•^ *ft ^ Gass Book £.5:^. Author . Title. Imprint. 1« — 47372-1 SPO "To Seoute Bffioienoy and Eoonomy in Govermuent" DETROIT BUREAU OF GOVERNMENTAL RESEARCH. Inc. 100 GRISWOLD STREET A HEPORT on the BWCIJIEERIIKJ AM> JAIIITORljOi SSRVIC3 of the BOARD OP SDUCATIOU OP DSTROIT (In OSiirteen Schools) prepared by the DETROIT BUREAU OP C-OVERKIvIENTAL RESEARCH March, 1918. A REPORT on the EUC-IWEERIWa I\F{J) JAWITOPaAL SSEVIC: of the BOARD OP SBUCATIOF 0? DETROIT (In Thirteen Schools) Prepared by the DETROIT BUREAU OF C-OVERmffiNTAl RESEARCH March, 1918, l^^ff B, »f D. MAy H |y20 TABLE OP COIJTSNTS ^ I. OUTLIIJE OF THE INTOSTIGATIOa s. Page a. Purpose 1 iZ b. Limits - S s^ c. Character 3 II. EXISTING CONDITICATS a- In Engineariug 3': i vice - 5 "b. In Janitorial Service 9 c. Summary of Conditions 10 III. PROPOSED METHOD OP OPERATION a- To Secure Standardized Salaries 12 y b. To Secure Possible Economies of OperatiM 15 IV. DETAILS Of OPEP.ATIOH a. Tifae Studies 23 A. b. Inspection 23 A. c. Adjustm^ents 24 d. Standardized Requirements 25 ■ V. RESULTS AND COFJARISOIS a. Financial Results 26 b. Findings of 1917 Report 25 o, Gonclusionis 27 APPENDIX a. Floor Plan of Buildings b. General Building Data ■ I. OUTLINE OP THE INVESTIMTIOU A. Purpose of the Investigation At the request of the Audit Committee of the Board of Education, the Detroit Bureau of Cover loraontal Research has undertaken an investigation of the janitorial and engineering service in thirteen Detroit schools, for the purpose of determining: 1. Whether or not there is an equitable distribu- tion of work for the present cost of service, and 2. Whether or not economies of operation are possible vi/hich will permit of a reduction in the present cost^ This request was based upon a re-oort on the Janitorial and Engineering Service which was made in Janu- ary^ 1917, and which alleged: 1. That the ratio of the total of janitors' and engineers* salaries to the salaries paid the instructional force is high, as evidenced by data from other municipalities, - Detroit 15^5 Pittsburgh 14:% Chicago 12,55^ Cleveland 12.3^ St. Louis 11.5^ Philadelphia 9«7> Boston Q,&fo Now York 6,15^ 2, That a general observation of conditions indicated the possibility of reduced costs, - a. If the engineering and janitorial salaries of all elementary schools now on a high school basis weire paid at the same rate as other elementary schools, a saving of $20,000 per year would be effected. b. If the number of employes were reduced during the summer months wh&n school is not in session, a saving of $15,000 per year would be effected. )aoq_-tiic. m - 2 - c. If a number of operation economies were adopted, - i.e. the elimination of the class room as an tmfair unit of compensa- tion, the use of women cleaners when po ss ible , ■ the larger use of the time of engineers, etc,, a saving of ^75,000 per year would be effected. d. If steps were taken to regulate the use of janitors' -supplies and coal, other economies would be possibla. This report is in the nature of a supplement to the oariginal report, and has the dual purpose: 1, Of indicating in detail possible economios which will not disturb the present salary schedule. 2, Of presenting a specific schedule for an equitable compensation for janitors and engineers, B, Limits of the Investigation This investigation was started in Novorabcr, 1917, with the intention of making a detailed examination of the engineering and janitorial service in all buildings, A work program was prepared, and progress made up to Decem.ber 1, at which time the Audit Committee of the Board of Education requested that work be temporai-ily discontinued. The re~ quest to resume operations was made soon after, the scope of the inquiry being restricted to a small number of repre- sentative buildings, to determine whether or not a more extensive investigation would ba profitable. The resulting recommendations are only illustrative anf. are subject to such modifications as a detailed study of the remaining buildings may suggest. 1?- tedtc 0-7 to e:: bi\:i rT0|,tj*T5 #■ - 3 - The following school buildings were selectad "by Mr. Delbert Smith, cheif engineer of the Board of Education, and Mr, H. S. Morse, engineer of the Detroit Bureau of Governmental Research:- Firnane ; Pitcher; Rose; Majeske; Barstow; Maybury; Sampson; Crosman; Hely; Joyce; Harms; Russell; Bishop - as being representative of elementary school buildings, large and small, old and new. However, only the steam-heated elementary schools have been considered. It was believed that the high schools and those buildings heated by stoves or furnaces presented a somewhat different problem and the limited time would not permit of any satisfactory work being done except in the one class selected. C, Character of the Investl^'ations A short inspection tour of the Cliicago and Cleveland school systems was made by Messrs. A.M.Mandel and Arthur L. Weeks, of the Detroit Bureau of Governmental Research, in company v/ith Mr. Delbert Smith, chief engineer of the Board of Education, and shortly after the return of this party, Messrs. H.S.Morse and A.L.Weeks, v/ith Mr, W.S.Malcomson, architect, and Mr, J.R.McColl, consulting engineer, made a second inspection of the Cleveland system. The information secured has affected certain of the recommendations made later in the report. - 4 - As a first specific step in obtaining necessary physical data, smsll floor plans of each building v/ere made (see appendix A). These plans