THE ANNUAL

REPORT OF

THE PUBLIC

PRINTER **

SUBMITTED TO THE

CONGRESS OF THE

UNITED STATES ON

JANUARY 3RD. 1939

19 3 8

I

A. E. GIEGENGACK, Public Printer

4* GEORGE ORTLEB, Deputy Public Printer

R. H. HERRELL, Administrative Assistant to the Public Printer MISS JO COFFIN, Assistant to the Public Printer

Henry H. Wright

Chief Clerk Frank A. Tschida

Superintendent of Binding

Maybelle G. Fickel

Liaison Officer Ernest E. Emerson

Director of Purchases Edward M. Nevils

Production Manager

Felix E. Cristofane

Comptroller

Raymond H. Lecraw

Night Production Manager

Alla G. Stevens

Superintendent of Stores William Smith

Assistant Production Manager

Charles P. Waite, M. D.

Medical and Sanitary Director William A. Mitchell

Superintendent of Planning

Alfred E. Hanson

Mechanical Superintendent

Howell K. Stephens

Superintendent of Composition

Alton P. Tisdel

Superintendent of Documents John A. McLean

Superintendent of Platemaking James B. Bennett

Captain of the Guard

Bert E. Bair

Superintendent of Presswork William A. SmithCongressional Record Clerk Morris S. Kantrowitz

Technical Director

8

CONTENTS

Page Introduction 1 Cost survey 1 Purpose ; 1 Allegedly increased prices for printing 2 Allegedly lower prices in outside union shops 2 Collateral observations 3 Cost accounting and production control 6 Purpose of cost-accounting and production-control system. 7 General structure 9 Source records 10 Labor cost distribution 10 Machine production 12 Material cost distribution. 12 Jacket cost summary 13 Monthly cost report 13 Unit of cost record 14 Cumulative record of presswork 14 Cumulative record of platemaking 15 Pay roll 15 Summary 15 Accomplishments 16

Scale of prices 16 Production control committee 18 Miscellaneous binding 19 Duplicating equipment 20

Printing done on so-called duplicating machines 21 Recommended changes in methods of distribution 24 Patent Office printing 27 Outstanding jobs 38

Service to departments 42 Creation of the office of Administrative Assistant to the Public Printer 48 Personnel 50 Purchasing Division 51 New equipment 52
Page Health and welfare activities 53

Emergency hospital 53 Group life insurance 54

Group hospitalization 54

Federal Credit Union 54

Government Printing Office American Legion Post, No. 33_ 55 United Veterans of American Wars, Government Printing

Office Unit No. 1 55

Cafeteria and Recreation Association 55 Apprentice school 56

Warehouse building No. 4 56

Annex building No. 3 60 Composing Division 67 Recommendation as to preparation of copy 67 Platemaking Division 68 Presswork Division 69 Bindery Division 70 Congressional printing 71 Library of Congress branch composing and binding

sections 72 Stores Division 73

Delivery Section 73 Maintenance Division 74 Division of Tests and Technical Control 75 Ink _ 79 Type metal 80

Press rollers and adhesives 81 Bookbinding research 82

Publications 89

Assistance to other departments 90 Contact with printing, binding, and allied organizations. _ 91 Correspondence 91 Receipts and expenditures 91 Public documents 107

Distribution 108

Legislation 110 Depository libraries 111 Processed material 112
THE ANNUAL REPORT OF

THE PUBLIC PRINTER

Washington, D. C., January 3rd, 1939 — —

M

INTRODUCTION

I HAVE the honor to submit to the Congress of the United States

the following report covering the work of the Government Printing

Office for the fiscal year ended June 30, 1938, as required by law.

Cost Survey

In my annual reports for the fiscal years 1935, 1936, and 1937 I reported to you in some detail the new methods and processes that

I had established in the Government Printing Office to increase its efficiency, to reduce costs, and to enable it to render better service

to the Government as a whole. I believe you will be interested to have the facts concerning the results accomplished by these improvements from an entirely disinterested investigator. The findings appear

in a report made to the President under date of January 27, 1938,

by a special inspection engineer who was detailed to make a study

of the Government Printing Office and its operations for the President.

The purpose of the inspection was unknown to the employees of the

Government Printing Office, and the inspector’s report to the President was confidential. However, after its submission to him and believing

that the Congress and the departments would be interested in the

findings, I secured permission to quote from it to the Congress.

Extracts from the engineer’s report are as follows: Purpose

Ascertain facts concerning questions raised by the President under date of December 23, 1937, in the following words: Many departments and agencies are complaining about the increased cost of Government printing at the Government Printing Office. In some cases they

tell me the cost has doubled since a year ago. They also say they can get the work done on the outside in union shops for a much lower price.

1
Allegedly Increased Prices for Printing

The findings with respect to complaints made to the President that the costs to many departments and agencies have increased during the last year are: () The charges made by the Government Printing Office upon certain classes

of printing have been increased in conformity with a new schedule of charges

which became effective on October 15, 1937. () The charges made by the Government Printing Office upon other classes

of printing have been decreased in conformity with the new schedule of charges

which became effective on October 15, 1937.

(c) The new schedule of charges supplants an old basic schedule which had

been in effect since the early days of operation of the Government Printing Office and which did not reflect the changed balance in production costs of various

classes of work brought about by modern production methods.

(d

)

The new schedule is predicated upon an exhaustive cost-accounting study

which was carried on for nearly 2 years simultaneously with the installation of a modern cost-accounting system—the first real costing system ever installed in the Printing Office.

(e) The new schedule is designed to cause charges made upon the respective

classes of production to reflect the entire costs of producing each class so that

high charges will be made for expensively produced work and low charges will be

made for cheaply produced work.

(/) The anticipated over-all results of the operation of the new schedule of

prices are identical with the corresponding results of the superseded schedule in that the total charges collected from customer departments and agencies will be

just sufficient to meet all of the expenses incurred in the operation of the -Govern- ment Printing Office. Indicative of the magnitudes of differences determinable for identical jobs

through the application of the old and new pricing systems are the following

examples taken from several hundred analyses made by the Government Printing

Office. The study from which the illustrative examples were selected embraced

actual jobs passing through the Printing Office. The process of selection was

such as to insure the procurement of a truly representative cross-section of the work handled. The data are presented in table 1, attached hereto.

( g

)

Cognizant of the fact that complaints were to be expected from customer departments and agencies whose printing costs have been increased upon certain items through loss of ability to obtain certain items at prices less than cost, the

Public Printer has offered to make available to the customer departments and

agencies the advice and talents of specialists in the Printing Office in order that the services of experts may be freely utilized for the selection of appropriate paper and forms at the most economical prices consistent with the character of the

product.

Allegedly Lower Prices in Outside Union Shops

The findings with respect to allegations that complaining departments and

agencies can get printing done by outside union shops for much lower prices

than charged by the Government Printing Office are:

(d) While it is possible that upon isolated items of printing, outside union

shops might consistently be able to quote prices lower than charges made by the Government Printing Office, upon other items the charges made by the Govern- ment Printing Office are lower than outside union shops could be expected to quote. 2
(e) Upon Government printing as a whole, it appears that the aggregate of all charges made by the Government Printing Office wmuld be expected to approxi- mate the corresponding charges if the work were to be done in outside union

shops and exclusive of consideration of intangibles embracing the nature and

quality of special services rendered.

(f) The diversion from the Government Printing Office to outside union shops

of any class of printing which the Printing Office has heretofore done would be

expected to cause increased costs, and therefore charges, upon work not diverted due to costs arising from fixed overhead that must be charged against the volume

of work actually produced.

( g) No consideration has been accorded the possible magnitude of premiums

that might be charged in outside union shops for special rush services which

governmental departments and agencies often require. Premiums for this class of work are usually determined by “what the traffic will bear.” On the other hand, it is appropriately noted that the charges made by the Government Printing

Office include all costs incidental to the performance of such special services. Collateral Observations

() Equipment of Printing Office .—Management and operating personnel offer no complaints and appear to be generally satisfied subject to the limitations of restricted space. () Morale of employees.—Appears to be excellent.

(c) Conditions in present plant.—Crowded but should be relieved somewhat now that the new warehouse is available and adequately corrected when the proposed addition is completed.

The table referred to in the engineer’s report appears on the following pages 4 and 5.

3
Table

1.

—

Comparative

costs of

identical

jobs

based

upon

old

and

new

pricing

systems

employed

by

Government

Printing

Office

CASE

I—

OLD

PRICING

SCALE

CHEAPER

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5
COST ACCOUNTING AND PRODUCTION CONTROL METHODS

IN THE GOVERNMENT PRINTING OFFICE

The work of scientifically assembling the financial facts so necessary

to intelligent management and to proper billing has been under way

for some time. These facts are being assembled by means of a modern

cost-accounting system that is bringing to light those operations which

are costing too much, and are enabling the Office io handle the work

in the most economical manner. We are determining the cost of each

job and of each operation involved in completing the job and the

product resulting from the particular operation. Through the system

we have found that the Office was doing a great deal of additional

work in conjunction with regular operations for which no charges were being made. The time spent, of course, on this work was charged

to overhead and tended to increase the charge for work done on other

jobs for other departments.

Cost accounting in the printing industry has long been considered one of the most exacting phases of business accounting. This is due

to the job-order nature of the industry’s product wherein every order

is different, even though many may have similar physical appearance.

Each order meets and creates a new set of conditions ; an apparently

minor change in the specifications of one order in relation to another

may necessitate entirely different production methods on succeeding

operations; thus a printing order is virtually a requisition for a group

of independent elements which must be distinctly specified in the

requisition. Cost accounting in the Government Printing Office is now

a highly important part of the administrative functions of the Office,

and the methods developed to ascertain cost and control production

are among the most modern and complete in the country. Based upon

the conclusion that each operation of production should economically

justify its entire expense and that the unit charges for billing should

be based upon the average total costs of the units determined from

actual experience, facts are developed which permit the Office to function both as an economical business institution and as a governmental service agency.

The financial structure upon which the Government Printing Office

operates is comparable with, but probably more exacting than, those

encountered in private corporations. No direct appropriations are made by Congress to defray the cost of operation, and, like the private

corporations, all expenses must be recovered by charges for its product.

Unlike the private firm, surpluses accruing at the end of the year must

6
be returned to the Treasury, and reductions must be made in charges

for the ensuing year to obviate a repetition of the surplus.

The volume of detail and the speed and accuracy of the accounting

functions desired are such that normal clerical functions must be

supplemented by accounting machines. The system employed by the

Government Printing Office is the punched-card method of accounting—commonly known as the electric accounting machine method.

This system consists of perforating cards by the use of an electrical keyboard punching machine with an arrangement of holes representing

the exact figures or words contained in the source record. The

punched cards are then used to operate electrical bookkeeping and

accounting machines capable of fully automatic sorting, multiplying,

adding, and subtracting, and printing the results in any desired

sequence on prepared forms.

Purposes of Cost Accounting and Production Control System

Prior to 1860 governmental printing was provided by public bid

and contract, but with the growth of governmental activity these

methods proved unsatisfactory from the standpoints of economy,

quality, and service, and thus the Government Printing Office came

into existence. It has grown to be the largest complete printing plant

in the world, and its 115,000 orders yearly, totaling $18,000,000,

require approximately 5,500 employees and several thousand machines

to complete. As a complete service unit, the Government Printing

Office has no commercial or private equal. Such accomplishments as the complete production and distribution of the Congressional Record

in 7 hours with a variation in size from 4 to 303 pages; the production of 85 million unemployment census forms from committee meeting and drafting board to Post Office mail express trains in a limited

time are typical of the continuous service expected of the Government

Printing Office. Such requirements necessitate careful financial

check to obviate unintentional disregard of economical production

methods in an endeavor to render superservice; both economy and

service must be considered and economic methods followed unless the

governmental need for service is such as to outweigh or make impractical their use. From actions and public statements it appeared to be the opinion

of some governmental departments that the Government Printing

Office could not operate as economically as commercial or private

plants. This was fostered by comparisons of charges rendered by

the Government Printing Office with estimates made by private firms.

7
On many individual orders great variations both over and under the

commercial price were found to exist, but a cross section of many

orders often would reveal similar totals. This was caused by the

unscientific manner in which a scale of prices had been compiled by

flat percentage increases or decreases because of over- or under-cost

recoveries of the Office as a whole under old scales of prices. Such

action was patently inaccurate, as conditions will not exist wherein

each individual operation of production will continue to remain in exact cost relation to all others and such continued action could

result only in a complete distortion of fact. It would have been

useless for the departments to have attempted to plan their work

in the most economical manner, as such savings would not have been

reflected in the charges. Inasmuch as no dependable facts as to basic unit costs were being compiled, it would have been impossible

to establish a scale of prices based on a sound footing until a system was installed whereby these facts could be compiled. This was the

major purpose for the installation of the cost-accounting and production-control system.

Careful thought was given to the type and structure of cost-accounting methods to be installed, and it was decided that inasmuch as the

Government Printing Office was being compared with private or commercial printing firms it was advisable to adopt cost-accounting

methods comparable with those employed by the industry as a whole.

The trade employees of the Government Printing Office are generally

recruited from the commercial industry; thus their ability was comparable with that of employees in private practice. The tools,

machinery, and equipment of the Government Printing Office could

be gotten only from established corporations doing business with all. The materials used in production could not vary greatly from those

available to the general industry. Items of general expense are controlled by labor and machinery; thus they, too, would conform

with commercial expense. Such commercial expenses as factory

rent, taxes, and bonded and financial debt are directly comparable

with—and approximately equal—governmental expenses of building

maintenance and improvement, employee leave privileges, governmental expense limitations, and editorial preparation requirements.

Printing styles, methods, and products are constantly changing;

machines supplement hand work and perform previously impossible

operations ; improvements in technique and materials alter the general

structure and component operations of a printing job. An adequate

cost-accounting system will reveal all functional changes and will

reflect the relative value of the changes. Improvements in quality and

8
MACH Ha—3 . GRP —4

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73 74 7576 77 7179 Figure 1 O - 113626

speed alone are not of full importance—expense must be considered.

The control of production in a printing plant necessitates the col- lection of more detail than is collected in other manufacturing plants.

This is due to the multitude of independent and unrelated operations.

A knowledge of the volume of work on hand or in process, together

with a knowledge of the hourly or daily output per man or machine,

is essential to intelligent management and to proper direction of personnel and the use of equipment. Such a function is now incorporated in the Government Printing Office cost-accounting and

production-control system.

General Structure The Government Printing Office as an organization is broadly

divided into four groups of functions: administration, production,

maintenance, and service. These general functions are divided into

many sections, each representing a specific cost account, and some

of these cost accounts are further divided into cost centers. Numbers

have been designated to represent each division, section, and center. A complete survey has been made of the different types of work

performed in each section and a number, called an operation number,

has been assigned to each. The same type of work may vary according to the size and style of the completed product; therefore it was

necessary that these variations be studied, classified, and assigned

class numbers. An example of the operation and class principle is had in the composing-room operation of “machine composition,”

which may be further classified into “straight matter,” “technical

matter,” and “tabular matter”; or in the pressroom operation of “make-ready,” which may be classified into “type forms” and “halftone forms.” The operation and class numbers assigned follow a

definite pattern and can be readily recognized and generally classified on sight without the need of complicated decoding schedules.

The volume of work passing through the Government Printing

Office is sufficient to warrant the manufacture of such items as ink,

glue, press rollers, type metal, machine parts, special tools and furniture, and shipping cases. Each must be treated as an individual item,

and its cost must justify its continuance. Such general manufacturing requires the use of a wide range of cost-accounting principles.

There are six independent principles employed:

(1) The chargeable hand and small-machine hourly cost rate. This is the principle used for such work as hand composing and binding operations where employee productive, or chargeable, hours are the controlling cost unit.

9
(2) The chargeable machine-hour cost rate—used on such work as presswork, where the machine hours are the productive measure, and

labor, materials, and overhead are collectively the expenses.

(3) Common-unit cost rates are determined for electrotyping and

photoengraving. Here the costs of labor, materials, and overhead

are separated into definite operation total costs and the square inches

(common unit) of the finished product are the measure.

(4) Internal commodity costs are direct intersectional charges

for finished or semifinished products or materials such as bindery end

sheets and lined boards, ink toners, etc.

(5) Building, machinery, and equipment-improvement costs wherein semipermanent property is created.

(6) Stock or finished-product costs are treated independently to

facilitate production and administration. Inks, rollers, pads, and

tablets fall in this group.

Source Records

When an order is received by the Government Printing Office, complete specifications for its production are prepared upon the face of an

envelope or jacket in the Planning Division at the time the estimate

is made, and the jacket is given a number for ease in identification.

From this point the jacket enters the production sections, and productive work requiring accurate accounting is commenced.

In order to simplify work instructions and coordinate and control

production, central work-recording stations have been established

throughout the service and productive sections. All employees

report to these stations for assignment to work and receive complete

instructions for the work to be performed. These desks are manned

by employees who are familiar with all of the types of work done

and the materials used by the section and the proper methods to be

followed in recording the transactions. Throughout the plant

procedures have been standardized to facilitate and assure accuracy.

Labor Cost Distribution

This form (see fig. 1, facing p. 8) is used by employees in the service and productive sections to record the time spent on each type

of work or different jacket during their tours of duty for the day. At

the beginning of the day each employee receives his first assignment

of work from the central desk, and at the same time a card, upon which

has been entered the proper code numbers signifying the type of work

to be performed and the jacket for which it is to be done, is stamped

with the starting time. When the employee has completed his first

10


SUMMARY

assignment, the card recording it is stamped “Finished” and the card

for the second assignment is stamped “Started.’’ The elapsed time on

the first assignment is computed and the card filed as completed (all time is recorded and stamped in hours and tenths of hours). With

the close of the day, the cards from all central stations are sent to the

Accounting Division, where they are forwarded directly to the electrical card-punching and verifying machines. Upon completion of punching and verifying the card contains perforations which rep- resent all of the exact information reported by the employee directly at the source of work. From this point on, all accounting, posting,

extending, compiling, and summarizing is done automatically by

machine and from the original source records. Errors and omissions

due to transpositions in transcribing and posting are eliminated.

Speeds range from 100 to 150 postings and calculations per minute.

The “man number” and “rate” on each card are the official pay-roll

number and hourly wage rate as recognized by the Office. Multiplication of the separate elapsed time reports by the rate per hour is accomplished automatically, and the resulting figure is automatically

punched in the card. These daily cost distribution charges are reconciled with the actual day’s pay roll, thus assuring agreement in these

two accounts. To facilitate time-stamp reading and computing, a job-recording

clock system has been adopted wherein the starting time of the first shift is designated as 0.0, and time is stamped progressively through

the next 24 hours in 0.1 hour skips (6 minutes) ; thus 1 hour after start- ing the clock will record 1.0 followed by 1.1, 1.2, etc., as 6-minute

intervals elapse, and the last unit (6 minutes) before the end of a complete day (24 hours) will be 23.9 hours. The clock will then skip

to 0.0 as the start of the first shift for the second day.

Generally speaking, there are four kinds of labor charges in the

production and service sections; namely: (1) Productive hand work,

where the employees perform certain operations by hand or with small

machines; (2) nonproductive hand work, which comprises the essential

work of supervision, messenger, and clerical duties, etc., and that time

necessary in any type of manufacture during which production employees are preparing for or being assisted in preparing productive

work; (3) machine operating and tending, wherein the labor is a burden against the machine and the machine becomes the producing

factor; (4) maintenance, construction, and service, which includes

labor performed, by a service section for an administration or production section and which must be included in the cost of the section

for which the work is done. The operation and class numbers indicate

11
the type of work performed and by arrangement of significant digits

in the code number, they also indicate the specific classification of the

labor charge. In no case do code numbers indicate more than one

type of charge; thus the distribution of labor charges becomes a purely automatic operation with no exception to established procedure.

Machine Production

In some of the production and service sections such as the pressrooms

and machine shops, the machine represents the producing factor, and

complete, progressive daily records are necessary of the work per- formed by the machine. Central work-recording stations are used in

the same general manner as for labor-cost recording. There are three

general types of time reported in machine sections: (1) Productive,

where the machine is producing a salable article; (2) nonproductive,

which includes preparation and tending time; (3) idle, where the

machine is standing unused and without a crew. As in the case of labor distribution cards, the machine production

cards are sent to the Accounting Division at the end of the shift,

where they are punched and recorded according to the type of work

reported.

Material Cost Distribution

The Government Printing Office maintains a Stores Division

carrying a stock of over 20,000 items of materials and supplies;

each of these items is designated by a property number. All materials

needed by all sections of the Office are requisitioned on a standard form

drawn either by the central station or the supervisor and indicate the

correct property number, quantity, and chargeable cost account. When the order has been filled the requisition is sent to the Accounting

Division, where the basic information is punched into tabulating cards

in the same manner as for labor and machine production. The

punched cards are sorted together with master cards containing the

correct unit price for the property number, and then multiplied to determine the total amount of each requisition. These operations

are automatic, the same as the previously described punched-card

operations.

One other basic form—the disbursement voucher or invoice—is used

to account for charges for services such as power, outside purchases,

trucking, etc., which are not recorded as labor or material. These

constitute a very minor portion of expense and are recorded on punched cards in a manner similar to labor and material.

It will be recognized that the source records described in the pre12
CoL 2. Element of Coal—

0—

Labor.

1—

Material and Supplies.

2—

Voucher charges. 8—Heat, Light, Power

0-113626



ceding paragraphs represent the entire range of operating expense.

The information recorded on the punched cards includes all of the

information needed for intelligent administration of the complicated,

multifarious kinds and conditions of work encountered in the printing

industry. By use of the original, single-source information, automatically and electrically rearranged according to the intent of the

desired report, all of the succeeding forms are completed. In every

case, a study of the form will indicate that the information is a direct

transcription from part of the original records or a calculation or summary completed by the use of figures contained on the original

records.

Jacket Cost Summary

In a job-order industry such as printing, the individual-order cost report has proved to be the most satisfactory method of collecting

information for billing comparisons, general production control

information, and work-in-process accounting; however, in large companies the expense and voluminous work involved for hand posting and

transcribing has occasionally been regarded as prohibitive of the

individual order report. The method developed by the Government Printing Office has enabled it to produce this accounting work

in conjunction with other necessary accounting functions.

The reports of productive work turned in daily are filed by jacket

number. When work on a jacket is completed, all of the individual

cards turned in during the term of the jacket are taken from the file and run through a machine which prepares the Jacket Cost Summary

form (see fig. 2, facing p. 10). Every charge of labor and material

for each different type of work entailed in the production of the

job is recorded on this form. All charges contain the overhead

burden according to the all-inclusive hourly cost method. Thus the

figures represent the total cost of completing each of the different

kinds of work performed, and the form gives an accurate description

of the actual method of production.

Monthly Cost Report

At the end of the month all of the daily costs, which have been

summarized and filed as cards, are arranged according to the various

sections of the Office (cost center or account), and a Monthly Cost

Report (see fig. 3, facing p. 12) is prepared. This is a complete state- ment showing all of the items of direct and indirect cost, their source and disposition. The reports are run on the electric accounting machines in a prearranged progression with the actual productive sections

13
last. This permits the proration of administrative and other over- head charges to the production sections and results in the concentration of total operating cost in those productive sections wherein all- inclusive hourly rates and the other accounting items are cleared.

Together with the expense of each item and opposite the number

of hours for each type of productive work, the total production or amount of completed work is shown. In addition to being a financial

statement of expense and a statement of allocated costs, this report

is also a complete review of production and can be used to determine

the time and cost of each unit of production.

Unit of Cost Record

The cards containing hours and production which are used in

preparing the Monthly Cost Reports are separated from the other

cost cards and used monthly to compile a progressive record of unit

costs (see fig. 4, facing p. 14) and to determine the average cost of

the unit. All cost records are compiled so that 12-month average costs can be used as the basis for studies and for fixing the scale of prices for

billing. Monthly postings are made directly by machine from the

individual cards, and the machine automatically punches a summary

card containing the total of the individual cards and corresponding

exactly with the printed posting. These summary cards leave the

individual or detail cards free to be used on other reports and permit

faster machine work due to fewer cards.

Cumulative Record of Presswork

In order to be fully informed on facts relative to presswork, a monthly Cumulative Record of Presswork is prepared (see fig. 5, facing

p. 16). Again, as in all cases, the information shown herein is a rearrangement of the original source record as prepared by the central

station for the press at the time of doing the work. In the Jacket Cost

Summary report and the unit of cost posting, similar presses are all combined within a group, so that the figures will represent averages for

all equipment in use of a similar nature or purpose. On this report

it is advantageous to compare each press with the other within the same group so that deficiencies may be noted and corrected.

This report, as its title implies, is prepared progressively. Each

month a complete new report is run containing all of the information

of the previous month plus the information for the current month.

The previous month’s report can then be discarded. The standards

and percentages are determined automatically by machine and are printed by the machines with the other information.

14
Type of Wohk MACH. FOLD. Opr. 53 UNIT OF COST RECORD Parallel - One Fold

Sheets 22 - 30 In.

Date Operation Production Time per Unit

Cost per Unit Hour Cost

Month Year o

>Q

Section |

No. s

03 5

Hours Number up Actual Sheets

Chargeable Ceples 7 7 7 L 5 1

i 3 15 9 3 978547 6 3 7 7 9 8 3 c 8 7 7 L 5 3 X 4 15 4 s 1360601 8571165

9 7 7 L 5 3 % 2 4 5 8 3 826248 4765597

0 7 7 L 5 3 X 2 2 0 0 6 3 148 30 58-4 74021762

1 7 7 L 5 3 X 3 6 6 4 3 2046312 11103982

. 2 7 7 L 5 3 4 2 16 1 3 482244 1177887

1 3 7 L 5 3 t 3 5 80 3 1065724 3365919

2 3 7 L 5 3 X 5 0 2 5 3 1462399 7709732

3 3 7 L 5 3 i 5 2 4 0 3 1094978 2781170

A 8 7 1 5 3 4 4 17 9 3 1013659 2280852

5 8 7 1 5 3 4 3 5 3 1 3 936702 3151584

6 8 7 1 5 3 4 4 6 16 3 1166743 4844537

6 3 7 7 3 2 7. 264741 130152170

Figure 4

0-113626
y

'
Cumulative Record of Platemaking

This report (see fig. 5, facing p. 16) is similar in purpose to the

presswork report and, like it, is replaced each month by a current copy.

The report reproduced shows a record of square-inch electrotype pro- duction arranged according to type of molding. Further arrangements

of the same cards are made to produce comparative figures of type of

plate, type of face, and sizes of curve and gage. In this manner a complete picture is gotten of production for study by executives.

The cumulated figures present the possibility for studying the trend

so as to anticipate future work.

Pay Roll

Preparation of the pay roll (see fig. 6, facing p. 18, and fig. 7, facing

p. 20) constitutes a major duty of the Accounting Division. It is especially exacting in the Government Printing Office because of the numerous rates, leave and hours of work regulations, deductions for retirement purposes, and governmental requirements for audit.

A system of pay-roll timekeeping and preparing has been developed wherein at the beginning of the pay period the total amount

of pay to be received by an employee providing he remains in his

regular pay status for the full ensuing period is determined and

punched on a card. If the employee works each working day in the

ensuing period at his regular pay rate, no further recording need be

done, and at the end of the period his pay will be as predetermined.

If, on the other hand, the employee is absent without pay, up-rated

temporarily to a higher rate, or accumulates overtime, his pay account

will be increased or decreased by debiting or crediting his predetermined total. Inasmuch as the majority of employees during a day

will earn their normal pay the pay-roll exception system results in

performing the fewest number of operations to complete the pay roll. Employees in the Government Printing Office are paid on the semimonthly basis in cash over two and three shifts, and each employee

must officially sign for his or her pay. All payments are completed

the third day following the close of the period.

Summary

The preceding paragraphs have explained only a few of the principal forms and reports used in the routine operation of the cost- accounting system. All other standard reports are prepared from

the same source records and all more or less follow the general

principles contained herein. It will be realized that the preparation of 15
special reports requires nothing more than the automatic rearrangement of the original source records into the required sequence and the

printing of them in any manner desired.

Accomplishments

An attempt to set down all accomplishments would be impossible

because most of the gains are cumulative and continuing. Others are

self-evident from the very nature of the report and need no further

explanation. However, some of the accomplishments can be indicated, and they will tend to denote the extent of the gains which

naturally follow. The purposes set up to be achieved have been

reached in full or in part, depending upon the cumulative effect so

far obtained.

Scale of Prices

I have stated that the purpose of this installation was to enable the

Government Printing Office to do two things:

(1) To bring its scale of prices more nearly in line with actual costs,

and

(2) To enable this Office to spot those operations that were not

being handled as efficiently as they are handled in commercial plants.

