ANNUAL REPORT

OF THE

PUBLIC PRINTER

1927

UNITED STATES

GOVERNMENT PRINTING OFFICE

WASHINGTON

D. C.
GOVERNMENT PRINTING OFFICE

Public Printer.—GEORGE H. CARTER, Iowa

Deputy Public Printer.—John Greene, Massachusetts. Production Manager.—Ellwood S. Moorhead, Pennsylvania. Assistant to Public Printer.—Miss Mary A. Tate, Tennessee. Chief Clerk.—Henry H. Wright, New York. Assistant Chief Clerk.—J. Thomas Ford, New York. Superintendent of Accounts and Budget Officer.—James K. Wallace, Ohio. Assistant Superintendent of Accounts.—Frank E. Buckland, Indiana. Purchasing Agent.—Ernest E. Emerson, Maryland.

Assistant Purchasing Agent.—William J. Cassiday, District of Columbia. Superintendent of Documents.—Alton P. Tisdbl, Ohio. Assistant Superintendent of Documents.—Miss Josephine G. Adams, District of Columbia. Superintendent of Planning.—Wuaapm. A. Mitchell, North Carolina. Assistant Superintendent of Planning.—Robert W. Summers, New York. Storekeeper and Traffic Manager.—William H. Kbrvin, New York. Assistant Storekeeper.—George Lamb, Pennsylvania. Medical and Sanitary Officer.—Dr. DANIEL P. BusH, Nebraska. Assistant Medical and Sanitary Officer.—Dr. Arthur G. Hunt, Oklahoma. Technical Director.—Edward O. Reed, District of Columbia. Disbursing Clerk.—Edward J, Wilver, Pennsylvania. Instructor of Apprentices.—Burr G. Williams, Iowa. Congressional Record Clerk.—William A. Smith, District of Columbia. Superintendent of Printing.—Hermann B. Barnhart, Indiana. Henry W. Weber,i Indiana. Assistant Superintendent of Printing.—Maurice H. Phillips, Ohio. Foreman Linotype Section.—William D. Skeen, Pennsylvania. Foreman Monotype Section.—William H. Chase, Maryland. Foreman Proof Section.—^Marion E. Bullock, Maryland. Foreman Patents Section.—Raymond H. Lecraw, Rhode Island. Charles Garrbls,2 Illinois. Foreman Hand Section.—Hugh Reid, Wisconsin. Foreman Job Section.—Allan C. Clough, New Hampshire. Foreman Library Printing Branch.—James H. Heslet, Kansas. Chief Type Machinist.—Daniel L. Liddle, Michigan.

Superintendent of Press Work.—Bert E. Bair, Michigan. Assistant Superintendent of Press Work.—Daniel Beckwith, New Hampshire. Foreman Main Pressroom.—Daniel I. Leane, New York. Foreman Job Pressroom.—^James E. Veatch, New York. Foreman Postal Card Section.—Joseph A. Fenton, Michigan. Foreman Money Order Section.—John A. Massey, Jr., Georgia. Superintendent of Binding.—Martin R. Speelman, Missouri. Assistant Superintendent of Binding.—John A. Patterson, New York. Foreman Pamphlet Binding Section.—Charles J. Orem, Maryland. Foreman Ruling and Sewing Section.—Walter H. Oliver, Maine. Foreman Library Binding Branch.—George R. Erler, Maryland. Charles F. Weston, i Massachusetts. Superintendent of Platemaking.—Edward G. Whall, Massachusetts. Assistant Superintendent of Platemaking.—Edward A. Kerr, Massachusetts. Foreman Molding Section.—James H. Babcock, Jr., Rhode Island. Foreman Photo-Engraving Section.—William H. Meyer, Maryland.

Night Assistant Production Manager.—Edward A. HusE, Massachusetts. Assistant Superintendent Presswork, night.—JOHN D. Meyers, Ohio. Foreman Linotype Section, night.—Harry L. Murray, Pennsylvania. Foreman Monotype Section, night.—William A. Morris, Missouri. Foreman Proof Section, night.—Harry B. Goodrell, Iowa. Foreman Hand Section, night.—George O. Atkinson, Massachusetts. Assistant Foreman Pamphlet Binding, night.—Charles C. Covert, New York. In Charge Platemaking, night.—Herman C. Groth, Pennsylvania. Superintendent of Construction and Maintenance.—Alfred E. Hanson, Massachusetts. Chief Draftsman.—Henry A. Ludwig, Maryland. Chief Carpenter.—Abraam B. Batton, Maryland. Chief Machinist.—Michael J. McInerney, New York. Chief Electrician.—Edward H. Brian, District of Columbia. Chief Engineer.—Walter A. Browne, New Hampshire. Chief Pipefitter.—OviLUP H. George, New York. Construction Foreman.—Daniel W. Bruce, District of Columbia. Foreman Sanitary Section.—Joseph L. May, Virginia. Chief of Delivery.—Walter G. Copp, District of Columbia. Captain of Guards.—Charles H. Warner, District of Columbia.

11

» Died. « Retired.
ANNUAL REPORT OF THE PUBLIC PRINTER

United States Government Printing Office,

Office of the Public Printer,

Washington, D. C, April 16, 1928.

To the Congress oj the United States: In lieu of the customary report to Congress and in the interest of economy in printing, I submit herewith the statement of the Public

Printer as printed in the hearings of the legislative subcommittee of the House Committee on Appropriations, covering the work of the

Government Printing Office for the fiscal year 1927 and reviewing the

improvements under its present administration for the seven years

beginning April 5, 1921.

if The thoroughness with which the subcommittee of the House Committee on Appropriations investigated the operations of the Government Printing Office is worthy of even more widespread attention than

is given to the limited print of its hearings, and therefore it seems

fitting and proper to republish in this public report the statements

made at the hearings held recently by the subcommittee. It is also gratifying that the principal recommendations submitted at the

hearings have been included in the Government Printing Ofiice appropriations for the fiscal year 1929 as passed by the House without

opposition. With this helpful consideration by Congress, the Government Printing Office will begin another year of its efficient operation

imder highly favorable conditions, made possible by the generous co- operation of the Appropriations Committees and the Joint Committee

on Printing of Congress and of the Public Buildings Commission.

To the Public Buildings Commission is due special thanks for the

allotment of $1,250,000 for a much-needed building addition, which

will be started in a short time and will greatly facilitate the work of the

Government Printing Office. Proceedings to acquire additional land

have been completed, and building plans have been carefully prepared

with the able and courteous assistance of the Supervising Architect

of the Treasury Department. It is hoped to have the additional

floor space of 150,000 square feet available in about a year, and that

then the Government Printing Office, with a total floor space of more than 900,000 square feet, will be not only the largest but also the best housed printing establishment in the world. There will then remain only the replacement of the old building with a modern

fireproof warehouse to complete the wonderful work of rehabilitation

that has been in progress for the last seven years, and it is earnestly

hoped that Congress will express in this project also its cordial

support of the Government Printing Office. For the further information of Congress concerning the fiscal affairs of the Government Printing Office, several statistical tables

1
2 Annual Report of the Public Printer

covering the year ended June 30, 1927, are submitted herewith as an

appendix to the hearings on the appropriations for the fiscal year

beginning July 1, 1928. Included also are the annual reports of the

Technical Director and the Superintendent of Documents, inasmuch

as their important work under the direction of the Public Printer was not covered fully by the statements to the Appropriations

Committee.