show the detailed floor area of all buildings in a way that the various areas could be classified or divided as woiild seem advisable upon closer study. Nearly all of this information was obtained from plans on file in the office of the Board of Education, which was later verified and corrected by an inspection of each building. Also a form was prepared on which was tabiilated all information that could be of possible value in arriving at a fair estimat© of the amount of work done by each service, - janitorial a.Td. engineer- ing (See Appendix B). It may be noted here that if this information were compiled for aU buildings, it should prove an invaluable record, and will be a necessary record, if a system of payment, such as is later suggested, is intro- duced. After close study, considerable information obtained was disregarded as not affecting to an appre- ciable extent the questions involved. A study of other buildings may show that certain of these data might be considered to advantage. Each of the thirteen buildings mentioned was inspected, sketch plans checked, and all changes, either of structure or use, were noted. «■ 5 - With the one esccQption of the Crosm.in school, both angineer and janitor of each huilding v/ere ques- tioned to obtain all possible information relating to the volume of work and to the personnel of employes a In a majority of instances, the principal of the building was interviewed, but as their primary interest is in educational matters, and as their supervision of the engineering and janitorial work is nominal, little infor- mation of value was obtained. Each principal wanted the building to be clean and v;ell heated, but v/as not perticu-- larly concerned as to the methods employed to obtain such resxjlts. - 6 - II. EXISTING COIIDITICNS In Detroit th.8 engineering and janitorial v;orlc are two distinct functions. The engineer is nominally in charge of "both, but in practice the janitor is independent of the engineer except for the payment of salaries. All salaries are included in one check sent to the engineer, who, in turn, disburses the various amotints to the other employes. The unit of compensation used for payment of both, engineers and janitors is the standard class room, except in high schools and elementary schools on a high school basis , in which both engineers and janitors and all their assistants are paid a uniform salary, no attempt being made to proportion the total appropriation for each building to number of rooms, area, or other physical features. The outstanding feature revealed by an inspection of buildings was the lack of uniform requirements in both the engineering and janitorial service. While there is a general effort to follow the regulations of the Board of Education manual, each building seems to have an individual system of its own, the restats ranging from poor to excellent, A. In Engineering Service There v/as no rule as to the amount of assistance to be given to the janitor by the engineer, this being de- pendent on the good nature and attitude of the latter. That an engineer of an average -sized building has ample time to assist in janitorial -vrork, if he so desires, is clearly shown by the fact that in the Harms school, one of the largest - V - inspected^ the engineer foimd time to do this without detriment to his other work. Also in the Sampson school, both engineer and janitor cooperated to mutual advantaga. As against this, in the Joyce, Hely, Crosman and Bars tow schools - all smaller than the Harms - no assistance of any kind was given to the janitor by the engineer, altho in the Joyce school a fireman is employed for tv^elvw months a year to help the engineer o As to the work of the engineers in their ovn departments, the impression obtained was one of effic:en<:y,. and in no case was there complaint on the part of the principal. The boiler rooms and machinery appeared v/ell eared for. However, no effort was made in this investiga- tion to check efficiency in the way of coal consumed for results obtained. The records available fail to give any accurate information on this point, the delivery records taking no account of coal remaining in bunkers. The atti- tude of the average engineer towards his job seemed all that could be asked. It must be recognized that the engineers are in a sense technically trained men, and as a majority of them have graduated from the marine service, it is natural, therefore, that they would still be governed by the ethics of the marine engine room, and that an engineer would have a distaste for shoveling coal or any cleaning job which might reflect on his standing as an engineer » Most of the engineers use their common sense in this matter, but some few individuals stand on their dignity and have caused do a noticeable friction. An exemplary instance of this attitude, vidtla the result, may be cited. It has been found, that monitor duty in the boys' toilet room at recess can best be per- formed by the engineer whenever the Janitor is busy, or frequently as a part of the engineer's routine of work. In the Crosman school, however, the janitor, owing to other duties, has been unable to perform monitor service, and the engineer has refused to e.ssume this duty. The possibilities of the absence of this service are obvious. This instance simply emphasizes the lac^ of standard requiroments, and such happoniags could bo avoided by a clear definition of engineering duties. The compensation of engineers in