Part 1
MUNICIPAL HOUSECLEANING THE METHODS AND EXPERIENCES OF AMERICAN CITIES IN COLLECTING AND DISPOSING OF THEIR MUNICIPAL WASTES—ASHES, RUBBISH, GARBAGE, MANURE, SEWAGE, AND STREET REFUSE
BY WILLIAM PARR CAPES
DIRECTOR NEW YORK STATE BUREAU OF MUNICIPAL INFORMATION SECRETARY NEW YORK STATE CONFERENCE OF MAYORS AND OTHER CITY OFFICIALS
AND
JEANNE DANIELS CARPENTER, A.M., LL.B.
BOSTON UNIVERSITY EXPERT IN ECONOMICS AND MUNICIPAL RESEARCH
WITH AN INTRODUCTION BY
CORNELIUS F. BURNS
PRESIDENT OF NEW YORK STATE CONFERENCE OF MAYORS AND OTHER CITY OFFICIALS
E. P. DUTTON & COMPANY NEW YORK 1918
COPYRIGHT, 1918 BY E. P. DUTTON & COMPANY
_All rights reserved_
Printed in the United States of America
DEDICATED
TO THE
HONORABLE CHARLES C. DURYEE, M.D.
WHO, AS THE FOUNDER AND FIRST PRESIDENT OF THE NEW YORK STATE CONFERENCE OF MAYORS AND OTHER CITY OFFICIALS, WHICH DEVELOPED THAT UNIQUE INSTITUTION, THE STATE BUREAU OF MUNICIPAL INFORMATION, RENDERED A SERVICE OF INESTIMABLE VALUE TO THE CITIES OF THE EMPIRE STATE AND BLAZED A TRAIL FOR BETTER COORDINATION OF MUNICIPAL UNDERTAKINGS, AND MORE EFFECTIVE COOPERATION AMONG AMERICAN CITIES.
PREFACE
In a home free from nuisances which offend the esthetic tastes, and either directly or indirectly cause disease, more contentment and thrift will be found than in the one permeated with odors and befouled with dirt and domestic wastes.
So it is with a city, the great home, workshop, and playground of its people. Keeping it clean, therefore, is one of the most important duties of its officials. None other is more conducive to health, happiness and comfort, the three great objects for which every community through organized effort is striving.
And there is no group of municipal problems which demands and is now commanding, more scientific thought and more intelligent business management than the collection and disposal of a city’s wastes. With every nation applying the last ounce of economy and with the increase of population and its consequent congestion, these problems grow in importance and complexity. Higher living standards, a better understanding of the causes of disease, and a keener appreciation of preventive work have forced municipalities to frown upon primitive methods involving individual effort, especially where congestion exists. As a substitute therefore, more effective means have been and are being adopted to eliminate by community activity, the nuisances caused by ashes, rubbish, garbage and dirty streets. We are also appreciating the need for more efficient management than is now prevalent and for the development of revenue-producing by-products.
An official or layman interested in the solution of these six important municipal housecleaning problems will find in this book information which we believe will answer all his questions. Our judgment has been influenced entirely by the hundreds of questions which have come to the State Bureau of Municipal Information from city officials in their effort either to establish efficient systems or to reorganize existing ones.
City officials, federal, state and municipal reports, engineering, medical and other publications, as well as the proceedings of various municipal, civic and scientific organizations have contributed their quota to this work.
THE AUTHORS.
BIBLIOGRAPHY
_STREET CLEANING_:
Milwaukee, Wis. Bureau of Municipal Research. Efficiency and Economy in Municipal Work by Modern Type of Equipment.
Philadelphia. Highways and Street Cleaning, Bureau of Highways—A Problem in Municipal Housekeeping.
Fox, R. T. Report on Examination of Personnel, Methods of Work and Equipment of the Department of Street Cleaning, New York City.
Parlin, R. W. Flushing—Its Place in the Street Cleaning Field.
_SEWAGE DISPOSAL_:
Daniels, F. E. Operation of Sewage Disposal Plants.
Kershaw, G. B. de B. Guide to the Reports, Evidence, and Appendices of the Royal Commission on Sewage Disposal.
Kershaw, G. B. de B. Sewage Purification and Disposal.
Metcalf, L., and Eddy, H. P. American Sewerage Practice. Disposal of Sewage.
Eddy, H. P. Extent to which Sewage can be Purified by Practical Methods of Artificial Treatment now in Use.
Faber, D. C. Operation and Care of Sewage Disposal Plants.
Fuller, W. B. Sewage Disposal by the Activated Sludge Process.
Bristol, L. D. Municipal Sewage and its Care.
American Public Health Association. Standard Methods for the Examination of Water and Sewage.
Hammond, G. T. Sewage Treatment by Aeration and Activation.
Weston, R. S., and Turner, C. E. Studies on the Digestion of a Sewage Filter Effluent by a Small and Otherwise Unpolluted Stream.
_REFUSE AND REFUSE DISPOSAL_:
Chicago. City Waste Commission.
Gerhard, W. P. Disposal of Household Wastes.
Matthews, E. R. Refuse Disposal.