Under authority of the act approved February 23, 1927 (Public,

No. 631), the Public Printer has discontinued the printing of such

other and additional reports for the fiscal year ended June 30, 1927,

as have usually been submitted to Congress concerning the business

of the Government Printing Office. The original copies of such

reports are on file in the office of the Public Printer for public inspection as provided for in said act. The cost of printing the Public Printer's reports for the seven years

1914-1920 was $36,349.68, and for the seven years 1921-1927 the

cost was $4,980, which shows a saving of $31,369.68 in the printing

of the Public Printer's reports for the last seven years. Respectfully submitted.
HEARINGS BEFORE SUBCOMMITTEE

OF HOUSE COMMITTEE ON APPROPRIATIONS

C0NS1STE>G OF Messrs. FRANK MURPHY (CHAiRiL4N), GEORGE A. WELSH, WILLIA:vI P. HOLADAY,

JOHN N. SANDLIN, AND EDWARD T. TAYLOR

rS" CHARGE OF LEGISLATIVE ESTABLISHMENT APPROPRIATION BILL

FOR 1929

[Reprint of Hearings, pages 306 to 347, inclusive]

3

HEARINGS ON APPROPRIATIONS

Monday, March 26, 1928.

GOVEKNMENT PRINTING OFFICE

STATEMENTS OF GEORGE H. CARTER, PUBLIC PRINTER; J. K. WALLACE, SUPERINTENDENT OF ACCOUNTS; A. E. HANSON,

SUPERINTENDENT OF CONSTRUCTION AND MAINTENANCE;

AND A. P. TISDEL, SUPERINTENDENT OF DOCUMENTS

Mr. Murphy. Mr. Carter, you are the Public Printer, having in charge the Government Printing Office?

Mr. Carter. Yes, sir. Mr. Murphy. Will you at this time make a general statement for

the information of the committee and for the record, showing the

organization of the Government Printing Office, what it does, and

how it does it? Mr. Carter. Before I begin, I would like to take this opportunity

to thank the members of the committee for their recent tour of inspection of the office. To my knowledge of the Government Printing

Office, covering 20 years, it was the first time that the Subcommittee

on Legislative Appropriations ever visited the Government Printing

Office, and I want to assure you on behalf of the employees and myself that we deeply appreciate the fine interest you showed in our

work. In view of your inspection of the office, I take it, Mr. Chairman, that it is not necessary for me to go into detail about the equipment and condition of the Government Printing Office at the present'

time.

The Government Printing Office, as you know, is by far the largest

book and job printing plant in the world. It also compares very

favorably with the largest newspaper and magazine plants, in that

we publish some forty-odd daily, weekly, and monthly periodicals,

including the Congressional Record. There is no plant in the world

equipped to handle the Record with the speed and accuracy with

which the Government Printing Office does that work.

The Government Printing Office is also one of the largest establishments of the Government in Washington. It is larger than 6 of the

10 executive departments in number of employees in Washington.

The only executive departments having more employees in Washington are the Treasury Department, the Navy Department, the

Agricultural Department, and the Department of Commerce. The

Government Printing Office is also larger than 20 of the 22 independent establishments in Washington, the only one having more

employees being the Veterans' Bureau.

The work of the office, of course, is confined to printing for the

Government exclusively. We do no private printing at all, except

speeches for Members of Congress, which is authorized by law and

confined to extracts from the Congressional Record.

It may interest the committee to know that our resources last year;

that is, the receipts of the office, amounted to $13,588,966.51, and

that our disbursements, including outstanding obligations, were

$12,625,315.33, leaving an unexpended and unobligated balance of $963,651.18, which is subject to some reduction for outstanding

orders. In other words, we turned back into the Treasury, unused,

$963,651.18.

5
6 Annual Report of the Public Printer

MACHINERY AND EQUIPMENT OF PLANT

Mr. Murphy. Mr. Carter, before going into that phase of the

question of the management and operation of the Printing Office,

would you be prepared to put in the record, if you do not have it with you, figures showing the number of printing devices of various

kinds that are used at the Government Printing Office, giving us the

physical structure of the printing department, showing the number

of various kinds of presses, etc.? I want this record to show what

sort of a department the Government really has there. The hearings we are having before this committee, I think, will be

used and sent out by Members of Congress to schools, probably, for

the information of those who are studying in a serious way the

development and inner workings, if you please, of our Government

here in Washington, and for the benefit of the record we would like to have you prepare, if you do not have it with you, a statement

showing what you do down there in the way of finished work and the

improved machinery you have with which to do that work.

Mr. Carter. We have a complete printed inventory of all the

machinery and equipment of the office, which I will be glad to submit

to the committee.

Permit me to say, generally, that we have the largest battery of

typesetting machines in the world, more than 380 machines, including 148 linotype machines, 100 monotype keyboards and 129 mono-

•type casting machines, 1 intertype, and 2 Ludlow machines.

We have 186 presses, including 26 web presses, and the two Record

presses which are the latest and fastest type of magazine printing

presses. The bindery is also equipped with the fastest and the latest models

of machines and devices for that work, and the plate-making division

is also up to the last word in equipment.

In compliance with your request, I will be pleased to submit a more

detailed description of the work of the Government Printing Office

and its vast equipment.

(The statement follows:)

The mechanical improvements in the Government Printing Office have of necessity kept pace with the great increase and betterment of its production in the last few years. This has been made possible by the liberality of Congress,

which increased the allowance for new machinery from $100,000 to $200,000

annually for the last five years, and also to the generous cooperation of the Joint Committee on Printing, which has helpfully supported the Public Printer in all his extensive undertakings for the rehabilitation of this great industrial establish- ment. With the changes that have been made in the last five years and the plans that have been adopted for future improvements, the Government Printing

Office is assured of leadership, not only as the greatest printing works but also as one of the most efficient and best equipped manufacturing plants in the world. In addition to its 4,086 employees, the Government Printing Office houses

1,325 machines, which are required to carry on the enormous work of the plant.