It was found when the costs were all assembled (1) that many of the jobs had, for a long period of time, been charged to the departments at much less than cost and (2) that other jobs were necessarily

charged out at prices far above cost in order to make up this deficit. These questions had to be decided: (1) Should this Office continue

the old unfair method which let some departments have more work

than they were entitled to, or (2) should this Office adjust the scale so that each job would stand on its own feet. Many things were

taken into consideration while making this decision, such as: (1) The

criticisms that resulted from a comparison of our overpriced jobs with

commercial prices; (2) the fact that it was illegal to have the appropriation for one department overcharged in order to make up a loss resulting from an undercharge to another department appropriation;

and (3) the fact that while the Office was criticized for the jobs on which it was high, nothing was ever said about the jobs on which it was low. With these and many other points thoroughly considered,

it was decided that the only thing to do was to make the changes indicated as necessary by the facts presented through our scientific study

and to attempt to weather the storm of criticism which I knew would

inevitably follow. When this decision was made, I notified each

department of the changes that were being made and the reasons there16
O - 113626

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for in as much detail as possible through means of the following letter: October 15, 1937.

Sir: In order to place the Government Printing Office on a more businesslike

basis, a thorough study covering a period of 18 months has been made of the cost and method of producing each unit of its finished product. This study was made

for two purposes: (1) In order that the prices charged for each job would more

nearly represent the actual cost to this Office of producing the job; and (2) in order that the Office could, for managerial purposes, have more accurate information upon which to base its manufacturing policies.

Upon completion of this survey it was found that radical changes had to be

made in some of the prices charged by the Government Printing Office for its work. It was revealed that some of the units were greatly underpriced and that overcharges to make up these losses were naturally carried by other types of work. This was due to the prior policy of the Office in raising or lowering the prices for

all operations by the percentage by which the receipts for an accounting period

exceeded or fell short of the expenses for the particular period, regardless of the

fact that due to new inventions or economies in certain directions, certain of the

units of production were being completed more cheaply; or, on the other hand,

due to changes in requirements certain operations were more expensive. This

method of price adjustments had been necessary heretofore because of the lack

of sufficient cost information upon which to make proper adjustments and, while

it enabled the Office to balance its accounts, had resulted in many inequities. In order to correct these conditions a new scale of prices, designed along commercial lines and in accordance with well-established commercial practice, is being put into effect as of October 15, 1937. Bills and estimates prepared after that date will be prepared under the new scale and will, in many instances, vary

greatly from those previously rendered for similar work. In some cases the charge will be higher, in others lower; but as this is the result of charging each

particular department for the type and class of work it orders, I am sure you will agree that it is the only policy to follow.

I would like to emphasize the fact that there has been no general increase in the scale but merely increases or decreases in particular unit charges; and it is estimated that one will practically offset the other. However, it is impossible to predict definitely at this time just how this adjustment will affect a particular

department during a fiscal year, as that will depend entirely upon the type of work ordered by the department throughout the year. Generally speaking, I may say that if the requisitions from a department cover a variety of work, its printing bill for the year—for the same amount of work—will be approximately

the same as it would have been under the old scale. However, if a majority of a department’s requisitions are for work calling for unusual typography or format,

or involving much composition and short press runs, its bills will be higher. On

the other hand, straight-line work, eliminating unusual features, and involving

long press runs, will be lower. Another item that will materially affect the

question as to whether the printing bill for a year will be higher or lower under

the new scale will be the number of changes made after the jobs are in type

(author’s alterations), as it has been determined that work of this nature costs the office much more than it has previously charged for the same. As there are many types of work other than author’s alterations that tend to increase the departments’ printing costs, such as requisitions for unusual sizes that involve much waste in trimming, requests for a better grade of stock than

17
that required by the nature of the job, requests for rush work, etc., the Govern- ment Printing Office will be glad to cooperate with the departments along these

or any other lines indicated by them that will tend to solve our mutual problems.

Respectfully,

A. E. Giegengack, Public Printer. The new scale of prices is in direct relation to actual conditions, and

the results of its application will be that each order for printing will stand its just charges. Thus, the total cost of printing for any department will be directly based upon the type of work ordered by it. The

department can effect savings by planning its work in conformity with

economical methods.

A continuous study is being made of production costs, and the scale

of prices is kept current by changes when actual costs change.

Production Control Committee

As stated before, the Jacket Cost Summary reports (see fig. 2, facing p. 10), are forwarded to the computers at the time the charges

are being prepared. A review of the operation numbers contained in

the summaries indicates the method of production employed on the

order. In addition to the fact that the jacket cost report plainly shows

the cost of production and the price at which the job is to be billed, the

computers are well versed in the various branches of printing and

easily recognize uneconomical methods. When such cases arise, a

report is made to a committee whose duty it is to investigate the

method of production employed to determine whether better methods

or procedures could be developed. This committee was created by

the Public Printer by order dated December 17, 1937, which reads:

I hereby appoint the Assistant Production Manager as chairman and the

Assistant Superintendent of Planning as cochairman of a committee to investigate

thoroughly and report on questions as to economical production methods. The

committee will consist of three officials. The third member of the committee will be the assistant superintendent of the division involved in the particular question.

The Comptroller will refer to this committee all cases in which a comparison of the

total cost of producing a job with the prices to be charged to the department for producing the job indicates a material loss to the Office. The questions selected

in the manner indicated will raise many difficult and technical questions involving the best method of producing a given job, and their solution will require straight and

unhampered thinking as well as a thorough knowledge of all phases of £he work;

that is, if right answers are to be arrived at and intelligent recommendations made.

There will undoubtedly be questions referred to the committee in which they

will find that no improvement can be made in the manner in which the job was

handled. But, on the other hand, I believe that the questions raised will show the way to improvements in the planning of the work of many of our unusual jobs and

they will unquestionably show up many places in the plant that are not as efficient as they ought to be. This is what I want investigated by this committee.

18
ATED

MAN

NUMBER NAME

RETIREMENT DEDUCTIONS NET AMOUNT

9 3 3

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9 3 3 |r 9 3 3

1 5 3 5 4

2 4 5 1 1 Rb

ftL

4 13 5 9

4 4 7 6 0

4 7 o i a

4 7 0 1 8

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4 8 5 2 0

5 7 2 1 9

5 7 8 7 5

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0-113626

PAY ROLL LISTING

Ficubb 6

I have selected the officials indicated above after much thought. I feel that they are well qualified to handle these subjects and I want them to give their best efforts to the questions presented to them and I want their honest opinions

as to any methods of improving present procedures of production. If I am not

disappointed in the results of this work, I am certain material savings can be made

in our present production costs—possibly totaling over a million dollars on an

annual basis. These questions will be referred directly to the Assistant Production Manager,

who will call meetings as often as necessary in order to investigate these questions

thoroughly and prepare the committee’s reports on the same expeditiously. The

reports, when completed by the committee, will be returned to the Comptroller

for such comment as he may deem necessary before passing them to me for my

final consideration. Miscellaneous Binding

A number of cases have been reviewed by this committee, with the

result that large savings have been effected through improved methods,

elimin ation of unnecessary work, and through changes in procedure

and materials. This is a continuous study and the results will be

far reaching.

As a specific result of the Production Control Committee, I would

like to point out the savings that have been accomplished in miscellaneous binding work. Miscellaneous binding is the term applied to a

large volume of work wherein old and worn books, magazines, manuscripts, etc., are torn apart, repaired, trimmed, and bound or rebound.

This is costly work because it requires careful examination, much

hand work, and a high degree of skill. During the past 10 years the

annual charges for this work have been approximately $225,000.

Until the establishment of the present cost-accounting system no

true record of the cost of this type of work was available. A study of

summarized jacket cost reports revealed that a large loss, estimated at $70,000 annually, had been suffered on this type of work. Naturally,

this loss had been recovered by overcharges on other work. There

had been considerable agitation by the departments for a reduction

in the charges for miscellaneous binding, but on the strength of this knowledge it could not then be granted. Each operation involved

in the work was studied, and plans were drawn up for changes both in type of personnel and in methods of production. Further than this,

departments were consulted as to the possibility of changes in general

specifications to effect savings. The net result has been a reduction

which will amount to approximately $90,000 annually. This will be

reflected in a reduction in the charges, not only for miscellaneous

binding but also for other work formerly bearing the loss.

19
DUPLICATING EQUIPMENT

I was particularly concerned during the fiscal year as to the repeated

and apparently increasing criticisms of the volume and nature of the printed matter now being put out by the Government. Mistakes

are made, of course, and some printed matter not necessary to the

proper functioning of the departments is unquestionably being sent

out. This matter which gets out through accident or mistake—

a

small fraction of the total—causes the criticisms we so often hear.

Congressman Mead attempted to clear up misunderstandings con- cerning this subject by his remarks* of February 3, 1938, in the

Congressional Record, during which he stated in part as follows:

* * * the increase in the volume of Government printing, as shown by the

reports of the Government Printing Office, has not kept pace with the increase

in the activities of the Government, there being only a 17-percent increase in the same during the last 5 years as compared with a 41-percent increase in neces- sary governmental activities during the same period.

This small increase in printing is indeed surprising when it is recalled that many

of the new activities of the Government, such as the Federal Housing Administration, Unemployment Census, Social Security, to mention only three of many,

cannot serve their purpose unless their functions and the service which they were intended to render to the public were made known to the people through

pamphlets, books, and other printed media. Under these conditions it would seem that the increase in printing would have been greater than the increase in other Government activities, as it can be readily realized that the new agencies created for the purpose of rendering service to the public must necessarily advise the public as to that service if any benefits are to be derived from their creation and that this would call for more printing than the old-line establishments. But

the increase in printing has not kept pace with the increase along other lines, and rather than single out for partisan criticism the comparatively small amount

spent for printing, it would seem that the wiser policy would be to question the

failure of printing expenses to keep pace with other approved expenses, as I fear that this fact indicates that the activities of the Government, created by Congress

to help the public, are not being properly presented to the public through printed

media and as a result of this failure to properly inform the public as to the benefits to be derived from the proper use of the instrumentalities created by Congress,

the people are not receiving the benefits to which they are entitled. * * * * * * * * * * This information is not New Deal political propaganda, but helpful information

for all Members, Democrat and Republican alike. That can be readily agreed

to by the Member who will examine the facts. As the record stands, both the Post Office Department and the Government Printing Office have done a splendid

job, and the Postmaster General, as well as the Public Printer, merit our commendation. They are doing an excellent job.

20
O -113626

ft---:

Printing Done on So-Called Duplicating Machines

Congressman Mead has clearly stated the case. What I fear is: Criticisms of the type and volume of printed matter and efforts by

the appropriation committees to limit that matter by reducing the

printing appropriations are very definitely increasing the type of material Congress is trying to reduce; for every cut in a printing appropriation is forcing the departments to do more bootleg printing, or

printing on their so-called duplicating machines. The result is that

the departments turn to other appropriations over which there is no

control or limitation from the printing standpoint. This in effect takes work from the Government Printing Office and places it in the

departmental printing and duplicating plants. In my honest opinion

the law would not be violated to the extent it is today by the departments were it not for the fact that their regular printing appropriations are inadequate to meet their actual requirements. In order to meet their actual printing requirements they buy equipment from

other appropriations; thus the equipment is available after actual

needs have been met to run off the great majority of the publications

which have been made the subject of so many criticisms by Members

of Congress and others.

I reported to Congress last year that we were making every effort to limit the work done in the departments on their so-called duplicating

equipment because we considered it a direct violation of the law,

which requires that all printing be done at the Government Printing

Office. Through the departmental printing plants, the departments

are enabled to put out more printing than that authorized by Congress

by using appropriations made for purposes other than printing to operate their so-called duplicating plants.

I am happy to state that through my efforts and those of the Joint

Committee on Printing there were held during the year committee

meetings under the supervision of the Bureau of the Budget. Representatives of the departments expressed their views, presented their

problems, and earnestly tried to find a satisfactory solution to the

problem presented by the rapid growth of the printing plants in the

departments necessitated by limited appropriations for printing.

I realize (1) the advantages which can be taken of the present conditions by the departments to get out propaganda of a type that they

would not submit to the Government Printing Office, and (2) the

21
waste of public funds involved in printing this superfluous matter.

It was for these reasons that I recommended to the Joint Committee

on Printing in my letter dated June 29, 1937, (1) that a committee

be formed to decide the type of material that could be handled more

expeditiously and economically in the departmental printing plants

and the type that for the better interests of the Government as a whole could be handled in the Government Printing Office; and (2)

that the Public Printer be authorized to exercise general supervision over the departmental printing plants and to determine {a) that

unnecessary equipment be not installed, (6) that only proper equipment be purchased, and (c) that such equipment be used properly.

As a result of the above recommendations and the hearings in con- nection therewith, the Joint Committee on Printing attempted to

clarify the situation and to set up certain lines of demarcation between

what could be considered printing and processing by expressing its opinion as to what it termed printing as included in title 44, section

111, United States Code. That its action in so doing was approved

by the Acting Comptroller General of the United States is indicated

by the following letter from that official: Comptroller General of the United States,

Washington, June 1, 1938. Acting Director,

Bureau of the Budget.

Sir: There has been received your letter of May 6, 1938, as follows: “On July 8, 1937, the chairman of the Joint Committee on Printing advised

this office by letter that action was contemplated, either through the medium of legislation or otherwise, to solve the problems which have arisen from the uncontrolled printing in the departments, and suggested that a special committee be assembled to work with representatives from the Government Printing Office, the Joint Committee on Printing, and the Bureau of the Budget in considering the question as it affects the Government as a whole and to present for approval a

plan that "would solve the problems in connection with the printing, duplicating,

and processing activities and requirements of the various governmental depart- ments and establishments. “Such a committee was assembled and after numerous meetings and careful consideration of the various phases of the questions involved, prepared a report

which was submitted to the chairman of the Joint Committee on Printing with

my letter of April 12, 1938. (Copies of report and of my letter of April 12 are

enclosed. See p. 14.) “The first recommendation contained in the report, beginning on page 9 thereof, involves an attempt to clarify the term ‘ printing’ as used in the last proviso of chapter 86, section 11 (40 Stat. 1270). “I am now in receipt of a letter from the chairman of the Joint Committee on

Printing, dated April 29, 1938, in which he indicates that the committee concurs with the idea that a line of demarcation between printing and processing should

22
be established as a means of reducing the cost of producing matter required for immediate use and of a temporary character, thus preventing what now consti- tutes a waste of Government appropriations. (Sec. 4, title 44, U. S. C.) “The chairman of the Joint Committee on Printing, however, suggests that this

office submit the definition to you for your comment as to whether it may be fol- lowed as a guide in determining whether a particular job involves printing which

the existing law would require to be done at the Government Printing Office.

I would appreciate an expression of your views in this connection.” You have submitted a copy of the letter of the Joint Committee on Printing addressed to you under date of April 29, 1938, as follows: “Receipt is acknowledged of your letter dated April 12, 1938, submitting the

report of the select committee designated to make a study of the production and

distribution methods of printed, processed, and duplicated matter issued by the

various activities of the executive branch of the Government.

“The Joint Committee on Printing, at a meeting held on April 13, 1938, considered the report and is of the opinion that it contains many suggestions and

recommendations which, if adopted, would greatly improve the printing situation. “With reference to part 1 of the recommendations (p. 11) suggesting a definition

of the term ‘printing"' the committee concurs with the idea that a line of demarcation between printing and processing should be established because it is perfectly

obvious that such a clarification would reduce the cost of producing matter re- quired for immediate use and of a temporary character, and furthermore would

ultimately result in great economies, thus preventing what now constitutes a waste of Government appropriations. Under authority of section 4, title 44, of the United States Code, the committee is empowered to employ such measures as may be necessary to remedy any ‘waste * * * in the public printing and

binding/ and in order to reduce these expenditures to the minimum the committee

is of the opinion that the term ‘printing/ as used in the last proviso of chapter 86, section 11 (40 Stat. 1270), of the Legislative, Executive, and Judicial Appropriation Act for the fiscal year ending June 30, 1920, approved March 1, 1919 (U. S. C.,

title 44, sec. Ill), insofar as it relates to printing for the executive departments,

independent offices, or establishments of the Government in the District of Columbia, or elsewhere, shall include pamphlets, books, documents, periodicals,

and other publications of a permanent character, also blank books and standardized forms, but shall not include matter reproduced by what is commonly

known as the mimeograph or stencil process, nor shall it include reproductions by

other duplicating processes if confined strictly to matter required currently in the performance of functions authorized by law, such as rules, regulations, instructions, opinions, decisions, notices, circulars, statistical statements, and other in- formational matter, and if no binding, sewing, or trimming operation is involved

in connection therewith. “The committee respectfully suggests, however, that the Director of the Budget

submit this opinion to the Comptroller General for final determination as to whether this definition legally may be followed as a guide in determining whether

a particular job involves printing which the existing law would require to be done

at the Government Printing Office. “ With reference to the centralization of the various types of duplicating and

processing equipment in the District of Columbia, the committee hopes that the number of these multilith and multigraph units will be reduced to the minimum

and that all equipment rendered surplus as a result of discontinuance or curtail23
ment of the use, consolidations, etc., will be promptly reported to the Public

Printer as required by section 3 of the act (41 Stat. 233), approved July 19, 1919. “The committee will make every effort to secure, as soon as possible, the enact- ment by the Congress of a law embodying the general principles of the suggested

legislation relative to facilitating the sale of Government publications.”

While as stated in my decision 16 Comptroller General 111, the word “printing”

in the last proviso of section 11 of the act of March 1, 1919 (40 Stat. 1270), is not

susceptible of exact definition, it appears that the definition as suggested in the

letter from the chairman, Joint Committee on Printing, apparently proposed to be

adopted by the committee under authority of said section 11, if not an exact

definition of the word, at least clarifies it and sets up certain lines of demarcation

between what may be considered printing and processing, and to that extent will tend to remove the uncertainty which has existed heretofore in such matters. Considered on that basis this Office has no objection to the adoption of such

definition by the Joint Committee on Printing. In this connection, with respect to a matter somewhat related to printing, your

attention is invited to attached copy of decision of this Office of May 17, 1938,

A-21519, to the chairman, Joint Committee on Printing, distinguishing between

printing and binding and stock forms or paper articles required to be procured from

the Public Printer under the act of June 7, 1924 (43 Stat. 592). Respectfully, R. N. Elliott,

Acting Comptroller General of the United States. RECOMMENDED CHANGES IN METHODS OF DISTRIBUTION

During the committee meetings held under the supervision of the

Bureau of the Budget above referred to, the distribution of publications to the public without charge was discussed in detail and it was

the consensus of opinion that the generous free distribution was

responsible for the waste for which the Government is criticized. The

departments have been giving serious consideration to this subject for some time and have agreed that their publications should be offered on a sales basis wherever possible and that free distribution should

be limited to official needs. I heartily concur with this view and have

been working with the departments in their efforts to solve the problem

of distribution, as it is realized that the lack of a simple form of

remittance has been the greatest handicap to those who would increase

the sale of publications.

Feeling that any increase in sales depends upon the inauguration

of an improved method by which the public may purchase publications, the committee developed a system that will, when authorized

by Congress, completely revolutionize the distribution of Government

publications by (a) making it easier for people to buy them and (6) decreasing free distribution and all its evils. The proposed system would require the close cooperation of the

24
Post Office Department and the Government Printing Office. Incidentally, I am certain that it will increase revenues of both the Post

Office Department and of this Office. Briefly, the system would

function in this manner:

1. Special postal cards of various cash value denominations designed

for use in buying Government publications would be sold by all post offices and rural carriers in the United States.

2. Purchasers would buy the cards, which would be addressed to the Superintendent of Documents, paying in addition to the face

value of the card the penny usually charged by the Post Office Department for the postal card.

3. The Superintendent of Documents would accept these cards at

their face value in payment for publications.

4. Having filled the orders, the Superintendent of Documents

would present the cards to the Post Office Department for redemption

and receive from the Post Office Department the amount collected as the face value of the cards.

5. The Superintendent of Documents and the departments would

cooperate in the promotion of sales and production of poster fists for display in the post offices. I am most confident that the committee’s plan would lead to many

desirable developments. The free distribution of Government publications has long been a knotty problem. Criticisms are directed

toward the Government from directly opposed points of view: (1)

When free publications are mailed to persons who are not interested,

the Government is criticized for spending money on useless matter;

(2) on the other hand, there are many persons who would be willing

to pay for publications if they did not have to go through the present

cumbersome procedure in order to get them.

In addition to the inconvenience of having to write a letter and of going to the post office for a money order, a person who desires a

5-cent publication has to spend at least 14 cents to get it, in that he

has to place a 3-cent stamp on the letter and pay the money-order

fee of 6 cents. He then addresses the envelope, often without knowing

exactly where to send it, and, if the letter is addressed erroneously,

waits unduly long for the publication while his message is routed and

rerouted through channels in Washington.

The plan developed by the committee would end such confusion

and would also have many other desirable effects, such as these:

1. In the past the public has generally thought of Government

publications as free matter—something of little value. A convenient

sales system would change this psychology and the public would soon

25
develop the habit of purchasing these publications and would appreciate them more if it could buy them with little trouble.

2. The executive departments would feel less inclined to distribute

their publications free. They could, therefore, make savings in the

cost of information distribution. Moreover, the system would tend

to encourage the issuance of publications really desired by the public

as the departments would undoubtedly pay more attention to their

editorial policies if they were dependent upon sales for the distribution

of their printed matter.

3. The revenues of the Government Printing Office would be in- creased materially.

4. The revenues of the Post Office Department would be increased

through the sale of the postal cards, as it is estimated that at least

five times as many orders would be received.

5. Post-office losses would be reduced not only through a sharp

reduction in the volume of printed matter handled under frank by

the Post Office Department but also, as the card will be used in lieu

of money orders now drawn in small amounts, the loss in handling

money orders will be sharply reduced.

6. Criticisms that various branches of the Government are sending

out volumes of propaganda would be minimized, as the system would

definitely reduce the number of publications going to persons who

do not want them. On the other hand, interested persons could get

the publications they wanted at a cost they were willing to pay and

without going through the complicated procedures now necessary in

order to get them.

The above is simply a brief outline of the plan and enumerates

only a few of the desirable results which, I believe, will result from

its adoption. A great deal of thought has been given to the details

by representatives of many of the departments. Practically all who have considered it are enthusiastic about it and are convinced

that it is an efficient, workable plan which will prove of value to the

Government and to all persons interested in obtaining information

through Government publications. The details could be worked

out to the satisfaction of all concerned, and the interests of the Post

Office Department, upon which would fall a great part of the burden,

could be properly protected by requiring that all rules and regulations governing the carrying out of the plan would be approved by

the Postmaster General.

I earnestly recommend that Congress give serious consideration

to the adoption of this or some similar procedure that will provide a method by which the public may purchase Government publications

26
cheaply and easily, as such action will reduce the criticism now

directed at the Government along these lines and will enable the Post

Office Department and the Government Printing Office to render

better service to the country as a whole and will in the final analysis

increase the revenues of the Government.

PATENT OFFICE PRINTING

There was a decrease in the number of patent specifications printed

in 1938 as compared with the number printed in 1937. The total printed in 1938 was 52,714 as compared with 56,142 in 1937. The

number of pages in 1938 totaled 140,183 as compared with 152,259

in 1937. There were also printed during the year 171 decisions, 188

disclaimers, and 34 certificates of correction.

The Official Gazette, issued weekly, made 13,768 type pages in

1938 as compared with 14,612 pages for 1937. For the Gazette

51,059 illustrations were made. The total number of copies of the

Official Gazette and Annual Indexes printed in 1938 was 227,607 as compared with 236,944 in 1937.

There arose during the year in connection with the Patent Office

work an intoresting and unusual situation that could have proved not

only exceedingly expensive to the Government as a whole but also disastrous to the proper functioning of the Patent Office had the

activities of those responsible for creating this condition not been

checked before it was too late. The first indication that the Government Printing Office had of the seriousness of the situation was the appearance of the following

paragraph in House Report 1830, Seventy-fifth Congress, third

session, a report from the House Committee on Appropriations on

the State, Justice, Commerce, and Labor appropriation bill for the

fiscal year 1939: At the request of the committee made during the course of the hearings on the

appropriations for the Patent Office last year the Commissioner of Patents sub- mitted to the committee the results of a study made on the matter of cost of printing patent specifications and the Official Gazette. It appears that by the

use of certain offset methods of printing, savings could be made in excess of $100,000 in the annual printing bill of this Bureau. A responsible private firm

in business in Washington for over 20 years has made an offer to do this work by

use of offset printing methods at the savings indicated. To permit this to be done requires legislation, as under the present law all Government printing must

be done in the Government Printing Office unless the Joint Committee on Print- ing directs otherwise. It is sincerely hoped by the committee that this whole

problem of use of new printing methods will be given an early consideration by

the Joint Committee on Printing in order that economies running into hundreds

27
of thousands of dollars annually can be accomplished. A reduction of $100,000

in the Budget estimate is recommended in the expectation that a saving of not

less than this sum may eventuate from such action as may be taken. It is assumed that the allegations made to the individual members

of the Appropriations Committee by those seeking to undertake the

reproduction of the patent specifications and the reproduction of the

Patent Office Gazette were similar to the allegations made in a letter to the Commissioner of Patents under date of April 30, 1937, by an

attorney representing at that time an undisclosed principal. The

letter is as follows:

On behalf of my clients I hereby confirm the proposal heretofore submitted

verbally to you for the composition and photolithographing of the patent specifications at $4.48 per page. Your report for 1936 shows that you paid the Government Printing Office $740,596 for approximately 130,500 pages of patent specifications, which amounts

to $5.68 per page, approximately.

You will therefore note that our proposal will save your Bureau on patent

specifications the sum of $156,000 per year, approximately, on the basis of your

1936 requirements.

We also confirm our proposal to compose and photolithograph the Gazette

at a saving, approximately, of $12,000 per year over the amount which you paid

in 1936 to the Government Printing Office. This makes a total saving on both the specifications and the Gazette of $168,000

per year, approximately, based on your 1936 requirements.

We will be prepared to make a firm and definite proposal at such time as you

desire, upon which a 1-, 2-, or 3-year contract may be based. We attach hereto specimen pages showing the quality of work we propose to do for you. The above letter was supplemented under date of November 23,

1937, by another addressed to the Commissioner of Patents by the same attorney disclosing the attorney’s principal and making some

general statements as to how his company proposed to handle the

work. The significant part of the supplemental letter, however, is that which indicates that the saving to the Patent Office would not

be as great as originally stated. In the letter of April 30 a saving

of $168,000 a year was promised, whereas the supplemental promised

only $106,500, as is shown by the following quotation therefrom:

In the fiscal year 1936 approximately 150,000 pages of specifications were

printed. On the basis of the average present cost, viz, $5.11 a page, this is a

total cost of $766,500. On the basis of our proposal of $4.48 per page, the cost

for the same number of pages would be $672,000. This indicates a saving of $94,500. As*******

compared to the most recent figures available to us, this proposal for re- producing the Patent Office Gazette indicates a saving to the Patent Office of approximately $12,000 per annum. 28
This promised saving of $106,500 was later reduced during the

hearings to $94,500 through the kindness of the company’s representative to the Government Printing Office employees engaged in producing the Official Gazette. This is indicated by the following quotation

from his testimony before the Joint Committee on Printing:

* * * we have a high regard for anything that would bring about the dis- placement of men, and we have come to the conclusion that is would be better to leave the Gazette as it is now, or as work that should be done by the Govern- ment Printing Office. While the company thus expressed concern as to the positions of the few employees engaged on the Gazette, it apparently did not feel as kindly disposed toward the many engaged on specifications. It is just possible that this may be due to the fact that it had begun to

realize the difficulties of the job and had found that no profits could

be made on the Gazette and that such realizations and findings had

not had time to filter through with reference to the specifications.

Hearings on the subject were held by the Joint Committee on Printing on April 18 and 20. The hearings were open to the public, and the

company representatives, the Commissioner of Patents, the Public

Printer, and all interested parties were invited to testify by the chair- man. He opened the hearings by stating that its purpose was to consider the general subject of printing for the Patent Office and inserted

in the record among other things the proposals submitted by the

company.

The first witness called to the stand was Mr. Conway P. Coe,

Commissioner of Patents. Mr. Coe stated that when a change in the

character of printing was presented as a means of effecting economies

in the Patent Office he was naturally interested, but recognizing his

im famili arity with the technical problems involved and his want of authority to decide the questions of law and policy concerned, he

referred the matter to the Joint Committee on Printing for its consideration. He emphasized the fact that he was not making a recom- mendation in the matter, as is indicated from the following, which is quoted from his testimony:

Lest there should be any misunderstanding on the part of the Congress, the

Public Printer, or others, I wish to emphasize, first, that I have carefully and consistently refrained from pronouncing as to the manner of doing the printing

needed by the Patent Office, and, secondly, that I have never intended to corroborate and do not now confirm the claims made in the proposal as to the economies

likely to result from its acceptance.

With the idea of being helpful to the committee the Commissioner

submitted statistics with reference to printing costs in preceding years

29
and stated that the studies made of the samples submitted by the

company indicated that they would be satisfactory. He pointed

out that he had not investigated the company to determine whether it could give him the same service that he was receiving from the Government Printing Office, as he had not looked into its facilities, its financial set-up, its equipment, and personnel to satisfy himself on

these points. He stated that he had not done this as he naturally

assumed that the contract would be awarded only as a result of competitive bidding and that an investigation of one concern would not

assist in the selection of the ultimate bidder. He also pointed out

that the risks and difficulties involved in the adoption of the new

method of handling the work and all other considerations would make

any saving much below $100,000 a year rather unattractive from the

standpoint of the Patent Office. In conclusion he stated that there was no reason to change either from the standpoint of service or the

quality of the work, adding:

I do not know that we have ever had a period when we were getting better work or more efficient cooperation than from the present Public Printer. Following Mr. Coe to the stand were four representatives of the

company seeking the contract, a gentleman who identified himself as

its counsel, another who stated that he was secretary-treasurer of the

company, and two others whose official connection with the company

was not made clear during the hearings. These gentlemen identified the

proposal and the company with which they were connected, explained

in a general way the methods which they proposed to use in producing

the work, attempted to answer objections which they felt would be

raised against their proposition, and made a very persuasive appeal to the committee to award the contract to the company without competitive bidding for a period of at least 2 or 3 years—alleging that it would be difficult to write specifications (designed for the protection

of the Government).

