227 Your committee sought to afford every party interested an opportunity to state and prove his case, and determined from the outset to learn and permanently record for the benefit of the people of Rochester the truth in respect to every phase of the milk question, and thus to arrive at and establish a basis for any action which it might hereafter be deemed advisable to take. Your committee feels that this has been fully accomplished. Dr. North was asked to prepare and submit such recommendations as he wished to make after concluding the investigation. These recommendations appear at the foot of the report. As to the svxggestion that the City seek legislative author- ity to grant a franchise to a public service corporation for the distribution of milk, your committee is advised that the distribution of milk is not and may not properly be considered a public utility to be the subject of a franchise, but your committee concurs in the recommendation to secure all possible proper legislative authority for the direction and control of the distribution of milk. Your committee finds and respectfully reports that it is not expedient for the City to attempt the purchase and distribution by the City of Rochester of all milk used within its limits at this time. It must be borne in mind that having once embarked upon such an enterprise which would involve the expenditure of upwards of a million dollars, the City could not abandon the project but would be obliged to continue whether it suc- ceeded or not. In other words, it is not a matter in which experiment is possible. Our investigation has disclosed that centralization of milk distribution will result in important economies which would accrvie to the financial benefit of the con- sumers of milk by lowering the price to them. There is, however, no reason whj' such centralization may not be carried out by private individual effort, and your committee is of the opinion that the City of Rochester should attempt to secure this before attempting municipal ownership. To produce the milk now consumed in the City of Rochester on municipally owned farms would require the expenditure of about twenty million dollars for land alone. Your committee has been unable to find that the City of Rochester would be able to lower the cost of production by this method, and therefore reports that to enter upon such a course would not be expedient. Your committee respectfully recommends the adoption and rigid enforcement of ordinances prohibiting the retail sale of milk or cream within the city limits other- wise than in carefully closed containers, filled before being loaded for delivery, and requiring that all milk and cream sold at wholesale be contained in sealed cans or other containers. Your committee further respectfully recommends the adoption and rigid en- forcement of an ordinance requiring the proper pasteurization under municipal inspection and control, of all milk and cream sold in the City of Rochester, excepi: certified and grade A milk, and that such ordinance take effect at the end of such a period as will afford reasonable opportunity for dealers to arrange their equip- ment accordingly. The weighing and measuring of children in the public schools is regularly, carried out during the year under the direction of the Health Officer, and is now being done. Your committee procured other data in respect to race, sex, milk-diet, etc., through the Department of Education, but a complete tabulation cannot be had until the weighing and measuring has been completed, and we have been able to include in this report only one table. We respectfully recommend that when the weighing and measuring for the present school year shall have been finished, the tabulation be completed and made available for reference. Your committee further respectfully recommends that its report be printed and bound so as to be available to all properly interested persons and organizations, with such arrangements and restrictions in respect to distribution either gratis or by sale as j'our honorable body shall deem wise. Respectfully submitted, GEORGE B. HART, B. B. RAPPLEYE, TOHN A. RUSSELL, LINDEN STEELSMITH, MARTIN B. O'NEIL, Public Safety Committee of the Common Council. LIBRARY OF CONGRESS DDQDfi'^bDa47 M