Report of Investigations for the Associated Charities of
Syracuse, N. Y., Made by the Training School for
Public Service Conducted by the Bureau of
Municipal Research, New York City
1. Report on the Syracuse Public Schools º
'. By HORACE L. BRITTAIN
2. Report on the Syracuse Board of Health.
- By DR. A. E. SHIPLEY
Submitted May, 1912
Significant Facts Disclosed by the School Survey
t-of needs outlined in this survey, the superintendent of schools has
noted and emphasized in his reports the need for
a—Adequate playgrounds.
b–Improved sanitary condition of school toilets.
c—More individual instructions for the pupils in the first grade.
2—The lighting of the Lincoln school, with its windows arranged in sets
without intervening brick piers, without arched windows and
without transoms, shows that the board has set for new schools a
high standard of lighting.
3—The school grounds in six out of the seven schools visited are so.
inadequate that, as in the case of the “preparatory” school, there.
is little or no room for organized play.
4—Most of the schools visited were beautified by suitable pictures and
pieces of statuary, though the effect in some cases is marred by
the presence of dust and unsanitary surroundings.
5—No records are to be found in the offices of the superintendent of:
schools or of the principals from which can be gathered informa-.
tion necessary for locating, measuring and where possible.
correcting
a—Over-age and its causes.
Ö—Elimination and its causes.
c—Non-promotion and its causes.
d—Physical defects.
e—Mental defects.
6—Many rooms are overcrowded, some of the worst cases being in
primary grades and foreign districts.
a—Eight senior schools have more than 44 pupils per teacher.
*—One senior school whose patronage is almost entirely
foreign has 43 pupils per teacher.
c—One junior school enrolling many foreign children has 50.7,
pupils per teacher.
d—One primary school enrolling many foreign children has
43 pupils per teacher. .
, - 1. . . . .

e—If the average number of pupils per teacher is so large—so
much too large—the actual figures ºn many rooms
within each school must be larger still.
7—A good beginning has been made in manual training, cooking and
sewing and in technical, commercial and pre-vocational instruction.
8—The merest glance at the facts of non-attendance, non-promotion and
dropping out shows that the schools should have more than
a—Only five unassigned teachers.
b—Only one open air class.
c—Only one preparatory school.
d—Only one or two ungraded rooms. -
9—The lighting of room after room visited was found to have one or
more of the following defects:
a—Shades were improperly hung.
b—Translucent shades were not provided where needed.
c—There was an inadequate amount of window space in
proportion to floor area.
d—There were wide brick piers between the windows.
2—The windows did not reach nearly to the ceiling.
f—The windows were arched at the top.
g—The major light came from the rear.
A—All the light came from the rear.
-whº were placed so that the children must face the
1ght.
f—Seats have not been changed, where easily possible, to
avoid light from the rear.
A–Rooms are so deep that much of the blackboard space was
unavailable and many children had to work in part
shadow.
*—Pillars and porticos cut off much light.
ro–The ventilation represents extremes of defects and excellencies.
a—It is entirely inadequate in some buildings ventilated by
gravity, for example, the “preparatory” school.
b–It is insufficient in some buildings ventilated by the
vacuum system, at least one of which, the Putnam, has
discontinued the use of the fan.
c—It is under suspicion in some rooms of buildings which,
like the Central High, are ventilated by the plenum
system. º:
d—Humidifying devices are lacking.
e—The yentilation is apparently satisfactory in such Schools as
the William McKinley school.
II—The common drinking cup is still in use on one floor of the Central
High school, and above the basement, in the Putnam school,
although in both of these buildings sanitary drinking fountains
are installed.
12—In the Putnam school a so-called sanitary drinking fountain is located
within a few feet of foul smelling urinals and empties into the
same sink as the waste pipe from upstairs.
13—The toilet rooms of several schools such as the Putnam and the “pre-
paratory” are not properly ventilated.
14—in the Putnam school the play rooms and the toilet rooms are not shut
off from each other.
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I5—Dry sweeping was observed in the building where the open air
School is located.
16—Minimum salaries of $400.oo for grade teachers and minimum
salaries of $55o.oo for female teachers in the high school are too low.
In a city of 150,000 they mean certain obstruction to efficiency.