Following the company representatives, Mr. Clyde M. Mills,

representing the five printing trades unions comprising the International Allied Printing Trades Association, was invited to testify. Mr.

Mills appeared to oppose the printing of patent specifications and the

Gazette outside the Government Printing Office. He outlined in a comprehensive and well-prepared brief: (1) The nature of the drive

extending over a period of years that private interests have made to divert the work from the Government Printing Office; (2) the drastic

economies already made in the printing of Patent Office work; (3)

that glowing estimates of savings possible by the use of duplicating

30
machinery, inaccurate computations in the cost of such machinery, and

the desire of salesmen to make sales have resulted in a misdirected

campaign to effect actual savings in printing costs—such savings, if and when effected, having been effected only at the expense of Government Printing Office employees; and (4) the type of propaganda put

out by the proponents of the proposal then under consideration.

Mr. Mills quoted from page 246 of House Document No. 360,

Seventy-fifth Congress, first session, entitled Technological Trends

and National Policy, to the effect that there has not yet been firmly

established a completely acceptable substitute for linotype and

monotype composition. This quotation continues:

When the problem of the justification of the length of the type line is fully

solved, the process of photocomposition may displace the use of metal in printing

types to a large extent. Mr. Mills pointed out that this should prove that the problems of variable spacing have not been finally solved. He told the committee

that the printing trades unions were not opposed to the development

of new processes in the industry, but that they did not believe that

experiments in the development of new processes should be made by

the Government solely on estimates at the expense of those now

dependent upon employment in the printing industry. The concluding

paragraphs of Mr. Mills’ brief are as follows:

The printing-trades unions do not believe the Government should install such new processes until they are established and accepted by the printing industry.

Neither should the Government subsidize the acceptance of such machines by

allowing a contract to a concern whose sole experience in the use of such machines

has been limited to the operation of one machine.

If new processes are established and are successful in the industry, the wage

rate and the qualifications of the operators will follow as a natural result. In the case of printing patent specifications there are a number of mathematical

equations which are very intricate and which require a great degree of skill on the

part of the person engaged in producing this type of printing. The manufacturer

of the verityper machine and manufacturers of other such substitute processes have

long indicated and argued that the advantage of the new processes lies in the reduced cost of labor by the employment of unskilled mechanics at lower wage

rates. The experience of the teletypesetter is such as to discount most of such

claims. The investment of the Government in machinery for the Government Printing

Office to produce the necessary printing must be given serious consideration. The investment of the employees of the Government Printing Office measured in years of training and in loyalty to the Government should be weighed against the

desires of those who seek a contract primarily to effect a sale of machinery not

generally accepted or proved to be successful in the production of printing similar

to patent printing.

Profit from the sale of a machine and a commission to those who influence such

31
a sale are unimportant except to those who desire such a profit or commission. In

this case it would be a subsidy from the Government.

All the foregoing factors must be given the consideration they deserve. If there must be experiments, let the experiment be carried on by the Joint Committee on

Printing and the Public Printer. Utilize the years of experience, manpower, and

employee training to determine the value to the Government.

The insistent demands for the contract to do the printing for the Patent Office when the proof of value is so accessible makes more conclusive our belief that there

is more involved in the question than the saving of $100,000 to the Government.

Upon the conclusion of Mr. Mills’ testimony, Mr. Granger G. Sutton,

chairman of the legislative committee of the employees of the Government Printing Office, and Mr. Paul Scharrenberg, national legislative

representative of the American Federation of Labor, appeared to express the views of their organizations. Their testimony was to the

effect that they had been authorized and directed to appear before the

committee to support the protests of the printing trades against the

proposed change, as their respective organizations were of the opinion

that if circumstances required a change in technical appliances and

method of production it could well be made within the Government

Printing Office proper.

Upon the conclusion of Mr. Scharrenberg’s testimony the committee

adjourned until Wednesday, April 20, 1938, at which time the committee met at 10:30 a. m., with the chairman, Hon. J. Walter Lambeth,

presiding. The chairman called the committee to order and stated

that it would be glad to hear the Public Printer with whatever state- ment he cared to offer. I was glad to have an opportunity to present the facts in this case

as they appeared to the Government Printing Office and to thank the

Commissioner of Patents for the attitude he had taken in the matter

and for his statement that he was then receiving more cooperation

and better work from the Government Printing Office than the Patent

Office had ever received. I was glad also to thank the Chief Clerk of the Patent Office, Mr. Brearley, for bringing out during the hearings

the point that the Government Printing Office has never been late in a delivery. This attitude on the part of the Patent Office was appreciated and made my task more pleasant than it otherwise would have

been. I trust that it is only the forerunner of a closer spirit of cooperation and helpfulness between our two offices, and that the mud-slinging, charges, and countercharges which were the practice before my

administration, as indicated by the correspondence files, are a thing of

the past.

With reference to the quotation from the report on the Commerce

appropriation bill to the effect that it hoped the Joint Committee on

32
Printing would give consideration to the whole problem of new printing methods in order that economies running into the hundreds of thousands of dollars could be effected, I am glad to report that the

Government Printing Office was at that time making every possible

effort to determine the cheapest and best way to produce every job

submitted to it. I was at that time and still am chairman of the re- search commission of the commercial printing industry. We are engaged in experiments in all fields relating to printing, with funds

provided by the industry itself. The commission has employed and

placed in the Government Printing Office a research associate and an

assistant without cost to the Government, who will work with our

experts in developing new and better ways of handling the work, with

the idea that the Government will have unquestioned rights in any

procedures developed. The industry will likewise benefit by new

developments which may prove satisfactory. I doubt that any more

can be done to develop, test, or try out new printing methods than

the Government Printing Office is now doing or planning to do. I

will not enumerate the improvements we have made or are making,

as most of them have been pointed out in my annual reports or in

hearings before the various committees.

The company representative paid me a very high tribute in pointing

out the fact that I was a practical printer with long experience and one

in whom confidence could be placed. Realizing my responsibility to the Government and to the employees of the Government Printing

Office, I wanted to make certain that facts which should have been

brought to the attention of the committee were not overlooked. I could not understand why any firm would seek this contract for the

price stated if it knew the type of work involved and the conditions

under which the work had to be performed, or how a company with

a paid-in capital of only $107,000 could finance a proposition of this

kind which would have required the employment of over 200 more

people, the rental of ten times as much space as it then occupied

with space at a premium in the District of Columbia—increase its equipment 3,400 percent, and carry all this additional pay roll and

rental expense through the training period necessary to develop its employees to the point where they were able to take over the work.

As a practical printer I would have thought that I was headed toward

bankruptcy were those conditions facing my organization.

In this connection my concern was not so much for the company as

it w

T as for the Government, as I could clearly visualize the loss to the

Government, the inconvenience, and the general confusion that would

result from a failure of the company and the reestablishment of the

33
work in the Government Printing Office after the Patent Section had

been closed out. Aside from the financing angle, and again as a printer, I was most

anxious to hear a description of how the work was to be handled, but no mention as to how the work was to be done was made other than a

general statement that it could be produced on the typewriter. I pointed out to the committee that if the company was able to reproduce technical patent specifications involving mathematical equations,

chemical formulae, etc., why were not samples of that work produced

for inspection by the committee. There had been general statements

to the effect that employees could be trained in two weeks to handle

easily this involved copy, but no samples of involved copy were produced. As a matter of fact, it was seriously doubted that the com- pany was familiar with what it was proposing to do; its ability to produce the type of technical matter involved within anything like

the time limits allowed by the estimates submitted was also doubted.

With these doubts in mind the approval of a contract could not be

recommeuded without more evidence as to the financial condition of

the bidding concern, its ability to produce the type of work in question

in the volume and in the time allowed for its production, and more

specific evidence as to the method of producing the work.

Commissioner Coe pointed out that the Patent Office would not be

interested in the proposed plan if it would not save at least $100,000.

This was a logical stand for the Commissioner to take, and I heartily

agreed with him that consideration should be given to any plan that

would effect such a substantial saving. Assuming that the proposed

plan would have saved $100,000 in the annual cost to the Patent

Office, it was my duty to look at the proposal from a broader viewpoint—from that of the Government as a whole. Certainly no plan

proposing a saving in one department which is counterbalanced by

equal increases in other departments is worthy of consideration. By

analyzing the facts we found that the total cost to the Government of

the Patent Office printing has averaged $890,000 per year for the last 3 years. This amount was spent with the Government Printing

Office. If the work had been taken out of the Government Printing

Office it would have naturally meant $890,000 less sales by the Office. Any Government Printing Office sales figure represents average actual

cost; that is, the figure is a sum of the materials and labor used on an

average basis to produce the specific units involved in the job in

question. If $890,000 in sales had been taken away from the Office,

it would have been necessary to reduce our total expenses an exactly

34
similar amount; otherwise the Government expense for printing

would have increased.

I would have been compelled to release from the rolls all employees

engaged directly on the production of patent work either in a mechanical, clerical, or supervisory position and would have ceased to purchase all materials necessary for use in the patent work. This total reduction would have amounted to $730,000 and would have left a balance of $160,000 which represented indirect charges that could not

have been allocated directly to any specific phase of Patent Office

work—it was overhead and other indirect expenses.

In a plant the size of the Government Printing Office, or in any

large manufacturing plant, administrative or overhead expenses do not

increase or decrease in direct relation to direct expenses. This is not

peculiar to the Government Printing Office, but is a cardinal rule in business administration. However, through the extreme need for action it might have been possible to reduce this $160,000 by reassigning administrative duties, reducing the administrative force, or, in

short, a complete retrenchment of the existing organization. The

most that could have been hoped for in this connection after releasing

the patent work would have been a reduction of $70,000 in the indirect

expenses now carried by the patent work.

This left $90,000 in fixed expenses which could not have been written

off. The Government Printing Office would, therefore, have been

compelled to raise its prices to other departments in order to recover

the additional $90,000. It follows that if the Patent Office had

saved $100,000, the other departments of the Government would have

incurred an additional $90,000 increase in the cost of their printing

and binding.

Had the patent work been transferred to a commercial concern, the

sale of the Gazette, now handled by the Superintendent of Documents,

would have reverted to the Patent Office, as the Superintendent of Documents is not authorized under the present law to sell publications

other than those printed in the Government Printing Office. The sale of the Official Gazette was transferred from the Patent Office to the

Government Printing Office as a result of an agreement brought about

by the Patent Office. The purpose of the agreement was to relieve

the latter of the expense of handling the sales and to permit the sale of the Gazette at cost, plus 50 percent, rather than at the heavy loss resulting from the sales made under the restrictions placed upon the

Patent Office. This has prevented a loss to the Government of from

$11 to $13.75 on each subscription to the weekly Patent Office Gazette

and has added over $40,000 a year to the receipts from sales. A

35
return to the old plan, which would be necessary under the present

laws, would have thus reduced receipts from sales approximately

$40,000.

The company stated that it did not wish to work an undue hardship

upon our employees and that it did not want to compel us to reduce

our force any more than was actually necessary. As evidence of this

they stated that they were willing to permit us to continue to produce

the Gazette. I supposed that they were including in this the extra

copies of the Weekly Index, which is also another phase of patent work.

This was another clear indication that the company had not been

advised as to the work involved ; otherwise, I am certain, they would

not have made such a proposition to the committee.

I outlined in detail to the committee the technicalities involved

in producing the specifications, the Gazette, and the Annual Indexes

of Patents and Trade-marks, and how the production of one was

dependent upon the production of the other for economical results, and

supplied figures from the records of the Government Printing Office

covering past performances, showing that the production of the Gazette

in the Government Printing Office as a separate item would have

added $68,913 to its cost. From the above it will be seen that the adoption of the proposal

would have, instead of resulting in a saving as alleged by its proponents, placed an additional burden upon the Government; but before

concluding, I pointed out the additional burden that would have been

placed upon a small private concern by the uncertainty of the volume

of work to be handled in a given time. This would necessitate carrying a sufficient number of employees to handle the peak load, with

the resultant lost time when the work was slack, or a tremendous

turn-over of the hiring and firing of employees, with the added expense

of training new employees. This is a matter in itself that would make

a practical printer reluctant to undertake a job of this kind. Fluctuations in work can be handled in an organization of the size of the

Government Printing Office, as it must of necessity have a flexible force in order to meet the demands for service placed upon it. It handles this situation by transferring the employees from units in

which the work is slack to units in which the demands are heavy, or by granting annual leave to employees during a slack period.

Another point that I emphasized was that brought out briefly

during the testimony by Mr. Mills relating to unusual temporary

demands upon the Government Printing Office. In this connection

I pointed out that the Government Printing Office did not have to expand its force, plant, or equipment to meet temporary and unusual

36
requests, as such work, under the law, could be released by the Public

Printer to commercial concerns; and the Public Printer, under this

authority, releases all wx>rk "which, in his opinion, cannot be economically or suitably handled by the Government Printing Office. If in

his opinion, and under this authority, the patent work could be more

economically and efficiently handled by a private contractor, the

Public Printer could, after competitive bidding, award the contract

to the successful responsible bidder.

Upon the conclusion of my testimony the company representative

asked for and received permission to study the same and to file a

brief in reply thereto. This brief was filed under date of May 2, 1938, and was referred to me for consideration and reply. The brief was so full of vituperation and showed such a complete lack of understanding of the problems involved that it required very little comment.

There was one point, however, in the brief that might have been misleading to anyone not familiar with printing. This was the section

which dealt with the estimates I had made as to the increased costs that would have been involved in producing the Gazette as a separate

item, and it is the only point covered in my reply to the Joint Committee on Printing, which was as follows:

I have given careful consideration to the brief filed by Mr. , counsel

for the Co., under date of May 2, 1938, and find in the brief nothing

that would cause me to desire to make any change whatsoever in the statement made to your committee on April 20. The facts presented at that time have

been carefully checked and rechecked and found to be correct. While I do not desire to dignify Mr. brief by denying any of the misleading allegations contained therein, I would like to refer briefly to that portion

which deals with my estimate of the increase in cost that would result from a

return to the old system. On May 3, 1933, the Joint Committee on Printing

recommended to the Secretary of Commerce that

“the Printing Office use a size of type (possibly Record type) which will meet

the needs of both the text of the specifications and the Official Gazette so that only the removal of the leads from the specifications would be necessary in order

to print the Gazette.” The Secretary of Commerce designated a special committee to consider the recommendation, and after a thorough consideration the special committee

reported under date of May 20, 1933, as follows: “The committee gives enthusiastic approval to the suggestion that a face of type

be adopted for specifications that can be further used in printing the Official Gazette on a pick-up basis. It is believed that by the adoption of this suggestion

a saving of approximately $100,000 a year will be accomplished, and it is believed that much credit is due the chairman of the Joint Committee on Printing for this

fruitful suggestion.”

It will thus be seen that the present system used in printing the Gazette was

installed as the result of a recommendation made by the Joint Committee on 37
Printing, which was approved by the Secretary of Commerce with the idea that

it would save approximately $100,000 a year. That the estimate as to the saving was conservative may be established by referring to the Public Printer’s annual

reports for the fiscal years 1933 and 1934 and by comparing the figures shown

therein as applicable to the Official Gazette (pp. 109 and 27, respectively). Such

a comparison reveals a saving of $5.34 per page. This fact would have justified an even higher estimate of the cost of returning to a system that would necessitate the abolishing of the Patent Section and the handling of the Gazette as an entirely

separate and distinct proposition, including the resetting of all the type carried

therein. But I felt that economies effected and new methods recently adopted

throughout the plant would enable me to handle the Gazette for the figure quoted.

The other allegations in the brief are completely ignored, as I feel that their character is apparent and that further comments are unnecessary unless you

desire the same. Attempts such as the one outlined herein to undermine the Government Printing Office and to throw Government work into commercial

fields, regardless of the consequences, are doing more than any other one thing to lower the morale of the employees and are making it more

difficult for us to carry out the plans we have in mind for more eco- nomical and efficient production, as such plans call for the wholehearted cooperation of our employees, and such cooperation cannot

be expected when the employees are faced daily with the thought that

the work upon which they are engaged is going to be taken away from

them and that they will lose their jobs. I believe that it would be

to the better interests of the Government as a whole definitely to reestablish the policy that all Government printing should be done

in the Government Printing Office, under its supervision, or procured

through it, holding the head of that organization responsible for the

satisfactory operation of the Government plant and the production

and procurement of Government printing.

OUTSTANDING JOBS

The efficient and important part the Government Printing Office

took in the National Unemployment Census speaks well for the high

degree of cooperation between its divisions and the fine spirit of application to jobs in hand by individual employees—their interest,

skill, and cooperative spirit. It once more demonstrates the ability

of this Office to meet large and urgent demands even ahead of department expectation and without disrupting the orderly production on other current jobs flowing through the Office. On September 27,

1937, the Government Printing Office received copy for one of the

largest single printing orders ever attempted for the Government

the Unemployment Registration Card.

38
The jacket originally called for 60 million copies, 8 by 9 inches, to be printed and delivered by October 31. Later this number was

increased to 85 million. By 11 a. m. the same day the copy was

received, the type bad been set, read and corrected, and proof submitted to the department. Due to the many changes made on the

returned proof it was necessary to reset the job and to submit to the

department another proof. An approved departmental proof was

returned to this Office Friday afternoon, October 1. The form was

corrected, revised, locked up, and sent to the Foundry by 5:30 p. m.

Tenaplate patterns were molded and put together two-up. The

regular night force finished the patterns and proceeded with the

molding of the plates. Knowing the number of impressions wanted

and the character of the stock, instructions were issued to give the

plates a good shell of both copper and nickel. This, of course, required extra time in the depositing tanks. The Molding and

Finishing Sections by working 8 hours, Saturday, October 2, had the

entire job (16 press loads of 80 faces and 80 backs, 2-up on each) in

the Job Composing Boom by 4:30 that same afternoon. The reserve

plates were finished Monday morning before 11 o’clock. In the meantime a practical and satisfactory fold—one that might

facilitate bindery operations—was made up and submitted to the

department for approval.

All materials necessary for the lock-up for press were arranged and

all books located in position before the plates were received from the

Foundry. The Job Composing Boom completed the imposition of the

320 plates in 2% hours. The Pressroom started this job about 10:30

a. m., October 4, and averaged better than 4 million cards a day for 21 days (size of sheet, 32 % by 45 inches, 20-up, face and back, cream

post card bristol), completing the 85 million on November 1. The

size and weight of this stock did not retard the production to any

noticeable degree. The press average for this run was 1,500 per hour.

This includes oiling and all stops. It is also interesting to note that

just one set of nickel-face electros was necessary for each press run of 525,000 impressions.

The Pamphlet Section of the Bindery started folding, cutting,

banding, and packing in the late afternoon of October 4, and completed

the 85 million on November 3. The production of this order was

performed in record time, namely, 168 hours day and 168 hours night, or a total of 336 hours in the Bindery.

In addition to cutting and folding 85 million cards, the Bindery

had to staple 42,500 carton containers in which they were packed for delivery. Two thousand copies were contained in each carton; 850

39
pounds of No. 33 rubber bands were necessary to bind them in bunches

of 100; 467,500 feet of 3-inch gummed paper tape were used for sealing cartons; and 325 pounds of wire were required. In all, 42,500 packed

cartons, weighing 42 pounds each, totaled 892% tons. The Superintendent of Stores reported receiving approximately 51

cars of stock, amounting to 4,307,825 sheets, weighing 1,841,940

pounds.

Due to the fact that this paper was delivered on skids there was no

delay due to presses waiting for stock, as power trucks could deliver a carload to the pressroom in 20 minutes when necessary.

The Documents Section used 42,000 mail sacks in mailing this job,

and in addition they prepared all the mailing franks and sack

tags. The first delivery was made as of October 5 and the last on November 3. Upon the completion of the job the following letter was received

from Mr. John D. Diggers, Administrator, Census of Partial Employment, Unemployment and Occupations, Department of Commerce:

The important part taken by the United States Government Printing Office in connection with the National Unemployment Census speaks for itself. The

printing and shipping on schedule of 85,000,000 unemployment report cards captures the imagination.

Many other pieces of work which your organization undertook for us in conjunction with and following that tremendous job, such as printing and mailing postoffice instructions, informational pamphlets, foreign language posters, and the enumerative schedules were handled promptly and effectively by your personnel

in spite of the great pressure. My Assistant Administrator, Mr. Frederick F. Robinson, who had personal contact with Mr. Mitchell, Superintendent of your Planning Division, and his night

assistant, Mr. Robinson; Mr. Tisdel, Superintendent of Documents; and Mr.

Benner, Superintendent of the Shipping Department; tells me that these men and

the people working under their direction were an inspiration to work with. Without their fine spirit of cooperation our task would have been infinitely more

difficult. My responsibilities while in Washington have prevented me from meeting per- sonally many of the officials of the departments who have carried on so valiantly

for us. This misfortune is one which I regret deeply even though it was unavoidable. I wish you and your able assistants to know in what high regard the things

which you have done for us are held and to thank you all for the great help which

you have given me. Another job that reflects credit upon the employees of the Office

is their unusual printing accomplishment in connection with the President’s referenda of cotton and tobacco growers. The act was signed

by the President February 16; the date of the vote was set for March

12. In order to hold these referenda it was necessary not only to print all forms needed in connection therewith but also to deliver these

40
forms by the date set to many comities in the several States involved, some as far distant as California and Texas. There were 28 different

jobs—ballots, instructions, informative material, etc., aggregating over

4,560,000 copies. The first copy reached the Office February 18. By March 4 the bulk of the material was in the mail. The small

remainder was on its way by March 8. Upon the completion of this Mr. H. R. Tolley, Administrator,

Agricultural Adjustment Administration, United States Department

of Agriculture, addressed the following letter to the Public Printer:

Once again I take pleasure in expressing to you and your associates my thanks

and appreciation for completing what we consider a very unusual accomplishment.

The problem in brief was as follows: In order to carry out certain provisions of the Farm Act, signed by the President on February 16, it became necessary to hold referenda among the cotton and

tobacco growers of the country as quickly as possible. The date for the vote was

set for March 12. In order to hold these referenda on that date it was essential that a considerable amount of printing be not only procured from the Government Printing Office but also delivered in counties in States as far distant as Texas and California considerably before that date. There were 28 different print jobs—ballots, in- structions, informative material, and other supporting forms, the total amounting

to several million pieces. The first copy reached the Government Printing Office on Friday, February 18, the remainder following rapidly. By Friday, March 4, the great bulk of this material was in the mail and the small remainder was on its way by March 8. We realize that this extremely commendable piece of work could be accomplished

only by the most efficient type of cooperation on the part of a large number of your departments and associates and we hope that some word of our appreciation

may reach them.

The Federal Register is a daily publication that usually averages

not in excess of 16 pages and is produced in the same manner and on

the same equipment as the Congressional Record. As an illustration of the fluctuation of the work in the Government Printing Office

and the spirit of cooperation that must exist among its employees

in order to meet unusual and unexpected demands, I wT>uld like to point out that the Federal Register for December 3, 1937, required

composition work on 695 Office folios, making a 100-page Register.

The entire task was completed between the afternoon of December 1 and midnight of December 2 without interfering in any way with the

schedule of production of a 101-page Congressional Record for December 1 and a 126-page Congressional Record for December 2 and other

rush current work. The job was rendered more difficult by the fact

that it was 53 percent tabular matter, requiring the setting of 500,000 ems of tables. 41
\ On November 26 the first of the schedules for the Census of Manufactures, 1937, and the Electrical Industries for the same year was

received in this Office. These schedules numbered 153 in all, each

averaging about six 8 by 10 % pages, or approximately 950 pages.

The mere size of the above order was in itself enough to render it impressive, but upon learning that complete delivery was required by

the 1st of January the proportions of the job loomed even greater.

It was readily apparent that here was a piece of printing that was

going to test the facilities of the Office if it were to be carried through

without interfering with the regular run of work. It was one which was to tax its ingenuity, its planning ability, and its organization. It was recognized as a challenge to each individual. The answer to that

challenge and the spirit in which it was accepted may be found in the

record of the handling of the job. I point to these achievements in a

spirit of pride, as I feel fortunate in being placed at the head of an

organization made up of so many loyal and capable workers. No

one is more conscious than myself that such results may be accomplished only by wholehearted interest, cooperation, and unity of

purpose. That the Bureau of the Census realized the burden this

order placed upon the Office and was satisfied with the manner in

which it was handled is indicated by its letter of January 14, 1938,

addressed to the Public Printer by Mr. W. L. Austin, Director, Bureau

of the Census, Department of Commerce, as follows:

The Bureau of the Census is very appreciative of the work done by the Govern- ment Printing Office in the printing of the schedules for the Census of Manufactures, 1937, and the electrical industries for the same year. In the manufactures group, there were 145 schedules, 143 special or industry, a general schedule, and an administrative schedule, which made a total of 958

pages, for which 1,416,500 copies were ordered. This work was done by the

Printing Office in 37 working days.

There were 8 schedules in the electrical industries group covering 38 pages, with 329,000 copies ordered, for which an earlier delivery was asked and received.

I am informed by Mr. Zepp, Chief of the Printing Division, that credit is due Mr. W. A. Mitchell, Superintendent of the Planning Division; Maj. L. C. Vogt,

Assistant Superintendent of that Division; Mr. Halluin and Mr. Giffin, of the Job Section; and the many employees who had a part in this work. We have never had more excellent printing done nor received more expeditious

delivery, and I desire to express the sincere thanks of the officials of the Bureau who are vitally interested in this work, as well as myself.

SERVICE TO DEPARTMENTS

As a further evidence of the type of service rendered by the Government Printing Office to the departments in its efforts to assist them in

42
carrying out the functions imposed upon them by law, many letters have been received thanking the Office for its assistance and cooperation. Brief reference will be made to a few of these. Many Congressmen have expressed their appreciation for the service

rendered to their offices in connection not only with the Congressional

Record but also with other types of congressional printing. The

following letter from Hon. A. Willis Robertson is an example:

I will never cease to marvel at the efficiency of a printing office that can take the proceedings of the Congress, covering some 250 printed pages, at midnight and

have the published volume on our desks by 8:30 the next morning, letter perfect

in every detail. So, my hat is off to you and your fine staff, and in leaving the city for what I think is a well-earned rest, may I express the hope that you likewise will find an

opportunity for a period of rest and refreshment before you again start grinding out the daily volumes of the Congressional Record.

I have referred in previous reports to the appointment of a Director

of Typography and the reorganization of the Layout Section of the

Planning Division for the purpose of modernizing and improving the

appearance of Government publications with the intent to create a

greater demand therefor by the public. The following letters are

typical of the large number received commending the Office upon the

greatly improved appearance of many of its publications.

From Mr. E. B. Reid, Director, Information and Extension, Farm

Credit Administration, under date of July 26, 1937:

We have recently received copies of our publication entitled “ABC’s of Credit

for the Farm Family.” We are highly pleased with the excellent quality of the

printing throughout. The especially high quality of the engravings adds consider- ably to its attractiveness and effectiveness.

It seems to me the past 2 or 3 years have shown a continual improvement in the quality of printing in Government publications. I am certain many Govern- ment departments appreciate the progress that has been made and I assure you

the Farm Credit Administration is particularly pleased because we feel that under

present-day conditions good printing is an extremely important aid in teaching farmers the proper use of credit and informing the public of the services offered by the Farm Credit Administration. From Mr. A. B. Cammerer, Director, National Park Service,

Department of the Interior, under date of March 28, 1938: As I have written you in the past, the Service greatly appreciates the wholehearted cooperation of the members of your Planning Division and the interest they have shown in making our park circulars of general information attractive. Concrete examples of the appreciation of the public also in this fine work are given

in the two attached letters recently received. I am sure you will be as pleased as

I was to read them.

43
The letters referred to by Mr. Cammerer are:Ohio University,

Athens, Ohio, March 11, 1938. The Director,

National Park Service, Washington, D. C. Attention: Miss Isabelle F. Story.

Dear Miss Story: One by one your packages containing circulars, leaflets, and studies have arrived. I am very grateful to you for having sent them, for they will be useful to us. The new edition of your circulars is remarkably beautiful in make-up. The

summary of outstanding features for each park is again excellent. You have my

complete admiration for such a superb piece of editing and of bookmaking art. Yours very sincerely,

(Signed) Henry J. Jeddeloh,

Associate Professor of Sociology.

The McCarty Co., 1206 Maple Avenue, Los Angeles, Calif., March 10, 1938. Mr. Arno B. Cammerer,

Director, National Park Service, United States Department of the Interior, Washington, D. C. Dear Mr. Cammerer: May I offer my congratulations on the excellence of the

booklet you have just prepared on Death Valley National Monument.