Turrentine, J. W. Preparation of Fertilizer from Municipal Wastes.
Conant, E. R. Refuse Disposal in Southern Cities, with Particular Reference to Savannah, Ga., with its new Incinerator.
Rich, E. D. Garbage Collection and Disposal.
Gerhard, W. P. Sanitation and Sanitary Engineering.
CONTENTS
PAGE
PREFACE vii
BIBLIOGRAPHY ix
INTRODUCTION xix
CHAPTER
I STREET CLEANING, Elements to be Considered—Contract versus Municipal Cleaning—Spring Cleaning—Street Sprinkling—Street Cleaning Methods—Machine Sweeping—Pick-up Machines—Cleaning by Flushing—Hose Flushing—Cleaning by Squeegeeing—Disposal of Refuse—Relative Cost 3
II SEWAGE DISPOSAL METHODS, Need for Proper Disposal—Sewerage Systems—Purification of Sewage—Processes of Purification— Dilution—Screening—Grit Chambers—Straining or Roughing— Treatment in Tanks—Plain Sedimentation—Septic Process—The Imhoff Tank—Chemical Precipitation—Slate Beds—Dosing Chambers—Contact Filters—Trickling, Percolating or Sprinkling Filters—Intermittent Sand Filters—Broad Irrigation—Disinfection—Activated Sludge Process—Other Processes—Trade Wastes—Sludge Disposal and Value—Management and Supervision 71
III ASH AND RUBBISH COLLECTION, Types of Collection Systems— Methods of Collection—Districting the City—Organization of Collection Forces—Kinds of Equipment—Location of Receptacles—Time of Collection—Frequency of Collection— Enforcement of Collection Regulations—Methods of Disposal— Revenues from By-Products—Efficiency Tests and Suggestions— Per Capita Production—Cost Data 119
IV GARBAGE COLLECTION AND DISPOSAL, Collection Systems—Methods of Collection—House Treatment—Kinds of Equipment—Location of Receptacles—Time and Frequency of Collection—Enforcement of Collection Regulations—Cost—Per Capita Production— Feeding to Swine—Dumping on Land—Dumping in Large Bodies of Water—Disposal by Sanitary Fill—Burial—Disposal Plants— Incineration—Reduction 151
V CARE AND DISPOSAL OF MANURE, Methods Used by Cities—The Columbus System—Municipal Regulations—Exceptional Regulations 203
VI MUNICIPAL CLEAN-UP CAMPAIGNS, Agencies for Propaganda— Programs—Organization—Procedure—Publicity—Miscellaneous Activities—Methods—Prizes—Fire Prevention and Inspection— Sanitary Inspection—Slogans—Flies and Mosquitoes— Ordinances—Revenue from Waste—Cost—Results 213
TABLES
1. METHODS AND COSTS OF STREET CLEANING IN AMERICAN CITIES
2. METHODS AND COSTS OF SEWAGE DISPOSAL IN AMERICAN CITIES
3. ASH DISPOSAL BY PRIVATE COLLECTION
4. COLLECTION AND DISPOSAL OF ASHES AND RUBBISH BY MUNICIPAL FORCES
5. COLLECTION AND DISPOSAL OF ASHES AND RUBBISH BY CONTRACT
7. METHODS AND COST OF DISPOSAL OF GARBAGE
ANALYTICAL TABLE OF CONTENTS
STREET CLEANING
PAGE
Contract versus Municipal Cleaning 5
Philadelphia, experience of 5
Washington, experience of 5
Elements of Street Cleaning Program 3
Classes of street litter 4
Lack of accurate data 4
Records 4
Methods of Reducing Litter 5
Carelessness of Citizens 6
How public and officials can cooperate 8
Philadelphia’s plan 7
Preventive work 8
Educational campaigns 6
Street Cleaning Factors and Standards 9
Conditions and factor 9
Horse traffic 10–11
Paving and repair policy 11–12–13
Quantity and volume of dirt 11
Schedule of Street Cleaning 14
Amount and character of cleaning affected by kinds of pavement 15
Assignments 16
Block system 14
Organization of employees 15
Unit of work 15
Spring Cleaning 16
Character of pavement a factor 17
Rates per man 17
Number of men required in gang 16
Unit cost according to character and kinds of pavement 17
Sprinkling 17
Bureau of Municipal Research, Milwaukee, Wis., Cost data 19
Dust prevention 17
Effect on pavement 18
Experts, opinions of 18–19
Ordinances and regulations 20
Practices in various cities 21
Sprinkling by railway companies 20
Methods 22
Patrol system 22
Area a sweeper can clean 22
Philadelphia’s system 24
Machine Sweeping 24
Cost 26
Experts, opinions of 25
Los Angeles, Cal., report 28
Oakland, Cal., experience of 27
Pomona, Cal. 28
Flushing 29
Atlanta Sanitary Dept., report of 29
Bureau of Municipal Research, Milwaukee, Wis., report of cost data 31–32
Experts, opinion of 29–30
Effect on pavement 31
Machine 30–31
Railway car flushing 32
Hose Flushing 33
New York City, experience of 33–34
Squeegeeing 34
Horse drawn squeegees, cost of operation 35
Methods 34
Milwaukee, report of 35
Motor drawn squeegees 35–36
Square yards per day cleaned 37
Combination of methods 37–38
Danger of clogging sewers 35–36–37
Disposal of Street Refuse 38
Experience of cities 38
Length of haul 38
Used as fill 38
Relative Cost of Street Cleaning 39