17—Financial statements are made in such a way that it is not possible to
compute from them either the total or per capita costs of adminis-
tration and supervision.
18–Syracuse has the germs of several advanced movements.
a—Manufacturers co-operate in providing for summer work
for pupils in the Technical High.
&—Improvement associations meet in school rooms.
c—Mothers' clubs are interesting themselves in certain public
schools.
d—The public library provides books for Regents' courses to
school children.
e—The board of education has a committee on the wider use
of school buildings.
f—The chamber of commerce has a committee on school law
and a permanent committee on education which has
issued two large reports.
g—Various private associations and manufacturing companies
have been experimenting in industrial education since
1884.
h—The dentists of Syracuse have done valuable volunteer
work in dental inspection.
19—Nowhere near Ioo!% of the social energy of the community has been
applied to the solution of the school problem.
Constructive Suggestions for Correcting the Defects Noted in
the Preceding Significant Facts
I—That continuous record cards be provided at once for superintendents
and principals to make available facts as to
a—Over-age and its causes.
6—Elimination and its causes.
c—Non-promotion and its causes.
d—Physical defects and their treatment.
e—Mental defects and their treatment.
2—That teachers and principals be interested in securing now, in time
for reporting facts for the current school year, which are called
for in the uniform questions promulgated by the United States
Bureau of Education as recommended by the National Education
Association.
3—That facts be gathered as to truancy, irregular attendance, dropping
out, failures of promotion, physical defects, etc., for each class in
each school, in time to use such facts in planning next year's
school budget and as a basis for needed changes in supervision,
ventilation, school records, etc.
4—That financial statements be so recorded as to give the classified
facts called for by the United States Bureau of Education as to cost
of administration and supervision by pupil, by school, by subject.
5—That steps be taken now to secure for installations on the first day of
the next school year the uniform records—financial and educational
—advised by the United States Bureau and the N. E. A.
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6—That steps be taken to learn the success of recent efforts made by the
board of education in Rochester to record currently information
as to School methods, school work and school results necessary to
intelligent placing and supervision.
7—That steps be taken now to locate overcrowding, particularly in the
primary grades and foreign districts, to learn the consequences,
to prove the need for avoiding such overcrowding next year,
and for making good the pledge of the chamber of commerce to
laborers and manufacturers that school children shall be given
adequate attention.
8—That dry sweeping in any part of school buildings, particularly in
school rooms be stopped at once.
9—That interest of janitors in all points of hygiene be enlisted and
compelled by promulgating uniform detailed regulations and by
requiring supervision by principals under the rules.
Ic—That the common drinking cup be immediately abolished wherever it
has survived, and that sanitary drinking fountains be installed
sufficient in number and properly located.
II—That toilet arrangements be made entirely sanitary, and that, where
necessary, repairs or re-constructions be made during vacation, no
matter what the necessary expense.
12—That ventilating methods and conditions be immediately investigated
while buildings are still heated to show where repairs and re-con-
structions may be necessary for next year.
a—That an anemometer be supplied for testing the ventilation.
&—That plenum fans and exhaust fans be installed.
c—That humidifying devices be employed, such as evaporat-
ing pans, humidifying plants and hygrometers for
currently testing the air.
d—That in all projected buildings mistakes should be avoided
by securing the last word on school ventilation.
13—That the lighting needs of each room be studied.
a—That in rooms lighted from one side and from the rear the
seating at once be changed.
&—That shades be properly hung everywhere.
c—That translucent shades be supplied in many rooms and
supplemented by opaque shades attached at the bottom
of the window.
d—That extra windows be added in many places.
e—That transoms be abolished.
f—That in some cases brick piers be removed.
g—That in all projected buildings mistakes be avoided by
securing the last word on School lighting.
14—That the control of hygiene and sanitation by the board of education
be made more effective.
a—The superintendent of schools might be given a veto on all
school plans and the right to suspend temporarily any
janitor for neglect of duty. -
b—An advisory committee of school principals might be
established.
15—That the advisability be considered of appointing a director of school
hygiene to work under the direction of the building and hygiene
committee and the superintendent of Schools to
a—Pass upon all plans for new buildings, additions and
repairs.
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b—Supervise the work of janitors.
c—Instruct teachers in the methods of teaching the elements
of hygiene and sanitation.
d—Take charge of and utilize physical records of school
children.
e—Supervise play at School, athletics, etc.
