Part 20

III.--THE STORY OF THE LONG FIGHT FOR PURE WATER.

And now we come to the story of the long fight for pure water in Pittsburgh. The irony of the situation is, that there should ever have been a long fight in a city which has since 1863 publicly recognized the danger of impure water, the significance of which has almost continually been brought before the people by press and platform alike, for the past fifteen years. The story of the whole filtration movement cannot be separated from the story of the struggle for supremacy of contending factions in the dominant political party. And the result,--excess typhoid with its terrible cost,--becomes part of the penalty the city has had to pay for such corruption as the present graft proceedings in councils are bringing to light.

The situation at the beginning of the filtration movement in 1895-96 was this: One of the strongest political machines in the history of municipal government was in absolute control in Pittsburgh. It mattered not who was elected mayor; he had no responsible power. Heads of departments were appointed by outgoing councils. This meant that department heads held over, and used their power to re-elect as in-coming councilmen the outgoing councilmen who had elected them. Moreover, councils were controlled by the ring.[13] In this way the political machine was self-perpetuating. The directors of public works drew specifications for public improvements; councils awarded contracts; and it is a matter of notorious record that the well-known firm of which one of the ring leaders was a member usually secured the contracts.

[13] For an analysis of Pittsburgh politics during this period under the leadership of Magee and Flinn, see Lincoln Steffens's The Shame of the Cities.

The municipal election in February, 1896, was hard and bitterly fought. George W. Guthrie headed the reform party as candidate for mayor. According to one authority the majority of ballots cast were for Guthrie, but when the count came in officially a few days after election, the ring had won. With the mayor, both branches of councils, and the director of public works all of the dominant party, the carrying out of their ante-election pledges so far as filtration was concerned would seem a matter of course.

True to these pledges, a resolution for the appointment of a Filtration Commission, to include the mayor, the president of each council, and eight citizens,--making eleven in all,--passed City Councils on June 8, 1896, and was approved by the mayor on June 10.

The commission was promptly appointed and set to work to make a thorough investigation into the relative merits of various methods of filtration and water supplies in use in cities of the United States and Europe. Allen Hazen, a leading expert on filtration, was employed for the first phase of the investigation, and Prof. William T. Sedgwick of the Massachusetts Institute of Technology, eminent as a sanitary expert, investigated the typhoid situation in the city. Morris Knowles, C. E., was appointed resident engineer in local charge of all items of experiment and investigation. Various members of the commission visited European and American cities to study filtration methods; extended bacteriological and analytical studies of the Allegheny River water were made; small, slow, sand filter beds and standard make mechanical filters were set up at the experiment station to test the relative merits of each as applied to Allegheny River water; and nothing was left undone as a means of arriving at a sound conclusion. Over two and a half years elapsed between the appointment of the commission and the rendering of its report.

The report, which was very elaborate, was presented at a joint session of councils on February 6, 1899, and showed that the members of the commission were united in their belief that, all things taken into consideration, a slow, sand filtration plant should be constructed. In accordance with its recommendation steps were immediately taken for the issue and sale of bonds to provide the necessary funds, a public election for this purpose being held on September 19, 1899. The appropriation ordinance for the year 1900 contained "No. 100; for the purpose of extension and improvement of water supply and distribution, including the filtration of such water supply, and providing and furnishing meters to be used in connection therewith ... $2,500,000." The ordinance authorizing the controller to issue bonds for the purpose as above specified was passed by Select Council in March, and approved by the mayor April 3. So that prior to May 1, 1900, a fund of $2,500,000 became available, and the prospect for the prompt erection of the plant would have been bright, but for the fact that during the four years since 1896 certain changes in the attitude of the members of the ring toward one another had taken place, that were destined to involve further complications. One member (Magee) had aspirations toward the United States Senate. In this he encountered opposition from the other end of the state, and in the struggle for state supremacy that followed, Pittsburgh was left largely to another member of the ring.

In the early part of 1900 E. M. Bigelow, who for a long time had been director of public works, had a row with this leader (Flinn) over certain matters of public work. The result was that on June 11, 1900, the ring-controlled councils threw Mr. Bigelow out of office and elected as director of public works a man more friendly to the ring.

This break between Flinn and Bigelow was the beginning of the long series of events that retarded the filtration movement for at least four years.