elementary schools is based on the numbor of standard class rooms or their equivalent. But frequently a number of small rooms are omitted in the calculations and the engineers feel that they are doing a certain amount of gratuitous work in consoquencoe As a rule, the ongmoor of an ele- mentary school does all of the engineering work without assistance. As the heating plants range from 5,000 to 18,000 square feet of rated capacity, it is evident that there is a corresponding variation in the amount of v;ork required in the different buildings. The engineers in the high schools and those schools on a high school basis are paid a fixed salary regardless of the nuqiber of rooms in the building, and ate assisted by firemen and coal passers, the number depending - 9 - on the size of plant. The work of these engineers does not vary to the extent of those employed in the elemen- tary schools and there is less manual labor in that shov- elling of coal is to a large extent done hy the firemen. There is^ however, an increased responsibility due to larger plant and the supervision of boiler room help. b. In Janitorial Service The standard of vi/ork as jerf armed by janitors varies to a great extent in each building. In schools with small areas some of the men claimed to b3 over.^/orked, while in the larger buildings one man Vtfould frequently give better results by intelligent handling of his n'ork, and vvithait complaint. It is clearly evident t':.at, regardless of re- vision of salaries or method of emplojrment, the actual requirements of janitorial work in all buildings should be standardized, as, otherwise, any equalization of sal- aries on the basis of areas or by any other method would still result in inequalities. At present the general rule is that all clean- ing shall be done to the satisfaction of the principal. This is proper. However, certain minimum requirements as outlined by the school manual should be strictly en- forced and left to the discretion of no one. The neces- sity of supervision by principals is reco-^rnized, as is the fact that janitors, in order to avoid friction, must - 10 - • accommodate themselves to such conditions. But minimum requirements should at all times be enforced, and exces- sive demands by exacting or fussy principals should be curtailed a Dissatisfaction was expressed by nearly every janitor questioned as to the metlod of paying on a class room basis. They considered, and from their ioo:uTt of view, "vifith some justice, that they vi^ere compelled to clean a number of small rooms for which they were not paid. Whether or not these circumstances were considered vjhen the flat rate of $5.32 per room per month was determined is not knoivn, but in actual operation the method leaves much to be desired. In general there was a commendable atteraf)t by janitors to give satisfaction, and .ifith more rigid in- spection, together with instructions v/here needed, and the enforcement of minimum requirements, a marked improve- maa t in the present service could be efiected. As evidence of the inequitable compensation paid both janitors and engineers, the following chart is submitted showing estimated volume of work in each build- ing and its relation to the existing schedule of salaries. SALARY AREA BUILDIHG /tandard ^35)3o 12,510<^ rirnanc 702.7^^ 20.876 " Pitcher 326^70 32.138 "I Ro/e 1171.20 1 52,830 "iMaje/Ke 1135.3" 1 3 3,024 ",13ary!-oiu 1 i 1054.'" 133 754 'iMaybury 1293i2o I 37^89 ":/aiDp/on 113Ci4o:42&99 'iCro/nnan 15 321" 142.842"; Mel y 202a32 142.910 "i Joyce j U71.20 145.414 •'illgrm/ ^^:^^;^^V^i^^'^Vj^:^^^^^ =^ ^-\v^c<^^^\'^^^X\\^^^^\\■\^ o.\vo\-xx\v\'->A.\-^:- \ ■.■■■;■■ 3 4597'2 i 64975 MRuyyell 4597'2:99l88"!l3i/hop j: '¥ .,e,RY PADIATIO]^ BUILDING 1351" I 4108'^ fi mane /tandard i^SMi^Bil-^yxNVbys^-^-^^^-^^??^^^^^^^^ ^■^^^>>.\N.\\\x\N\\\\Vv;\\ \\\V>X\N 1449.36 I 6 ZGO", Pitcher 1 ! 1449.36 j 11620 ; R.o/e 1— 160392 i 13470 ; Maf)e/he 157^^- I 14135 rbsr/iow 1565.^ I 14308 ; May bury 1619." I 13660 j /amp/on ' 60Q°« 1654.2° 277392 1 G03.^'' 404a«8 2986' 18 01 5 i Cro/i-nan J5530 , Mcly IS 3 70 ; Joyce 17245 ! Marm/ 22610 j Ruxreil 42350 i Bi/hop ^ c-5 >.oc 5 ^ t.>c — I , D — X oo - - 11 - c. Summary of Conditions This survey of existing conditioiis surrounding janitorial and engineering service supports the follov.'ing conclusions relating to the firs t purpose of the investi- gation: i. e, - whether or not there is an equitable dis- tribution of v^orlc for the present cost of service . 1. There is an absence of standard require- ments for both the janitorial and engi- neering service. £, The present compensation of janitors is inequitable in that all floor areas re- quiring daily or periodic cleaning should be considered. 3. The present compensation of engineers is inequitable in that th6 size of the heat- ing and ventilating equipment shoiild be considered . The follO'Ving conelusions relate to the second purpose of the investigation: i. e. whether or not econ- omies of operation are possible which will permit of a reduction in the present cost . 4. The existing system requires the employ- ment of two executives, a janitor and engineer, necessitating the performance of a large amount of cleaning by high pricet labor. 