This booklet, unlike many Government works, is elegantly developed, has

excellent typography, and the photographs are of the finest, particularty the cover. In fact, the cover is of such exceptional quality that I am curious to know what

photographer took it, as I should like to purchase a print. Can you enlighten me?

Very truly yours,

(Signed) T. T. McCarty,

President, The McCarty Company.

One of the first considerations in the Government Printing Office

is, of course, service. That this is appreciated by the departments

and is essential to their proper functioning is a source of satisfaction

to the Office and is often brought to its attention by letters along

the line of that received under date of August 3, 1937, from Mr.

F. G. Tryon in charge of the Market Statistics Unit of the National

Bituminous Coal Commission:

I should like to express my very real thanks for the help given by the Govern- ment Printing Office in tiding this unit over an emergency by printing, overnight, a supply of statistical forms which were urgently needed. The forms had been

approved by the Commission 10 days ago, but I found on inquiring into the matter

that the requisition had been delayed in transit.

I called at the office of Mr. Teague, the Night Planning Manager, at 6 o’clock Friday night and told him that the forms had to be in the mails the following day.

44
He immediately took the problem in hand, and put me in touch successively

with Mr. Scully of the Night Job Room and Mr. Huse, the Night Production

Manager. Thanks to these gentlemen and their assistants, the forms were ready

on the loading platform at 8 o’clock the following morning.

The organization of the work of any new agency doubtless places exceptional

demands upon your Office, and it is reassuring to know that they can be so promptly

and courteously met. Many letters similar to the above were received from the departments during the fiscal year. The following represent merely a cross

section.

From Mr. L. A. Moyer, Chief Examiner, Civil Service Commission,

under date of September 2, 1937:

The Commission wishes to express its appreciation of the cooperation received from the Government Printing Office in recent months. Certain of our scientific and technical examinations which have required special attention, have been

handled with most satisfactory speed and accuracy. The Commission wishes

to record officially its appreciation of this service. From Mr. A. W. Hall, Director, Bureau of Engraving and Printing,

under date of September 13, 1937:

Through the splendid cooperation received from you and the members of your

staff in producing electrotype plates, this Bureau was enabled to complete, at the

close of work September 10, the order for the September 15 Treasury notes which was received on September 6. I want to take this opportunity to express my thanks and appreciation to you and your staff for meeting the demands of this Bureau expeditiously, not only in this instance but in the many similar cases in the past. From Mr. B. R. Sherwood, Chief, Division of Publications and

Supplies, Department of Labor, under date of June 4, 1938:

The Commissioner of the Bureau of Labor Statistics, Dr. Lubin, has requested

this office to express to you and the personnel employed his appreciation of the

splendid services which the Government Printing Office has rendered in con- nection with the publication of Serial R. 752. In view of the fact that this reprint was required for distribution May 21, 1938,

and considering the number of corrections which were not made until Wednesday

noon, May 18, 1938, the reprint was delivered on time. The rapidity with which the work was accomplished and delivered to this Department is sincerely appreciated.

From G. T. Helvering, Commissioner, Internal Revenue, under

date of March 21, 1938:

The Bureau of Internal Revenue wishes to express its appreciation for the

splendid cooperation extended by the Government Printing Office in printing tax- return forms for the filing period which ended on March 15, 1938. The personnel of the Internal Revenue Service operates under tremendous

strain from the time return forms are released for public distribution until the

final date of the filing period, and the performance of its duties therefore necessi- 45
tates the utmost cooperation from all concerned. The Government Printing

Office supplied the Bureau’s orders for forms with such dispatch that sufficient material was on hand at all times to meet the demands of taxpayers for tax-filing purposes and to insure the expeditious collection of the revenue. From Mr. J. P. Davis, Executive Secretary, Prison Industries

Reorganization Administration, under date of March 25, 1938:

I should like to express to you our appreciation for the prompt and capable manner in which the Government Printing Office handled our recent report on “The Prison Problem in the District of Columbia” (Jacket No. 44482). Mr.

Mitchell, members of the Planning Division, and the staff members responsible

for composition and color work all put forth great effort to give us a satisfactory

job, in a limited time, and as a result we feel that the report is one in which from

the printing standpoint both you and we may take pride.

From Mr. R. B. Williams, Acting Commissioner, Bureau of Reclamation, Department of the Interior, under date of April 16, 1938:

We have just received the first shipment of our new book, Dams and Control Works. I want to express to you and through you to Mr. Mortimer and the members of his staff our gratitude for the assistance in the preparation of this publication, which we consider the finest we have issued. From the Honorable Claude A. Swanson, Secretary of the Navy,

under date of September 25, 1937:

The Government Printing Office was recently engaged, with the Navy Department, in the preparation of the new General Signal Book, a task of considerable magnitude and one demanding care and attention beyond the ordinary.

Throughout the preparation of the book the courteous efficiency and cooperation

of the Government Printing Office as a whole were manifest. Naval personnel

had contact with certain individuals, including Mr. J. A. Dodge, Mr. W. E. Byram, Mr. R. E. Banks, Mr. R. H. Lecraw, and Mr. J. H. McWhorter, wdiose

services and advice wr ere particularly valuable. Although it is not desired that such action detract from the commendation due every person who had a part in the work, it is hoped that the gentlemen named will be given especial notice of the Navy Department’s appreciation.

You will probably be gratified to know that reports from the forces afloat indicate entire satisfaction with the new book, especially as regards its appearance and physical make-up.

From Mr. Stewart McDonald, Administrator, Federal Housing

Administration, under date of November 11, 1937:

I want to express my appreciation for the very cooperative and efficient way

in which your Department has helped us in getting out our new booklet, Rental

Housing as Investment.

It is never pleasant to work in a rush and we hesitated about asking that your men be put under an unusual strain. However, I feel that you will be glad to know they worked willingly and quickly and have turned out a beautiful job

for us.

46
From Mr. E. F. Bartelt, Commissioner of Accounts and Deposits,

Treasury Department, under date of January 26, 1938: As you know, each year it is necessary for the President to transmit to the Congress before the tenth day of January, a report showing the status of funds

appropriated by the Congress in the Emergency Relief Appropriation Acts. Last year the Government Printing Office handled the reproduction of the

President’s report and again this year we called upon your organization to take

care of the work. As you can well realize, the compilation of an exhaustive

financial report of this character based upon figures reflected on our state office books as of December 31 requires considerable work, leaving little time for printing or reproducing. This year we were able to furnish a small part of the copy

to your office on January 4, while on January 5 and 6 the major portion was

delivered to you. On the morning of January 8, a limited quantity of bound

copies were available. This performance is outstanding and we are very appreciative for the speed

and attention given to the work by Mr. Mitchell, Mr. Connors, and others in the Government Printing Office for their wholehearted cooperation, and for the high quality of the finished product.

I have referred elsewhere in this report to the adoption of a new cost system and the changing in the scale of prices made as a result thereof. The departments were advised of this change by my letter of October

15, 1937. The following letters are typical of the responses received.

From the Honorable Cordell Hull, Secretary of State, under date

of October 27, 1937:

Reference is made to your letter dated October 15, 1937, in which you state

that, after a thorough survey of costs and methods of production at the Govern- ment Printing Office, you are putting into effect as of October 15, 1937, a new scale

of prices designed along commercial lines and in accordance with well-established commercial practice.

With respect to your statement that the change in prices will result in some cases

in higher charges and in others in lower charges, I agree that, as the change in question will mean “charging each particular department for the type and class of work it orders,” it is the best policy to follow. I note your comment to the

effect that under the new scale the charges for “changes made after the jobs are in type (author’s alterations)” will be higher than heretofore. I assure you that the Department will make every effort to reduce the extent and number of “author’s alterations” and also to cooperate with you in effecting economies on

other types of work which tend to increase printing costs, such as requisitions for unusual sizes that involve much waste in trimming, requests for a better grade

of stock than is required by the nature of the job, requests for rush work, et cetera. Permit me to congratulate you on the steps you have taken to place the Government Printing Office on a more businesslike basis. The Department’s rela- tions with your office have been very cordial, and it is a pleasure to cooperate with

you on the solution of our mutual problems.

From Mr. Wm. H. McReynoids, Administrative Assistant to the

Secretary, Treasury Department, under date of October 23, 1937:

47
Receipt is acknowledged of your letter of October 15 regarding the installation

of the new cost-accounting system for printing and binding in the Government

Printing Office, and your explanation of the effect it may have upon the Department’s printing appropriation if proper consideration is not given in requisitioning

its printing needs. In this connection, you are informed that it is the policy of the Treasury De- partment to maintain a close supervision over its printing expenditures, care being

given especially that quality of paper, sizes of forms, and number of copies ordered

to meet its indispensable needs with the lowest possible expenditure of funds. It

is pleasing to note, therefore, that your adoption of a new system of computing

costs will result in advantage to the Department, as approximately 80 percent

of its printing consists of forms which are ordered in quantities sufficiently large

to carry the lower rates which you indicate will prevail hereafter. The Treasury tenders its appreciation to you and your staff for the splendid

cooperation given in the past and accepts your proffer of a continuance thereof. CREATION OF THE OFFICE OF ADMINISTRATIVE

ASSISTANT TO THE PUBLIC PRINTER

On June 1, 1938, there was established in the Government Printing

Office the office of Administrative Assistant to the Public Printer.

This was established by order dated May 27, reading as follows:

There is hereby created in the Government Printing Office, effective as of June 1, 1938, the office of Administrative Assistant to the Public Printer. The official appointed to this office shall be known as the Administrative Assistant to the

Public Printer and shall be responsible to the Public Printer for the proper handling

of the administrative functions of the Office. In addition to the functions herein outlined the Administrative Assistant will perform such additional duties as may

be assigned to him by the Public Printer. The Chief Clerk, the Director of Purchases, the Comptroller, the Mechanical Superintendent, the Superintendent

of Documents, the Technical Director, the Medical and Sanitary Director, the Disbursing Clerk, and such other officers as may be designated from time to time

shall be under the general supervision of the Administrative Assistant. These

officials shall report to the Public Printer through the Administrative Assistant. For accounting and pay-roll purposes the Administrative Assistant and such

other employees as may be attached to his office will be carried as a part of the

Office of the Public Printer. In the absence of the Administrative Assistant his duties will be performed

by the Comptroller as Acting Administrative Assistant. In advising the officials of the Government Printing Office as to the reasons necessitating the creation of the new office and the duties

of the Administrative Assistant and the manner in which his office would function, I outlined among other things that

The future and efficiency of the Government Printing Office depended in a large measure upon the manner in which it met many of the problems it was then facing. These problems had, for the last 2 or 3 years, been growing in number and in seriousness and impor48
tance and had been taking more and more of my personal attention.

As the time necessarily devoted to these larger problems increased,

the time remaining for conferences with the various executives on

problems not so important or serious naturally decreased.

I had realized for some time the unsatisfactory conditions arising as a result of the fact that I could not find time to discuss with the

executives many of the problems that faced them. When I stated

above that my time was so taken up with major problems that I did

not have time to discuss less important questions with the executives,

I did not mean that the questions they had to bring to me were not

important. I realized that they were and that the executives’ problems had to be taken care of promptly, but it was impossible for me

to get to them. Then again each executive thought that the problem

he had to bring to me was more important than the problems of any

of the other executives, and as I couldn’t possibly hear them all, I was always afraid that I was leaving undone something of vital

importance. This was most unsatisfactory to me, and I realized

that it was most unsatisfactory to the executives who wanted to discuss their problems with someone in authority.

So in order to relieve this situation, I therefore divided the management of the Office into two groups: namely, the administrative group

and the productive group ; and I created a new position : namely, that

of Administrative Assistant to the Public Printer. The Administrative Assistant was given charge of the business management of the

Office, and the heads of all administrative divisions and groups were

directed to report to him. Under this arrangement two executives,

in addition to the Assistant to the Public Printer and the Liaison

Officer, report directly to the Public Printer: namely, the Deputy

Public Printer, who will be responsible for production, and the Administrative Assistant, who will be responsible for all other matters. The duties of these two executives in their respective fields are

readily apparent; however, in order that there would be no misunderstanding, I stated briefly that I wanted all action on personnel questions, such as the hiring, disciplining, promoting, demoting, and

dismissing of employees, to be handled under the direction of the

Administrative Assistant; as well as all questions involving purchase

work, legal work, accounting work, or any of the duties then falling

upon any of the units enumerated. On the other hand the Deputy

Public Printer is responsible to me for the proper solution of all manufacturing problems, and it is his duty to see that each operation is performed as economically as possible, that we have the right

equipment, that the equipment is properly used, that the producing

49
units are neither overmanned nor undermanned, and that from the

manufacturing standpoint the plant is running as smoothly as it is possible to have it run. It is his duty to work out all production

problems through the Production Manager, the superintendents, and

the foremen involved in each case and to submit to me for approval

or disapproval any changes which, in his opinion, are of sufficient

importance to necessitate the approval of the Public Printer. It is his duty to consider the problems and questions raised by the production supervisory force and brought to his attention through the proper

channels and to pass on to me those problems and questions which,

in his opinion, should be brought to my attention.

I felt that the change would, in addition to relieving the Public

Printer of much of the detail that should and must necessarily be

handled by other responsible executives, be of great benefit to the

Office in that the executives who now have ideas and suggestions as to improvements in procedures, etc., would be able to take them up

with either the Deputy Public Printer or the Administrative Assistant, as the case may be, who would in turn bring them to me for final action.

PERSONNEL

There was a decrease of 185 in the number of employees on the rolls of the Office at the close of June 30, 1938. The total number on this

date was 5,409, as compared with 5,594 on June 30, 1937.

During the year 91 employees of the Office were retired—54 on

account of age, 21 on account of disability, and 16 who took advantage

of the clause in section 1 of the Retirement Act, approved May 29,

1930, which permits of retirement at employee’s option for those who

are eligible for retirement at the age of 70 years, 65 years, or 62 years, as the case may be, after they have attained the age of 68, 63, or 60

years, respectively, providing they have had at least 30 years of service.

Of the 91 employees who retired during the past year, 71 were men

and 20 were women. The total retirements from August 20, 1920, to June 30, 1938, for age, disability, and optional, number 1,738.

The following summarized statement shows all changes in personnel

during the past fiscal year:

Appointments 350

Separations 535

Retirements 91 Deaths 36 On rolls June 30, 1938 5, 409 50
It may be interesting to note that during the past year there were

7,176 visitors conducted through the Office; of this number 94 were from foreign countries.

PURCHASING DIVISION

During the fiscal year ended June 30, 1938, the Purchasing Division

placed 8,040 orders, involving total expenditures for purchases of approximately $6,350,000, paper purchases alone amounting to $5,050,000. Open-market proposals for material and paper numbered

18,000 and for illustrations 401.

By closely watching the paper market and the trends therein and

by placing orders for standard stocks at the most opportune time as

indicated by such trends, an actual saving of $17,975.99 was effected

during the year. The Purchasing Division was able to secure by transfer from other

departments to this Office during the fiscal year 1938 surplus property

valued at $1,405.

Proposals for material were sent in April 1938 for the term of

1 year beginning July 1, 1938, and ending June 30, 1939, to approximately 625 prospective bidders, which resulted in the placing of 60

contracts. Proposals for paper were sent in October 1937 to approximately 150 firms for the 6-month term beginning January 1, 1938, and

in April 1938 for the 6-month term beginning July 1, 1938, which

resulted in the placing of 23 contracts for the first 6-month period and

20 contracts for the second 6-month period. Proposals for envelopes

for the year beginning July 1, 1938, were issued in April to approximately 50 prospective bidders, resulting in the placing of 7 contracts. As a result of the reorganization involved in the creation of the

office of the Administrative Assistant, the purchase procedure was

modified slightly by increasing the responsibilities formerly carried

by the Director of Purchases. These changes are outlined in the

following order:

Until further notice the Director of Purchases will finally approve for the

Public Printer

1. All purchase requests for stock items covered by contracts previously

approved.

2. All purchase requests for stock items that are to be bought in the open

market.

3. All purchase requests for emergency purchases of material, supplies, equipment, and parts for machines.

4. All purchase requests for paper, material, and supplies that are requisitioned

for a specific jacket and that are to be used in connection therewith and charged

directly thereto. 51
5. The awards on all purchases of stock items purchased in the open market,

and the awards in connection with all purchase requests approved by the Public

Printer or the Administrative Assistant to the Public Printer where such awards

are made to the low bidder.

6. The awards in those cases where the purchase does not exceed $100 and is to be made to other than the low bidder or to a tie bidder, as well as the low

bidder. In connection with the purchase request for stock items, the Director of Purchases is charged with the responsibility of determining that the item requested

has been previously approved by the Public Printer as a stock item, or that the Public Printer has ordered that the class of stock requested should be continuously

carried on hand. He is further charged with the responsibility of determining

that the proposed purchase of a stock item does not exceed the amount of the

particular item to be carried in stock or does not exceed the actual requirements

of the Office. In connection with purchase requests and awards to supply emergency needs, the Director of Purchases will hold these to the absolute minimum, and will call to the attention of the Administrative Assistant any emergency request for any

unusual item or any item that, in his opinion, the emergency request indicates a

lack of foresight or proper planning on the part of the official or officials making

the request. The Administrative Assistant will in turn call these unusual emer- gency requests to the attention of the Public Printer or the Deputy Public Printer, as the case might be. In order that the proper officials may be advised as to the orders and the amounts thereof being placed under this procedure, the Director of Purchases will route the Daily List of Orders Placed through the office of the Administrative

Assistant to the Comptroller.

New Equipment

New equipment purchased during the past fiscal year for the various

divisions was as follows:

Composing Division. —Twenty bases with hooks, etc.; 16 galley

cabinets; 4 make-up banks; 37 miscellaneous cabinets; 42,300 galleys;

12 Intertype slug-casting machines with quadding and centering

devices, electric melting pots, and extra matrices; one 5-point, one

6-point, ten 9-point, and four 12-point monotype composition molds; one 1-point and ODe 2-point Ludlow typograph molds; 12 motors for increasing speed of Intertype machines; 4 new-type 3,000-watt monotype casting pots; 5 Vandercook proof presses; 1,500 dozen pairs

quoins; 12 chase racks; 2 steel dumping tables; and 6 imposing tables. Platemaking Division. —Two stereotype casting boxes for Record

plates; 1 stripfilm roll camera with screens and lamps; 1 Form-O-Scorch

drying machine ; 1 vacuum printing frame ; 1 negative squaring device

;

1 jig saw and drilling machine; 1 ball-bearing trimmer; 1 automatic

whirler for drying plates up to 22 by 22 inches.

Presswork Division. —Ten ink agitators for Miehle presses; 1 Presto

drier for embossing; 2 suction pile feeders 41 %. by 55% inches and two

52
46 by 61% inches; 1 gluing machine; 2 nonoffset guns; 8 perforators

for Miehle presses; 2 one-color LSS Harris offset presses to print

sheets approximately 35 by 46 inches; 1 Hoe web press (with bander)

for printing postal cards; 1 box stitching machine.

Bindery Division. —One Special 2A Smyth automatic case-making

machine with universal picker and platform automatic feeder attachment; three 64-inch automatically spacing paper-cutting machines:

36 package-sealing machines; 2 model K Cleveland folding machines

with continuous feeders; 1 board shear; 1 continuous automatic-feed

book trimmer for books up to 6 inches thick. Stores Division. —One 2,000-pound electric lift truck; ten 4,000-

pound electric lift trucks; three 5,000-pound hand lift trucks.

Delivery Section. —Five 4-ton General Motors trucks; 2 half-ton

Chevrolet trucks, 1 half-ton Ford truck; 1 Ford sedan for Hospital use. Maintenance Division . —Two exhaust fans; 1 gas hot-water heater

and storage tank.

HEALTH AND WELFARE ACTIVITIES

Emergency Hospital

During the fiscal year 1938 the Emergency Hospital gave a total of 20,847 treatments to employees of the Office. Of this number 3,828 were for injuries received while on duty; 2,029 surgical treatments for other than injuries received while on duty, which enabled the employees to remain at work and perform efficient service with little or no loss of time; 9,872 treatments for medical conditions; and 5,218 re-treatments. In addition to the surgical and medical treatments rendered to employees of the Office by the Emergency Hospital staff, 374 physical

examinations were made of new employees on entering the service and

888 physical examinations were made in determining the employees’

physical fitness for certain occupations and in checking the relationship

between occupation and physical condition.

A visiting nurse was appointed on November 16, 1937, to investigate causes of sickness and to lend such assistance as possible to the ill employee. Since that date 1,665 visits have been made to employees

who had reported sick. During the fiscal year 31,498 days of sick

leave were granted.

There were 3,828 employees injured while on duty. This includes

all injuries, major and minor, with and without lost time. There

were 121 lost-time accidents, resulting in a loss of 1,033 working days.

53
Group Life Insurance Through the Government Printing Office Group Life Insurance

Association, organized May 1, 1931, there have been paid, up to April 30, 1938, 208 death and 7 disability claims, totaling $188,832.

At the close of the association’s fiscal year on April 30, 1938, there were in force 3,524 first units of insurance, amounting to $3,059,748;

1,841 second units, amounting to $1,599,678; and 364 third units,

amounting to $300,001, total insurance in force being $4,959,427.

On April 30, 1938, the reserve fund of the association consisted of

$57,000 in United States Treasury bonds and $2,000 invested in the

Government Printing Office Federal Credit Union. This fund was

established and will be used should the present premium rates (which

are adjusted annually) to the association be materially increased due

to the group attaining a high average age or having a high mortality

experience.

Insurance is provided at a cost of $1 per month per unit in amounts

from $250 to $1,000, depending upon an employee’s age. Group Hospitalization

Group hospitalization was introduced into the Government Printing

Office on May 1, 1935, at which time 515 employees joined the organization. At the close of the fiscal year 1938 there were 1,341 members

of this group.

For the nominal cost of 65 cents a month members are assured 21 days’

hospital care, including semiprivate accommodations, bed and board,

general nursing care, use of operating room, ordinary medications, and

routine laboratory examinations. If more than 21 days’ hospitalization is needed, the hospital allows a discount of 10 percent to members.

A number of leading hospitals in the city are affiliated with this

organization, and each member of the group may select the hospital to which he would prefer to be taken. All hospitals affiliated with group

hospitalization have been approved by the Medical Society of the

District of Columbia.

Participation is open to all employees of the Government Printing

Office under 65 years of age who have been in sound health for 30 days

preceding the date of application for membership.

Federal Credit Union

The Government Printing Office Federal Credit Union was granted

its charter on August 20, 1935, under authority of the act approved

June 26, 1934 (Public, No. 467, 73d Cong.). The purpose of the Fed54
eral Credit Union system is to establish a further market for securities

of the United States and to make more available to people of small means credit for provident purposes through a national system of cooperative credit, thereby helping to stabilize the credit structure of

the United States. At the end of the fiscal year 1938 the union had received, for shares,

fines, and entrance fees, a total of $103,399.44. Its outstanding loans

amounted to $104,772.65. Its total membership was 2,259. Ah

loans are payable either in monthly or semimonthly installments, the

interest charge under the Federal Credit Union Act being 1 percent per

month on unpaid balances.

Under the provisions of the Federal Credit Union Act, ah receipts

from entrance fees and fines must be transferred to a reserve fund for bad loans and 20 percent of ah earnings to a surplus fund. At the

present time the surplus fund amounts to $1,766.90 and the reserve for bad loans, $1,594.61.

The net earnings of the association since January 1, 1938, amount

to $3,160.03, which will be divided among the members in proportion

to the length of time and the amount of their deposit.

Government Printing Office American Legion Post, No. 33

The Government Printing Office American Legion Post has a membership of 410 and is one of the largest posts in the Department

of the District of Columbia. The Post has been quite active this past

year in Americanization, welfare, and rehabilitation work and has

taken part in many civic and patriotic affairs of the District.

United Veterans of American Wars, Government Printing Office Unit No. 1 The United Veterans of American Wars, Government Printing

Office Unit No. 1, was organized in 1922, and it is the oldest veteran

organization in the Government Printing Office, Its membership

numbers 375 and is composed of Spanish-American and World War

veterans. Unit No. l’s purpose is to aid and assist its members in

time of illness and distress. Unit No. 2, known as the Col. Charles

Young Unit, is the colored branch of this organization. During the

past year both units participated in many patriotic and social events. The Cafeteria and Recreation Association

The Cafeteria and Recreation Association of the Government Printing Office is an employee organization which operates the cafeteria,

bowling alleys, cigar stand, auditorium, and recreation rooms. Dur55
ing the fiscal year 1938 the cafeteria served 1,054,821 good, wholesome

meals to the employees of the Office that could not have been duplicated in either quality or price in the neighborhood.

The Cafeteria and Recreation Association during the past year

rendered assistance to the Government Printing Office baseball clubs,

to the orchestra, to the band, and to other employee organizations.

APPRENTICE SCHOOL

At the close of the fiscal year the Apprentice School had an enroll- ment of 93 boys and 4 girls. Of this number 62 are assigned to the

Composing Division, 15 to the Press Division, 14 to the Bindery, 4 to the Platemaking Division, and 2 to the Machine Section.

Reports from the various instructors, foremen, and group chiefs

indicate that the apprentices are doing very well in both their aca- demic and trade training courses. The average for the class for the

fiscal year 1938 was between 87 and 88 percent.

In October 1937 four new subjects were introduced in the academic

course: a history of printing, a study of the Government Printing

Office Style Manual, typography, and mechanical drawing. In their

shop training courses the apprentices are being given more advanced

assignments whenever possible and in many cases are performing

journeymen’s duties.

WAREHOUSE BUILDING NO. 4 In my annual report for the last fiscal year a brief reference was made to the new Government Printing Office warehouse, which was

then under construction. Bids for this building were opened at 1 p. m.

on August 31, 1936. The low bidder for the construction of the

building was the Charles H. Tompkins Co., and the low bidder on the

elevators for the building was the Montgomery Elevator Co., of Moline,

111. These bidders were notified to proceed with the work on October

28, 1936. Demolition was started on the site on October 12, 1936,

and the excavating work was started November 9, 1936.

The warehouse was completed and turned over to the Public

Printer on February 4, 1938. It is a three-story and basement building of reinforced concrete, 467 feet long by 87 feet 6 inches wide.

The load capacity of all floors is 500 pounds per square foot. There

is a total net floor area of 129,139 square feet, of which approximately 100,000 square feet are being used for storage purposes. The

cost of the building and the site was $1,394,770, the building costing

$1,210,403 and the site $184,367. Approximately 700 carloads of 56
paper of 40,000 pounds each, making a total of 28,000,000 pounds, can be stored in the warehouse at one time.

The third floor of the building is on a level with the railroad tracks

running into Union Station. On this floor there are two tracks, on which may be placed a total of 16 freight cars at one time. To bring

the tracks into the building it was necessary to obtain special legislation in order that they could cross over First Street NE., between

G and H Streets, as the original act providing for a Union Railroad

Station in the District of Columbia stated that no freight trains

should be run into the city south of Florida Avenue except in cases

of temporary emergency. The act (Public, No. 739, 74th Cong.)

authorizing the crossing of First Street and the running of freight cars south of Florida Avenue provided in part “That the Terminal

Co. is authorized, on terms and conditions to be agreed upon by said

company and the Public Printer, to permit the transportation of

freight and express cars to and from sidings which may be constructed

by the United States at its cost for the exclusive use of the Government Printing Office .’

1 It further provided “That, subject to the

approval of the Commissioners of the District of Columbia, there may

be constructed an overpass for railroad tracks for the warehouse of

the Government Printing Office above First Street NE., between

G and H Streets.” In addition to the two railroad tracks on the third floor of the

building there is also on this floor air-conditioning equipment for controlling humidity and temperature in the Postal Card and Money

Order Section of the Presswork Division, which is located on the

second floor. The third floor also provides considerable storage

space, and from it operates an automatic roll lowerator which is used to carry rolls of postal-card stock, each roll weighing approximately 1,000 pounds, from the unloading platform to the postal-card

storage space adjacent to the postal-card press unit. Rolls of postalcard stock are roiled from the freight cars onto a receiving platform

at floor level. From this point the rolls automatically roll onto the

lowerator, the door of which automatically closes. The lowerator

then drops to the second floor, where its door is automatically opened,

the roll again leaving the lowerator automatically and the lowerator

returning to the third floor for its next load. Each round trip of the

lowerator requires approximately 1 minute of time, thus allowing

the unloading of a 40,000-pound load of postal-card stock and delivering it to storage on the second floor within 45 minutes.

Ordinarily locomotives do not enter the building. However, provision for exhausting the smoke made by the locomotives that do

57
enter is provided through a series of propeller fans in the roof. These

fans are controlled by a time switch which automatically cuts them

off after a specified period of operation.