Bigelow was now "out." The new director of public works, appointed by councils was acceptable to the ring that was "in"; so was the membership of councils. The question with Bigelow was, naturally, how to get back into office. This is the way he accomplished his desire. The ousted director had a brother, who, it is said, had an old grudge against the ring. He went to Harrisburg and prevailed upon the State Legislature to grant Pittsburgh a new charter, abolishing the office of mayor and substituting that of recorder, this office to be filled by the governor until April, 1903, when the regularly elected recorder would come into office. The charter also gave the recorder much larger powers than the mayor had previously enjoyed, among them the appointment of heads of departments and the right to enter into contracts hitherto the prerogative of councils alone.

As might be expected, the newly appointed recorder soon exercised the authority vested in him by the terms of the new charter, and on June 11, 1901, removed the head of the department of public works again installing Mr. Bigelow in that important position, just one year after he had been removed by councils.

It must be remembered that while Mr. Bigelow had again secured the directorship of the Department of Public Works, there had been no change in councils, which were still enrolled on the side of the ring. While councils could not now stop the preparation of plans and specifications for the proposed filtration plant, they could make a lot of trouble in other ways; and so they did.

There are contradictory statements at this time as to just how much progress had been made on plans during the year that Mr. Bigelow was out of office. One side claims that "sixty per cent of the plans had been drawn"; the other said, "only part of the plans." At any rate, within six weeks Mr. Bigelow removed the engineer who had served under his immediate predecessor, appointed as resident engineer Morris Knowles (who was later appointed chief engineer of the newly created Bureau of Filtration), and directed him to start work on plans for the filtration plant.

At the same time councils proceeded in an attack on the director for alleged delay in the preparation of plans; and on November 11, 1901, presented a report to its filtration committee declaring Mr. Bigelow entirely responsible for all the delay in the preparation of plans and specifications, adding that these delays had been "gross and inexcusable." This report was accompanied by a resolution ordering Director Bigelow to furnish within ten days, to the filtration committee, for its approval, all the plans and specifications for the work lying north of the Western Pennsylvania Railroad, directing him further to proceed with the utmost diligence to the completion of the plans and specifications for the remainder of the plant, and to submit the same to the filtration committee on or before December 2, 1901. The report and resolution were adopted by both councils on the day of their presentation. The real motive for this attack is readily inferred.

In the meantime the opposing faction had been working with the governor, and after a notorious meeting at the Duquesne club, the governor was prevailed upon to remove his first appointed recorder, on the pretext that he had displaced several old soldiers from office, and to appoint another recorder in his place,--this time a man upon whom the machine could rely. At the close of the letter of removal, the governor added a now famous postscript, "I was not bribed."

With the appointment of the new recorder, Bigelow was again forced out of the office of director of public works. This put the ring again in full control, with even greater powers than it had before. A year and a half had elapsed since the $2,500,000 became available, and all that the people had to show for it were eighty-five acres of land, part of the plans and specifications completed, and over 600 more deaths from the scourge of typhoid fever.

The next move was made within ten days after Director Bigelow's dismissal, when another ordinance for the letting of the contract was introduced. It quickly passed both councils and received the recorder's approval. By this ordinance the contract was not to exceed $1,500,000 and was to be for the construction of "so much of the filtration plant as is shown upon the drawings and description in the specifications, as and to be known as contract No. 1."

Under this ordinance the new director advertised for bids, which were received and opened. It appeared that the lowest bid was made by the T. A. Gillespie Company, at about $1,292,000. The director and recorder were preparing to let this contract for part of the work to the Gillespie Company, and it looked as though the faction of the ring now in the saddle would win the stakes.

But they had not reckoned all the odds. The opponents of the ring, in this two-sided hold-up game, brought out another winning card. It was in the person of John P. Edgar, a citizen of Steubenville, Ohio, but the owner of property in the thirty-seventh ward, Pittsburgh, who entered suit in the United States Circuit Court at Pittsburgh for an injunction to restrain the recorder and director of public works from awarding the contract. The case was argued before Judge Buffington on March 3, 1902, W. B. Rodgers and George W. Guthrie appearing for the plaintiff, and Thomas D. Carnahan, city solicitor, for the city. Suit was based on the allegation that no estimate had been presented to councils for the whole cost of the improvement, and that the letting of this partial contract would be in violation of the new charter, which required that before any contract for public improvement could be entered into, such an estimate for the entire cost must have been presented. The city solicitor showed that an estimate had been made of the entire cost, but this estimate had not been made public or submitted to councils. Mr. Rodgers maintained that this estimate must be submitted to councils and approved by them. He and Mr. Guthrie also claimed that the contract should embrace the completion of the work. On March 13, 1902, Judge Buffington issued the injunction prayed for. The court held that the estimate of the whole cost, required by the charter, must be made to councils and become a matter of public information, and that such an estimate had not been made.