16—That the need for higher minimum and maximum salaries of teachers
be made clear to taxpayers
a—By facts showing whether or not low salaries cause a high
rate of withdrawals from the schools.
b—Whether or not the rates paid in Syracuse are lower than
those of competing school systems.
c—How far, if at all, desirable teachers, whose homes are in
Syracuse, consider the privilege of living at home an
offset to possible increases of salary elsewhere.
17—That a minimum standard for space and school grounds be adopted,
and a minimum standard for all new sites and that additional
ground be bought either immediately surrounding or near some of
the existing buildings.
18—That in elementary schools having adjustable furniture, it be adjusted,
and that non-adjustable furniture be re-arranged so as to meet
individual needs.
19—That additional provision be made at once for the unusual, atypical,
backward and anaemic children, by
a—More ungraded classes.
b—More preparatory schools.
c—More open air classes.
d—Special instruction now to prevent the failure of children
in June and unnecessary repetition of a term's work.
e—Special efforts to enlist parents' help for children in danger
of failing at the end of this term.
f—Catch-up classes for backward pupils and go-ahead classes
for exceptionally bright pupils in connection with
summer vacation Schools.
20—That facts be gathered now to determine just where, just how many
and in just what way forward steps should be taken next year in
industrial and pre-vocational training.
a—That definite arrangements be made for instituting next
autumn the proposed part-time industrial education in
co-operation with local manufacturers.
6—That pre-vocational courses be established in the grades.
c—That continuation courses be established for working
children.
al-That further vocational courses be offered in the Technical
High school.
e—That industrial courses be offered in the summer schools
and additional industrial courses in the evening schools.
21—That steps be taken now to command approximately 100% of the
community's civic interest in solving Syracuse educational
problems as follows:
a—A conference of present and possible co-operating agencies
should be called now to outline plans for effective
co-operation among outside agencies and between
outside agencies and the board of education next year.
6—Parent teacher clubs could be successfully maintained in
connection with every school having more than four
TOO II) S.
c—The use of school buildings for social purposes should be
extended.
d—A continuing central agency, whether independent or part
of some existing agency like the Associated Charities or
Chamber of Commerce, would unquestionably be wel-
comed alike by school authorities and the general public.
22—That purposive publicity be inaugurated:
a—To acquaint taxpayers with school needs.
b–To insure public interest in the regular work of the schools
and in the needs of children, normal and sub-normal,
native and foreign.
c—To substitute active support for passive support of the
board of education in its effort to increase the schools'
efficiency.
The school officials are not blind to the needs outlined in the
foregoing pages and are trying to meet them. The following
things have been done since the report was submitted in May.
1—A continuous record system similar to the one recom-
mended under article I of the Constructive Suggestions
has been installed.
2—Investigation is being made of the “over-age” problem.
3–Overcrowding has been eliminated to a fair degree by
transferring children from the overcrowded to the less
congested schools.
4—Dry sweeping has been abolished.
5—Play grounds for some schools have been improved.
The following work is being planned:
1—The development of a definite system for school building.
This includes among other things
a—The replacement of out-of-date structures with
modern buildings.
b—The proper placing of new school buildings.
c—The development of industrial centers.
d—The constant betterment of school architecture
from standpoint of light, ventilation, sanita-
tion, etc.
2—The betterment of sanitary conditions of present structures
as fast as funds will permit.
3—To establish truant classes, to supplant the present inef-
fective and expensive truant school.
4—To provide classes for backward children and increase the
number of open-air schools.
Some Other Field Studies Conducted by The Training School
for Public Service
I–In New York City
I—Standardization of salaries of city employees.
2—Standardization of supplies.
3—Study of organization and methods of water department.
4—Study of police administration.
5–Study and analysis of records of one of New York's largest
elementary public schools to determine its efficiency for
the last eight years.
6—Work on the 1913 budget: During the budget-making
period members of the Training School for Public
Service put in 2,673 hours of work bearing indirectly
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and 3,840 hours in the actual work of budget-making.
This is equivalent to 930 days or almost three years'
work for one man. This service to the public and tax-
payers of New York City was entirely free.
II—Outside of New York City
I—Field study of schools in Dobbs Ferry.