Many of these machines have been installed or replaced by more productive and

modern equipment in the last six years. In the printing division are 148 linotype, 1 intertype, and 2 Ludlow machines;

100 monotype keyboards and 129 monotype casting machines. The 129 monotype casting machines have been completely reequipped with electrically heated

pots and electrical control boards, greatly improving the conditions in that room, where the heat and the fumes of the old gas pots seriously affected working

conditions. All of the linotype machines have been equipped with automatic

metal feeders, likewise greatly improving their production. One thousand two
Hearings on Appropriations 7

hundred and eighty persons are employed in the printing division. Ems of type

set during a year total 2,060,000,000, which would make about 580,000 columns

of an ordinary daily newspaper. For presswork are required 186 presses, made up of 26 web, 107 cylinder, 25 platen, 10 sheet-feed rotary, 8 automatic-feed envelope, 3 offset, 5 tabulating

card, and 2 embossing presses. Among the more recent equipment are a number

of new presses, including the 3 big postal-card presses, two 64-page Congressional Record presses, and 3 large offset presses. Many automatic feeders have been added to the printing presses, with a reduction in five years of 45

in the number of persons employed at press feeding. Automatic humidifiers have been installed to better the atmospheric conditions of the pressrooms and

overcome static electricity troubles in the handling of paper. There were

146,000 forms of type and plates sent to press in one year, and the production

is 2,000,000,000 chargeable impressions. Six hundred persons are employed on

this work. For folding and binding operations 310 machines are required, including 30

folding, 8 gathering, 22 wire-stitching, 57 seeing, 14 ruling, and 61 cutting and

trimming machines. Among recent installations are a new case-making machine

which turns out 12,000 cloth book covers daily, as compared with 2,500 covers produced by the old-type machines; a new perfect binding machine w^hich

will also greatly speed up production of paper-covered books; several newstyle cutting machines which will greatly facilitate this work; one new type of a folder, doing more than double the work which formerly kept two machines

busy; and a disk ruhng machine, equipped for either roU or sheet stock and

having an automatic cardboard inserter, which has materially advanced the

delivery of ruled work. Gumming and stripping machines have replaced slower hand operations. Eight hundred and sixty-three persons are employed in the bindery and the output is valued at over $2,300,000 a year. About 12,000,000 square inches of various kinds of printing plates are made

yearly in the plate-making division, employing 90 persons. Over 100 modern

machines are in use on this work, including one 3,000-ton lead molding, 1 stereo- type molding and drying, 1 stereotype molding, and 5 wax-molding machines;

1 Hacker test press for plate precision; 1 plate straightening and 2 wax ruling

machines; 1 stereotype mat-making machine, 12 routers, 16 saws and trimmers,

31 stereotype casting boxes, and other miscellaneous machines. Much of this equipment is of recent installation and has helped materially in the production

of high-grade plates. Several years ago the Public Printer installed a photo-engraving plant, well equipped with 4 cameras and the necessary machinery and equipment to handle

line cuts and 120 to 175 line screen halftones, which formerly were purchased

commercially. The photo-engraving plant produced about 700,000 square inches

of plates last year. The principal production items of printing and binding for the fiscal year 1927 were as follows: Jackets -WTitten number.- 54, 168 Estimates made do 47, 452

Bills computed do 72, 545

Total ems set do 2, 060, 248, 100 Time work in composing sections hours- _ 242, 836

Electrotvpes and stereotvpes square inches. _ 11, 356, 708

Postal cards printed number. _ 1, 950, 508, 300

Money-order books shipped do 1, 002, 354

Forms sent to press do 145, 831

Actual impressions do 484, 678, 679 Chargeable impressions do 1, 960, 834, 989

Sheets folded by machine do 226, 008, 387

Signatures gathered by machine do 155, 233, 669

Tips made by machine do 8, 250, 587

Copies wire stitched do 45, 115, 690

Copies paper covered do 8, 574, 395

Books and pamphlets trimmed do 53, 913, 955

Books rounded and backed do 1, 160, 085 Books marbled and edged do 163, 477 Stamping impressions do 2, 736, 425

Books cased in do 1, 436, 213

Indexes cut do 140, 359

Sheets passed through ruling machines do 22, 589, 915
8 Annual Report of the Public Printer

Signatures sewed number- _ 76, 210, 279

Copies punched and drilled do 95, 356, 979

Sheets and lines perforated do 6, 861, 125

Tablets made do 2, 889, 402

Miscellaneous rebindings, etc do 102, 519

The finished work for the year included: Blanks, notices, cards, schedules, etc. (including 1,950,000,000

postal cards) 3, 500, 000, 000

Blank books 2, 700, 000

Publications 105, 000, 000

Specifications of patents 5, 600, 000

Patent Office Gazettes 3, 340, 000

The daily and bound Congressional Record.

Bills, resolutions, amendments, and hearings of Congress.

The work of the Government Printing Office embraces practically every phase

of the arts of printing and binding, excepting lithographing. The office makes

many of its own supplies, such as rollers, inks, type metals, glues, etc.; a complete

box factory is maintained for making boxes in which to ship postal cards; a completely equipped laboratory is charged with the technical control of all materials and the testing of all materials and supplies purchased to maintain the

contract specifications; a fleet of 24 trucks haul paper and other purchases from

railroads to the office and delivers work to departments.

The purchase requirements in one year include 43,000,000 pounds of paper,

12,000,000 yards of wire, 3,000,000 containers for postal cards, 60,000 pounds of glue, 200,000 3^ards of binding cloth, 22,000,000 square inches of gold leaf and

other stamping materials, 28,000,000 yards of sewing thread, 100,000 square feet

of leather, 13,000,000 feet of monotype keyboard paper, 148,000 pounds of ink,

and 3,500 rollers are made on the premises.

The present buildings are valued at $4,060,000, and the equipment and

machinery at $4,000,000. During the last four and a half years over $900,000

has been expended for machinery to displace obsolete equipment, some of which

had been in use 25 to 40 yea'rs. A belt conveyor 1,000 feet long, with a capacity of 360 sacks an hour, connects with the mailing tables of the city post office, making it possible to deliver sacks of mail to a train in five minutes.

A cafeteria, seating 1,000 persons at a time and serving 3,000 meals every working day, is maintained and operated by the employees, while Harding Hall,

with a seating capacity of 1,200, is devoted to welfare activities of employees. All

this space was made available by raising the roof and using the space formerly

lost in an unused attic. The Government Printing Office has participated in various expositions

throughout the United States and foreign countries. The last exhibit was at the Sesquicentennial Exposition at Philadelphia in 1926, where were displayed

many artistic samples of printing and binding, and samples of various materials and ingredients used in the work; a gold medal of honor was awarded the Government Printing Office for this exhibit. An exhibit was displayed at Florence, Italy, in 1925, and under a current appropriation it is intended to display work at Seville, Spain, this year. There is on display at all times in Harding Hall samples of the best products of the Government Printing Office. HISTORY OF THE PERSHING LINOTYPE MACHINE

Mr. Murphy. We would like also to have you give a short history

of the linotype machine and the printing equipment that was sent over with General Pershing to Europe. You now have that equipment, and we would like to have you tell that story as concisely as you can, leaving out nothing of importance, so the House may know

something of that activity, because I am sure they will be interested.

This committee did not know anything about that work until we

saw that equipment down there. There is a human interest in it that will grip us all.
Hearings on Appropriations 9

Mr. Cakter. I included in my annual report a rather concise

history of the Pershing equipment, which, with your permission, I will be glad to insert as a part of my statement.