5. The present inspection service is insuf- ficient to secure the best se^^ice at the least cost. 6. The absence of a practical system of rer cording the coal consumption of each build- ing is not conducive to economical operation. - 12 - -3. Iiffi THOB or OPaaATING PROPOSED It must be remembered that the purpose of this investigation is two-fold in that: 1, An equitable distribution of v;ork and salaries is souQ:ht. 2, That such economie:. of operation be made as are possible v^/ithout detriment to the service, Thes3 two .questions are coiisidered "to be of euu.l importanoe and alx recommendations or suggestions are made to that end. A« To Secure Standardized Salaries The extent of both engineering and janitorial work in any building is dependent on the physical features of that building. Of the 140 and odd buildings included in the school system of Detroit, no two are exactly alike. Buildings having the same number of class rooms differ as to the floor area and heating and ventilating equipmenta It is clearly an impossibility to ^proportion the work of all employees so that all v/ill perform the same amount for a uniform salary. The only alternative therefore is to es- tablish some method of payment whereby the volume of work performed shall determine the amount of compensation. The present method of using a standard class room. as a basic unit for salaries of both engineers and janitors is admittedly unfair, and the adoption of some other unit proportioned to the real volume of work is a necessity if an equitable v/age scale is to be attained. The primary function of any heating and venti- lating system is the generation and distribution of heat units; and the volume of heat units required is measured by the unit equivalent of square fe§t of radiation. Therefore, it is fair to assume that, other things beiing equal, the number of square feet of radiation required to heat and ventilate any building is a f air _^:;_£ a '\ ure of the size and importance of the plant r&rf orming tl r o work i The work of engineers seems to be clearly divider! into two classes; 1st, raanaal labor, such as shoveling coal, ashes, etc., cleaning boilers, and the various re- pair j.obs required; 2nd, supervision of plant diiring op- eration of same, v/hichjob, v/hile entailing responsibility of a high order, gives the engineer considerable time which might be devoted to active '.vork. It becomes evident, after a close inspection of the numerous plants, that the increase of labor re- quired to run a large plant, compared to a smaller one, is not directly proporticanal to the increase in radiation. It is recommended, therefore, that the engineers be grouped in classes, whiah classes would be indicated by the cor- responding radiation, but in a graduated scale, so that by starting at the smallest buildings with a minimum sal- ary of llOO.OO per month, the scale would ine^rease by : rf:' - u - groups to a maximum of ':j175.00 per mionth. It should be noted that this method woiald pro- vide an increased salary for the engineer-exist odian in a large building such as Central High, At present, the en- gineer in that plant is paid the same as the engineer in the Russell school with a rated capacity one-fourth as large. The janitors v;ork is fundamemtally a cleaning job, his ibther duties 'Stieh as v/inding clocks, looting up buildings, monitor service in toilets, etc., are relatively' so small that they need not be considered. The sweeping of floors forms the major part of all cleaning v/ork, and it is believed that for all practical purposes, the actu p ,l need floor area will g:ive a very close measure of the janitorial ivorlc i;i each building. Certain features of school buildings are to som.e extent standard- ized, in that all rooms, except assembly halls, are usu- ally 12 to 13 feet high, and that all class rooms, accord- ing to the state code, must have a window glass area equal to 20^ of the floor area, wainscots, and other Ornamental features are invariably of simple design'v. and all fittings, such as wardrobes, lockers, toilet fixtures, etc., are pro- portioned to number of pupils. Therefore, it is believed that any variation in amoujit of work because of such items v/ould be so slight that it m.ay v/ell be disregarded and the square fee-^ of used floor area may be assumed as a fair X.':.i "basis of compansatiai for all cleaning. The question of conditicn and material of floors was also considerod, but from observation ac 'builSinir^s and from answers to questions put to a number of the janiiX)»8; those factors did not. mater:" aZ.ly alter the amount of work and were theref cr e disregarded:. The one positive fact G"btained was tha.t the actual work of cleaning VYas in direct proportion to the- frequency of use.. From observation and from statements ■'\7 Janitor.-, we have assumed that a furnisher! floor of any description costs at least one half as much more to clean as an open area such as corridors, gymnasiums, etc. The schedule of cleaning costs at the end of this report is based upon that assumption ana -3, .so presupposes the continuous use of all floor areas in buildings for their designated purpose, iHiy variation from this condition would necessitate a separate study of that particular building and such conditions are referred to later under the heading ''yariations". It is recommended that the square feet of used floor area be used as the basis of compensation for all ;ianitorial vvorkc b. To Secure Poss i'ble_ Eco nomjies of O peration Economical operation of any system presupposes the employment of the fewest possible number of highly paid heads or ejtecutives, and the utilizaticm of cheaper labor to the larp-est dfrree possiblso - 16 - The existing