The Postal Card and Money Order Section workrooms on the

second floor are acoustically treated for noise reduction, have yellow

pine end-grain wood-block flooring, double glazed windows with heatabsorbing glass outside, and insulated walls. The postal-card unit is equipped with three rotary card presses, a fourth press is being installed, and space has been left for the installation of another press for this work. These presses print postal cards

from case-hardened steel plates 80-up on rolls of bristolboard of a standard thickness, 33 inches wide. After receiving the print impression the stock is run through a set of rotary knives or slitters on

the same press, which cut it into 10 ribbons, each of which is 3 /

inches wide. These ribbons of printed postal cards travel forward to a set of five chopping knives which cut them into finished cards 5%

inches long. When 50 strokes have been made by the knives, the

packs of cards are lowered upon conveyors which pass them automatically through banders and deliver them in 5 packs of 50 cards

each. This entire operation, from the printing to the banding of the

cards, is done on each press. The cards are then placed by hand in

cardboard cartons, after which they are packed 2,000, 5,000, and

10,000 in heavy containers. Post Office regulations require shipment

to be made in lots of 7,500,000 to the different Post Office agencies

throughout the country. Each postal-card press prints, cuts, and

bands cards at the rate of 6,400 a minute, the average 8-hour daily

output of the 3 presses being 6,000,000 cards.

The Money Order Section has combination mercury-vapor and

incandescent lamps to approximate daylight for the careful inspection

work which is necessary. One 250-watt high intensity mercuryvapor and three 100-watt incandescent lamps are contained in each

fixture and enclosed in a glassteel diffuser. In the money-order unit there are four presses—three new ones that were specially built for the printing of domestic money orders and an

old one that is used for the printing of international money orders.

The three new presses print both sides of the sheet simultaneously

from a roll 22 inches wide, 16 at an impression. Each press is capable

of producing 10,000 impressions an hour. Each money order carries

4 serial numbers, and each press carries 64 numbering heads. The

postal money-order seal is printed on the face of each domestic money

order in blue ink, the face and back of the order and the serial number

being printed in black. Each sheet is slit into 2 on the press and

58
delivered in sheets 8-up, 100 sheets to a “kick.” After examinations

for defects or irregularities, especially in the serial numbers, the orders

are passed on in packs of 200 sheets to a stitching machine. After

stitching they go to a stripping machine, which glues a strip of vellum on the back. They are then cut apart on a modem guillotine cutter,

sorted, placed in mail bags, and sent by registered mail to their respective destinations. The old money-order press is used for the printing

of international money orders. These are all printed in black, six orders at a time.

In addition to the postal-card and money-order presses there are on the second floor two paper cutters, two container stitching machines,

two money-order stitching machines, a stripping machine, and a line composing machine. The paper cutters are used for the trimming of money-order books and for the cutting up of waste money-order and

postal-card stock; the stitching and the stripping machines for stitching and the gluing of a vellum strip on the back of each money-order

book; and the line composing machine for setting the name of each

post office and the serial number of the office. The carton machines

are used for the making of cartons in which to ship postal cards.

The pressrooms and the space used for unprinted postal-card stock

are air-conditioned. The winter air-conditioning is 76° F. and 50 per- cent relative humidity. In summer relative humidity is controlled by

humidifying or dehumidifying, as conditions may necessitate.

From the postal-card storage vault postal-card cartons are placed on a belt conveyor that carries them up to the third floor and delivers

them in mail or freight cars as required for shipment. The time

required for the loading of a car varies from 1 to 2 hours, depending on the proportion of small and large cartons making up the shipment,

the large cartons requiring less time than the small ones. In addition

to the Postal Card and Money Order Section and the storage vaults,

there is located on the second floor the temporary offices of the

Superintendent of Stores and Traffic Manager.

The first floor is devoted entirely to storage, with the exception of necessary space for a truck shipping and receiving platform and

a waste-paper bin, into which is carried by a vacuum system the

waste trim from the postal-card presses. The basement floor is used principally for storage, but it also contains power transformers and switchboard rooms, battery-charging

equipment, and other necessary building equipment, including the

automatic sprinkler apparatus, hot-water heater, and general heating

control apparatus for the building.

The warehouse is equipped with four freight elevators, each 7,500

59
pounds capacity, serving all floors from the basement to the third

floor, and with two larger elevators, each of 15,000 pounds capacity,

which serve all floors and the underground tunnel which passes under

North Capitol Street and will connect the warehouse with the new

building now being built on the corner of North Capitol and H Streets,

NW. The floor of the tunnel is approximately 30 feet below street

level, it being necessary to pass under a large storm sewer in North

Capitol Street. The tunnel has two lanes, thus allowing electric

trucks, tractors, and trailers to operate as frequently as necessary in

both directions at once without interference.

Paper shipped on skids is unloaded from freight cars by means of

electric lift trucks which enter the cars, pick up the skids, and carry

them away to storage. The same method is used in unloading paper

shipments arriving by motor truck. A receiving platform, level with

the body height of motor trucks, makes this method convenient.

Paper received in rolls is either rolled out of the freight cars or trucks

or is picked up and carried by means of electric lift fork trucks. Platform scales for weighing shipments are set in the floor and are con- veniently located, both on the third floor where freight is received

and on the truck receiving platform at the first floor. These scales are of 10,000 pounds capacity and have type registering beams.

Paper on skids is generally piled one on top of the other by means

of high-lift electric trucks or by use of the fork trucks. Rolls are stored on the side and piled about four tiers high by means of electric high-lift fork trucks. The postal-card stock is piled in the same way,

but a three-motor bridge crane is used for stacking it. Chains from

the crane hook are attached to bars which pass through the cores of

the rolls, which method makes possible the handling of four rolls at one time. Materials such as the binders’ boards are loaded on trailers and hauled with electric tractors to point of storage. Thus it will be

seen that the use of stevedore and other hand trucks is entirely eliminated, and all handling and hauling of stock is done with power

equipment.

Through these methods greater savings than those estimated by

the Public Printer ($368,000 annually) in his arguments before the

Appropriations Committee when he was seeking authority for the

building are being realized.

ANNEX BUILDING NO. 3 In the last annual report it was pointed out that no award was made

for the construction of this building, as the bids received in response

to advertisements of May 12, 1937, were in excess of the amount

60
then authorized by Congress for expenditures in connection with this

project; and as Congress failed to increase the authorization or to include an appropriation item in the third deficiency bill for this work, no further action was possible at that time, and the building program was thus delayed another year. Immediately upon the convening of the third session of the Seventy-fifth Congress and after more than

20 years of unsuccessful effort by former Public Printers, the Public

Printer, with the cooperation of the Public Buildings Branch of the

Procurement Division, succeeded in convincing the Congress of the

very dangerous condition of a group of 11 old buildings; and the

necessary increase in the then existing authorization and an appropriation were obtained. Because of the many special features involved,

detailed information on the building will be of general interest and

value to architects, engineers, and the printing industry as a whole.

The following details are therefore submitted:

Construction of buildings Nos. 3 and 4 was authorized by the

Seventy-fourth Congress in the Second Deficiency Appropriation Act,

Fiscal Year 1935, Public Act No. 260, signed by the President August

12, 1935. Congress authorized an expenditure of $5,885,000 “For

necessary land and construction of annex buildings for the Government

Printing Office, including rights-of-way, furniture, moving expenses,

rental of temporary quarters during construction, railroad sidings,

alterations to existing buildings, all necessary tunnels connecting pro- posed and existing buildings, demolition of existing structures, all necessary changes in mechanical equipment. ,, The Seventy-fifth

Congress increased the limit of cost from $5,885,000 to $7,700,000 in the Treasury and Post Office Departments appropriation bill, 1939

(H. R. 8947).

Building No. 3 will face North Capitol Street, extending 384 feet west along H Street, and will be 175 feet 2% inches wide, extending from

H Street to Jackson Alley. Plans and specifications were prepared by

the Public Works Branch of the Procurement Division, Treasury

Department. All lay-outs for equipment and machinery were made

under the supervision of this Office. Bids were opened at 1 p. m. on May 27, 1938. The low bidder for the construction of the building was McCloskey & Co., of Philadelphia,

Pa., with a base bid of $4,291,000. Of 11 alternates, 6 were accepted

and 5 rejected. The alternates accepted are as follows:

1. Using asphalt plank in basement in lieu of heavy-duty concrete

at an increase in cost of $3,000.

2. Supplying a combined fire-alarm and guard-signaling system

at an increase in cost of $2,000.

61
4. Using ceramic glazed wall units whenever salt-glazed clay wall

units are specified at a decrease in cost of $500.

5. Acoustical tile ceilings in certain places at an increase in cost

of $65,000.

6. Providing the last two coats of floor finish on wood floors (except end grain and maple individual strips), linoleum, cork tile and cork carpet at an increase in cost of $700.

7. Including the hospital unit complete as shown and specified at an increase in cost of $11,500.

Base Bid $4, 291, 000

Alternate No. 1 3, 000

Alternate No. 2 2, 000

Alternate No. 5 65, 000

Alternate No. 6 700

Alternate No. 7 11, 500

4, 373, 200

Alternate No. 4 —500

Total cost of construction 4, 372, 700 The low bidder on elevators for building No. 3 was the Montgomery

Elevator Co., of Moline, 111., at $288,863. The total cost of building

and elevators is $4,661,563.

The total net floor area, exclusive of toilets, locker rooms, stairs,

and elevators is 481,975 square feet. The total gross area is 564,639

square feet. To protect the west wall of our building and provide a scrap storage

yard, the property adjacent to our proposed building, 25 feet wide by

175 feet 3 inches deep, lot 52 in square 624, was purchased by the

Procurement Division for our use. Contracts for the building were awarded and demolition of the old

buildings was started June 27, 1938.

The foundations will be concrete spread footing designed to give a bearing pressure on the soil of 6,000 pounds per square foot for dead

load and 7,000 pounds per square foot for live load.

The superstructure is structural steel fireproofed with concrete and

reinforced concrete slabs. The bays are 15 feet 10 inches by 34 feet 5 inches, divided into three floor panels consisting of two-way slabs

with minimum thickness of 7 inches for the first floor and 6 }{ inches for

the second to seventh floors, inclusive.

Sections of floor slab under the tabulating card presses, monotype

casting machines, and the offset camera section are isolated from the

structural slab by IK inches of cork.

62
Following is a tabulation of live loads:

Slab Beams Girders Columns

Entrance lobby and office space, first floor; locker rooms

and toilets around elevators, all floors; eighth floor

office space Pounds per

square foot 125 500

400 500 400

1,000 800

250

Pounds per

square foot 100 500

300 300 400

1,000 800 250

Pounds per

square foot 100 500

> 250

Pounds per

square foot First floor storage

First floor power plant __ Jackson Alley driveway

Storage space and machinery:

Space second to seventh floors ... __ 300 1,000 800

200

Metal storage sixth floor Metal melting room sixth floor, and sorts room

seventh floor _ Office vaults eighth floor Columns: From eighth floor 100

2 250

400

250

100

From second to seventh floors From first floor storage From first floor power plant From first floor entrance lobby

1 Equivalent to H 20 loading without impact.

2 Except special cases. Structural steel is designed on the basis of the American Institute

of Steel Construction Code, except that concrete encased beams, with

steel beams 18 inches or under designed for a unit fiber stress of 22,000

pounds per square inch and steel beams over 18 inches on 20,000

pounds per square inch. Structural steel columns to be encased in 4

inches of concrete and computed on the basis of the American Concrete Institute Code. Reinforced concrete is designed in accordance

with the American Concrete Institute Code.

The exterior of the building is to be built of salmon-colored brick

with stone trim to match building No. 1. All windows will be double

hung with steel sash and frames with the exception of certain court windows, which will be steel casement. In air-conditioned spaces

windows will be double glazed.

Flooring throughout production parts of the building will consist

of 2% inch end-grain wood-block flooring assembled in strips by means

of splines. Basement and part of first floor will have asphalt-block

flooring and offices on the eighth floor will have linoleum flooring.

In air-conditioned rooms, walls will be finished with a tile wainscot

above which will be “corkcoustic” tile. Walls of workrooms that are not air-conditioned will be brick with painted finish. Acoustical

treatment will be provided in presswork, linotype, monotype keyboard, monotype casting, and proofrooms. Ceilings, except where

acoustically treated, will be concrete, painted finish.

63
Lighting generally will be of direct type using glassteel diffusers. Eighth floor offices and proofrooms will have indirect lighting.

Elevators: Two gearless passenger, two geared combination passenger and freight, and seven geared freight elevators will be provided

of the following sizes, capacities, etc.:

Elevator No. Loads in pounds

Speed,

feet per minuteFloors Platform size, over all

32 and 33, passenger

34 and 35, freight 37 and 38, freight 39 and 40, freight

41, freight 42 and 43, combination

freight and passenger.

4, 000

15, 000

7, 500 7,500

f 10,000

l 20,000

7, 500

500

150 300

300

}

1 200

300

Basement to eighth Sub-basement to fifth Basement to seventh Basement to lower pent- house door. Basement to eighth Basement to eighth

8 feet wide by 7 feet deep.

10 feet 6 inches wide by 15 feet 8 inches deep.

7 feet 6 inches wide by 10 feet 7 inches deep.

7 feet 6 inches wide by 10 feet 8 inches deep.

12 feet 6 inches wide by 10 feet 7 inches deep.

7 feet 6 inches wide by 10 feet 7 inches deep.

i And reduced speed. Following is a list of dumbwaiters and form lifts:

Dumbwaiter Load in pounds

Speed,

feet per minuteFloors

No. 1- 200 200 Second to eighth No. 2 150 100 Fifth to seventh .. No. 3 150 100 Fifth to sixth No. 4 300 100 Fifth to sixth No. 5 300 150 Third to sixth No. 6 300 100 Fourth to fifth Nos. 7 and 8, form lifts.

.

1,500 100 Fourth to sixth

Platform size, over all

2 feet 2 inches wide by 2 feet 7 inches deep.

2 feet 2 inches wide by 2 feet H

inch deep.

2 feet 2 inches wide by 2 feet Vi, inch deep.

2 feet 2 inches wide by 2 feet 5 inches deep.

2 feet 2 inches wide by 2 feet 5 inches deep.

2 feet 2 inches wide by 2 feet 5 inches deep.

1 foot 6 inches wide by 3 feet 7 inches deep.

Shafts will be provided for three additional elevators to be installed as required. No. 31 is a future passenger elevator located in the east bank. No. 36 is a future freight located on the Jackson Alley side at east end of building. No. 44 is a future combination passenger and

freight elevator located in the west bank.

Air-conditioning will be provided for the Main Press Section

(entire fourth floor), Job Press Section (part of third floor), Offset,

Tabulating Card, and paper storage (entire second floor), Record

pressroom and Patent pressroom (part fifth floor), and Wood-blocking

Section (seventh floor). The compressors will be located in the basement of the Power Plant, and the dehumidifiers, fans, pumps, etc., will be located adjacent to the areas conditioned. All air-conditioning

64
is for industrial purposes. The air-conditioning system is designed to maintain the following conditions:

At times requiring cooling or dehumidifying to maintain in industrial

conditioned spaces a dry-bulb temperature not in excess of 80° F. when the outside conditions do not exceed 95° dry bulb and 78° wet

bulb and to maintain 55 percent relative humidity at all times regardless of outside temperature up to 78° wet bulb.

At times requiring heating or humidifying to maintain in industrial

spaces a minimum dry-bulb temperature of 76° F. and to maintain a

relative humidity of not less than 50 percent at all times when the

outside temperature is not below 0° F. Two 330-ton refrigerating units located in the basement of Power

Plant will supply the necessary chilled water for dehumidifying.

Condenser water will be cooled by means of air washers located in

penthouse.

All electrical power is furnished by the Potomac Electric Power

Co. through two 13,200-volt, 60-cycle, 3-phase feeders. Current is stepped down to 120-208 volts through six 500-kilovolt-ampere

transformers with network protectors to the secondary distribution

system. The secondary bus is tied in with the secondary bus in building No. 4. Direct current power, 120 and 240 volts, for presses

is supplied through two 1,000 and one 500-kilovolt-ampere converters and transformers. All power for buildings Nos, 1 and 2 will be supplied from the power plant in building No. 3. Steam for heating and industrial purposes will be furnished from

the Capitol Power Plant through building No. 1. The entire building will be protected with an automatic sprinkler

system. A dry-pipe system will be used in all paper-storage areas and a wet-pipe system in all other spaces. A fire-alarm system for sounding a local alarm or calling the city

fire department from any box will also sound a local alarm in the

event of a water flow in the sprinkler system. In addition to sounding

the alarm in building No. 3 the alarm will be sounded in certain

offices in building No. 2. Any box pulled or a water flow in the

sprinkler system will be recorded in the guard’s office on a printing

register simultaneously with the sounding of the coded alarm. All disarranging or tampering in the sprinkler system will be recorded, and

when the trouble has been corrected and the system restored to normal the register will so record.

The watchman’s reporting system will consist of boxes throughout

the building with built-in telephones for communication with the

guard office, recall lights and buzzer for contacting guards on the

65
beat from the desk, provision for sending an emergency or riot call from any box, and a printing register in the guard’s office, which will record any box pulled. A hold-up alarm in the disbursing office also records on the printing register.

Electric clocks and work-program bells will be operated on the

minute impulse system from a master clock and program machine.

A paging system will be installed to cover the entire building operated from the telephone exchange on the eighth floor. A conveyor system from the Record pressroom will connect with

the conveyor system of building No. 1 and continue to the City Post

Office through the tunnel which is now under construction by the

Architect of the Capitol.

The Architect of the Capitol is building by contract a new tunnel

between building No. 1 and the City Post Office tunnel. This contract also includes the replacing of the present 8-inch steam mains

from the Capitol Power Plant with new 14-inch steam mains.

In the increase of limit of cost for our building projects as allowed

by the Seventy-fifth Congress in the Treasury and Post Office Departments appropriation bill for 1939 (H. R. 8947), money was made

available for rewiring buildings Nos. 1 and 2, and the replacement of

elevators in building No. 1. Space assignments in building No. 3 will be as follows: Basement. —Approximately two-thirds of the basement area will be available

for storage. Part of the space will necessarily be occupied by power-plant

equipment. A vault extending under the North Capitol and H Streets sidewalks

will be suitable for plate storage. Locker rooms, toilets, and showers are pro- vided for the Stores Division.

First floor. —Approximately two-thirds of the first floor, with a load capacity of 500 pounds per square foot, will be available for storage. The first floor will also contain the power house, entrance lobbies, guard office and their locker rooms. The space originally laid out for display room is intact, but all interior finish is omitted. The Jackson Alley side of the first floor will have a large entrance for bringing large and heavy machinery and equipment into a large freight elevator located near the center of the building.

Second floor. —About one-third of the second floor is allocated for paper storage, or such other future requirements as may develop. At the front of the building

is located the office of the Superintendent of Stores and Traffic Manager. The

balance of the second floor will be occupied by the Offset and Tabulating Card

Section. The tabulating card presses will be placed on a section of floor isolated with cork from the main structure. Entire floor air-conditioned. Third floor. —Job Composing and Job Press Sections; Job Composing Proof- room and Plate Vault office. A little more than half of this floor is air-conditioned. Fourth floor. —Main Pressroom and Superintendent’s office. Entire floor air- conditioned.

Fifth floor.—Hospital, Woodblocking Room (air-conditioned), office of Superintendent of Platemaking, Finishing Section, Record Pressroom and Patent 66
Pressroom (both air-conditioned), Patent Composing Room and Patent Proof- room.

Sixth floor. —Electrotype Molding, Electrotype Plating, Stereotyping, Plating

Lock-up Section, Hand Section, Linotype Section, and Metal Melting and Metal

Storage. Seventh floor.—Photoengraving, Main Proofroom, Monotype Keyboard, Casting

and Correcting, office of Superintendent of Composition.

Eighth floor. —Executive offices, telephone switchboard, and Apprentice Section. COMPOSING DIVISION

The Composing Division shows an increase in production during

the past year in that 2,161,601,000 ems of type were set in comparison

to the 2,062,659,800 set during 1937. Of this total, the Monotype

Section set 972,193,000 ems in 1938 and 775,275,000 in 1937.

The Plating Lock-up Section sent to the Platemaking Division

163,858 pages—107,563 for stereotyping and 56,295 for electrotyping.

The Hand Section imposed for press 65,500 forms.

The Proofroom prepared for the machines 971,386 folios of copy.

This does not include congressional work, the Surgeon General’s

Catalog, the Postal Bulletin, the Railway Mail Bulletin, and the

work for the Library of Congress. Galleys read and revised during

the year totaled well over a million. The Proofroom also translated

2,077 folios for other departments of the Government.

Recommendations as to Preparation of Copy

The work of the Composing Division is rendered more difficult and

expensive by the fact that much of the copy received by it is in extremely poor condition. The departments could greatly assist this Office in eliminating some of these difficulties and in the meantime

reduce their printing bills by carefully editing their manuscripts

before submitting them to this Office. The cost of authors’ changes

in type is very high.

It is urged that each Federal agency designate a competent copy

preparer, thoroughly familiar with Government Printing Office

routine and its Style Manual and good usage in the English language,

to contact in a cooperative manner the officials in his department

who handle the editing of copy before it is sent to the Government

Printing Office for publication. This copy preparer could point out

to such officials the economy and convenience that would result from

the preparation of copy in the form and manner that would expedite

its handling in the Government Printing Office and could show them

how to ehminate the present prevailing practice of making numerous

corrections in type.

67
An illustration of the delay and expense occasioned by poorly

prepared copy or by the making of changes after the manuscript has

been set up in type will be given:

This Office is now producing a volume for one of the Federal

agencies that will be of interest to a large group of individuals and is cooperating to the fullest extent with the agency to produce a volume

as nearly perfect as facilities and abilities will permit. Owing to a lack of understanding in the agency of the numerous printing angles

involved, this Office has been kept busy on corrections in proofs to an extent extremely costly. Originally the estimated price for the

completed volume was $1, but the unusual number of proofs required

and the still more unusual number of corrections in type and in

plates, even to the extent of sending new copy for an entire page that

had been plated, has raised the price to $2.75 per volume. In addition to the increase in cost, the type will appear in the completed

volume with a noticeable unevenness of color owing to numerous

corrections, thus greatly detracting from what otherwise would have

been a creditable piece of printing. The job reached the Office in

March 1938 and due to these changes, corrections, etc., will not be

completed before March 15, 1939.

This is cited not as a criticism of the departments or of this particular agency but to illustrate the necessity for the handling of copy

in the departments and agencies by, or under, the guidance of an

official familiar with the methods of proper copy preparation.

PLATEMAKING DIVISION

During the fiscal year 1938 the Platemaking Division produced

6,456,279 square inches of electrotypes; 6,378,803 square inches of

stereotype plates, 522,151 square inches of mat work; 35,808 square

inches of blocking on wood and mounting on metal; 66,348 square

inches of rubber plates and stamps; 792,049 square inches of photoengraving work; and 1,753,718 square inches of offset work, making

a total of 16,005,156 square inches of plates, mat work, blocking and

photoengraving, and offset work—an increase of 2,312,769 square

inches. This figure includes an increase of 100,000 square inches

in offset negatives and the 66,348 square inches of rubber plates

above referred to. The first year’s operation of our rubber-plate equipment has shown

very interesting developments, one of the most valuable of which has

been the reconditioning of a Harris envelope press for rubber plates

exclusively. By placing a permanent steel saddle on the old cylinder,

thereby increasing the diameter sufficiently to handle a plate of 0.100

68
of an inch thick, including the backing and adhesive, we are now able

to make the plate without any mounting and to deliver it to the

pressman, who places it in proper position on the cylinder. Considerable trouble was experienced at first with type being crushed in

the molding of the mat. Improvements in mat materials and in experience have completely eliminated this trouble.

As an illustration of the work being handled on rubber plates, this Office recently ran on this reconditioned press an envelope job consisting of a large corner plate, signature, and State line (three plates

in all) with 126,000 impressions from one set of plates. These plates were made in 30 minutes and were worn very little upon completion

of the job.

The Plate Vault Section handled 30,538 requisitions for printing

during the year. This section also released 666,593 pounds of stereotype metal and 313,672 pounds of electrotype metal to be

melted and reconditioned for making new plates.

The production in the Photoengraving Section reached a new high

this past year. The purchase of a 20 by 24 inch strip film camera makes it possible to photograph a line and a half tone on the same

film and so save stripping the two together. It also does away with

a silver bath and its care. Half tones have been successfully made

up to 150-line screen.PRESS WORK DIVISION

There was a slight increase during 1938 in the volume of work of the Presswork Division as compared with the year 1937. It was

necessary to increase the force during the time Congress was in session

in order to run two full 8-hour shifts and a small force on a third shift. The Offset and Tabulating Card Section had its busiest year in 1938.

More equipment is needed to meet the demands for this type of work,

but at the present, due to lack of space, additional machinery cannot

be installed; it was therefore necessary to authorize the departments

to order from private contractors 463,304,000 tabulating cards during

the fiscal year 1938. The Government Printing Office printed for the

departments and independent establishments 409,149,460 tabulating

cards as compared with 332,009,000 for the fiscal year 1937, representing an increase of 77,140,460 cards.

The Postal Card and Money Order Section reports a slight decrease

in production for the fiscal year 1938. A total of 2,240,766,100 cards was printed and 262,511,860 money-order blanks. It w^as necessary

to do some night work in order to keep orders up to date during the

69
moving of the section from the main building into the new

warehouse.

By use of the electric drying machine, which was purchased and

installed in the Division during the year, the Division has been able

to expedite the delivery of embossed envelopes and letterheads. The

wet work passing directly from the press through the drier saves

considerable space previously occupied by the drying racks and is eliminating the necessity for the extra help which was required when

the racks were used.

The printing from rubber plates has now passed the experimental

stage and has proved very successful.

BINDERY DIVISION

Work in the bindery during the fiscal year 1938 was of a varied

nature and involved several large and unusual orders; among these

may be mentioned the Unemployment Census Record Cards, referred

to elsewhere in this report; the Yearbook of the Department of

Agriculture, of which there were 247,434 copies and which presented

quite a problem, as each volume contained 1,505 pages and measured

2 / inches in thickness. This was entirely beyond the capacity of

any of the booklining machines. As these machines perform five operations, it was deemed advisable to alter and readapt them. This was done with the aid of the Machine Section and resulted in a considerable saving, as hand production would have been the only

alternative.

Quite recently we introduced in the Pamphlet Bindery an innovation in folding that perhaps has no parallel elsewhere in the printing

industry. A small friction feeder was purchased, such as is now used on Model E Cleveland folders, and after undergoing a few changes

it was installed on the lower cross carrier of a Model K Cleveland

folder. This enables us to run on one machine two different jobs at one time. The upper carrier can run one, two, three, or four parallel

folds, while the lower carrier at the same time can be running an

entirely different job of either one or two parallel folds, with an additional angle fold if desired.

This attachment has now been in operation for some time with

remarkable success, and we contemplate the purchase of additional

feeders.

It is readily apparent how advantageous this is when it is considered

that 60 percent of our work is parallel folds running on the upper

carrier only, meantime leaving the lower carrier idle. 70
Thus we are gaining an extra machine at a very slight cost without

sacrificing additional floor space; further, this feeder is geared to the

machine, requiring no additional motors or power.

The feeder does not interfere in any way with the original intended

use of the Model K, as all the folds of the latter can be made as usual

by a simple movement of a lever disconnecting the gears driving the

feeder, the change requiring less than 1 minute and without disturbing

or moving the feeder.

Work for the Library of Congress and other departmental libraries was greater in 1938 than in any previous year, 91,404 volumes having

been bound as compared with 77,763 in 1937. Much attention was

given to this class of work during the past year in an effort to reduce

the cost of handling it. This is explained in detail under the heading

“Cost Accounting and Production Control Methods.”

A reference to table 4 of this report will give some idea of the volume

of work handled by this Division during the fiscal year 1938.

CONGRESSIONAL PRINTING

This report covers the printing of the Congressional Record for two

sessions of the Seventy-fifth Congress—the second or special session

and the third session. The average number of pages daily during

the special session was 87.3, while the daily average for 130 issues

during the third session was 104.2 pages. The only average larger

than this was for 71 issues in the third session of the Seventy-first

Congress. The proceedings of the Senate for the two sessions required

5,709 pages and of the House 5,628 pages. The Appendix to the

Record and miscellaneous made 5,009 pages, maldng the total number

of pages for the Record for the two sessions of the Seventy-fifth Congress 16,346 pages. There were made 16,138 stereotype plates for the Record, and 2,704,580 pounds, or 1,352% tons, of paper were used

for the printing thereof.

The total number of hearings printed for the Senate was 127,

making 3,043 pages, and for the House 152, making 13,343 pages, or a total of 279 hearings, making 16,386 pages. The Senate and House Business Calendars are printed daily.

During the special and the third session of the Seventy-fifth Congress

the House Calendars made 33,864 pages and the Senate Calendars

15,670 pages, or a total of 49,534 pages.

The following statement gives a summary of congressional work

for the special session and the third session of the Seventy-fifth

Congress:

71
Record: Total pages

Senate. House

Appendix and miscellaneous. Daily average

Bills:Senate: New bills Joint resolutions Concurrent resolutions.

.

Simple resolutions- House: New bills Joint resolutions Concurrent resolutions .

.

Simple resolutions Total new bills... Total prints Total forms

Reports: Senate House. Documents:

Senate House

Special

session Third

session

2,795 13, 551

1, Oil 4, 698 918 4, 710 866 4, 143 87.3 104.