Mr. Murphy. We will be glad to have that, Mr. Carter. (The statement is as follows :) There is in daily use in the Government Printing Office a linotype machine

which rendered distinguished service in France throughout the war. It is known

as the Pershing machine, and was used at General Pershing's headquarters in France to set type for the most confidential communications of the General Staff

of the American Army. The Pershing machine is a model No. 5 linotype of American manufacture, but was originally equipped with a French keyboard

and designed to cast slugs lower than American height.

The machine was provided at first with a gasoline heater to melt the type

metal, but this equipment was so dangerous on account of frequent explosions,

from which the operators had several narrow escapes, that electric heaters were

secured from the United States. When General Pershing decided to establish a printing plant at his headquarters in Chaumont he detailed an officer to procure the necessary equipment

in France. Two linotype machines were located in a small French printing

office and were transported by canal and truck to General Pershing^s headquarters. When General Pershing moved his headquarters from Chaumont, the linotype

machines were placed on motor trucks and became part of a fully equipped printing train operated by the Twenty-ninth Engineers. This train accompanied the Commanding General of the American Army throughout the war in France. The printing train of trucks was frequently close to the battle front, and several times subjected to heavy shell fire by the Germans. Nevertheless, at all times

and under all conditions the mobile printing plant continued to issue daily the

publications which were so essential to the information service of General

Pershing's staff. After the armistice the war printing plant was dismantled and shipped to Camp Humphreys, Va., from which place the Pershing machine was finally transferred to the Government Printing Office at the request of the Public

Printer, and given a place of honor as a tribute to the war work of the printing

industry.

Although the war machine has been completely reconditioned and now looks much like the 148 other linotypes with which it keeps pace in setting type for prosaic Government documents, it seems to have a more distinguished individuality than all the other machines. Employees hold it in special veneration, and

every visitor does homage to the historic machine whose types had recorded war secrets of vital importance and had so faithfully done their bit to help win

the World War. The history of this machine attracted the attention of the International Association of Printing House Craftsmen, and its board of directors generously

donated a suitable bronze tablet as a badge of honor. The tablet was unveiled on July 24, 1926, at which time there were present the officers of the International Association of Printing House Craftsmen, who presented the tablet to the Public

Printer. Between two American flags this handsome bronze tablet stands at the top

of the Pershing machine proudly telling its war record in these enduring words: "In honor of a linotype that served its country on the battle fields in France

* * * there upon a throbbing motor truck, mid shot and shell, this machine

typed General Pershing's commands to America's victorious Army,"

Beneath the inscription and between the seals of the Government Printing

Office and the craftsmen's organization is the following statement: "This tablet has been placed here by the International Association of Printing

House Craftsmen, July, 1926." On the wall near the machine are several photographs of the printing plant

and motor trucks at General Pershing's headquarters in France showing the machine in operation during the war. The Public Printer has placed the Pershing machine in the special custody of Corp. James M. Kreiter, who was one of the printers who operated it during the war in France and is now one of the 540 war veterans employed in the Govern- ment Printing Office.
10 Annual Report of the Public Printer

WOEKING-CAPITAL FUND

Mr. Murphy. You may proceed with your general statement.

Mr. Taylor. I think what the chairman wants is to have you tell us where you get this money and what use is made of it. Mr. Carter. Our resources, to which I have already referred,

come, in the first instance, from a working capital which is appropriated in this bill and amounted last year to $2,500,000. That is the only direct appropriation that the office has for printing and

binding. All of the other funds must come from the appropriations

that are made to the various departments and establishments of the

Government.

Mr. Murphy. Does the Government Printing Office make a profit

from any of the work done for the other departments of the Government that would go toward supplementing this $2,500,000 working

capital?

Mr. Carter. We are restricted by law to do work at actual cost,

and therefore our scale of charges must be based upon the cost of production determined by past experience, so that at the end of the

year there is substantially no profit and no surplus.

Last year, on approximately 113,000,000 of business, our charges

exceeded the expenses of production by about l}/2 per cent. The

year before the excess was only 2 per cent. Mr. Murphy. In figuring on costs, Mr. Carter, do you figure as a private firm would figure, keeping in mind the overhead and depreciation of the plant, etc., or is that absorbed in this $2,500,000 appropriated each year?

Mr. Carter. May I explain that the $2,500,000 is simply an ad- vance of a necessary working capital against which is chargeable

all the printing for Congress. Last year the work for Congress cost $2,232,969 which was charged against the $2,500,000 working capital.

This appropriation is simply an advance to the office of working

capital, which is required at the beginning of a fiscal year because then

we undertake heavy expenditures for labor and material for which

we receive no money from the departments until the work is done.

Mr. Murphy. You might explain to the committee and for the

record how you finance your office. You begin the fiscal year with an appropriation of $2,500,000. That is an advanced payment by

Congress for the activities that Congress will give to your office in

the way of the printing of the Congressional Eecord, and other

activities?

Mr. Carter. That is the situation. Of course, we do not get all of the $2,500,000 at once; it is simply a credit on books of the Treasury available to us from time to time during the year. Mr. Murphy. You do not use it as a lump sum?

Mr. Carter. No. This new system of financing the office was

adopted by your committee several years ago, and it has worked out

far more businesslike and has aided us greatly in keeping more

accurate records and better control over printing than the former

system of allotments.
Hearings on Appropriations 11

PRINTING COSTS COMPARISONS

Mr. Murphy. You may proceed with your general statement.

Mr. Carter. As I recall, you asked me how our cost-keeping

system and charges compare with those in commercial establishments. They are quite comparable, except we do not carry any

depreciation charge, and we have no interest, taxes, rental, or insur- ance to pay. But we charge in all the expenditures of the office,

including overhead, the cost of machinery and maintenance and

every other expenditure, including all leave of absence with pay that

is incurred. Our heavy leave pay of about $900,000 a year practically offsets the depreciation, interest, rental, tax and insurance

charges that we would have to pay if a private concern. Mr. Murphy. How do you arrive at the costs when you do work

for a department of the Government? Do you furnish them with

estimates before the work is ordered by them, or is the work taken

and done and then the costs kept as the work proceeds through the

office, until its final completion?

Mr. Carter. The law requires us to submit an estimate in ad- vance to a department, so that they may know whether the cost of

the job in view comes within their appropriation. But the Government Printing Office is not bound by its estimate. After a job is completed, we compute the cost, based upon our scale of charges. It is not the actual cost of that particular job, but the average cost of

the operations, as determined by the previous year's work. We have

a fixed scale of charges which is adjustable from time to time. We

readjust the scale of charges at least every year. Mr. Murphy. How do costs for this year compare with the costs

of last year, and what is the outlook for the coming year with refer- ence to costs of doing work in the Government Printing Office?