The machine was temporarily blocked, but five days after the injunction had been granted, the recorder instructed his director of public works to have blueprints, plans and estimates of the entire filtration system ready to present to councils at as early a date as possible, thus starting the necessary legal steps for placing a new contract. Within a month these plans and estimates, involving an expenditure of $3,635,500, were prepared and submitted to councils, and three ordinances for the letting of contracts were presented. The increase over the first estimate was explained as due to an increase in the number of services to be metered, and to a general increase in the cost of materials.

These three ordinances were indefinitely postponed, however, in councils, because more money for the construction of the plant under the increased estimate was not available.

The next hold-up came from the city controller, who on May 1, 1902, sent the following letter in duplicate to Recorder Brown and Director McCandless:

In view of the uncertainty attending the proposed filtration of the water, and the doubt as to the ultimate disposition of the matter by councils, this department desires to notify you that on and after May 10, no indebtedness against that appropriation for any purpose, except for labor or supplies previously furnished, should be incurred, as, under the decision of the court, there is now no authority for any expenditure for filtration purposes.

In the meantime, about April, 1902, and all through that summer, advocates of a mountain water supply were at work. At the same time changes in councils threw out of the Filtration Committee members favoring sand filtration and elected opponents of the plan to its membership. The result was that on July 21, 1902, an ordinance was brought forward authorizing the Filtration Committee to prepare, in conjunction with the superintendent of the Bureau of Water Supply, or some other competent engineer designated by the director of public works, estimates showing the entire cost of the installation of the proposed sand filtration plant. Early in January, 1903, this resolution had passed both councils. It was, however, vetoed by the recorder on the ground that it was unnecessary, the Department of Public Works, he held, having already furnished full estimates, in good faith, and being ready to assist councils further in any manner that might be suggested. The recorder added in his veto: "If the purpose of this resolution is ultimately to defeat the proposed plan of sand filtration and substitute therefor a system of mechanical filtration, I am unalterably opposed to it." An attempt to pass the resolution over the recorder's veto was made, but it failed for lack of the necessary three-fifths vote.

In the meantime an ordinance was presented authorizing a public election for a bond issue large enough to cover the difference between the amount of money then available and the amount required under the increased estimate. All that came of this was an inquiry by the sub-committee to which it had been referred as to whether the new estimate included coverings for the filter beds, and whether the South Side was to be given filtered water. After ten months' further delay, this sub-committee reported that the estimate did not provide for covered filter beds and that it made no provision for the South Side. Another year and a half had elapsed, with 650 additional deaths from typhoid fever; 1,250 to date.

In April, 1903, by the election of Mayor Hays, the Bigelow faction again came into power and Mr. Bigelow was reappointed director of public works. Councils reorganized. A reform, or Bigelow man, was elected to the presidency of councils, control of committees was secured, and by the middle of 1903, the Bigelow faction was again in full power.

By this time the South Side was demanding filtered water. The new estimates presented by Director Bigelow in September, 1903, included ten filter beds for the South Side, and the raising of the pumping capacity for the first twenty-three wards by twenty million gallons, and included also, new machinery and boilers for the Brilliant pumping station, and a fifty-inch steel main across the city to supply the South Side and the Monongahela River wards of the old city. These brought the total new estimate up to over seven million dollars.

The time between September 21, 1903, and January 12, 1904, was required to get a resolution through councils and approved by the mayor, authorizing the finance committee to employ three experts, Col. Alexander M. Miller of Washington, John W. Hill of Philadelphia, and Rudolph Herring of New York, "to verify and make a report on or before March 1, 1904, to the committee on finance, as to the correctness of the estimates made by the director of public works."

Under this resolution the experts were employed and went to work. In the meantime, councils had received a petition from the Pittsburgh Section of the American Chemical Society, urging the establishment of a sand filtration plant; also a resolution of the Civic Club of Allegheny county, and a resolution of the permanent civic committee of the women's clubs of Allegheny county, urging sand filtration at an early date.

During 1903 there were 450 deaths from typhoid fever.

On February 27, 1904, the filtration experts made their report recommending a receiving basin, three sedimentation basins, a clear water basin, and forty filter beds. They also recommended sand filtration and covers for filter beds, but cut down the capacity of the various parts of the plant sufficiently to reduce the estimated cost by $700,000.

On March 31, 1904, the Bureau of Filtration in the Department of Public Works was created for the purpose of constructing these important works.