system is unecomomical in tliat tv?o executives, the engineer and the janitor, are employed in each building, necessitating the performance of a large amount of cleaning work by high priced labor » In a general way, the suggested method of operat- ion is similar to that now employed by both Chicago and Cleveland, with variations in detail from both. The Chicago system is based en the principle of making- the engineer- ihe contractors for both engineerina: and janitorial work in his own building. The engineer is termed the engineer-custodian, and he is paid a fixed an-r nual appropriation to cover all engineering and janitorial work. This appropriation is proportioned to the total floor area of buildin'^'S, and is erpendei by the engineer- custodian in any manner that he see fit. This system en- ables the engineer to make more than his estimated sal- ary provided he does part of the janitorial work himself. An essential part of this sySfeem is the incpection service whereby the standard of efficiency is maintained, Cleveland has installed a system somevi/hat sim- ilar to Chicago, but with some modifications that do not appear to be desirable. Service in each building is main- tained by an engineer-custodian paid on a fixed salary basis. He is allovred an appropriation for the building, but is not supposed to receive any part of the difference between appropriation for cleaning and the actual amount spent for this purpose. The only incentive to economical - 17 - operation is a system of credits whereby those engineers vvith the best records are siapposed to be placed in line for promotion to better paid positions. This incentive is al- most negative. Appropriations for both engineering and janitorial work are based on number of rooms. According to conversations with engineers and Board of Education officials, the system in its present form leaves much to be desired. It is proposed for Detroit thajJ an engineer-cue^ todian be appointed for each building, such custodian to be a licensed engineer, and that a fixed ap:oropriation be made for each building, the actual cleaning costs to be estimated according to schedule, and an estimated salary allovted to the custodian, based on the size of the heat- ing and ventilating equipment. The total appropriation to be paid to the custodian in semi-monthly payments, and he shall be empowered to employ such assistance as he re- quires or considers necessary, thus giving him an incen- tive to earn more money by doing -more work himself, or if he is content to remain entirely in the boiler room, the appropriation for cleaning would provide the necessary labor for the janitorial portion of the .vork, with only supervision required of the custodian. EXCEPT that in the smaller buildings, the custodian would be expected to do a part of the cleaning, and allowance for that condi- tion has been made in the suggested schedule of salaries. - 18 » The custodian thus in efT;ect woFjbd TDecorne the contractor for the labor of maintenance of his own building. This method is nov/ in iDpe-Eation in Chicago, to the equal satisfaction of the engineer-custodians and the Board of Education. The Cleveland scheme is similar, but with t-cjae modifications, v/hEch do not appear to be advan- tageous. There is no question but that this method would work far greater economy in the operation of buildings as compares to that now in operation in Detroit; and by es- tablishing a scale proportioned to the actual needs of each building, the schedule of appropriations can be in- creased or decreased at any time by any percentage desired , and the salaries remain on an equitable basis. Certain restrictions x-,on.ia of necessity have to be placed on the engineer-custodian as to the character of help employed, the method of payment of salaries, and possibly a minimum wage; but such items would be minor de- tails and could be readily adjusted by a little careful study on the part of the chief engineer. Further, there are two direct and distinct ad- vantages in the proposed method; first, operative, in that there should be only one executive head in each building as the work involved, especially the janitorial, is labor in its simplest form; second, financial^ in that one of the comparatively highly paid positions is eliminated. The siibedule of proposed salaries and appropriations clearly ~ 19 shows the net saving thereby effected. It is suggested that t'-.re be a single appropria ation for both engineering and janitorial "ivork, hut that each actis-ity he considered separately, in determining such grant. An analysis of the vvork of the engineer has shown that under the present system, his duties have been (jonfined to the operation of the heating and ventilating equipment, To this would be added by the proposed method, supervision of all janitorial work* He would be allowed a fixed salary to cover the engineering portion of the work -with the privilege of increasing this amount by economical operation of all Janitorial work;, waich in effect ,vou].c mean that ne would have the ofition of performing such work himssslf or hiring someone else to do it. It has been recommended tla.t all salaries for engineering work be proportioned to the rated capacity of heating and ventilating equipment as expressed in terms of square feet of radiation, therefore, the following schedules is suggested. - 20 - Schedule of Estimated Salaries for Engineer- Custodians Per Mo. Buildings with 5000 sq. ft. of radiation or less $100 . " " 5000 to 10000 SQ. ft. radiation 110, " 10000 to 15000 " " 15000 to 20000 " " 20000 to 25000 " " 25000 to 75000 " " over 75000 " 120. 