Mr. Carter. The scale of charges this year is about 1 per cent higher than last year. Our costs this year are only about 93^ per

cent higher than they were in 1921. In the meantime we have

had a tremendous increase in wages, much new machinery has been

installed, and there have been many other expenditures for the

improvement of the plant. The wage increase alone was around

32 per cent; we also had to absorb the bonus, which was not charged

against printing and that amounted to about $900,000 a year. So

I think the increase of approximately 93^ per cent on the whole

scale for the seven years was fair and reasonable and not At all excessive.

I do not look for any material increase in charges in the future.

As soon as the program for the installation of new machinery and

the erection of a large addition to the main building is completed

within a year or two there can be a very material decrease in the

charges for printing and binding.

Mr. Murphy. You have absorbed this increase in the cost of labor

by increased efficiency on account of the installation of new machinery, have you not?

Mr. Carter. That has been the principal reason. Of course, there has been an iucrease of charges in the past of about 93^ per

cent, but the principal reason for charges not goiag higher has been

the increased efficiency of the employees and the new machinery

that has been installed.
12 Annual Report of the Public Printer

Mr. Murphy. You do find that well-paid employees are very much

more efficient than employees who are discontented with what they

are receiving as wages?

Mr. Carter. The record of our office proves that absolutely.

PAPER COSTS

Mr. Murphy. What about the price of paper?

Mr. Carter. The price of paper the coming year is somewhat less than last year. Contracts were recently awarded by the Joint Committee on Printing, and on the basis of the estimated quantity, there

is a reduction of about $175,000 shown for the coming year. We

buy approximately $3,200,000 worth of paper a year. Mr. Murphy. You, of course, buy it from all sources of supply?

Mr. Carter. The Joint Committee on Printing advertises for

proposals, and 40 or 50 of the leading manufactiu'ers and dealers in

the country compete for that business. At the last opening of bids

there was very keen competition.

Mr. Murphy. There is never any complaint of any favoritism in

the giving of contracts for furnishing material for the Printing Office?

Mr. Carter. Paper and all other materials are furnished on a

definite specification. Every contractor is required to furnish paper

of the quality prescribed by the Government and no contractor is accorded any favors.

Mr. Murphy. So the standard is set by the Government Printing

Office?

Mr. Carter. It is; that is, the Public Printer adheres to the

standards as fixed upon by the Joint Committee on Printing.

SUPERVISION OF GOVERNMENT PRINTING OFFICE

Mr. Murphy. Mr. Carter, for the benefit of the committee and

the record you might state at this time how the Government Printing

Office is governed. We have in Congress a Joint Committee on

Printing. You might state what they do in the way of supervision

of the Government Printing Office, etc. Mr. Carter. Senator Root once said in a debate in the Senate

that the Printing Office is an anomaly in our system of administration, it is neither under Congress nor any executive department.

The Bublic Printer is appointed by the President and confirmed by

the Senate, but other than that the President does not exercise any

active control of its management. The Joint Committee on Printing

acts as board of directors for the Government Printing Office, and to that body the Public Printer has to look for advice and counsel, and

for the approval of many of his purchases, such as paper and machinery. Otherwise, the Government Printing Office is an absolutely

independent establishment and the Public Printer has to assume

entire and sole responsibility for its management. However, the

Joint Committee on Printing exercises, and has always exercised,

in my experience of 20 years, a very close and keen observation over

the operation of the office. Our purchases of machinery have to
Hearings on Appropriations 13

be submitted to that committee. All open-market purchases of

paper are approved by the committee.

^Ir. Murphy. To what extent, Mr. Carter, must you secure the

approval of that committee when you go to purchase improved

machinery or make contracts for paper, or carry on any other activity

for the benefit of your office? Mr. Carter. All of the annual contracts for paper are awarded

by the Joint Committee on Printing. All of the open-market purchases of paper, even as little as 10 pounds of any special kind of

paper, must come before the Joint Committee on Printing for its approval. All purchases of machinery and equipment amounting

to over $1,000 must have the approval of the Joint Committee on

Printing.

The Joiut Committee on Printing also has control over the publication of the Congressional Record, the Congressional Directory,

and many other special publications of Congress.

Further than that, in the case of adjustment of wages under the

Kiess Act, the negotiations must be made, in the first instance, by

the PubHc Printer and a committee representing the trade aftected,

but any new scale can not go into effect unless it receives the approval

of the Joint Committee on Printing.

So, on the whole, I think the Joint Committee on Printing acts

efficiently as a board of directors for the Government Printing

Office in carrying out its varied duties imder the law. All of the

committees that I have had contact with in 20 years have had a very

keen and helpful interest in the office. Mr. Taylor. Are any of the present members of the Joint Committee on Printing printers themselves?

Mr. Carter. There have been some who were printers. Senator

Smoot was chairman of the committee for a number of years. He is a keen business man of wide experience and was a great help to the

office at ah times. I personally feel deeply indebted to Senator Smoot

for his able counsel and advice to me as clerk of the Joint Committee

on Printing and as PubHc Printer. Senator Fletcher was chairman

of the committee for some years, and I certainly felt that he took a very fine interest in the office. He has done many splendid things

for the advancement of the Government Printing Office. Senator

Moses, the present chahman, is interested in one of the largest and

most successful printing concerns in New England, the Rumford

Press, at Concord, N. H. Senator Moses has devoted unlimited time

and thought to the affau's of the Government Printing Office, and

to him, with the able assistance of all the other m^embers of the Joint

Committee on Printing, is due much credit for its present success. The number of employees of the office is about the same as last year. There are 4,086 on the rolls at present. There has been an

average decrease of 281 employees in the last seven years as compared

with the seven years preceding. The decrease from the peak employment in October, 1919, is 1,221. In that month the office had

5,307 employees. Of course, that was the overload from the war

period.
14 Annual Report of the Public Printer

AVERAGE NUMBER OF EMPLOYEES DURING LAST FIVE YEARS

Mr. Murphy. At this point, will you put in the record a statement

showing the average number of employees in your office, covering a period of five years. Mr. Carter. The average number of employees on our rolls for

the last five years was 4,002 in 1923, 4,007 in 1924, 4,101 in 1925,

3,985 in 1926, and 4,103 in 1927.

INCREASE IN WORK PERFORMED BY EMPLOYEES

We have done the work with fewer employees, due, as I have said, to improved machinery and increased efficiency. The increased

efficiency of the employees is indicated particularly in the case of the

linotype operators, who, in 1920, set an average of 3,545 ems per

hour, while the average of 1927 was 4,883 ems per hour. An em is the standard measurement of typesetting. Monotype operators

in 1920 had an average of 4,528 ems per hour, while last year it was

7,312 ems per hour.

WORK PERFORMED FOR CONGRESS

During the last year we have done more work for Congress, particularly in the last session, than for any short session of Congress in history.

The cost of the Congressional Record last year was $551,000, and

the cost for the Sixty-ninth Congress was $715,000.

The cost of printed hearings, which is a growing expenditure by

Congress, was approximately $285,000.

Mr. Taylor. Do you make any money except what you charge for

printing Congressmen's speeches?