152 1, 024

21 74 2 20 22 95 455 2,152 50 177

1 39

43 153 746 3, 734 1,247 10, 864

1,876 9,881

6 919 20 1, 128

6 101 88 255 LIBRARY OF CONGRESS BRANCH

COMPOSING AND BINDING SECTIONS

During the fiscal year it was necessary to resort to extraordinary measures in this branch in order to meet the demands for increased

card production. Among these measures was the establishment of a night force, which operated from January 3, 1938, to the close of the

fiscal year. This resulted in an increase in card production of more

than 26 % percent over the preceding year—an all-time high.

Due to crowded conditions and lack of facilities, much of the work

that should have been performed in these sections was necessarily sent to the main office for completion, with the resultant delay and

added expense incidental thereto. However, at the dose of the fiscal year plans were well under way to re-equip this branch and to move

it into new quarters in the new annex to the Library of Congress.

Upon the completion of this move into new and modern quarters, the

reorganization incidental thereto, and the replacement of the old and

obsolete equipment with new and up-to-date machinery, these branch

sections will be in a position to handle all work of the Congressional

Library in an efficient and economical manner. The details of these

changes and the results thereof will be outlined in the next annual

report.

The following statement shows the production record for the

Library Composing Section for the fiscal years 1936, 1937, and 1938:

72
1936 1937 1938

Chargeable impressions . _ 32, 567, 797

2, 753, 728

17, 434

5, 722

185, 064

555, 192

1, 124 1,116

32, 107, 634

2, 731, 496

9, 274

5, 174

140, 993

426, 332

1, 142

1, 129

38, 076, 724

2, 785, 473

9, 272

5,809

127, 617

382, 851

1,041 1,065

Actual impressions . .. __ Chargeable forms sent to press Actual forms sent to press Subject headings—lines sent to press.. Subject headings printed ... . . Jackets written

Jackets closed out STORES DIVISION

Under the heading Warehouse Building No. 4

”

is outlined the

economies effected and the increased efficiency resulting from moving

the Stores Division into its new quarters in the warehouse.

The Stores Division in 1938 received a total of 83,152,863 pounds

of paper as compared with 83,604,229 pounds in 1937. Other materials received by the Division in 1938 totaled 1,538,033 pounds.

Orders filled by the Stores Division were as follows: Standard forms,

28,011,194; office forms, 15,029,582; mimeograph ink, 102,208 pounds;

printing ink, 210,046 pounds; stamp-pad and numbering-machine ink,

(in 2-ounce cans) 46,754 cans; and writing ink, 23,758 quarts.

During the past year the Office has benefited by the free pick-up

and delivery service rendered by the railroads, as most of the incoming less-than-carload shipments are now delivered by the railroads

without charge, and the Office is availing itself of this service on out- going shipments whenever the freight rate is high enough to entitle it to free pick-up.

The purchase of new electric fork trucks for the tiering of roll paper

has greatly reduced the damage to the rolls that formerly resulted

from the handling of the same with crane trucks equipped with

hooks, and in a further effort to reduce costs the Office is experimenting with nonreturnable fiber cores for paper in lieu of the usual

returnable cores. Since demolition of the old building this division

has been greatly handicapped for lack of room. However, with completion of the new warehouse this condition was relieved somewhat,

and further improvement is expected when the new building is finished.

DELIVERY SECTION

During the fiscal year 1938 this section handled 55,097,063 pounds

of incoming freight. Outgoing carload lots, consisting of metal and

cores, numbered 11 cars, and with less-than-carload lots weighed

73
777,428 pounds. In addition to this outgoing freight there were

shipped 9,583,130 pounds of postal cards, making the total tonnage

of outgoing freight handled by this section 10,360,558 pounds.

The marked decrease in the tonnage of incoming and outgoing

freight handled by this section has been caused by the construction

of the siding into the new warehouse and the handling of that work

in the Stores Division.

Finished work together with blank paper and ink delivered to the

various executive departments and independent Government establishments totaled 178,863 partial and completed jobs. The Delivery

Section also handled all of the hauling in connection with the moving

of the Storing and Shipping Sections of the Documents Division from

the old buildings to their present locations.

MAINTENANCE DIVISION

This Division maintained the buildings and equipment in an effi- cient operating condition; handled all problems of an engineering

character; carried through with its own personnel or by contract

all alterations and repairs; designed, constructed, and installed special

equipment to meet unusual requirements; prepared specifications for

new machinery and equipment; moved and installed machinery and

equipment; operated all equipment for power conversion and dis- tribution, refrigeration, heating, lighting, ventilating, air conditioning,

and emergency Diesel engine generators; compressed-air service,

signal systems, elevators, and conveyors; and cleaned all buildings

occupied by the Office. The personnel of the Division on June 30, 1938, totaled 403, of which number 181 were engaged in operating the power plant and ele- vators and cleaning the buildings, leaving a force of 222 assigned to the other work outlined above. To this force of 222 is credited a total of 90,419 jobs for the year, of which 68,448 are classed as repairs and

the balance of 21,971 includes new work, inspections, adjustments,

servicing equipment, making over 20,000 wooden boxes, etc. Major jobs during the year included preparing quarters and the

work incidental to moving the Receiving and Shipping Section of the

Superintendent of Documents to temporary quarters at 613 G Street; and the moving of the Money Order and Postal Card Section and

Stores Division to the new warehouse.

A considerable amount of disconnecting and rearranging of services was required in connection with vacating the 11 old buildings in the

H Street group. Ninety-five old machines were moved during the

year and 34 new machines were installed under the direction of the

74
Machine Section. Much wooden equipment in the Composing

Division was replaced with new metal equipment, some of which was made in the Sheet Metal Section of the Maintenance Division.

DIVISION OF TESTS AND TECHNICAL CONTROL

The total number of samples tested by the Division of Tests and

Technical Control during the last fiscal year was 8,965. The various

materials tested were as follows:

Material 1936 1937 1938

Paper and envelopes. 6, 750 914

72 75325

697

3058

104 208

789

5, 928

801

92

826

8

360

26

58

69 203

641

5,881

88195

736

24 376

1642

71 210

633

Textiles Bookbinding leathers . Metals Glue Ink-making materials. .. . . . . . Inks

Oils and greases... . . Gasoline ... ... . Chemicals

Miscellaneous Total 10, 400 9, 012 8, 965

There were 209 deliveries rejected for noncompliance with specification. Of these rejections, 118 were of paper, 15 of envelopes, and 76

of miscellaneous materials.

The total amount of paper received during the year was 83,152,863

pounds. Of this amount, 3,086,197 pounds were rejected. The fol- lowing table shows the causes for all rejections during the year:

Cause of rejection Number of rejections Pounds

Deficient in: Bursting strength 3 55, 050

226, 540

460, 815 Folding endurance 18 Tensile strength 10 Opacity 11 457, 607 262,940

237, 693 Thickness ...... 5 pH value 9 Not within weight tolerance 5 77, 524 Excessive rosin 3 10, 314 Unsatisfactory general appearance. 38 816, 246 Unsatisfactory color . 6 171, 537

309, 931

3, 086, 197

Unsatisfactory finish 10 Total 118

Several changes in paper specifications were made during the year. The maximum hmitations for rosin content of bond, ledger, and index

papers were increased in order to permit improvement in their writing,

ruling, and erasing qualities. Requirements for 100-pound supercalendered book paper were added to the paper schedule to meet the

75
demands of the executive departments. The specified stock for cover paper was modified to permit the use of a greater variety of fibers in

this class of papers. The folding endurance requirement for coated

book paper and for cover papers has been increased to obtain paper

with better folding and creasing qualities.

A pick test requirement has been included in the specifications for

coated book paper. This test consists in applying melted sealing waxes of progressive degrees of adhesiveness to the paper and observing which wax causes the paper surface to break, pick, or lift away

upon the removal of the wax with a steady vertical pull. The wax

number in this series at which the first break in the surface appears is taken as the index number of the adhesion of the surface coating to the

paper base.

Paper used by the Library of Congress for mounting maps caused

considerable difficulty by breaking when the sheet was wetted for mounting. A search was made for a more suitable paper for this

purpose, and specifications were developed and purchase of 100 percent

rag map-mounting paper was made under the following requirements,

which eliminated further trouble of this sort

Stock: 100 percent rag. Weight: 17 by 22 (1,000), 40 pounds.

Folding endurance: Average, each direction not less than 200 double folds. Wet tensile strength: After exposure to water one-half hour: Machine direction, 2.0 kg; across machine direction, 1.0 kg.

Thickness: Average, 0.0030 inch. Color finish, and general appearance: Must conform to the standard sample.

General requirements: The paper must be satisfactory for use in conjunction with

cloth backing for mounting maps. Fibers must not rub up when paper is wet. Nonuniformity of thickness of oiled manila tympan paper purchased on contract during the year caused unevenness in the packing

of the press cylinders, which resulted in uneven printing. The specifications for this paper were therefore revised in order to obtain a

better quality. Tympan paper which has eliminated such difficulties

is now being purchased under the following requirements:

Stock: Free from ground wood pulp.

Weight: 24 by 36 (1,000), approximately 210 pounds.

Bursting strength: Average, not less than 60 points.

Thickness: Not less than 0.0067 nor more than 0.0073 inch. Paper must be

unifoim in thickness and as near to 0.0070 inch as possible.

Oil: Must be evenly distributed and odorless, and the paper must not be greasy to touch. Formation: Must have uniform closed formation and be free from thin spots. Surface: Must conform to the standard sample.

76
The use of light-weight kraft wrapping paper for smut rolls on the

web presses proved unsatisfactory, due to wrinkling and breaking. An

investigation was conducted to find a more suitable paper for this use

in preventing offset, and this resulted in the procurement and adoption of oil-treated paper for such purposes. The following specification was issued for the purchase of this type of paper:

Weight: 24 by 36 (1,000), 80 pounds.

Thickness: Must be uniform, 0.0035 inch. Bursting strength: Average, not less than 25 points.

Formation: Must be uniform and free from lumps and thin spots. General appearance: Must conform to sample submitted with request for bid. The work of evaluating the printing qualities of paper was con- tinued throughout the year. Requirements for smoothness and oil absorption in the specifications for several of the book papers have

now been in effect for 2 years with very satisfactory results. By

means of these tests the laboratory is able to predict, with some degree

of assurance, the printability of the paper. To cite an example: after making oil absorption and smoothness tests on a certain delivery of paper the laboratory predicted that the paper would not be suitable

for printing fine screen half tones and that the cuts would not print

cleanly and would produce a mottled effect. Prior to rejection of this paper a roll was sent to the pressroom for a trial run. The laboratory

prediction of the quality of the resultant printing proved correct. Since color is one of the important properties affecting printing

quality of white papers, considerable stress has been laid upon improving the color tints of the various papers used. In the Annual

Report of the Public Printer for 1936 it was stated that the color

quality within several classes and grades of paper had been unified

and improved printing obtained by changing the standards from a cream to a white shade. During this year the color of offset and supercalendered book papers has also been improved by changing the

standards to a more brilliant white. The printing on this whiter

paper has shown a decided improvement in the contrast of the black

with the white over printing done on less brilliant paper.

In cooperation with the Paper Testing Committee of the Technical

Association of the Pulp and Paper Industry and the American Society

for Testing Materials, a study was made of several paper-testing

methods with a view to developing greater accuracy. In this connection the following is submitted:

The purpose of the rosin determination is to determine the amount

of rosin size added to the paper during manufacture. Paper made

77
from wood pulp contains resins originating from the wood, and paper

made from rag pulp contains unsaponifiable waxes, neither substance

being completely removed from the pulp before the paper is formed.

The present TAPPI method T-408m does not provide for the separation of unsaponifiable waxes or other alcohol-soluble foreign matter

from the rosin contained in paper. Therefore, the reported rosin

content of such papers as determined by analysis is higher than the

actual rosin content. Since this objection to the present TAPPI method has been advanced, a laboratory study was made of a proposed revision of the

method which provides for a more precise determination of the rosin

content of papers. A study was also made of the efficiency of a proposed revision of TAPPI Method T-429m-36 in the form of a volumetric method for the determination of alpha, beta, and gamma

cellulose, obviating the present time-consuming determinations. We

found this method offers a decided advantage over the present

TAPPI method in simplicity and that it saves considerable time and

work.

The method of sampling of paper for testing was found inadequate

by subcommittee 1 of D-6, American Society for Testing Materials, in that it does not assure that the sample is truly representative of the

shipment and that it was written primarily for the sampling of paper

in sheets. The Technical Director, who is a member of this committee, was

given the assignment by the committee chairman to study the litera- ture and prepare an improved method for the sampling of paper for

testing purposes. A new method has been written and presented to the committee for its consideration.

Considerable research has been conducted by investigators, both

in this country and abroad, on the subject of paper deterioration,

and this is being widely discussed at present. The findings of these

investigators have been scattered throughout various publications in

this and foreign countries. The importance of this subject is becoming more widely recognized as indicated by the large number of in- quiries which we receive from libraries and paper users. The Division of Tests and Technical Control has compiled and classified more

than 300 articles pertaining to permanence and durability of paper

dating from 1885 to the present time. This compilation is being published as Technical Bulletin No. 22 of the Government Printing

Office. Paper, being composed of a felted mass of minute vegetable fibers,

is hygroscopic and therefore susceptible to changes in atmospheric

78
conditions. It absorbs or gives off moisture with every change in the

amount of water vapor in the air. With an increase in relative

humidity the individual fibers absorb more moisture and consequently

expand. The additive swelling of the fibers causes a lengthening of the sheet. Decrease in the relative humidity causes contraction of the

paper stock. Marked dimensional changes of paper are thus caused

by the amount of moisture absorbed or given up during changes in relative humidity of the surrounding air. Certain types of paper purchased by this Office are required to possess properties of the lowest possible coefficient of expansion and

contraction, in order that dimensional changes be reduced to a minimum essential for best operating conditions.

In order to test these properties of paper, an apparatus has been

designed for measuring the expansion and contraction of paper under

varying humidity conditions.

During the year the number of envelopes purchased totaled 76,-

016,000. Of these purchases, 15 deliveries or 942,000 envelopes were

rejected. The following is a tabulation of the causes of rejections and

the quantities of rejected envelopes for the fiscal year 1938:

Cause of rejection Number of deliveries Number of envelopes

Deficient in: Stock... - 1 500 Folding endurance - - 14 941, 500 Total 15 942,000

Ink

The total production of printing inks, including mimeograph,

stamp-pad, and numbering-machine inks, for the year was 322,130

pounds, an increase of 23,901 pounds over last year. There were also produced a number of miscellaneous products,

which are classified as follows:

Material: Quantity Blue toner pounds 23,430

Molding wax compound do 200 Turpentine substitute for lithography do 312

Electrotype backing fluid quarts _ _ 120 Ruling inks do 3,143

Writing inks (all colors) do 18, 106

Striping ink for tabulating cards do 674

Special ink solvent do 1, 600

Lacquer thinner do 680

Mucilage do 340 79
Other Government departments and agencies were furnished with

miscellaneous materials manufactured by the Government Printing

Office. The following tabulation compares the quantities of different materials furnished to Government departments and independent establishments during the fiscal years 1937 and 1938.

Material PoundsMaterial Pounds

1937 1938 1937 1938 Mimeograph ink, black . Printing ink, black and colored, including multigraph Addressograph ink, blue and

black

90, 127 7,494

78

1 24, 048

4, 420

107, 897

13, 498

36

i 18, 578 6,074

Check-signature ink Letter-box time-card ink

Special ink solvent Molded glue, including canceling stamp composition

332

122

i 404

3, 517

9, 337

683

76 1428

2,591

11, 173 602 Writing ink (all colors) Paste Stamp-pad and numbering-machine ink. Roller composition

i Quarts. Occasional difficulty was encountered during the year with the

feathering of ruling inks when applied to paper having insufficient

sizing. Investigational work to overcome this difficulty led to the

addition of a suitable chemical to the ruling inks, which served to minimize feathering.

At the request of the District government a purple copying ink was developed for printing, which permitted 100 reproducible copies

from a single imprinted original.

A blue printing ink which does not record during photographic

reproduction was made for Office use. At the request of the Bureau of Ordnance of the Navy Department, machine-gun target-marking inks for use in spotting bullets

to record accuracy of firing were developed in black, yellow, brown,

purple, dark blue, light blue, medium blue, white, and amber colors. Type Metal

The total amount of type metal standardized during the fiscal year 1938 was 9,999,767 pounds, an increase of 642,197 pounds or

6.87 percent over the preceding year. The following table gives in detail the various quantities of metal

employed in the correction of the various type metals to standard

formulas. This includes the metal returned for remelting, correction

metal, dross, percentage increase due to correction, and percentage

loss due to drossing, calculated on the quantity of metal remelted:

80
Universal Electrotype Slug Returned for remelting pounds..

Correction metal used: Lead-antimony alloy. .. . . do..

9, 268, 977 734, 185 34, 486

9,001

8, 185

83, 264

2,929

572

65, 952 Tin . do Lead ... . do

Total. do... Total corrected metal ... . . do ..

100, 450 69, 453 34, 486

9, 180, 106

189, 321 1.08

2. 04

785, 175

18, 463

9. 46

2. 51

Dross do..

Increase due to correction percent . Loss due to dross do

Universal metal, containing 6 percent tin, 12 percent antimony,

and the remainder lead, was used for all type casting and line casting

and for all stereotype casting throughout the year. During the year 7,509 pounds of tin, 20,224 pounds of lead-antimony alloy, 115,512 pounds of lead, and 50,000 pounds of Universal

metal were purchased by cash payment. In addition, 360,000 pounds

of electrotype backing metal and 416,000 pounds of Universal metal were bought, for which the following materials were exchanged in partial payment:

Pounds Old electrotype plates 450, 000

Stereotype plates 200, 000

Slug metal (solid body) 20, 000

Universal metal dross 176, 058

Electrotype dross 19, 133 Electrotype shells 11, 753 Old brass 3, 697 Copper scrap 983 White bearing metal 170 Press Rollers and Adhesives Press rollers manufactured during the year required 25,228 pounds

of composition and totaled 4,465 in number. This shows an increase

of 143 rollers over the number of last year’s production, which totaled

4,322, requiring 26,625 pounds of composition. Of the number

manufactured this year, 1,095 were mechanically coated upon a specially prepared core by a process whereby the core is rotated as the

hot composition is evenly deposited upon it. For this purpose 134

base rollers, having a foundation of a tough and resilient composition over the steel core, were purchased during the year. Progress in improving the quality of our rollers has been made

possible by experimental work with chemical compounds such as glycerine substitutes. Sorbitol, a hexahydric alcohol, one of the

81
most recent chemicals adapted to this purpose, has been used in partial

substitution for glycerine in rollers manufactured throughout the year. Loss of moisture causes the shrinking and hardening of composition

rollers, and the presence of a hygroscopic substance such as glycerine or sorbitol reduces that loss. Sorbitol is a very effective hygroscopic

agent for this purpose. It has a narrower humectant range and is less susceptible to changes in atmospheric conditions than glycerine;

therefore at high atmospheric humidities it takes on less moisture

than glycerine. At low humidities it dries out slower than glycerine

and thus has a stabilizing effect on the moisture content of the rollers. Inasmuch as sorbitol in itself imparts toughness and tack to composition rollers, an investigation was conducted to ascertain whether

or not any additional advantages could be derived from the continued

use of tannic acid and varnish in roller composition containing sorbitol.

Observation indicated that tannic acid, which proved incompatible

with roller composition containing sorbitol when cast in steel molds,

confers no particular advantage to composition containing sorbitol;

therefore it has been entirely eliminated from our formulas and the

varnish content reduced to one-half the former quantity.

The adhesive usually employed on folding machines in the bindery

to paste a certain kind of paper failed on one occasion to stick properly.

Investigation into the causes of this particular failure of the paper

to seal led to development and substitution of a better special adhesive

which functioned very satisfactorily on the folding machines.

The use of dextrine adhesive for gumming paper in gumming

machines caused, in the case of certain papers, considerable curl while

drying out. The formula for the gum solution was therefore modified

to impart greater flexibility to the adhesive, which reduced the

tendency of the gummed paper to curl. The manufacture of molded glue during the fiscal year totaled

126,070 pounds as compared with 111,005 pounds last year. The

manufacture of glucose-glycol paste amounted to 25,000 pounds and

of flour paste 94,000 pounds as compared with 25,000 and 85,000

pounds, respectively, last year. Bookbinding Research

Manufacturers of pyroxylin-impregnated fabrics were requested to submit samples of their standard grades of cloth for a technical survey

of this relatively new type of bookbinding material. The several

kinds and weights used on Government bindings were requested.

Nine manufacturers complied with the request and submitted 38

samples for test purposes.

82
Pyroxylin-impregnated fabrics are similar in appearance to the

formerly used starch-filled fabrics, but, in place of starch, the filler is pyroxylin, a soluble cellulose product, which is compounded with

pigment and filler to produce a finish that is both washable and

resistant to attack by book-destroying insects such as the silverfish and roach and to atmospheric conditions. These advantageous

qualities were recognized by this Office, and the regular use of these

binding fabrics was adopted last year. The several deliveries of pyroxylin-impregnated fabrics first received were found not as easy to bind as starch-filled book cloths

because of the moisture-proof nature of the finish, which prevented

somewhat the penetration of the binding adhesives. It soon became

evident, however, that certain modifications in regular bindery

practice were necessary in order to obtain good results with pyroxylinimpregnated cloths. Such troubles as slippage between cloth and

boards on automatic case-making machines, poor adhesion of title leather and labels, warping of cases, insufficient adhesion of end

sheets, irregular quality of stamping, and difficulty in hand lettering were experienced with various brands. These difficulties were dis- cussed in conferences with representatives of the contractors, and cer- tain modifications were made in the manufacture of these fabrics to make the material bind with greater facility. Some mills produced

cloths with water-soluble sizings on the reverse side to improve the

adhesion of paste or glue, and the finish or the composition of the filler was modified to render it more receptive to stamping and labeling

operations.

An investigation is now being conducted with a view to developing

laboratory testing methods which will reasonably predict the behavior

of the pyroxylin-impregnated fabrics when subjected to binding

operations. This includes technical laboratory tests and bindery

tests observed under operating conditions. Technical tests involving

the usual properties of weight, thread count, tensile strength, etc., were made in accordance with methods prescribed in Commercial

Standard CS-57-36 and also by specially developed tests. Tests were also conducted on both the face and back of the samples using an electrometric size tester to determine moisture penetration. The

object was to ascertain whether or not this instrument could be used

to serve as an index of the penetration of bindery adhesives and thus

the degree of their binding action. Accelerated aging tests were

included in this investigational work.

The bindery tests consisted of binding a series of ten dummies

and three books in each of the cloths submitted. Five of the dummies

83
were made using our formula A flexible glue on the cloth, and flour paste on the end sheets. The other five dummies were bound with

formula A flexible glue on the cloth, but glucose-glycol paste was used on the end sheets. One book was cased-in by using glucose-glycol

paste both on the fabric and the end sheets. Another book was bound with formula A glue on the cloth and glucose-glycol paste on

the end sheets, and the third book was bound with formula A flexible glue on the cloth and flour paste on the end sheets. Eight of the ten dummies were stamped or hand-lettered, using

eight different materials, namely: ordinary book-cloth ink, special

pyroxylin ink, aluminum leaf, egg-sized hand-lettered gold leaf, eggsized stamped gold leaf, paper-backed gold leaf, flat imitation gold

leaf, and roll imitation gold leaf. Tests were made on the two

remaining dummies for the adhesion of title leather using six combinations—namely, flour paste, alcohol wash followed by flour paste,

glucose-glycol paste, alcohol wash followed by glucose-glycol paste,

flour paste containing 10 percent diethylene glycol, and alcohol wash

followed by flour paste containing 10 percent diethylene glycol.

All samples of bindery work were conditioned at 70° F. and 65

percent relative humidity for 24 hours, then examined and rated from

poor to excellent according to the judgment of the investigator.

Further work, including the determination of color fastness and

stamping on various colored cloths, will be conducted during the year

to complete this investigation.

Cooperative research with the Bureau of Chemistry and Soils,

United States Department of Agriculture, to develop more permanent

bookbinding leathers has been continued. Previous research has

shown that vegetable-tanned bookbinding leathers deteriorate primarily because of absorption of acids from the air. Recent research

work undertaken by the Bureau of Chemistry and Soils has shown

that this relatively rapid deterioration of these leathers can be re- duced and their permanency increased by the use of certain tanning

agents which will result in leathers offering a high degree of inherent

resistance to rot. Consideration was therefore given to the feasibility of substituting

chrome-tanned or combination vegetable-chrome tanned leathers in place of vegetable-tanned leathers. A number of American tanners were requested to submit sample skins of this type manufactured

under tentative specifications for chrome tanning.

During the year special attention was given to accelerated aging

tests in which the forced deterioration artificially produced would be

equivalent to that which would occur in the same leather over a period

84
of years under actual atmospheric conditions. This test consists in

exposing specimens of experimental leathers in a special chamber to the

fumes produced by burning illuminating gas containing sulphur compounds. These compounds, by chemical reaction, form sulphur

dioxide and in turn sulphuric acid, which in some cases may accumulate

in the leather to an extent of more than 5 percent in 18 weeks. At

the end of 18 weeks of exposure the leathers are again tested for their

physical and chemical properties and compared with the tests made

before exposure to the fumes in the chamber. The amount of deterioration is estimated by the loss in tensile strength.

These tests indicate that there is a marked difference in the per- manence of full-chrome and combination vegetable-chrome tanned

leathers as shown by the following percentage losses in tensile strength

after 18 weeks in the gas chamber:

Full-chrome tannage Combination vegetable-chrome tannage

Sample

Percentage loss in tensile strength Sample

Percentage loss in tensile strength

No. 3 Law sheep

40

43

5423 Goatskin

43

Cowhide

29

No. 2 -

Law sheep

48

59

Goatskin

7470

65

8182 Cowhide

50

No. 4 No. 15 No. 5 - No. 6 No. 9 No. 7

No. 11

No. 8 No. 10 No. 13 No. 14 No. 12 ' The low resistance of the combination vegetable-chrome tanned

leathers, especially samples Nos. 13 and 14, is not in harmony with pre- vious findings. After 18 weeks of exposure in the gas chamber these,

leathers lost 81 and 82 percent, respectively, of their original strength.

This indicates a permanency equal only to the usual vegetable-tanned

leathers. It appears that materials or processes may be employed in the commercial production of some leathers in such a way as to offset the added resistance ordinarily imparted by chrome. Further in- vestigations are therefore planned to determine what these adverse

influences may be and how they may be avoided by the application

of tests and tannage specifications.

As a result of experience gained in actual binding with experimental

chrome-tanned leathers and those purchased for testing, it was

found desirable to revise the requirements for tannage in the specifi85
cations for chrome-tanned leathers. The specifications now permit a chromic oxide (Cr203 ) content of not less than 3 percent, in the case

of straight chrome and between 1 and 2 percent for the combination

tanned leathers, whereas formerly these required not less than 2 percent chromic oxide in the tannage.

During the year all purchases for sheepskin and goatskin leathers were made on specifications requiring chrome tannage, thus eliminating vegetable-tanned sheep and goat skin leathers from use in the

Government Printing Office. A purchase was made of a trial lot of combination vegetable-chrome

tanned cowhide leather. This leather was subjected to the various

binding operations to ascertain its suitability for bookbinding. The

following report was made by the Superintendent of Binding:

The leather lends itself satisfactorily to the different binding processes, being

soft and pliable, hence well adapted to the forwarding process. It is equally

satisfactory in the finishing process; therefore its use is recommended.

In cooperation with the Bureau of Chemistry and Soils efforts will be continued to interest American tanners in developing the regular

commercial production of more permanent leathers for the bookbinding trade.

Research on a number of bookbinding problems was continued in

cooperation with the Employing Bookbinders of America and the

Book Manufacturers’ Institute of America under the Research

Associate Plan.

The value of this cooperative research work was expressed by Mr.

E. W. Palmer, president of the Kingsport Press, Kingsport, Tenn.,

and chairman of the research division, Book Manufacturers’ Institute,

in a report to the Public Printer dated March 1938, in which he states: Even the briefest r6sum6 of the work of the research associate and the research

division of the Book Manufacturers’ Institute (formerly the Employing Bookbinders of America) must be quite general in scope. Back in 1929, when the

position of research associate was established in the Government Printing Office, the graphic arts industry, and particularly the bookmaking branch, was notable

for its total lack of materials specifications, the lack of any adequate and systematic testing of materials, the absence of any established trade standards covering

manufacturing technique; in short, it was hopelessly behind the times. To say, generally, that we have made noteworthy advances along many fronts

is to provide a question which may best be answered by a brief summary of objectives undertaken, and partially attained. In this connection there is presented a brief resume of the past

research work and a detailed description of the present research,

together with an outline of proposed future investigations.

86
Studies of various bookbinding materials have been made under a

classification of general research and standardization, as a result of which three commercial standards have been developed. These

were adopted by the bookbinding industry and approved by the

American Standards Association. These Commercial Standards are: CS 49-34 Chip Board, Laminated Chip Board, and Miscellaneous

Boards for Bookbinding Purposes; CS 50-34 Binders Board for Bookbinding and Other Purposes; and CS 57-36 Book Cloths, Buckrams, and Impregnated Fabrics for Bookbinding Purposes Except

Library Bindings.