125. 135. 150. 175. It will be noted that the progression is not uni- form and the variation is suggested "because the difference in character and amount of work hetween a plant of 10,000 sq. ft. and one of 20,000 sq. ft. does not appear to justi- fy a uniform increase. Above this point, hov/ever, the re- sponsibility of the engineer increases with the addition of other help in boiler room, and should be paid for. By the nroposed system of supervision of all jan- itorial work by the e-ogineer-custodian, it would be possible to employ wonen for practically all of the duties jiow per- formed by the janitor, or if women were not available, ordinary labor could be used at a much lower rate than is . now paid to the janitors. The Bmployment of women or other cheap labor is therefore an essential part of the proposed raethcd of Ope ration. Investigation of existing conditions of jani- torial work has resulted in the recommendation.- that some unit of actual used floor area be used as the basis for compensation. It was thought desirable that this unit should be - 21 - the equivalent of v7.ork that could he performed in one month for one dollar* As this unit would be composed not only of sleeping, mopping, and such general duties but also all in- cidental requirements it was possible to determine such unit only by the process of taking the work of one man, or building as a standard and finding the ratio of total clean- ing costs to the number of square feet of used floor area. The Grossman school was taken as a standard. Under the present arrangement, it was found that one man could do the entire janitorial .-'ork in a satisfactory man- ner withomt assistance of any kind from tha engineer or other help. It was, therefore,, assumed that the unit basis of cost for clean: ng in this school would be a fair Standard, This unit was found to be 350 sq. ff* of floor per dollar per month. The assumption was also taken that the smaller buiidings could not be cleaned quite as eEonomically as larger buildings. Therefor 85, in smaller buildings a slightly smaller unit ox 325 sq. ft. was used. In buildings equal in size to the Grossman school and larger, up to those of the Harms school class, a fireman would be furnished for three V/inter months, whose duties would be to assist in the boiler room, as needed, also janitorial .vork. The scale for this cii,ss of buildings v;as therefore slightly increased tO 3S5 sq, ft. - 22 - because of this assistance* The third class of buildings, which would be re- presented by the Bishop and Russexl schools presents a slightly different problem, because of increased require- ments. The proposed scale for this cleaning was, therefore, droppea to 300 s|. ft. In order, however, to utilize the spare time of the engineer in the smaller buildings, and also of the ad- ditional boiler room help in the larger ones, this scale is modified as shown in the schedule. Sucn suggestions are arbitrary, but reflect the actual ^70rking conditions and are made with the assumption that each man in the small buildings as well as large shall do a full day's work; and the part time help in the boiler room should prevent an overload on 3ither the engineering or janitorial ser- vice during the winter months; at which tine both depart- ments are v/orking under peak load. One of the principal factors for economy as sug- gested, is the substitution of female cleaners for high- er priced men Janitors, and in arriving at the unit cost of cleaning for the Crosman school, which has been^ taken as a standard, the salary of two women, plus their recent 105^ increase, has been used in place of the one male jan- itcr now employed. There is hardly any question but that two vYomen can do more virork than one man, no matter hov/ ef- ficient the latter may be^ And it is therefore, evident that this allowance is liberal and the actual increase in - 23 - the niunber of cleaners employed v/ould result in increased efficiency and cleaner buildings. A schedule of areas and cleaning costs esti- mated on the basis of the foregoing assumptions for the 13 buildings investigated is as follows: ■yc^nulE «F A HE A/ 3uilding Radiaffon ^(ToraO Area (jMmaUov)) Area Area Cla// 'A' Area Ci3/r"iy 1 .Area Cla//"C" Area Clsss ■'!)" Area aasf'V firnane 4108^ 123)0 'P 35I.'5 ^ 553 O^ 2473'* , ^ 780* 672*^ Pifcber iSZ60 20876 15205 11342 2203 JO08 652 Ro/e 11620 32138 25662 12952 6630 1208 1536 J 33 6 Naje/ke 13470 32/?30 24571 16518 4591 840 1472 1150 Ban^foiD 14135 33024 24752 I (£'544 4434= 826 1440 1506 Maybury 14908 33754 2 5 712 16084 49? 7 193 7 1580 1194 Jampjxm 13660 37689 '28 5!! 18355 6829 87 1560 1680 Cro/man 18015 42699 33094 19210 8522 2154 1588 1620 iielv 1 15530 42842 32852 19981 7529 1552 1472 2348 1556 Joyce 15370 42910 32710 20401 6844 2484 1425 Harm/ 17245 45414 34 747 21335 6083 3914 1443 1972 Ru//eil 22610 64975 50 672 28606 12472 3153 4511 1930 fti/hop 4Z3i"0 99188 ' 783S,^ 41604 15 734 122Z1 48 72 3955 Nofc- /umafion oj /Itwr area/ et^ual/ one end one -ha) j time/ QlaJf'K plvs CJa/ze/ B, C.O, and t. Cla// A' include/ all room/ a>/ih furmlure /uch a/ Cla// room/, Ojjict, Uiwc, lab/ etc. n S> •■ ' Corridor/ and open area/ requirinc clailtj cJea-iing. »> C >• •> room and area/ reauirin^j <:>ccayi> J) 1. .. Toile+ and /houjcr room/ •> E •• " /[■air/, land inv/, ve/l-ibLiie/ anciVfep/ •f Taken from Amroerman 3^ M<^Coli /ur/ey Detail/ "f -Building/ Buiidi'n3 '$e.rceT)]s2^ o] kreay j Mi/ceJIaneou/ Jlata A B C D I no. oj L.imdouJ/ Walk/ /ideujf^lk/ Ground/ Firnane 587^ 26,.