Mr. Carter. We do that practically at cost. Mr. Taylor. So it really does not cost the taxpayers anything?

Mr. Carter. Not a cent. We see to it that the Government does

not lose anything. The printing of speeches last year cost about

$66,000, all of which was charged to and paid by Members of Congress

out of their own funds.

Mr. Taylor. It was all paid by the Congressmen themselves?

Mr. Carter. It was all paid by the Congressmen themselves.

In our expenditures in seven years, amounting to approximately

$80,000,000, we have had no bad debts in the whole amount. We

have had only about $500 in disallowances by the Comptroller General

and every cent of that has been reimbursed to the Treasiu-y. None

of the disallowances were due to any mismanagement or irregularities

but were simply on account of errors in pay rolls, and a disallowance

to a contractor for liquidated damages. Every dollar of the disallow- ances has been fully accounted for to the Comptroller General and

there are no uncollectible debts.

I wish to call your attention also to some of the outstanding work

in the office, in addition to the printing of the Congressional Record

and the bills. For instance, the last Congress passed 896 laws in the first session

and 502 in the second session, making a total of 1,398 laws passed by

the Sixty-ninth Congress, or more than any Congress since the
Hearings on Appropriations 16

Fifty-ninth Congress. Of course, that involved a great increase in

printing. It also shows the great increase in the work of Congress.

The nresent Congress has had printed nearly 17,000 bills for the

present session, which far exceeds any prior Congress.

While there has been increased efficiency in the office, there has

been some decrease in the total production due to the decrease of employees. That decrease is highly creditable, I think, to the

administration of affairs by the Congress and the entire Government.

In the last seven years there has been a decrease of approximately

836,000 pages of type in Government publications; that is to say, there has been less printing of reports, and other publicity matter as compared with the preceding seven years. FEINTING OF BLANKS, NOTICES, CARDS, AND POSTAL CARDS

On the other hand, there has been a material increase in the printing of blanks, notices, and cards, an increase of over 5,000,000,000

copies, which I think is a good indication of the greater business

activities of the Government. In that 5,000,000,000 increase of blanks, notices, and cards there was an increase of over 3,000,000,000

in postal cards alone, which reflects an increasing activity in the

business of the country, because postal cards are used largely by mail

order and other business concerns. Mr. Murphy. All the postal cards used by the Government are printed in your office? Mr. Carter. Yes, sir. I might tell you something further of interest in regard to the printing of postal cards. Several years ago

the Joint Committee on Printing authorized us to purchase three

postal-card presses, at a cost of about $123,000. In the charges to the Post Office Department for the cards we included the cost of these

presses and equipment, and they paid for them in about three years, so that this year we notified the Post Office Department of a reduction of $200,000 a year in the charge for cards. The Director of the

Budget was so advised, and I beHeve made a corresponding reduction

in the postal estimate for that purpose. So we have paid for those

presses in approximately three years, and they have greatly increased

the production. Last year we printed nearly 2,000,000,000 postal

cards, 353,000,000 more than for the previous year. Mr. Sandlin. How is the amount of printing affected by the in- creased rates on the postal cards?

Mr. Murphy. Did the increase in postage decrease the number of

cards required by the Government?

Mr. Carter. It greatly increased the demand for Government

cards, because the Government furnishes a card with a 1-cent stamp

on it and the private individual had to put a 2-cent stamp on a private card. That increased greatly the Government business.

Mr. Murphy. In other words, the business men of the country

have been buying their cards direct from the Government, already

stamped?

Mr. Carter. Yes.

We also made a decrease of $9,000 a year in the charge for printing

money orders, so our total reduction for the Post Office Department

for the current year will amount to $209,000.

66983—28 2
16 Annual Report of the Public Printer

The Post Office Department is our largest customer. Our business

with the Post Office Department amounts to about $2,500,000 a year, and with Congress, $2,250,000.

PRINTING FOR PATENT OFFICE, AGRICULTURE, AND POST OFFICE

DEPARTMENTS, ETC.

Our next largest customer, after Congress, is the Patent Office,

whose payments run over $1,000,000 a year for the printing of

patent specifications and the Patent Office Gazette. We have 42

typesetting machines at work eight hours a day setting up the copy

for the patent specifications and the Gazette, but we print only 104

copies of each specification.

There is another large publication that Congress is greatly

interested in, and that is the Agricultural Yearbook. We print

approximately 400,000 copies a year. The book cost last year

$363,610.48, and made 1,538 pages.

Then there is the printing of the farmers' bulletins, with which you

are all familiar. We print around 16,000,000 copies a year, and

four-fifths of those are allotted to Members of Congress and one-fifth

to the department.

Mr. Taylor. Is the number of those publications increasing or is

it about stationary, as the number of Members of Congress remains

the same?

Mr. Carter. Congress appropriates a fixed amount each year for

the printing of the farmers' bulletins, which regulates the number

printed.

Mr. Sandlin. I have been asked by some Members how that was

handled in the Government Printing Office. They have thought that

there was too long a delay in sending them out. They thought there was a delay somewhere, and that possibly it might be corrected by

putting more employees at work. How are those bulletins handled?

Mr. Carter. The orders for farmers' bulletins are first sent to the

Department of Agriculture, ^nd then transmitted to our office. I think when Mr. Tisdel comes to his items, he will be very glad to explain to you just what delay there is, if any, and the reason for it. I think I am justified in saying now that the delay has been largely

in the department in sending orders to us. Mr. Tisdel. The delay that has been incurred has been about

six or seven days in the department, and an average of two or t^ree

days in our office in handling the orders.

Mr. Carter. It may interest the committee further to know

what the increase in wages in the Government Printing Office has

been in the last seven years, due to the operation of the Kiess Act. Mr. Murphy. Before you go into the wage question, you have

another large customer of your office that you have not mentioned,

and that is the Treasury Department, in connection with the printing of the income-tax blanks, etc. Will you give us a little story of that activity for the record?

Mr. Carter. The printing for the Treasury Department amounts

to about $927,000 a year. That was what it cost last year. One

large item, of course, was for the printing of income-tax blanks.

We print around 100,000,000 income-tax blanks, and that job is generally handled in about 30 days.
Hearings on Appropriations 17

Mr. Murphy. Mr. Carter, when you revise your statement you

might prepare for the record a statement showing the outstanding

activities of your office, and you might enlarge a little on what

you have already stated to us, so that we may have more of the

details, and you might make it a little clearer, perhaps. You might

mention the outstanding customers and the outstanding figures in

reference to what they purchase from your office. Mr. Carter. The principal customers of the Government Printing

Office and the value of work charged to each for the fiscal year 1927

are as follows:

Post Office $2, 431, 370. 52 Congress 2, 232, 969. 00

Patent Office 1, 046, 296. 86

Agriculture 997, 337. 83 Treasury 927, 861. 17 Commerce 803, 091. 46 War 645, 415. 52 Superintendent of Documents 613, 924. 58 Navy 585, 019. 21 Library of Congress 320, 996. 47

Justice 268, 418. 17 Labor 239, 483. 09

Interior 236, 488. 50

Total 11, 348, 672. 38 46 other miscellaneous Government establishments, with

amounts varying from $100 or less to $220,000 each 1, 343, 642. 11

12, 692, 314. 49 Mr. HoLADAY. Mr. Carter, with reference to the approximately

100,000,000 income-tax blanks printed in your office, what is the

demand for that number?