2—Survey of health and other city departments in the
Oranges, N. J. and of health and schools in Atlanta, Ga.
3—Study of all the year-round schools at Newark, N. J.
4—Survey of the rural schools of Wisconsin for the State
Board of Public Affairs of that state.
Significant Facts Disclosed by the Investigation of the Bureau
of Health
I—The 1911 appropriation to the bureau of health, $77,829.75 was 55c per
capita, which was the highest relative cost of any of the nine first
or second class cities of New York State, except New York City,
whose rate was 56c. In addition to the regular appropriation,
$5,000 was allowed for controlling an epidemic, making the total
appropriation equal to 58c per capita,
In the March, 1912, issue of the State Health Department Bulletin, the
following table appears, giving the health appropriation figures
for the first and second class cities in New York State for 1911.
Population Appr. for Health Dept.
New York City----- 4,956,865 $2,823,449 56
Buffalo ------------- 435, 3 I 5 I58,915 37
Rochester - - - - - - - - - - 227, IO3 73,990 33
Syracuse----------- 142,110 77,829 55
Albany------------- IOo.859 19,828 I I
Yonkers------------ 84,361 43, I 3O 5 I
Utica--------------- 77, o&8 I4,935 I9
Troy--------------- 76,947 I4,6O2 I9
Schenectady-- - - - - - - 76,447 22, I57 20
2—Surface drainage from the village of Skaneateles into the lake and the
presence of cottage dwellers along its shores are latent sources of
danger to the residents of Syracuse. Water analysis made twice
a week in the laboratory from the city hall taps, show a bacterial
count of from 15 to 150 per cubic centimeter, which is a good
average. A few times baccili coli have been found present.
3—The bureau of health is not organized so as to secure the most effective
results in administration and in the field.
a—Supervision of work is so general as to be of little value.
&—There are no daily time records of office force and field
force.
c—No daily report cards are kept, giving detazls of the work
performed.
d—No records are maintained at headquarters classifying and
accounting for the character of work done.
e—There is no following-up to determine quality and quantity
of work,-knowledge necessary for effective admin-
istration.
Except the health officer and his deputy the employees are under civil
service; some are on full time and others on part time, but as time
records are kept in only a few instances, it is difficult to determine
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what time service is given by most of the employees to the city.
An illustration is the work of the city physicians. º are paid
by the bureau of health, but are under the control of the depart-
ment of charities. It is not possible to determine the amount of
work done, or the time given to the city by them.
4—The accounting system does not classify appropriations and expend-
itures, hence a comparison of different phases of the work is not
possible.
5—Control of contagious diseases is not as effective as it should be.
a—Intermediate visits to cases are seldom made.
b—Parents are not instructed in preventive measures, nor are
residents warned as to the prevalence of contagion in
their immediate neighborhood.
There is no division of the city into inspection districts, nor any com-
prehensive method of locating foci of infection. A pin map of
active cases is kept at headquarters, but not in such manner as to
show the course of an epidemic. A card file of current cases is
maintained, but not arranged to show the localitzes of infection.
Excepting diphtheria in 1910, the case rates in Syracuse for scarlet
fever and diphtheria in 1910 and 1911, as compared with New York
City, are higher as the following table shows:
Case rate per ro, ooo populatzozt
Scarlet Fezyer Aliphtherza
1910 1911 1910 1911
Syracuse---------------- 6 I 4 I 27 42
New York City---------- 39 34 35 28
6—No aggressive attempt is made to secure and record information
respecting all cases of pulmonary tuberculosis, or to follow up
cases to know what preventive measures are being used.
a—No campaigns of education are being conducted to combat
the spread of disease.
&—The rooms in which the tuberculosis clinics are being held,
need thorough renovation.
During 1911, 137 cases died from this disease and only 214 cases were
reported, many of these attending the clinic: , Experience shows
that there must be at least two or three times this number of active
cases, and in the opinion of the health officer, even more. The
tour, au of health has knowledge of some cases not reported, but
see 3 to think energetic measures to secure their registration not
w ; that “it is better to go slow". No monthly report or follow
i of all cases is in operation, except those attending the clinic,
... g'nown, apartments vacated by patients are fumigated. All
: ºrtments after death are so treated.