Extensive investigations in the field of bindery adhesives led to

(1) the development of a glucose-glycol paste which practically

eliminates the warping of book covers; (2) the use of one grade only

of animal glue, of a high jell strength and a high viscosity, for making

flexible glues for bindery use; and (3) the knowledge that certain

recently developed chemical compounds may be successfully used as substitutes for glycerin in flexible glue compositions.

Various materials, such as end papers, supers or crash, and sewing

thread, used in the binding of books, have been studied with reference

to their efficient functioning in operations. A thorough investigation

of imitation gold leaf has been made and a procedure standardized

for determining the comparative tarnish resistance of the various

brands of that leaf, both flat and in the form of rolls. Within recent years States have adopted various specifications for the printing and binding of their textbooks supplied, under contract,

to the pupils in their schools. A movement, supported by textbook

publishers and manufacturers and State boards of education, has been

started to unify those specifications to make them suitable for use

in all States of the Union. We have rendered all possible assistance

in connection with the technical phases of the specifications to a joint

committee engaged in this undertaking. During the course of this research several technical bulletins dealing with bookbinding materials were published.

Based on information furnished by the Research Associate a slight

revision was made in Commercial Standard CS 57-36, which became

effective May 6, 1938. The specified weight of stripped cloth of group E fabrics was changed from 6.5 ounces per square yard to 6 ounces per square yard.

In connection with the study of chemical substitutes for gfycerin in

flexible glue compositions, sorbitol was subjected to experimental

tests. This compound, when used in flexible glue compositions, as a substitute for glycerin on a pound-for-pound basis, gave very satis- 87
factory results. It increased the viscosity of the composition and

caused it to dry out more slowly under low humidity conditions.

Thus far three of the flexible-glue formulas most generally used have

been revised to include sorbitol. The new formulas are as follows:

Formula A. —For general bindery use

Percent Percent Glue. 22. 60 Beta naphthol . 0. 10

Sorbitol 10. 25 Terpineol.. ... 0. 10 Glycerin. 10. 25 Water. 56. 70 100. 00 Formula B.-—For use on gathering, stitching and covering machines

Percent Percent Glue 36. 4 Beta naphthol 0. 15

Sorbitol _ _ _ _ 8. 3 Terpineol. _ 0. 15 Glycerin. 8. 3 Water. _ _ _ . 46. 7 100. 00 Formula D

Percent Percent Glue 26. 5 Beta naphthol 0. 15

Sorbitol. _ 13. 25 Terpineol. _ 0. 15 Diethylene glycol _ _ 13. 25 Water 46. 7 100. 00 Wherever glue is specified in the above formulas the grade is that

which has a jell strength of not less than 400 grams; a viscosity of not

less than 130 nor more than 140 millipoises; and a pH of not less than

6.4 nor more than 7. Experience in the use of these revised formulas during the past year

led to the elimination of formula E in our manufacture.

In planning the future trend of this cooperative research work a program has been developed for its guidance over several years. A

brief outline of this program is submitted

I. Special Research:

Adhesives for Bindery Use:

Investigate substitutes for glycerin in flexible glue compositions.

Investigate new adhesives and formulas.

Sizings: For stamping on roll and flat leaf, gold and foil, pyroxylin-treated fabrics, cellophane, Kodapak, and other new materials. For gilding new types of paper. For cover turn-ins on new materials. Inks: Quick-drying inks for pyroxylin-treated fabrics and for latex-treated fabrics and papers. New spray compounds to prevent ink offset from stamped covers. 88
Book Cover Plastics: For processing, adhesion to books, joints, covers, and for surface protection

of covers. Machine Wrapping and Sealing: For single books and packages in kraft, glassine, and cellophane and suit- able adhesives therefor. Pyroxylin-Treated Fabrics

Continue study of both the impregnated and coated materials to effect uniformity and ease of processing. Insects and Vermin:

Continue research on types and effects of encroachment.

Development of repellants for use in materials and adhesives.

II. Research to Effect Standardization of

Sewing thread. Muslin and tape cloths. Sewing tapes. Headbands.

Back-lining papers. End papers. Supers (crash cloths). Other materials as the need develops.

III. State Textbook Specifications and Standards:

Continue work with national committee.

Continue testing and the collection of data for revision and maintenance of standards. Publications

Much interest was manifested throughout the printing industry in the chapter on Communication by Printing and Photography submitted by the Public Printer for publication in ‘ ‘Technological Trends

and National Policy” by the National Resources Committee. This

chapter was therefore reprinted in booklet form for separate distri- bution. This publication has attracted considerable attention in

trade magazines and we have received many requests for copies from

individuals and public libraries: In Printing, vol. 62, No. 3: 46 (March 1938) in an article entitled

“Science Moves Printing Forward” the following appeared:

Communication by Printing and Photography, by A. E. Giegengack, United

States Public Printer, published by Government Printing Office, 37 pages. In- creased and more skillful use of color in printing, television and teletypesetting, more faithful photographic reproduction with polarized light and infrared rays, improved platemaking methods and other current developments in the Graphic

Arts are covered in this booklet. It was written as a chapter in the National Resources Committee’s 1937 report to the President on Technological Trends and

National Policy. In his treatment of each phase of the Graphic Arts, Mr. Giegengack includes enough history for understanding background, then goes on to explain the newT 89
inventions, showing that persistent research is constantly improving each step

in printing; that it promises broad advances in the future, impossible to predict

in detail. In The National Lithographer, January 1938, page 80, there

appeared the following:

Communication by Printing and Photography. National Lithographer, 44, No. 12, December 1937. This article consists of excerpts from the report of A. E. Giegengack, Public Printer, as a part of the report of the United States National Resources Committee on Technological Trends and National Policy.

The complete report is obtainable from the Superintendent of Documents,

Washington, D. C., for $1. Mr. Giegengack’s article reviews the technological trends in printing and photography with the object of indicating the direc- tions in which technical developments will take place within the next 10 to 25 years. A detailed review of this article by D. M. MacMaster was also published in the December 1937 issue of the Inland Printer.

A large number of letters were received requesting further information relative to some of the various printing processes discussed

in this publication.

An article entitled “The Relationship of the Government Printing

Office to the Paper Industry” was prepared at the request of the editor

of The Paper Industry and published in the May 1938 issue. In this

article an outline is given of the various grades of paper and the

quantity and cost of paper annually purchased by the Government

Printing Office. A brief review is given of the paper research con- ducted by the Office with a list of publications bearing upon the

subject. Several publications sold by the Superintendent of Documents and of special importance to engineers and chemists are also mentioned

.

Assistance to Other Departments

As in previous years, the Government Printing Office, through the

Division of Tests and Technical Control, has rendered valuable

assistance to the various Government departments in connection with

paper, ink, type metal, glue, bookbinding, various printing processes, and other technical problems. An example may be cited:

At the request of Mr. James A. Horton, Chief Examiner of the

Federal Trade Commission, a series of photographic exhibits were

prepared illustrating the various screen patterns in half-tone printing,

showing the characteristics of the three major processes of printing

as they appear when viewed through a microscope. The photomicrographs were prepared to assist the Commission in an investigation

90
whereby they could, through microscopic comparison of certain questionable specimens of printed matter, definitely classify them as to the printing methods employed.

Contact with Printing, Binding, and Allied Organizations

The Division of Tests and Technical Control has continued to maintain cooperative contacts with the United Typothetae of America,

Lithographic Technical Foundation, American Newspaper Publishers

Association, Technical Association of the Pulp and Paper Industry,

American Society for Testing Materials, Graphic Arts Research

Bureau, The Research Commission of the International Association

of Printing House Craftsmen, Inc., American Standards Association,

and the Printing and Allied Trades Research Association of Great

Britain.

Correspondence

Numerous letters of inquiry pertaining to the graphic arts were

received from all parts of the United States and also from other

countries. The preparation of replies to these sometimes involves

tests or literary references or other investigational work, which often

brings to light information mutually helpful.

RECEIPTS AND EXPENDITURES

The total resources available to the Government Printing Office

during the fiscal year ended June 30, 1938, including the Office of the Superintendent of Documents and appropriations and payments

for work, amounted to $19,778,914.79 as compared with $19,975,107.28

for the fiscal year 1937, a decrease of $196,192.49.

Obligations incurred during the fiscal year 1938 totaled $19,754,-

749.30, leaving an unobligated balance of $24,165.49 subject to over- adjustments or underadjustments on approximately $1,884,544.30

outstanding obligations to July 1 , 1938. Obligations incurred in 1938 showed a decrease of $175,389.42 from those for 1937.

The total compensation paid to all employees, including those of the Office of the Superintendent of Documents, during the fiscal year

1938 amounted to $12,128,807.46, which total included $422,692.33

deposited to the credit of employees in the retirement fund through

the 3 y2 percent deduction as required by law.

Table 1 gives the details of all resources available to the Government Printing Office for the fiscal year ended June 30, 1938, and all liabilities incurred against these resources during the fiscal year. 91
Table 1 . —Resources and liabilities under appropriations for the fiscal year ended June 30, 1938 RESOURCES

Appropriation for working capital, legislative act approved May 18, 1937 $3, 800, 000. 00 Second Deficiency Act, approved June 25, 1938 408, 000. 00

Payments from all sources for printing and

binding 14, 203, 776. 31 Refunds from various sources 206. 28

Bills receivable July 1, 1938, for printing and

binding furnished 549, 857. 62

Appropriation for salaries, Office of Superintendent of Documents

Appropriation for general expenses, Office of Superintendent of Documents

Balance of appropriation for equipment for Government Printing Office building Texas Centennial Exposition, act of August 12, 1935

Greater Texas and Pan American Exposition,

Public Resolution No. 21, Apr. 9, 1937

Total resources available for fiscal year 1938

LIABILITIES Working capital and repayments for printing

and binding:

Disbursed to June 30, 1938 $16, 142, 569. 96 Outstanding obligations July 1, 1938 1, 798, 555. 46 Total disbursed and outstanding obligations

Salaries, Office of Superintendent of Documents: Disbursed to June 30, 1938 $569, 723. 24 Outstanding obligations July 1, 1938 26, 976. 06

Total disbursed and outstanding obligations General expense, Office of Superintendent of Documents:

Disbursed to June 30, 1938 $156, 205. 70 Outstanding obligations July 1, 1938 58, 644. 30 Total disbursed and outstanding obliga- tions

1 Appropriated in 1929, available until used.

$18, 961, 840. 21

600, 000. 00

215, 000. 00

i 670. 36

4. 22

1, 400. 00

19, 778, 914. 79

17, 941, 125. 42

596, 699. 30

214, 850. 00

92
Table 1 . —Resources and liabilities under appropriations for the fiscal year ended June 30, 1938—Continued

LIABILITIES—Continued Equipment, Government Printing Office building:

Disbursed to June 30, 1938 $301. 88 Outstanding obligations July 1, 1938 368. 48

Total disbursed and outstanding obli- gations Texas Centennial Exposition:

Disbursed to June 30, 1938 Outstanding obligations July 1, 1938 Total disbursed and outstanding obliga- tions 4. 22 Greater Texas and Pan American Exposition:

Disbursed to June 30, 1938 $1, 400. 00 Outstanding obligations July 1, 1938 0 Total disbursed and outstanding obliga- tions 1, 400. 00 Total disbursed to June 30, 1938 $16, 870, 205. 00 Total outstanding obligations July 1, 1938 1, 884, 544. 30 Outstanding obligations returnable to U. S. Treasury 1, 000, 000. 00

Total disbursed and outstanding obligations 19, 754, 749. 30

Unobligated balances (subject to 10 percent over or under on

outstanding orders) 2 24, 165. 49 Total 19, 778, 914. 79

2 Includes $368.48, equipment for Government Printing Office building, available 1939. Table 2 is a summary statement showing all financial transactions

during the fiscal year ended June 30, 1938, covering appropriations

made for the fiscal years 1936, 1937, and 1938. This statement also gives a summary of all expenditures for various items during the

fiscal year 1938, regardless of the appropriation from which paid,

together with a recapitulation of disbursements by major items.

$670. 36

$4. 22

0

93
Table 2.—Summary offinancial transactions in fiscal year ended June 30, 1938, covering

appropriations for fiscal years 1936, 1937, and 1938 APPROPRIATION FOR 1936

Resources Disbursements

Unexpended

balance on

July 1, 1938, from the appropriation

for 1936

Public printing and binding: Unexpended balance July 1, 1937... .. . . $146, 836. 01

3, 397. 79

Credits to appropriation by payments from all sources for printing and binding and other receipts from miscellaneous sources Disbursed for labor $56. 34 Disbursed for material and supplies .. 17, 623. 71 Total 150, 233. 80 17, 680. 05 $132, 553. 75

Salaries, Office of Superintendent of Documents: Unexpended balance July 1, 1937 __ 9, 606. 71 9, 606. 71 General expense, Office of Superintendent of Documents: Unexpended balance, July 1, 1937- - . __ 15, 849. 48 Disbursed - . 15, 830. 84 Total 15, 849. 48 15, 830. 84 18. 64 Grand total appropriations . Unobligated balance of 1936 appropriations on June 30, 1938

175, 689. 99 33, 510. 89 142, 179. 10

142, 179. 10

APPROPRIATION FOR 1937

Resources Disbursements

Unexpended

balance on

July 1, 1938, from the ap- propriation

for 1937

Public printing and binding: Unexpended balance July 1, 1937 - $1, 038, 757. 64

2, 083, 792. 05

Credits to appropriation by payments from all sources for printing and binding and other receipts from miscellaneous sources Disbursed for labor $485, 888. 83

1, 233, 412. 64

51, 848. 63

200, 070. 60

1, 000, 000. 00

Disbursed for paper _ . _ Disbursed for lithographing and engraving Disbursed for materials and supplies Disbursed to surplus fund

Total . 3, 122, 549. 69 2, 971, 220. 70 $151, 328. 99

Salaries, Office of Superintendent of Documents: Unexpended balance July 1, 1937 41, 739. 12 Disbursed 26, 221. 39 Total.. 41, 739. 12 26, 221. 39 15, 517. 73 General expense, Office of Superintendent of Documents: Unexpended balance July 1, 1937 62, 554. 89 Disbursed 62, 311. 21 Total.. 62, 554. 89 62, 311. 21 243. 68 Grand total appropriations. Deduct for outstanding obligations

3, 226, 843. 70 3,059, 753. 30 167,090.40

108, 354. 43 Unobligated balance of 1937 appropriations on June

30, 1938 58, 735. 97

94
Table 2. —Summary offinancial transactions infiscalyear ended June 30, 1938, covering

appropriations for fiscal years 1936, 1937, and 1938—Continued APPROPRIATION FOR 1938

Resources Disbursements Unexpendedbalance July 1, 1938

Public printing and binding:

Legislative act of May 18, 1937.. $3, 800, 000. 00

408, 000. 00

14, 753, 840. 21

Second Deficiency Act of June 25, 1938 Credits to appropriations by payments and bills receivable from all sources for printing and binding and other receipts from miscellaneous sources—.

$11, 060, 150. 87

4, 198, 589. 15

47, 816. 45

836, 013. 49

Disbursed for paper _

Total - - 18, 961,840. 21 16, 142, 569. 96 $2, 819, 270. 25

Salaries, Office of Superintendent of Documents:

600, 000. 00

569, 723. 24

600, 000. 00 569, 723. 24 30, 276. 76 -General expense, Office of Superintendent of Documents:

Legislative act of May 18, 1937 215, 000.00 Disbursed 156, 205. 70 Total 215, 000. 00 156, 205. 70 58, 794. 30 Equipment, Government Printing Office building, legis- lative act of Feb. 28, 1929: TTneyp^ndp.ri balanp.fi .Tilly 1

( 1937 i 670. 36 Disbursed to June 30, 1938 - 301.88 Total 670. 36 301.88 368.48 Texas Centennial Exposition Act of Aug. 12, 1935, ap- proved Aug. 12, 1935: Unexpended balsnce July 1, 1937 4. 22 Disbursed to June 30, 1938 4. 22 Total 4. 22 4. 22 Greater Texas and Pan American Exposition:

Piihlin lUUllU Pocnlntinn XvcoUluliUii iiU. Mn 91 ATinrovpfl u v cu npi A nr. Q 1Q27 i«/u i - 1, 400. 00 Disbursed to June 30, 1938 1, 400. 00 Total 1,400. 00 1, 400. 00 Grand total appropriations — 19, 778,914. 79 16, 870, 205. 00 2, 908, 709. 79 Deduct 2, 884, 544. 30 for outstanding obligations Unobligated balances of 1938 appropriations on June 30, 1938 —-

2 24, 165. 49 Total unobligated balance, subject to change by 10 per- cent over and under on outstanding obligations:

1936 142, 179. 10

58, 735. 97

24, 165. 49

1937 1938. --- Total. .......

225, 080. 56

» Appropriated Feb. 28, 1929, available until used.

* Includes $368.48, equipment Government Printing Office building, available 1939.

95
Table 2. —Summary offinancial transactions in fiscal year ended June 30, 1938, covering

appropriations for fiscal years 1936, 1937, and 1938—Continued

RECAPITULATION—ALL APPROPRIATIONS

Total paid for labor i $11, 546, 096. 04 Total paid for materials and supplies 1, 053, 707. 80 Total paid for 1 ithographing and engraving 99, 665. OS

Total paid for paper 5, 432. 001. 79 Total paid for printing and binding 18, 131, 470. 71 Total paid for salaries, Office of Superintendent of Documents 2 595, 944. 63 Total paid for general expense, Office of Superintendent of Documents 234, 347. 75 Total paid for equipment, Government Printing Office building 301. 88 Total paid for Texas Centennial Exposition 4. 22 Total paid for Greater Texas and Pan American Exposition 1, 400. 00 Total credited to surplus fund 1, 000. 000. 00 Grand total 3 IP, 963, 469. 19

1 Includes $385,119.46 deposited to credit of retirement fund.

3 Includes $19,538.14 deposited to credit of retirement fund.

3 Includes $404,657.60 deposited to credit of retirement fund. Table 3 is a statement of all moneys received during the fiscal year ended June 30, 1938, by the Disbursing Clerk as repayments for

printing and binding for the several executive departments and

independent Government establishments, and from the sale of waste

paper and other waste materials, and the appropriation to which

deposited. The receipts from these various sources during 1938

totaled $15,384,081.18 as compared with $15,659,170.69 in 1937.

Table 3 1919 Deposited to the credit of appropriation for public printing and

binding: Dual service 1935 Deposited to the credit of appropriation for public printing and binding: For printing and binding for departments. $319. 75 Refunds 15. 00

Auditor’s disallowance 1. 50

1936 Deposited to the credit of appropriation for public printing and binding: For printing and binding for departments. _ $5, 593. 48

Refunds 2. 10

$ 11 . 00

336. 25

5, 595. 58

96
1937 Deposited to the credit of appropriation for public printing and binding: For printing and binding for departments. _ $2, 084, 288. 96

Miscellaneous printing and binding 1, 778. 20 Refunds 1, 744. 07

1938

$2, 087, 811. 23

Deposited to the credit of appropriation for public printing and binding: For printing and binding for departments. _ $13, 113, 815. 10 Miscellaneous printing and binding 101, 965. 29 Refunds 902. 06 Damage to Government property 2. 75

1930

13, 216, 685. 20

Deposited to the credit of appropriation for salaries, Superintend- ent of Documents: Refund

1937 Deposited to the credit of appropriation for salaries, Superintendent of Documents: Balance of appropriation

1938 Deposited to the credit of appropriation for salaries, Superintendent of Documents: Refunds

1919 Deposited to the credit of appropriation for increase in compensation, Government Printing Office: Dual service 1937-38 Greater Texas and Pan American Exposition: Balance of appropriation 1938 Deposited to miscellaneous receipts: Sale of waste paper $63, 694. 11 Sale of salvage 8, 002. 17 Discounts, rebates, etc 1, 435. 84 Telephone messages 9. 90

360. 00

50. 14

79. 10

1. 25

9. 41

73, 142. 02 Grand total 15, 384, 081. 18

97
Table 4 shows comparative production records, by major items, for

the fiscal years 1936, 1937, and 1938. There was a decrease in many

of the items produced in 1938 as compared with 1937.

Table 4. —Production of principal items entering into printing and binding in fiscal years 1936, Z937, and 1938

Item Computation

unit 1936 1937 1938 Main office and Congressional Library branch Total charges for printing and binding

Jackets written Estimates made

Bills computed

Electrotypes, stereotypes, and matrices. .. Postal cards printed Money orders shipped

Actual impressions Chargeable impressions

Sheets folded Signatures gathered Tips made

Copies wire-stitched Books rounded and backed

Copies covered Stamping impressions Books cased in Books indexed

Sheets passed through ruling machine

Signatures sewed

Copies punched and drilled Sheets and lines perforated Tablets made

Miscellaneous rebinding, etc

Number

do

do

Square inches. Number

dodo

do

do

do

do

do

do

do

do

do

do.. do

do

do

do

dodo

$18, 756, 268. 94

79, 431

60, 622

98, 592

14, 090, 784

1 , 944, 725, 400

234, 882,275

1 , 094, 225,997

4, 656, 077, 635

669, 778, 763

187, 753, 611

41 , 400, 895 83, 780, 237

889, 524

15, 233, 487

3, 500, 809

1 , 063,610

318, 064

54, 720, 055

47, 890, 764 235, 576, 177

11 , 097, 802

10, 154, 694

161, 479

$18, 163, 977.24

79, 332

59, 614

101, 473

12, 942, 570

2, 428, 243, 040

282, 095, 325

1 , 084. 839, 488

4, 276, 985, 299

715, 915, 376

218, 969, 549

31, 398, 213 86, 256, 978

1 , 206, 103

15, 949, 612

2, 658, 941

1 , 313, 203

487, 503

49, 162, 498 37, 440,737 220, 912, 293

12, 462, 567

8, 401, 788

127, 740

$17, 959, 316. 06

80, 106 58,058 95,594

13, 468, 121 2, 240, 766, 100 262, 511, 860

1 , 141 , 090, 031

3, 367, 279, 474 679. 169. 095

290. 812. 096

43, 306, 901 78, 948, 103

1 , 762,762

14, 810, 426

1 , 987, 470

1 , 146,603

268, 182 42, 172, 615 48, 606,987

196, 840,923

11 , 630, 313

7, 939, 214

179, 111 Some of the outstanding increases in production during 1938 as shown by table 4 were: Electrotypes, stereotypes, and matrices 525,551

square inches more produced in 1938 than in 1937 ; signatures gathered,

71,842,547 more than in 1937; tips made, 11,908,688 more than in

1937; books rounded and backed, 556,659 more than in 1937; signatures sewed, 11,166,250 more than in 1937; miscellaneous rebinding,

51,371 more than in 1937; and actual impressions, 56,250,543 more

than in 1937.

Table 5 shows the charges for printing and binding work and the

service for which the work was done during the fiscal year 1938. The

charges for printing and binding for the Congress amounted to $3,108,000; for the Post Office Department, including the cost of

printing postal cards and money-order blanks, $2,225,872.54; Treasury

Department, $1,481,770.21 ; Department of Agriculture, $1,202,017.30;

War Department, $714,324.34; Department of Commerce, exclusive of

Patent Office printing, $696,318.78; Patent Office, $865,582.72; Navy

Department, $662,274.72; Interior Department, $633,095.52; Works

Progress Administration, $516,478; Library of Congress, $490,-

696.10; Department of Labor, $418,605.81; Agricultural Adjustment

98
Administration, $401,646.54; Social Security Board, $396,602.65;

Department of Justice, $342,205.02; Federal Housing Administration,

$335,592.46; and State Department, $217,310.87. The Superintendent of Documents ordered the printing of books and pamphlets for sale to the public at a cost of $461,780.44; for depository distribution

the cost of publications was $81,737.98; for catalogs and indexes,

$27,536.39; for price lists and other Office printing, $70,843.90; and for supplies and services, $41,532.55; making the total cost of work and

services furnished to the Superintendent of Documents during the

fiscal year 1938, $683,431.26.

A number of other branches of the service had printing and binding

costs during the year 1938 in excess of $100,000 each.

Table 5.—Charges for work and to whom delivered during the fiscal year ended June 30, 1938 Congress:

Congressional Record $996, 524. 18 Publications for folding rooms 89, 008. 72 Miscellaneous for folding rooms 53, 999. 92

Publications for international exchange 15, 980. 45 Franked envelopes and document franks 95, 317. 57

Bills, resolutions, and amendments 467, 309. 91 Committee reports 139, 649. 89 Documents 115, 076. 77 Hearings 475, 393. 82

Miscellaneous publications 25, 540. 36 Miscellaneous printing and binding 634, 198. 41 Total congressional printing

The Federal Register

Private orders by Members of Congress:

Documents, reports, bills, etc Speeches

Other private orders Superintendent of Documents

Library of Congress

Agriculture

Commerce

Interior Justice Labor

$3, 108, 000. 00

97, 682. 13

12, 051. 75

80, 186. 86

5, 169. 94

683, 431. 26

490, 696. 10

1, 202, 017. 30

696, 318. 78

633, 095. 52

342, 205. 02

418, 605. 81 Navy 662, 274. 72 Post Office 2, 225, 872. 54

State 217, 310. 87 Treasury 1, 481, 770. 21 War 714, 324. 34

Agricultural Adjustment Administration 401, 646. 54

Alley Dwelling Authority 485. 12 American Battle Monuments Commission 285. 76 99
Table 5.—Charges for work and to whom delivered during the fiscal year ended June 30, 1938—Continued

Board of Governors of the Federal Reserve System $1, 859. 07 Board of Tax Appeals 20, 087. 98 Bureau of the Budget 35, 743. 06

Central Statistical Board 664. 16

Civil Service Commission 87, 742. 06

Civilian Conservation Corps 57, 004. 49 Commission of Fine Arts 446. 86

Commodity Credit Corporation 39, 620. 42 Coordinator for Industrial Cooperation 26. 56 Court of Claims 23, 758. 05 Court of Customs and Patent Appeals 6, 847. 84

District Court of the United States for the District of Columbia. 2, 963. 07

District Government 74, 186. 81 Employees’ Compensation Commission 23, 527. 99 Export-Import Bank of Washington 89. 45 Farm Credit Administration 125, 675. 25 Farm Security Administration 94, 292. 78

Federal Alcohol Administration 12. 00

Federal Communications Commission 39, 470. 98

Federal Coordinator of Transportation 10, 800. 001 Federal Deposit Insurance Corporation 4, 811. 93

Federal Emergency Administration of Public Works 68, 860. 05

Federal Emergency Relief Administration 1, 437. 54

Federal Home Loan Bank Board 13, 481. 74

Federal Housing Administration 335, 592. 46

Federal Power Commission 63, 537. 04

Federal Savings and Loan Insurance 1, 765. 45

Federal Surplus Commodities Corporation 8, 614. 03

Federal Trade Commission 24, 342. 98

General Accounting Office 89, 987. 45 George Washington Bicentennial Commission 48, 361. 01 Home Owners’ Loan Corporation 87, 709. 26 Inland Waterways Corporation 409. 26

Interstate Commerce Commission 173, 844. 96 National Academy of Sciences 230. 43 National Advisory Committee for Aeronautics 23, 074. 48 National Archives 11, 987. 09

National Bituminous Coal Commission 68, 850. 92 National Capital Park and Planning Commission 87. 19 National Emergency Council 16, 564. 14 National Forest Reservation Commission 827. 92 National Guard, District of Columbia 293. 74 National Labor Relations Board 63, 643. 06 National Mediation Board 1, 447. 49 National Railroad Adjustment Board 19, 161. 99 National Unemployment Registration 232, 212. 52 Northwest Territory Celebration Commission 913. 98

Office of Commissioner General, Paris International Exposition-. 10. 21 100
Table 5.—Charges for work and to whom delivered during the fiscal year ended June 30, 1938—Continued

Panama Canal $8, 612. 54

Pan American Union 31, 512. 50 Patent Office 865, 582. 72

Prison Industries Reorganization Administration 2, 700. 82 Puerto Rico Reconstruction Administration 8, 724. 13 Railroad Retirement Board 40, 316. 33 Reconstruction Finance Corporation 104, 588. 24 Recorder of Deeds, District of Columbia 1, 921. 37

Register of Wills, District of Columbia 2, 276. 43 Resettlement Admim'stration 65, 287. 29 Rural Electrification Administration 48, 882. 52

Securities and Exchange Commission 69, 298. 85 Smithsonian Institution 64, 284. 75

Social Security Board 396, 602. 65 Supreme Court, United States 12, 949. 90 Tennessee Valley Authority 22, 208. 06

U. S. Constitution Sesquicentennial Commission 2, 934. 90 U. S. Court of Appeals for the District of Columbia 1, 283. 75- U. S. Customs Court 142. 45 U. S. Golden Gate Exposition 129. 99 U. S. Greater Texas and Pan American Exposition Commission- _ 26. 78

U. S. Housing Authority 16, 894. 53 U. S. Maritime Commission 32, 348. 15 U. S. Tariff Commission 20, 206. 16- Veterans’ Administration 135, 046. 12 War Finance Corporation 28. 24

White House 7, 738. 12 Works Progress Administration 516, 478. 00

17, 959, 316. 06

Table 6 (p. 102) is a statement giving the details of production costs

for each section of the Office, exclusive of the Office of the Superin*

tendent of Documents, grouped under the headings of salaries, wages,

leave, and holiday pay; materials, supplies, equipment, and machinery

maintenance and upkeep; administrative and clerical expenses, and

other major items entering into the cost of production.