Mr. Carter. The Treasury Department explains that it requires

from three to five blanks for every taxpayer, inasmuch as they send one through the mails, and if the taxpayer misplaces it he then goes

to the collector for additional forms, and takes one or two along to

file in his own records.

PRINTING OF GUIDE BOOK FOR LEGIONNAIRES WHO VISITED FRANCE

It is known to you ^gentlemen, perhaps, that we did a job last summer for the American Legion, the printing of a guide to the

American battle fields in France, in which General Pershing was

personally and deeply interested. We got it out in less than the

promised schedule time, and it was considered a record-breaking

undertaking for our office. The books were available to every

legionnaire who went to France, and were invaluable to them in

visiting the battle fields. LETTERS OF COMMENDATION ON WORK OF PRINTING OFFICE

General Pershing wrote me a very fine letter in appreciation of our work, and I will be glad to give that letter to you.

Mr. Murphy. I think that letter ought to go in the record.
18 Annual Report of the Public Printer

(The letter above referred to is as follows:)

General of the Armies,

Washington, August 20, 1927. My Dear Mr. Carter: Your letter of August 13 has just been received, accompanied by the first copy of the book, A Guide to the American Battle Fields in Europe, which was prepared by the American Battle Monumxents Commission

and printed by the Government Printing Office. The degree of excellence attained by you and your organization in every phase

of its production is indeed remarkable, and the results accomplished are extremely

gratifying to the members of the commission. I feel that you, equally with the commission, have every reason to be proud of this volume.

It is clearly realized that when unavoidable circumstances prevented us from

furnishing the manuscript, maps, and illustrations on the date specified, thus

seriously reducing the time available to you, such extraordinary efforts were

required from you and your assistants that the whole task was necessarily placed on an emergency basis. Under these conditions the facts that you printed -a book conforming to the highest technical standards, and, in addition, were able

to deliver copies in advance of August 15, the date they had been promised, are convincing proof of the ability and splendid spirit of cooperation which we always

have found to characterize your organization.

I have been informed, moreover, of the great personal interest which all in your office have taken in the book and of the cheerful willingness with which

they have assisted in every possible way the persons connected with the commission who have been associated with them in this work. This has been appreciated no less by myself than by those to whom the courtesies were directly shown.

I want to extend to you and to each individual of the Government Printing

Office who has had a part in the production and distribution of this publication the sincere thanks of myself and the other members of the commission for the manner in which the whole task has been performed.

Please allow me also to express my own appreciation for your courtesy in sending me the first copy of the book. With kindest personal regards, I am, sincerely yours, John J. Pershing,

Chairman American Battle Monuments Commission.

The Public Printer,

Government Printing Office, Washington, D. C. Mr. Sandlin. Approximately how many of those have been sold?

Mr. Carter. We printed about 20,000 of the guidebooks and most

of them have been taken. We sold them at 75 cents a copy, which was the bare cost price. We made that price without putting on the

additional percentage which we are allowed to add.

Mr. Taylor. Are there any of those left? . Mr. TisDEL. We have a number that have been returned from

Paris that are on sale now, and that is all that remain out of the

20,000 that were printed. There was a consignment made to each

boat sailing to France on which the legionnaires traveled, so they would

be accessible to the members of the legion on the way over. Mr. Carter. I also received a letter from the Secretary of Commerce, Mr. Hoover, who was chairman of the International Kadiotelegraph Conference, in which he paid the office the highest possible

tribute for the printing done for that conference. He says that without our cooperation they would have been unable to have completed

the work in the time that they did.

Mr. Murphy. If there is no objection, we will print that letter in the record.
Hearings on Appropriations 19

(The letter referred to is as follows:)

International Radiotelegraph Conference,

Washington, D. C, December 27, 1927. Public Printer,

Government Printing Office, Washington, D. C. Dear Sir: I have heard nothing but praise from the secretary of the American

delegation and the executive officer to the recent International Radiotelegraph

Conference for the manner in which the Government Printing Office turned out the

printed reports arising out of the labor of the conference. I know very well that the work of such conferences is largely of an emergency and rush nature, which makes the fact that your organization met the demands made upon it all the more praiseworthy. Messrs. Mitchell, Huse, and Barnhart cooperated

fully with the various conference representatives and rendered effective service at all times, often under the most trying conditions. Faithfully yours, Herbert Hoover,

Chairman International Radiotelegraph Conference. Mr. Carter. General Lord has also seen fit to pay us a very high

compliment for the printing of the Budget. He says

:

I also wish to congratulate you on the efficiency of your, plant as evidenced by

the manner in which the printing of the Budget was handled and the close cooperation between our respective offices in the matter of examination of proofs.

Mr. Ogden L. Mills, Undersecretary of the Treasury, recently sent me a letter expressing the great appreciation of the Secretary of the

Treasury for getting out work in connection with his annual report

and also in connection with publications relating to the issuance of bonds. We have numerous other letters of appreciation.

Mr. Murphy. How many of them have you there?

Mr. Carter. I have only three here, although I have probably 50

of them at the office. Mr. Murphy. I think General Lord's letter ought also to go in the

record.

(The letter referred to is as follows :) Bureau of the Budget,

Washington, December 5, 1927. Dear Mr. Carter: I want to express to you my cordial appreciation of the cooperation extended by you in connection with the preparation^nd printing of the Budget for 1929, having in mind also the very efficient assistance rendered by Mr. Barnhart, Captain Moorhead, Mr. Huse, and Mr. Wright, the very

efficient proofreader whom you detailed temporarily to this office to help us out.

I also wish to congratulate you on the efficiency of your plant as evidenced

by the manner in which the printing of the Budget was handled and the close cooperation between our respective offices in the matter of examination of proofs.

I send you my affectionate regards and best wishes. Sincerely yours, H. M. Lord, Director. Hon. George H. Carter,

Public Printer. Mr. Carter. I really brought those letters, Mr. Chairman, simply

as an offset in case there should be some criticism of the office. I recognize we do not do everything perfectly, and there are some

serious delays in handling the work, but on the whole I think the

office is better organized than it ever has been and has the most

highly efficient force of employees.

Mr. Taylor. I want you to realize that what little criticism there

may be has about the same effect as water on a duck's back, as far

as this committee is concerned.
20 Annual Report of the Public Printer

Mr. Murphy. You might say for the benefit of the committee and

the record at this point that whenever there is any criticism or complaint to be made of the Government Printing Office the matter can

be taken up immediately with the Joint Committee on Printing and

be thrashed out there very quickly.