Experts, opinions of 39
U. S. Census Bureau, investigation of 39
SEWAGE DISPOSAL
Bureau of Surveys, Philadelphia Testing Station 72
Composition of Sewage 72
Importance of Sewage Disposal Problem 71
Massachusetts State Board of Health conclusions 72
Preliminary Study 72
The Sewerage System 73
Authorities, opinion of 73–74
Domestic Wastes 74
Degree of Purification 75
Trade and industrial wastes 77
Processes of Treatment 78
Main group 78
Chemical precipitation 91–92
Colloidal tanks 85
Dilution 80–81
Grit Chambers 82–83
Plain sedimentation 84–85
Preliminary or preparatory 78
Screening 81–82
Septic tank treatment 85
Imhoff tanks 87–88–89–90–91
Cameron tanks 85–86–87
Single contact beds 93–94
Straining or roughing 83–84
Slate beds 92–93
Final process 78
Dosing chambers 93
Double contact beds 93–94–95–96
Trickling-sprinkling filters 96–97
Intermittent sand filters 98–99
Broad irrigation 100–101
Disinfection 100
Hypo-chlorite of lime 101
Liquid chlorine 101
Activated sludge process 101–102–103–104
Combination of processes 79
Electrolytic process 104
Efficiency of processes 80
Management and supervision 108–109
Miles acid sludge process 105
Sludge disposal and value 106–107–108
Trade wastes 105
ASHES AND RUBBISH
Collection Systems:
Types of systems 120–121
Combined 121–122–123
Separate 120–122–123
Method of collection:
Municipal 123–124
Contract 124
Private 123
Districting the city 124–125
Organization of force 125
Type of equipment 126–127–128
Cans 126
Vehicles 127–128
Location of receptacles 128–129
Time of collection 129–130
Frequency of collection 130–131
Enforcement of regulations 131
Disposal of Ashes and Rubbish 132
Dumping 132
Burning 132–133
Revenue from By-Products 133–134
Specifications 135–136–137
Efficiency Tests and Suggestions 138–139
Per Capita Production 139
Cost data 140
GARBAGE COLLECTION AND DISPOSAL
Types of Collection Systems 152–153–154
Combined 153
Separate 153
Method of Collection 154–155–156
Scavengers 154
Contract 154–155
City 154–155
Organization 156–157–158
Districts 156
Force 157–158
House treatment 156
Receptacles 158
Vehicles 159–160
Motors vs. horse drawn 160–161–162–163
Collection Regulations 164–165–166
Cost of Collection 166–167
Per Capita Production 167–168
Garbage Disposal 168–169
Feeding to swine 169–170–171–172–173–174
Dumping on land 175
Dumping in large bodies of water 175
Disposal by sanitary fill 175–176–177
Burial 178
Disposal Plants 178–179–180–181
Incineration 181
Crematories 181–182–186
Destructors 183–184–185–186–187
Reduction 187–190
Cooking 188–189
Drying 189
By-Products 190–191–192
CARE AND DISPOSAL OF MANURE
Methods of Collection 203
Municipal 204–205
Private 204
Contract 204
Municipal Regulations 206–207–208–209–210
For care and storage of manure 206–207–208–210
For transportation of manure 206–207–208
For disposal of manure 206–207–208
MUNICIPAL CLEAN-UP CAMPAIGN
History of the Movement 213–214
Initiating a Campaign 214–215
Organization 215–216–217
Publicity plans 217–218–219–220–221–222
Cooperating forces 222–223–224–225–226–227
Work of children 222–223–224–225–226
Work of organizations 225–226–227
Special Activities 227–228
Cleaning roofs 227
School gardens 228
Planting trees 228
Fire Prevention and Inspection 228–229
Sanitary Inspectors 230
Flies and Mosquitoes 230–231
Results of Campaigns 231–232
INTRODUCTION
Never in the history of our country has the work of the public official demanded so much of him as now. The expansion and increasing complexity of municipal activities, the desire of women for more knowledge about their new responsibilities, the need for better living conditions brought about by greater congestion, the necessity for conserving every ounce of man and woman power, the demand for greater efficiency and rock-bottom economy in every line—all these conditions are making themselves felt with the public official.
The time when public office was held by the grace of God and the majority of votes has become almost a thing of the past. The official’s worth now is not measured by his good-fellowship and vote-getting capacity, but rather by his ability to produce results—not at the polls on Election Day, but in the City Hall every day.
Because municipal government is closer to the people and affects them in more ways than the government of any other political subdivision, and also because our citizens are now taking a keener interest than ever before in community work, it is to-day almost useless for a public official to attempt to escape responsibility or to excuse his shortcomings. He must be efficient and constantly apply his efficiency.