^' % 8.2?^ 7A^ 71 * 16641* *-474^ * 5875^ Pikher 74.6 14.5 ^.6 4.3 86 35-0 663 17489 Ro/e 50.5 33.6 4.7 6. 5.2 149 640 3 7 384 25440 Maje/Ke 67.2 18.7 3-4 6. 4.7 153 3540 956 80469 5ar/fouj ^G.8 17.9 3.4 5.8 6.1 141 3299 \&50 25255 Maybury G1.5 19.1 7-5 6.1 4.8 242 3J23 2.03-4- i3b'03 J^ mp/on 64.4 23.9 .3 5.5 5.3 130 2I0O 3246 54748 Cro/man 58.1 25.7 G.5 4.8 4.9 191 2»80 6324- 93715 Hely 6o.g 22.3 4.fe 4.6 7.1 204 4223 • 3600 I06987 Joyce 62.3 20.3 7-6 44 48 222 3493 45 72 4730O tfariT)/ 61.4 17-5 1)3 42 5-6 202 4256 5352 73 565 Ru//ell 56.4 246 6.2 39 3 2> 2S8 4410 3756 740gr bi/hop 53.1 20,1 1 5-. 6 6.2. 5: 501 1368 7524 83208 ^vers^e 61.3 21.9 55 59 5-4 1 * Taken from Maiconuon 5 Hi^'jinbothairi .ruryey 1 yALAR-Y /cnz^Vil txi/fing Schedule Propo/ed K/cheduie building fn^ineer Janitor Total Cu/todian Tire ID en Cleaner/ Ckar)Grj Total annu< 3I annual annual annual anvva] annual annual annual Firnane *1352 73 *351 22 ♦iroTW ♦ laooToy * * 378 e^ t * 1578 9Q Pitcher J443 36 702 TO 2152 joir 1320yo 642 30 1362^ Ro/e 1449 34 926IZ2 2374 j06 1440^ 382 20 242 2 ?£ Maje/ke uoz 52 1171 20 27 75 'Ji 1440102. 1010 20 2450££ barAovj iiS76> 52. n33?£ 2710 sz 144 Ouo iQl&io 245 6 i£ Maybury I5<;b- 3? 1054'IO 2619 Si 1440,^ 1038 60 2478 i£ /gmp/on 1615 28 1253122. 2512 rts 144000 11 SO 00 2600 2° Cnmmn 1600 OS 11301° 2730 11. 30 1500;o£. ■^ 263.52 11 38 ,i£ 290211 2906«L ttely {654 20 1532 F 318<^ 1500 <^ 4 263]»2 1142 '50. Joyce 2773 92. 2020 32 4734 ,^ 1500 inier roonth/ h'et /avm^^ '''Indicate/ cleaner/ employed aurjng /ummer vdccition penod $ 7491. i?." Cu/fodi^n/ BuiJdin^/ ujith lolaJ radiation 0/5000 /c^. /t". or jeyy *looo<' per mo. . ^ « -•. - » - 5001 to lOOOO /cj. jt. 11 0«' >' '• " 10001 " 15000 " •' ]20<« " •' « »• •' " " 15001 ^ 20000 " " 1 25"" •> •• .. 20001 " 30000 » " 13 5'"' " ■• M >. n .. "30001 '• 50000 " " 150"" " " '• " •• »« •• over 50000 jq. /t". 17 5"' •• firemen and coal-pa//er/ to be employed as required but all yuch help lo a//iyt Luith Janiforial ujork ojhen po/zibie Cleancn/ An allowance 0/ *I.Qg per mont-h Jor each 325 J'ci- jt of total floor 3rea in all buildino/ up fo 4oooo yc^. Jt An alloLuance of ^ \oo per mon^h Jor eacli 375 yq. J^t of total jloor area in buildins,v ujith ar ea of 4<)c)oo to 50000 yq^. ff. An dllowance of #l.oo per month for each 3oq y(^. ft. of tofa/ /loorareg in building/ ujjtb area of over i'oooo ycj, ft. In e/^imahn^ Jloor srea^. each ^q.. /t. 0/ area in/urjii/hed room i/ a//umed to ecjual one and one half jc. ff. of total area 23-A IV. DETAILS OP OPERATIO N a. Time Studies Before the suggested or any other schedule of salaries could be applied, complote and detailed time studies of typical buildings of all groups or classes should be made. It has not been possible for the Bureau of Research to do this, because of the limited time tafeen in the presentation of this report; but any final report or operative schedule would be valueless without such studies, the result of which could be applied to the sug- gested schedule and such corrections made as v/ould seem advisable. We knovj from actual measurement the exact physi- cal data of the buildings inspected. We cannot know, with- out such studies, the exact cost of cleahing any one or group of buildings. Such cost as assumed in the sched- ules is, therefore, only suggestive. b. Inspection. Mr. Smith, the Chief Engineer, has already in- stalled a system of inspection by the appointment of two men, who are now engaged in this work. A continuation and :XC!£; - 24 - extensim of this inspection-service is absolutely essen- tial to the satisfactory operation of the proposed method of maintenance. We would suggest uhat the number of in- spectors be increased to three, or v/hatever nujnbsr v;ould be required to give each building a thorough inspect! aac at leaso every two weeks. A fractional part of the de- crease in operating costs entailed by the adoption of the general method of operation suggested would pay for this very important department. It is also recommmended that a system of semi- monthly reports from the principal of each school be adopted. Such reports would prove a valuable check on the official inspectors and at the same time give to each principal the opportunity to call attention to any details which Jifi th.ink.s is neglected. Also, the principal being " the executive head of the building, it seem.s to be logical that his or her peJrsonal ideas as to the work in question should be considered. c. Adjustment s There will undoubtedly be minor adjustments re- quired in the application of any schedule to the individ- ual needs of a number of buildings. These should be in- vestigated by the chief engineer or his inspection: depart- ment and corrected in such manner as each individual case vi/ould require a But the number of such buildings would be relatively small, and it would seem that such variations couid easily be adjusted- High school buildings and those heated vv'ith stoves or furnaces have not been considered in the foregoing re- port, except as to engineer-custodians* salaries in high schools. The cleaning costs and the salary of custodian who would attend the stoves or furnaces require separate investigation. d« Standardized Requirements One essential factor of equalization of ./ork is that