The e s no sanitarium for incipient cases in the city, but these may be
sent to Raybrook. St. Joseph's Hospital accommodates eight to
ten tuberculosis patients, and there is a county hospital in connec-
tion with the County Poor House outside of the city, which
accommodates forty. -
7—No special efforts to reduce infant mortality are being made through:
a—Campaigns for instructing mothers as to the care of milk,
proper preparation of food and general care of children.
6—No control is exercised over midwives to note the methods
of conducting their work and the general cleanliness of
their practice.
c–Foundlings in private homes and in institutions are not
regularly visited to note general surroundings and the
care given to children.
d—Dairy inspections are not made, in most cases, more than
once a year, which is not frequently enough to supple-
ment the present excellent control of the city's milk
supply.
TJnder new direction since last October, this work is the most systematic
done by the bureau of health. Three classes of milk are delivered
into Syracuse, (a) certified milk from one dairy, where cows are
tuberculin tested and inspected monthly; (b) inspected milk from
three dazrzes where cows are tuberculin tested, from which the
minimum bacteria count required is 50,000. These dairies are
inspected monthly; (c) market milk from 475 dairies, where the
cows are watched as to general physical condition and given
tuberculin tests if suspicion warrants. Except in a few cases these
dairies are inspected only once a year which is not frequent
enough. All of these dairies are scored, and chemical and
bacteriological analyses are made at the laboratory monthly and
not more than 250, coo bacterial to the cubic centimeter is the
standard score required. There are two veterinarians, each .
receiving $750 per annum to inspect the cows, but as no detailed
time records of the work performed by them were to be obtained,
it was not possible to find out why two were necessary for this
duty. Milk depots and stores are inspected, scores required,
samples examined and an excellent system of recording on cards
maintained at headquarters. Violators are warned and it is said
that no prosecutions have been found necessary. Milk from
dairies not up to the requirements is barred from the city until
conditions are remedied.
8—The present sanitary inspection service is faulty in that it does not
provide:
a—For the regular inspection of meat and food stores. This
important work seems entirely neglected.
b—For the systematic periodical inspection of sanitary condi-
tions, such as inspection of buildings, yards and streets
to prevent the accumulation of filth, rubbish, garbage,
etc.
c—Inspection of hotels, theatres, public halls, junk shops,
barber shops, lodging houses, etc., to secure informa-
tion as to Sanitary conditions.
d—For the maintenance of records of visits to all cases, con-
ditions found, violations, prosecutions, etc.
9—The system of school inspection provides only for the medical inspec-
tion of the children to prevent spread of infectious diseases and
does not include:
a—A physical examination of each pupil once a year.
6—Follow-up visits to homes to explain to the parents the
need for treatment and to see that such treatment is
secured.
c—Physical examinations to secure working papers.
d—Sanitary inspections of school buildings.
Io—Mortality records for each disease are not currently kept by wards, age
distribution, nationality, etc.
II—There is no comprehensive program of education in health matters.
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12—The active co-operation of co-ordinate city departments, medical
societies and city agencies interested in the betterment of health
conditions could be more effective. -
Constructive Suggestions for Correcting the Defects Noted in
the Preceding Significant Facts
1—For better protection of the water supply from Lake Skaneateles,
there should be more adequate and regular inspection of the lake
and its shores.
2—The bureau of health should organize on a more systematic basis so as
to group allied phases of health work, and thus produce more
effective results in administration and in the field.
3—The health officer should give his whole time to the work.
4—Supervision of the work of the bureau should include:
a—Daily time records of office force and field force.
&—Daily report cards giving details of visits made, for what
purpose, time taken, results of visits, etc.
c—A system of records at headquarters, which will classify
results according to the character of the work performed.
d—A careful follow-up from headquarters to determine quality
and quantity of work, to give knowledge for effective
administration.
5—A system of accounting should be installed, which will classify appro-
priations and expenditures for service performed, supplies, etc., by
divisions of the bureau's work.
6–To control effectively contagious diseases, there should be
a—Intermediate visits to case.
b–Instructions to parents as to preventive measures.
c—Warning of residents as to the prevalence of contagion in
their immediate neighborhood.
d—A division of the city into inspection districts, such as
wards, or even smaller units.
e—Inspections performed and records kept according to these
units.
f—Tables, charts and maps kept to date at headquarters
which will show the beginning and the prevalence of
certain diseases in all sections of the city.