Table 7 (p. 103) is an itemized statement of the classes of work

delivered and charged for during the fiscal year 1938. Of publications

there were printed 140,548,713 copies, including speeches, private

orders, and copies ordered for sale by the Superintendent of Documents,

but not including the Congressional Record, of which 8,667,455 were

printed. The table shows that the grand total of the number of copies of the various classes of work printed in 1938 was 6,524,377,197^

as compared with 6,091,154,072 in 1937 and 5,806,276,860 in 1936.

101
Table

6.

—

Statement

of

the

cost of

production

of

the

Office

for

the

fiscal

year

1938

Total

cost

ot

production

$638,

417

03

46,

766.

47

47,

932.

98

540,

102. 23

1,

461,

031. 49

1,

819,

794.

15

690,

308. 12

181,188.

97

317,

990.

09

145,

417. 50

2,

289,

388.

45

178,

211. 59

964,

940.

56

1,

371,

632.

72

761,

570.

61

1,

056,

741.

39

1,

631,

827.

43

153,

984. 72

56,

051.

29

237,

467.

15

j

• C

i\

I I c0,

U/i,

OO

83,

741. 15

30,

299. 01

!S§ 3

is §

Ii s

17,985,828.76

t

*

0

Credit $23,

440.

65 : i

1 1 \m

; j js|c

iS i. 88G i 11 i i»l i

! S S' i H ! !

5,

753. 17

3,

984. 29

41,

315.

61

28,

411.

17

11,

376.

94

22,

087. 77

86,

965. 04

70,

434. 12

36,

155. 38

30,

952. 85

i i is

1 1 !§

| | isii i 8 i ;

1,852,467.

35

I

Debit

$60,

955.

54

1,

124. 73

11,

227.

98

106,

170. 71

499,

147. 97

555,086.

14

112.61

54,

782. 28

21,

429.

06

9,

270. 98

6,

563. 60

112,

195. 94

2,

460. 47

1,

316.

43

87,

734. 74

3,

703.

53

37,

747. 04

1,

381. 36

1,

332.

75

135.

54

326. 60 i i ig

i i ii

| | ;g

OO,

4.04.

ou

168,

158. 56

5,

961. 38

1,

836,

578. 80

iiilii

IfJlii

: h

i • c

! . <

i ii

388

ill

% l +

l

-354,

191. 40

Paper

stock

issued,

illustrations

ordered,

outside

purchase

vouchered

i is i i Mil

jjS

||

97,

715. 28

680,

016. 82

11,

145. 90

206,

774.

09

30,

221. 70

1,364,956.77

5 i i i ii ii N ||

i 1

1

i l c

32S

ill

it*

»

5,

973,

775. 40

General

overhead $99,

580. 01

7,

557.

72

5,

951. 03

69,

702.

71

157,

475. 74

230,

841.

65

174,

620. 76

106,

154. 63

8,

074. 94

64,

336. 10

22,

075. 78

340,

811.35

11,

529.

70

35,

793.

10

197,

106.

81

83,

873. 48

142,

581.

10

44,

215. 27

10,

837. 20

3,

404. 71

41,

471. 14

2,

856. 57

2,

353. 39

1,

499.

41

1,

864,

704. 30

Maintenance

ana

upkeep $1,

993. 82

647. 57

128.

86

5,

416. 88

18,

470.

14

21,

164. 74

698.

74

6,

381.

10

254. 56

12,

178. 04

3,

293. 91

85,

425. 66

5,

335. 46

15,

639. 76

31,

433. 40

10,

596. 98

17,

216.

89

6,

018. 02

348.

21

162. 97

37,

546.

06

869. 93

4,

398. 14

341.

19

19,

016. 78

304,

977. 81

Material, supplies, equipment,

and

machinery $6,

655. 78

259. 76

581.

67

14,

461.

64

20,

070.

48

39,

976. 53

725.

17

3,

033.

56

667. 69

23,

220. 31

17,

866.

21

67,

698. 23

2,

208.

10

48,

231. 35

20,

015. 12

20,

975.

13

119,

247.

96

12,

893.

43

3,

491.

36

96. 73

7,

334. 17

51,089.11 16,

524.

20

20,

917. 90

16,

554. 39

534,

795.

98

Salaries, wages,

leave,

and

holiday

pay

$492,

672. 53

37,

166. 69

30,

043. 44

344,

350.

29

776,

763.

46

1,

138,

865. 57

915,

383. 58

523,

954. 11

110,

326. 77

278,

789. 04

95,

683. 75

1,

744,

149. 44

58,

962. 58

183,

943.

10

1,

029,

949.

92

439,

631.

69

751,

042. 31

230,

773. 75

146,

417. 36

74,

339.

11

237,

754.

22

15,

618. 51

12,

879. 65

8,

194. 35

9,

677,

655. 22

Section

(manufacturing

center)

Job

Composing

Plating

lock-up

-

Title

Page

Hand

Linotype

Monotype

-

prooi

Patents Library

Composing

Branch

Platemaking:

Molding,

stereotyping,

and

finishing

Photoengraving-

-

Press:

Job,

book,

offset,

and

tabulating

card—

Money

Order

—

Postal

uarct

—

Pamphlet

—

-

Blank Book

Cutting

and

Packing

—

Library

Binding

Branch

Details

Chargeable

-

Stores

(handling

paper,

illustrations,

and

outside

purchases)

Ink

-

ivietai Roller

and

glue

. J

Paper

Stock,

Press

Division

—

Illustrations

Outside

Purchases

w

orK

ior

slock

rerurneu

10

siores

-

Miscellaneous

items

Miscellaneous

service

for

Superintendent

of

Documents

other

than

printing

and

bindTotal

-

102
Table

7.

—

Itemized

statement

of

the

classes

and

charge

for

work

delivered

during

the

fiscal

year

1938

sssssssssssssseg §

IlSilSlIlllllSSi

Charges

for

rush

and

overtime work

$3,936.

26

155,

485. 74

28,

105. 67

45,

204.

04

16. 43

115,358.

66

74,

056. 52 isggg is !§§§§ \n

j«sf« 525,

560.

65

Charges

for

author’s

alterations $8,

627. 23

124,

188. 75

22,

569.

29

40,

588.

62

959.

08

4,

277. 60

3,

487. 78

5,

816. 83

1.28

1,069.

34

34,

179. 88

1,404.

80 i is

i id

1 o

i i^'

251,

181. 61

Charges

for

paper

$41,

644. 88

438,

190. 55

82,

746.

10

76,

811.53

188,

660. 55

130,

212. 88

20,

495. 37

10,

730. 26

20,

893.

91

97,

715. 28

244,

552.

10

2,

754,

235. 73

102,

681. 46 isc

ill

isi

i_- 5,

652,

257. 03 ill $158,

024. 83

2,978,983.68

476,230.91

764,

599. 18

459,

299. 83

746,

675. 04

369,

270.

24

683,

793. 65

113,

391.46

55,

259. 73

206,

565. 94

2,

920,

926. 83

353,

749. 88

486,

519.

51

126,

701. 13

630.

324.

93 Ki

H

Number

of

publications

bound 16,

928

227,

734 38,

538

18,254 179,

641

31,256 1,183 50

513,

584

Number

of

type

pages 19,

923

837,

754 82,

800

95,527 1,

235,

441 66,

461

130,

787

140,

184 28,

089 1

2,

636,

966

Number

of

copies 10,

457,

239

79,

136.

243

5,

481,

575

11,390,

370

34,083,286 8,

667,

455

7,

361,

877

5,

169,

438

227,

607

262,511,860

239,

193,

515

5,

855,

296,924 5,

322,

393 77,

415

6,

524,

377,

197

1

103
The increase in the number of copies of the various classes of work

printed in 1938 over 1937 was 433,223,125 copies. The total charges

for this work in 1938 amounted to $17,959,316.06, as compared with

$18,163,977.24 in 1937.

Table 8 gives the details of the inventory of stock and machinery

and equipment on hand at the close of the fiscal year 1938. The value

of supplies on hand, including paper, envelopes, and other materials, was $1,314,278.26, as compared with $1,353,644.70 in 1937, representing a decrease in the value of stock on hand of $39,366.44. The value

of machinery and equipment in 1938 was $5,395,885.07, as compared

with $5,494,267.03 in 1937, or a decrease in the value of machinery

and equipment of $98,381.96. The total value of stock of all kinds

and machinery and equipment on hand at the close of the fiscal year

1938 was $6,710,163.33, as compared with $6,847,911.73 at the close

of the year 1937.

Table 8. —Inventory of quantity and cost of paper and envelopes, materials and supplies, and machinery and equipment on hand June 30, 1938

Pounds Cost Paper and envelopes: Printing _ __ ... 3, 736, 272

549, 434

38, 133

2, 414, 583

94, 381

356, 905

1, 834, 158

723, 763

503, 656

239, 292

239, 481

482, 877

527, 018

144, 684

1, 674, 252

108, 760

639, 660

$246, 966. 79

34, 219. 37

4, 727. 80

154, 550. 71

12, 436. 12

51, 381. 94

172, 144. 62

86, 898. 73

53, 451. 40

26, 456. 98

15, 962. 32

20, 825. 82

39, 013. 14

7, 533. 85

88, 453. 97

12, 352. 61

17, 843. 97

19, 728. 78

1, 064, 948. 92

Mimeograph _ _ _ . - .....

Safety writing ......

Writing ... ... .... Map . . ... . . . Manifold .....

Bond ...

Ledger . . . ... . Index. ..... ......

Cover ... ._ . . Manila .. . ... .. ... . _ Kraft ... . .. . Manila tagboard ..... ...... ...

Cardboard .. . ...

Bristolboard ... ... ... . .... ...

Miscellaneous . ........ . . ...

Binder’s board . _ . ...

Envelopes.. .. ..._ ... . .. Total, paper and envelopes. .. . ... .. . ... _. Other materials and supplies: Miscellaneous supplies . _. .. 170, 826. 92

19, 596. 85

11, 387. 90

14, 845. 34

6, 818. 30

6, 355. 13

4, 188. 54

9, 592. 57

5, 717. 79

Book cloth . .. .. . _ . Ink ingredients .. .. . . . . Buckram .. . ... .. ....

Leather Gold leaf ... .. . .. ..

Ink (made in Government Printing Office) ...

Cartons and containers . Imitation leather.. . . ... .. Total, materials and supplies.. .... ... ... . 249, 329. 34 Total, materials and supplies, paper and envelopes Machinery and equipment .

1, 314, 278. 26

5, 395 885. 07 Grand total 6, 710, 163. 33

Table 9 shows the number of copies of publications printed in 1938

for the Congress, the executive departments, and independent Government establishments. During the fiscal year 1938 there was

104
printed a total of 117,450,064 publications, as compared with 180,637,-

668 in 1937. The figures in table 9 are exclusive of the number of copies of speeches printed for Members of Congress and other private

orders.

Table 9.—Publications, including annual reports and documents, printed on requisition

during the fiscal year ended June 30, 1938, for Congress, the executive departments,

and independent Government establishments Congress 7, 108, 586

The Federal Register 2, 041, 590

Superintendent of Documents 12, 603, 715

Library of Congress 109, 209

Agriculture 24, 506, 292

Commerce 4, 569, 582

Interior 2, 285, 542

Justice 260, 384 Labor 2, 892, 170 Navy 3, 771, 679

Post Office 6, 534, 130

State 539, 648

Treasury 2, 454, 837 War 8, 347, 701

.Agricultural Adjustment Administration 24, 355, 142

Alley Dwelling Authority 1, 505 American Battle Monuments Commission 103 Board of Governors of the Federal Reserve System 3, 008

Board of Tax Appeals 82, 307 Bureau of the Budget 1, 900

Central Statistical Board 2, 510

Civil Service Commission 127, 748

Civilian Conservation Corps 97, 127 Commission of Fine Arts 1, 005 Commodity Credit Corporation 27 Court of Claims 44, 730 Court of Customs and Patent Appeals 726

District Government 12, 330

Employees’ Compensation Commission 93, 703 Export-Import Bank of Washington 3 Farm Credit Administration 1, 024, 493 Farm Security Administration 174, 500

Federal Communications Commission 37, 271 Federal Deposit Insurance Corporation 8 Federal Emergency Administration of Public Works 230, 521 Federal Home Loan Bank Board 132, 200

Federal Housing Administration 2, 714, 577

Federal Power Commission 173, 893

Federal Savings and Loan Insurance 6, 000

Federal Surplus Commodities Corporation 81, 025

Federal Trade Commission 83, 294 105
Table 9.

Publications , including annual reports and documents, printed on requisition

during thefiscal year ended June 30, 1938, for Congress, the executive departments

,

and independent Government establishments—Continued

General Accounting Office ... 19, 579

George Washington Bicentennial Commission 21, 000

Home Owners’ Loan Corporation 7, 271 Inland Waterways Corporation 3, 000

Interstate Commerce Commission 1, 468, 937

National Academy of Sciences 3, 000

National Advisory Committee for Aeronautics 40, 014

National Archives 42, 036

National Bituminous Coal Commission 127, 366

National Emergency Council 49, 506

National Forest Reservation Commission 8, 000

National Labor Relations Board 386, 036

National Mediation Board 5, 526

National Railroad Adjustment Board 953

National Unemployment Registration 1, 218, 247

Office of Commissioner General, Paris International Exposition 1 Panama Canal 2, 196 Pan American Union 126, 806

Patent Office 125, 461 Prison Industries Reorganization Administration 2, 504

Puerto Rico Reconstruction Administration 5, 024

Railroad Retirement Board 160, 116 Reconstruction Finance Corporation 321, 051 Recorder of Deeds, District of Columbia 12

Register of Wills, District of Columbia 1, 512

Resettlement Administration 13, 077

Rural Electrification Administration 734, 860

Securities and Exchange Commission 72, 560

Smithsonian Institution 99, 679

Social Security Board 4, 048, 335 Supreme Court, U. S 22, 210 Tennessee Valley Authority 60, 480

U. S. Constitution Sesquicentennial Commission 65, 000

U. S. Court of Appeals for the District of Columbia 4, 102 U. S. Golden Gate Exposition . 80

U. S. Greater Texas and Pan American Exposition 253

U. S. Housing Authority 11, 500

U. S. Maritime Commission 59, 631 U. S. Tariff Commission 12, 816

Veterans’ Administration 97, 526

War Finance 150 White House 57 Works Progress Administration 495, 873

Total 117,450,064

106
Table 10 shows the receipts from the sale of waste paper, waste

materials, and condemned machinery, and the surplus from the sale by the Office of the Superintendent of Documents of Government

publications over the cost of printing the same during the fiscal year

ended June 30, 1938.

Table 10 Condemned material, machinery, waste wood, waste metal, etc $8, 002. 17 Waste paper 63, 694. 11 Surplus from sale of documents and miscellaneous collections 376, 514. 69

Discounts, rebates, etc 1, 435. 84 Telephone messages 9. 90

449, 656. 71 PUBLIC DOCUMENTS

The trend is still upward in the sale of Government publications, as

is shown by the following table:

Fiscal year Number of orders Number of publications Amount

1933 .481, 295

496, 215

538, 698

548, 848

595, 823

697, 970

8, 255, 490

10, 459, 964

9, 499, 205

8, 832, 162

10, 074,337

11, 546, 273

$540, 532. 29

694, 007. 64

637, 414. 43

680, 725. 69

813, 246. 60

845, 779. 15

1934 1935

1936

1937 1938The special committee which was assembled by the Director of the

Bureau of the Budget during the past year for the purpose of studying the questions of processing in the departments and the distribution of Government publications came to the conclusion that departments could not be expected to supply publications free to everyone,

because of the limitations placed upon their appropriations. The

committee expressed this sentiment in the following statement in its report:

The committee feels that Government publications generally should be offered

to the public on a sales basis rather than free in order to eliminate distribution to those who do not desire the information, to achieve a wide distribution of useful information at small cost, and, in fact, to increase net revenues to the Government. Many of the publications printed in the Government Printing Office

would be welcomed by appreciative readers if their existence were known, and such readers would be willing to pay a nominal price for the same. As an illustration of this fact, the Post Office Department

issued a publication with the title, “Description of United States Postage Stamps,” and, as a result of news items carried in the daily papers, 169,466 copies have been sold. 107
It is felt that a greater volume of sales would result and that much

time and money would be saved if the method of remitting recom- mended by the Public Printer or some similar simplified sales procedure were adopted.

The net sales for the last fiscal year amounted to $845,779.15,

which was $32,532.55 more than for the previous year. After paying the cost of printing the sales publications there remained a balance

of $373,768.52, which was turned into the Treasury as miscellaneous

receipts. The sales orders totaled 697,970 last year, an increase of

102,147 over the previous year, and the 11,546,273 copies sold ex- ceeded by 1,471,936 the last year’s mark.

Distribution

Existing law did not contemplate the mailing of forms, but as the

Public Printer realized the new agencies were not equipped for this

work and that it could be handled at a lower cost in the Government

Printing Office, he approved the work being done in this connection

by the Superintendent of Documents as an emergency measure. It

is impossible to estimate in advance the personnel and supplies that

will be needed for this work, but fortunately the Public Printer is authorized to perform mailing operations and to charge the cost of

the same to the departments. In tills way it has been possible to add to the force in order to take care of peak loads and rush jobs

which frequently occur. Last fall we were called upon to handle the mailing connected

with the Unemployment Census, which involved 100,000,000 forms.

Special mailings of this character are not exceptional and invariably

they are rush jobs to be mailed in a specified time, which frequently

requires overtime work. A centralized point for mailing has many

advantages, as it is undoubtedly wasteful to truck to the departments work that later has to be returned to the Post Office for mailing. During the past year 674,809,165 copies of forms were distributed for the various departments and agencies of the Government.

The act of August 23, 1912, provided for the mailing of Government publications—as distinguished from forms—under the direction

of the Public Printer at the Government Printing Office. There is a disregard of this law by some of the departments and independent

agencies. However, the permanent interdepartmental committee on

printing, created by the Executive order of October 29, 1938, quoted

elsewhere in this report, for the purpose of discussing matters and

108
considering problems affecting printing, processing, and distributiou

,

may be able to correct existing abuses and to recommend new legislation that will correct defects in the present laws that deal with

distribution.

The following report shows the number of copies of publications on hand July 1, 1937, the number received and distributed during

the fiscal year 1938, including forms, and the number of copies on hand June 30, 1938, for the various executive departments and

independent establishments of the Government:

Publications received, distributed, and sold during fiscal year 1938

Department or establishment

Copies of publications on hand July

1, 1937

Copies of publications re- ceived during year

Forms re- ceived during year

Copies of publications dis- tributed during

year

Forms dis- tributed during

year

Copies of publications on hand June

30, 1938

Executive departments

5 520 12 513 Treasury 1, 000, 955 956

1, 967, 054

1,710

26, 995, 242

328, 600

2,111, 630

1,555

26, 995, 242

328, 600

856, 379

1,111

2, 583

32, 572

63, 141

1, 178, 597

12, 642, 121

War._.T

Justice. . . 2,793

23, 783

53, 978

922, 226

13, 600, 659

1, 557, 849

658, 281

236, 254

7, 207, 899

52, 191

3, 101, 593

27, 068, 802

3, 300, 618

3, 242, 279

236, 464

7, 199, 110

43, 028 Post Office 7, 169, 400 7, 169, 400 Navy

Interior 2, 845, 222 Agriculture 3, 980, 898 28, 027, 340 3, 980, 898 Commerce.. . 22, 372, 000 3, 152. 293 22,372, 000

2, 981, 025

1, 706, 174 Labor 919, 535 Independent offices Civil Service Commission. 1, 159 9,750

628 531 Employees’ Compensation Commission 895 6, 095, 900 8,899 6,095,900 1,746 Federal Communications Commission 601 601

Fpdp.ral Pnwp.r Cnmmissinn 2, 252

657

25 2,227

Fp.dpral Rasptvp "Rnard 657

Ppripral 'T'rnHp flnminiwinn 75, 493 39, 740 950

43, 972

950

71, 261

Ctp.nprfil A prrmntinjr Offipp Interstate Commerce Commission 75, 374 677, 504 410

677, 504

410

75, 374 National Advisory Committee

fnr A p.rnn antin'? National Arohivps 4, 978

2,138

21, 747

160, 109

48, 158 46, 349 6, 787 Personnel Classification Board.. 2,138 President’s Committee on Administration Management

Smithsonian Institution

18, 476

97, 134 560

24,347

87, 178

15, 876

170, 065 United States Maritime Commission 560 Judiciary Court of Customs and Patent

A ppeals 733 405 68 1,070 SnnrPTBP Pnnrt cf TTuitpH Sfpfptj CUpiCiilo vUUl t Ul UmtCU Otatv/o. 4, 533 4,533 Congressional

HipPTitPTuiifil Pomminion 1, 728

13, 574

5, 000

5, 674

1 6, 727 jjibciituiiiuai wumhilooiuii. Congress 96, 000 5, 774 96, 000 13, 474

OnrprnTTiPTit T^rintincr Offipp 19, 916 19, 916 Library of Congress 123, 872 15, 738 15, 201 124, 409

109
Publications received, distributed, and sold during fiscal year 1938—Continued

Department or establishment

Copies of publications on hand July

1, 1937

Copies of publications re- ceived during year

Forms re- ceived dur- ing year

Copies of publications dis- tributed during

year

Forms dis- tributed during

year

Copies of publications on hand June

30, 1938

Emergency Administrations

Agricultural Adjustment Administration 25, 315

7, 350

2,490

895, 000

25, 983, 454 138, 868, 884

10, 493, 525

26, 007, 661 138, 868, 884

10, 493, 525

1, 108

7, 350 2,490

788, 610 Commodity Credit Corporation. Emergency Conservation Work. Farm Credit Administration

Federal Emergency Relief Administration

55, 094 120, 000

149, 000

161, 484 120, 000

149, 000 Federal Home Loan Bank

Board 62, 700 62, 700 National Emergency Council. .. 747, 500

1, 653, 700

747, 500

1, 653, 700 National Bituminous Coal Commission

National Planning Board .. ._ 1, 680

11, 118 5478, 878

39, 300

12, 125

4, 256

229, 837

69, 261

288, 993

1, 626 National Resources Committee- 9, 452 National Unemployment Register..

77, 212

39, 300

12, 125 4,256

229, 837

69, 261

288, 993

93, 099, 644 93, 099, 644 Public Works Administration.. Puerto Rico Reconstruction Administration

2,639 2,639

1, 736, 740 1, 736, 740 Rural Electrification Administration

Social Security Board 60, 931, 916

299, 970, 216

60, 931, 916 Works Progress Administration. 299, 970, 216 Total 19, 251, 228

3, 361, 488

73, 946, 259

18, 479, 724

674, 809, 165 74, 488, 543

16, 785, 155

674, 809, 165 18, 708, 944 Superintendent of Documents. _ 5, 056, 057 Grand total 22, 612, 716 92,425, 983 674, 809, 165 > 91,273, 698 674, 809, 165 23, 765, 001

1 This total includes 497,525 copies of departmental and 918,745 Superintendent of Documents discarded

obsolete publications making the actual distribution 89,857,428 publications and 674,809,165 forms, totaling

764,666,593 copies.

It is obvious that with an opening inventory of 22,612,716 publications and the receipt of 92,425,983 more during the year, there would

be found a number of them that would be obsolete or possibly in excess

of all requirements. In order to eliminate this class of publications we are continually analyzing our records for the purpose of weeding

out unnecessary copies, as we must conserve so far as possible our

available storage space.

Legislation

H. R. 5471 to amend the laws relating to the distribution of public

documents to depository libraries, so as to make available the journals

of Congress, all congressional hearings, ail Senate and House public

bills and resolutions, and all reports on private bills, and concurrent or simple resolutions, was passed and approved by the President June

25, 1938.

The passage of this bill had been requested by officials of the American Library Association, who had contacted the depository libraries,

no
with the result that many requests for the enactment of this legislation were received by the committee.

It is estimated that the cost of this additional material, based on

selections made, will be approximately $20,000, and that half of this amount will be required for furnishing copies of public bills and

resolutions.

There is some doubt as to whether the librarians appreciate what it really means, in the way of labor and filing facilities, to take care of the public bills and resolutions. In order to make sure there was no

misunderstanding by the librarians who selected them, they have been

asked to reconsider their selections, and have been advised that during

the past year there were approximately 12,000 prints of bills, which

represented the introductory, reported and referred prints, and that

unless they are filed daify they would be of little reference value.

Depository Libraries

The proposed survey for the depository libraries to be made by the

American Library Association has not as yet received final approval of

the officers of the association, but it is still hoped the Executive Board

will be able to convince the association of the need for a field survey.

The Chairman of the Joint Committee on Printing and the Public

Printer have approved such a survey, as they are interested in eliminating the waste in the distribution of publications to the public and

to the libraries. The present depository law is fundamentally the same as that enacted

in 1895, with only slight modifications. Although undoubtedly originally written for the purpose of placing Federal public documents

in the libraries throughout the United States, so that the American

people could have free access to them in every congressional district,

such distribution remaining unchanged has led to waste on the one hand and to unfairness on the other. The framers of the original

law could not fully foresee the development of large metropolitan

areas and the unevenness in the development of libraries throughout

the United States, which have nullified their original intent.

It is only natural, therefore, that there should have developed the

present necessity of rewriting that law on a more sound and equitable

basis. Although population figures, metropolitan areas, size of book

collections, and much of the other necessary statistical data can be

accumulated readily to show that the present law has defeated its purpose, a comprehensive field survey of all depositories is necessary

in order that no present designated depository will be deprived of its

111
privilege if it can show conclusively that it has adequately housed

the Federal public documents and that their constant demand and

use in that institution is of sufficient magnitude to justify its con- tinuance as a depository notwithstanding the fact that the statistical data may be against it. The survey, as contemplated, will supply the information that is required to determine the class of library eligible to become a depository, and where it should be located; and I feel that responsibility

for the proper selection and fitness of such libraries should be vested

in the American Library Association, which undoubtedly would

work in conjunction with the State committees.

Processed Material

The improved types of processing equipment and the broad authority granted emergency agencies in the expenditure of funds is largely

responsible for the increased volume of processed materials.

There seems to be no question that matter is being processed that

should be printed, as there has been a noticeable increase in the

number of processed publications received in our library during the

past fiscal year. This is the result of the resolution of the Joint

Committee on Printing directing the departments and agencies of the

Government to furnish our library with one copy of every publication,

whether printed or processed. The monthly lists submitted by the

various Government agencies have been helpful in serving as checklists so that omissions can be detected. The increase in the volume of

processed material will make it necessary to add to the library and

cataloging forces because, aside from the time required to examine it to determine its value, the work in cataloging is more than our present

force can handle.

The importance of having references to this processed material

included in our catalogs has been recognized by this Office for some

time, and this matter was called to the attention of Congress by the

Select Committee to Investigate the Executive Agencies of the

Government in its report, which reads in part as follows:

The development of this type of printing in the departments and establishments

has a much wider significance than appears on the surface. As long as it was confined to the printing of forms and office memoranda the general public had no

particular interest in what was produced, but since this work has been extended

to pamphlets and books it has become a matter of concern to librarians and all persons using Government publications. The major complaints are regarding

the perishable

******* character of the material and the lack of listing.

112
The desirability of listing all Government publications has long been recognized, and the Printing Act of 1895 provides that the Superintendent of Documents shall issue a monthly catalog. At that time, and for some years thereafter, practically all publications were printed at the Government Printing Office, and

the monthly catalog contained a complete listing, as the Superintendent of Documents received one copy automatically, as the edition was printed. As the volume of duplicated material increased it became evident that the monthly

catalog was not a complete list, and beginning with January 1, 1936, the Superintendent of Documents endeavored to include in this catalog all publications pro- duced by duplicating process. The listing, however, is incomplete because the departments and independent establishments do not furnish copies to the Public

Documents Library, which has charge of the compilation of the catalog. The

Public Printer has requested the various Government agencies to supply a copy

of every publication, but the publishing agencies sometimes neglect to furnish

copies.

It is difficult at the present time for libraries and students of Government

affairs to keep in touch with the publishing activities of the executive agencies.

Even persons in Washington, who have many contacts with the departments,

find it difficult to ascertain what has been published.

As a result of such comments and of more specific recommendations

of the Public Printer, the Joint Committee on Printing issued the

order requiring the filing of copies of all of their processed material

with the Superintendent of Documents. Through a closer compliance

by the departments with this order and the increase in force required

to handle the additional cataloging work, it is believed that difficulties along this line will be eliminated or at least greatly reduced.

Under authority of the act approved February 28, 1933 (Public, No.

381, 72d Cong.), the practice of printing supplementary records and

statistics in the Annual Report of the Public Printer has been discontinued, and original copies of such information as has been prepared

are on file for public inspection. A. E. Giegengack,

Public Printer.

II. S. GOVERNMENT PRINTING OFFICE: 1939 113626 113