the duties and requirements of all engineering and janitorial empl^oyees be standardized and that all regulat- ions to that end be enforced. This applies particularly to the janitorial work. Gonditiais are fairly unffoinm ■{jhruout the entire oity, and there is no reason why such a standard could not be maintained* If the existing rules and regulations are too exacting they should be modified, but in any case some standard should be adopted and enforced, This conditiCM automatically calls for an efficient in- spection as recommended* f - 25 5. RESULTS AJ^D GOMPARISOIS a» Financial Results The present appropriation for th3 thirteen schools inspected, as given in the Board of Educaticn manual, to- gether with the addition of the recent ICfjo increase in salaries, would give a total maintenance labor cost for these buildings of $46,958,02, The proposed appropriation as per schedule is $39,476,40. Result - a net saving in thirteen buildings of $7,481.62. If the sane conditions were found to exist, in the same puoportion, in the re- maining 130 odd buildings, the net saving for the entire system would be approximately $75,000,00 Considering that in the schools which have been examined, the greatest saving v/as effected in those buildings on a high school basis, and that none of the high schools proper, with their large payrolls, were included, it is believed that this proportionate saving is far too low and that the actual figure would be much greater. b. Findings of 1917 Report Certain Specific statements as to operating costs were made in the 1917 report, and have already been mentioned in the introduction to this report. These state- ments are herewith repeated and a comparison made with findings of the recent investigation. ^) - 27 - a. If the engineering and janitorial salaries of all elementary schools, nov; on a high school basis, wer. paid at the same rate as other elementary schools, a saving of |S0,000 per annum v^ould be effected. h. If the number of employees v/ere reduced during the summer months T;hen school is not in session, a saving of approximately $15,000 v;ould be effected. c. If a number of operation economies were adopted, - i. e. the eliminatiOB of the class room as an unfair unit of compen- sation,, the use of women cleaners when possible, the larger use of the time of engin-^ers, etc., a saving of IjpVS.OOO per year would be effected. d. If steps were taken to regulate the use of janitors supplies and coal other econ- omies would be possible. c. Conclusions Considering the prex'ious statements, item by item, in the light of facts gathered from the inspection of the thirteen buildings before mentioned, and from a short survey of conditions in Ghicrago and Cleveland schools, the following conclusions are reached. 1. That of the eleven schoolsnow n a high school basis, three v/ere included in this survey, and in these three schools the es- timated saving is s'i'6,356.80, if the same proportion held ^good in remaining eight buildings, the total saving in this class alone would be $23,308.23. 2. That the preliminary estimate of a possible saving of 075,000 is conservative, and a feasible method of effecting such a saving is given in this report. - 28 - 3. That the detailed analysis of the build- ings inspected as shown by sahedule of same shows in the cxearest manner possible that the class rooms as a linit of measure- ment of salaries is unfair, and that the method suggested, or one similar is intent, should be adopted,: 4. No detailed investigation was made as to reduction of employees during summer months. It is beliex'-ed, hov. ,ver, that a careful study would show that this suggestion is correct. 5. The substitution of wanen cleaners for high paid men janitors is an essential factor in any method which has for its object greater economy in ope rati ai. This in fact is the basis of both the Chicago and Cleve- land system, and its installation by Detroit would be but the adoption of a tried and proven system. In conclusion it should be noted that in arriv- ing at the results given, no attem.pt was made to work to any figure. The method adopted for estimating cleaning eosts was based on an assumed quantity for cleaning one building and the costs of other buildings v/ere determined pro rata. That the result obtained is so close to the findings of the previous report is double evidence of the economies possible. - APPENDIX A - The complete "Appendix 1" as included in original copies consists of floor plans of each, of the thirteen buildings surveyed. The follov/ing plans of the Crosman School are typical^ and show the f oim in which this information was presented. t c cko/mah' /aCDL nun AREi^V : A ■ . //^^- / :i 75 + ■ c. /f ^t 1>. -. /■f^ '^ ^ / t /Jf^ r 7fi- G \ ZXo 3i 1 -■— r~~ J K . 4t/c union Joy/ Jlay room ■ .. Tmict - J)0!-y3€xHc jcieiiCe Girl/ 7Qilci rooDi Boiler Fan 3-cx>j"n . Too! .. : Corridor/ yjjDCiQu:^.? 3-1:: X 4' (. ^ ChosHKH Jcnmi yiiJi ru5)iL ?>LA]\ VfcohD FL«>R Hah c 3^o Ojf Jce d-ja-r Cor nd 01-/ 3,2 Rejr f-ucj^l d4- -ujin^doTjj, f * APPENDIX B - The complete "Appendix B" as included in original copies consists of forms for the tabulation of physical data for each of the thirteen buildings surveyed. The following forms, giving data compiled for the Grosman school, are typical and show the man- ner in which this information was presented. % I Ti :r- c\ to W |cr> -3 w « t^ o o*. 3 3 S O p- o O H P- c+ C 03 ■■-4 rf- H EB 0) Cb p no '< P' .>. O tej •< s. o '<5 t-4 1