7—Regarding pulmonary tuberculosis, active steps should be taken to
SeCuTe
a—The recording of all cases.
b—Follow-up system by which the bureau will know constantly
what preventive measures are being used for each case.
c—Records and maps at headquarters to show where the
disease is prevailing.
d–Energetic campaigns of education by nurses.
e—Co-operation of all agencies which will interest themselves
in an effort to eliminate this disease.
f–Either sanitary overhauling of the tuberculosis clinic or
new quarters for the clinic.
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8—Infant mortality campaigns should be conducted to instruct mothers
as to the care of milk, proper preparation of food and general care
of children.
a—Home visits by nurse.
6—Instruction at milk stations and at clinic.
c—Adequate supervision at headquarters by means of records,
maps, charts, etc.
9—Midwives should be supervised by
a—Regular visits to their homes to inspect equipment,
records, etc.
b—Visits to all babies reported under their care and all still-
births reported by them, to note results in their
practices.
c—Complete records at headquarters.
Io—Foundlings in private homes and in institutions to be regularly visited
to note the general surroundings and the care given to children,
and records of such visits should be kept at headquarters.
11—The inspection service should be improved by:
a—Regular inspection of all meat and food stores, and records
kept showing visits, violations, etc.
&—Systematic, periodic, sanitary inspection to be provided by
dividing the city into districts and making inspections
and keeping records according to these divisions.
12—Medical school inspection should be re-arranged to make effective the
following:
a—Inspection of children to prevent spread of infectious
diseases such as is being done now.
6—Physical examination of all pupils once a year.
c—Follow-up visits to homes to see that treatment is obtained,
and to explain to parents the need for treatment and to
see that such treatment is secured.
d—Physical examination for athletic contests.
e—Physical examinations to secure working papers.
f—Sanitary inspection of school buildings.
g—Records in school which will show infectious diseases by
class rooms; to show results by physical examinations
and treatment; and time records of inspectors and
In 111 S62S.
A—Complete records at headquarters with current tabulations.
13—Mortality records for diseases should be currently kept by wards, age
distribution, nationality, etc.
14—A comprehensive program of education in health matters should be
outlined and carried out by means of methods suggested in this
report, such as publication and distribution of literature on all
topics of health protection and betterment, public meetings,
parents' clubs, weekly and monthly bulletins, interesting news
items, etc.
15—An effort should be made to secure in health work the effective co-oper-
ation of co-ordinate city departments, agencies of charities and
correction, civic associations and other organizations having a
direct or indirect interest in health improvement,
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The attention of the public should be called to the fact that
this report was submitted in May. Since then the Health De-
partment has made changes which should have public recogni-
tion. We are glad to mention the following:
1—The tuberculosis clinic quarters have been thoroughly renovated.
2—The medical school inspection work under Dr. Joseph C. Palmer
has been reorganized. There are now seven doctors giving one
and one-half hours each school day. There are five nurses
#. their full time. The entire time of the doctors is
evoted to making physical examinations; each doctºr making
a minimum of forty examinations a week. -
The nurses give all of their time to examining the hands, faces and
throats of children for signs of contagious disease and in giving
treatments to the poor for diseases of filth and minor contagious
affections. -
3–During the summer months special nurses were detailed to visit
mothers of newborn infants to instruct them in matters of
hygiene, feeding and general care of babies. One hundred and
sixty-five such cases were visited during July and August.
Some Other Bureau Publications on City Health Work
and Related Topics
1—Analysis of the Salary Expenditure of the Department of Health for:
the Year 1906—out of print.
2—First Steps in the Program of Scientific Budget-making. It led to an
increase of $500,ooo for the department of health—50c. Contains.
samples of blank forms to be used in showing the efficiency of
health department by contrasting work done with work that ought
to be done.
3—A Report on the Division of Child Hygiene, Department of Health,
with Constructive Suggestions. -
4—Health Violations in East Side Slaughter Houses—25c.
5—Tenement House Administration—steps taken to solve problems for
enforcing tenement house laws—50c.
6—How many, When do, Why do Children Fail—5c.
BUREAU OF MUNICIPAL RESEARCH
261 Broadway, New York
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