No further opposition of a serious character was met, and in July of that year a second bond election for $5,000,000 was held and passed by a vote of nearly two to one. These bonds were issued in September; plans and specifications for the enlarged plant were prepared as soon as possible; bids were advertised; and the contract was let on March 4, 1905.

With the final award of the contract the fight for pure water was practically won. Director Bigelow again stepped out of office in 1900 with the election of a mayor independent of either Republican faction; but the work of pushing the plant forward to completion was carried on by the Guthrie administration under the efficient supervision of Directors Clark and Shepherd, and Superintendent Knowles; so that by October, 1908, the plant was supplying a good quality of filtered water to the first twenty-three wards,--the old city.

The settling of the pending litigation between the city and the Monongahela and other private water companies on the South Side, together with the taking over of that property by the city was all that remained to be done before filtered water could be supplied to that part of the city.[14]

[14] In January, the Monongahela Water Company notified the city of its decision to abide by the decree of the Supreme Court, which granted permission to the city to take possession of this plant and system in consideration of $1,975,000.

In the meantime the North Side (Allegheny City) still has unfiltered water. Immediately after Allegheny was annexed to the Greater City in December, 1907, steps were taken to pave the way for filtered water there. $750,000 was appropriated for ten extra filter beds on city-owned land adjoining the plant, and their construction is now under way. Their use for the North Side involves extra pumping facilities, however. A plan to bring the old Allegheny pumping station at Montrose down to Aspinwall for this purpose was recently blocked by members of councils from the North Side. Satisfactory explanation for this action does not seem to be forthcoming. The reason alleged was that its removal would throw some of the men out of a job. In the meantime Allegheny continues drinking unfiltered water with no immediate prospect of relief, and the same sort of political influence that delayed filtration in the old city so long, seems to be accomplishing similar results on the North Side.

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In conclusion, let me apply the economic facts brought out in the first section of this article, to the four years of unnecessary delays in the construction of the filtration plant, from April 3, 1900, to April 29, 1904. They must be considered in making up the whole bill of the city in the cause of pure water.

During all this time, more than $2,200,000, on which the city was paying three and one half per cent interest, was lying in the banks favored by the administration, bringing the city but two per cent; and the death rate from typhoid fever was the highest of any of the large cities in the United States. But for this delay the plant might have been brought to completion on January 1, 1904, or at least as far advanced as it was January 1, 1908, and four years,--1904, 1905, 1906 and 1907,--of excess typhoid fever might have been avoided. Not a startling statement, perhaps, on the face of it. But consider seriously what these four years of excess typhoid fever have meant to the people of Pittsburgh in deaths and economic cost. I have told you of but half of the people of six wards out of forty-three, one year out of four. In 1904, with an estimated population of 352,852, there were 503 deaths from typhoid in Pittsburgh. Cities with a fairly pure water supply do not have over twenty-five deaths annually per 100,000 population from typhoid. Had Pittsburgh's typhoid fever death rate in 1904 been twenty-five per 100,000, there would have been but 88 deaths instead of 503, and the grim total of 415 lives would not have been blotted out. By allowing $2,000 as the cost in loss of wages and expenses for each death (a little under the actual costs in the concrete study of economic cost already given), and allowing our previous minimum of $4,000 as the value of each life, the total excess deaths in 1904 alone from lack of pure water was a loss to the community of $2,490,000.

There were 425 unnecessary deaths in 1906, and a wastage of $2,550,000; 289 unnecessary deaths in 1905, and a wastage of $1,734,000; 415 unnecessary deaths in 1904, and a wastage of $2,490,000. In the four years the community lost $9,000,000,--over $4,000,000 more than the cost of the filtration plant. And in those four years, 1,538 lives were unnecessarily sacrificed.

There are those who will say, and perhaps rightly, that Pittsburgh's filtration plant of to-day is the magnificent triumph of construction that it is, only because of those years of delay in shaping the final plans; that while those who fought the measure tooth and nail for so many years did not have that purpose in mind, yet the set-backs they were able to accomplish, have made in the end for a larger, better, more efficient and more far-serving plant than could have been possible, had the first plans been carried hastily to completion. Such may be the case. If so, let the people be thankful that the cause of pure water triumphed ultimately over a lethargic public sentiment, selfish political purposes, and municipal shortsightedness. Let them at the same time remember at what cost to themselves and to their city the fight was won. And let the plant itself stand as an object lesson of tardy justice, and a monument to those hundreds of lives that paid the penalty unwillingly and unknowingly of being part and parcel of an unaroused municipal conscience.