Mr. Carter. Yes, sir; that is another duty that the Joint Committee on Printing has, to which I did not refer—that is, the power to remedy any neglect, delay, duplication, or waste in the public printing

and binding, and I think that is a very wise provision. The committee

does act under that authority frequently, particularly in effecting

economies in printing.

WAGE SCALES

I started to call your attention to the wage increase which was

possible under the Kiess Act passed in 1924. That act authorizes

the Public Printer to negotiate wage scales with committees of employees not oftener than once a year. Whatever agreement or disagreement the Public Printer and that committee of employees may

arrive at is referred to the Joint Committee on Printing for its approval or disapproval.

I might say that the scales were fixed for two years and there has

been only one slight change during the current year; that was in

carrying on a previous agreement for a certain group of pressmen^

giving them an increase of 5 cents an hour, amounting in all to about

$20,000 a year. During the last year the wage situation has been normal, and I think the employees appreciate the fact that they are now receiving

a just and fair rate of pay from the Government, and in return they

are doing a just and fair amount of work for the Government.

Mr. Murphy. How do wages paid at the Government Printing

Office compare with wages paid for like service by commercial firms?

Mr. Carter. They now compare quite favorably. Of course, in

adjusting wages in the Government Printing Office, we always take

into consideration the special benefits, including 30 days' leave, leave on holidays, and the Saturday half holidays in the summer time with

full pay. In adjusting wages we also take into consideration the

prevailing rates of pay in private establishments.

The increases in compensation of all employees for the past seven

years have amounted to $12,890,000.

Total compensation paid to employees Seven years, 1921-1927 $52, 612, 055. 98

Seven years, 1914-1920 39, 721, 191. 38

Increase for last seven years 12, 890, 864. 60

This increase of 32 per cent in compensation was paid to an average of 281

fewer employees per annum during the seven years 1921-1927 than for the pre- ceding seven j^ears. The average annual compensation for each employee, including skilled, unskilled, and clerical, for the seven years 1914-1920 was $1,282.98; and for the

seven years 1921-1927 the average annual pay was $1,814.65, a yearly increase

of $531.67, or 41 per cent.
Hearings on Appropriations 21

COMPARISON OF HOURLY COMPENSATION FOR PRINCIPAL TRADES AND GROUPS,

GOVERNMENT PRINTING OFFICE The following table shows the principal rates of wages for the years 1914, 1921,

and 1927, the beginning and ending of the seven-year periods noted above:

Designation

1921, in- cluding

10-cent bonus

granted by

Congress

Compositor..

Linotype and monotype operator... Proof reader Imposer Maker-up

Copy editor Type machinist Monotype casterman Type machine helper. Stereotyper Electrotype finisher and molder

Photo-engraver. Pressman, cylinder Pressman, platen

Pressfeeder, cylinder

Pressfeeder, platen Bander

Bookbinder Bookbinder machine operator Bindery operative: Folder Folding machine operator Signature pressman

Perforator Sewing machine operator Ruling machine feeder Supervisor Stockkeeper Carpenter

Painter

Electrician Machinist

Pipefitter (steamfitter and plumber)

Skilled laborer

$0. 50 .60

.60

.60

.60

.65 .60

.35

, 35-. 40

.60

.60 None.

.55

.55 .2714 .30 .50

.55

, 25-. 40

40-. 50 .50 .60

.55

.55 .50

.25

$0. 85 .85

.85

.85 .85

.85 .90

.65

.65 .90 .90 None.

.85

.85

.55

.55 .55

.85 .85

, 45-. 70

, 55-. 80

85

I think the employees of the Government Printing Office, outside

of those who are under the classification act and the Public Printer and

the Deputy Public Printer, who are neither under the classification act nor the Kiess Act, are the best-paid employees in the Government

service to-day.

Mr. Murphy. Do the men working on the linotype machines re-

^ ceive a wage equal to the union scale of wages paid in commercial

printing establishments?

Mr. Carter. It is equal to or slightly better than that paid in

book and job offices, but not equal to that paid by newspapers in large

cities, such as New York, where, for special reasons, because they get

out those immense papers on a rush schedule, there is a higher rata

of pay.

Mr. Murphy. Then in addition to this rate of pay the employees

in the Government Printing Ofiice, as you stated, have 30 days' leave

each year?

Mr. Carter. Yes, sir. Mr. Murphy. With full pay?

Mr. Carter. With full pay; yes, sir. Mr. Murphy. In addition to that, do they have any leave of

absence on account of sickness?
22 Annual Report of the Public Printer

Mr. Carter. We have no sick leave in tlie Government Printing

Office. In that respect, the Government Printing Office practically

stands alone among all the other Government establishments.

COMPARISON WITH CONDITION OF EMPLOYEES IN COMMERCIAL PRINTING OFJ'ICES Mr. Murphy. How do the hours of labor in the Government

Printing Office compare with the hours of labor in commercial

printing offices on the outside?

Mr. Carter. The Government Printing Office works on an

8-hour day basis, but taking into consideration the 30 days' leave,

7 or 8 holidays during the year, and the Saturday half holidays

during the summer, the work week for the entire year is approximately 413^ hours. The best on the outside is from 42 to 44 hours,

and in most cases it is 48 hours. The labor unions have made a strong drive elsewhere for a 44-hour week. We do better than

that now, considering the time employees are off on leave and holidays with full pay.

Mr. Taylor. Is not the permanency of the employment in the

Government Printing Office, generally speaking, more certain for

this class of skilled mechanics than it is in private life? Mr. Carter. I think there is considerable to that, Mr. Taylor.

There is a permanency in the Government Printing Office, but still, in a well-established business, there is a permanency of employment,

too. I know many of the big industrial printing plants have provision

for retirement of their employees after long service.

Mr. Taylor. Do the big industrial plants have a pension system

similar to that of the Government?

Mr. Carter. Many of them have a pension system, either of their

own or in cooperation with the employees.

NIGHT WORK PERFORMED BY EMPLOYEES

Mr. Murphy. Do the employees in the Government Printing

Office receive additional compensation for overtime, for Sunday

work, and for night work?

Mr. Carter. There are several extra rates. The extra rate for

night work is 15 per cent above the day rate. The extra rate for

overtime is 50 per cent above the day rate, and for Sunday work it is 50 per cent above the day rate. Mr. Murphy. Do the people employed in the Government Printing Office change, or have swing turns? In your 8-hour shifts do you

swing those men and make the people change, say every two or three

weeks?

Mr. Carter. No; we have no swings, except in our power plant,

where there is a fixed and uniform rate for all shifts. When Congress convenes we organize a permanent night force by transferring to the night force some 300 employees, to handle especially the work

for Congress, particularly the printing of the Congressional Record,

reports, hearings, and bills. Mr. Murphy. They work continuously at night?

Mr. Carter. They work continuously at night during the session

of Congress. At other times we have a smaller night force.
Hearings on Appropriations 23

Mr. Murphy. If they do work at night, then you try to make

provision for them in daywork if their health will not permit them

to continue working at night?

Mr. Cartel. That is quite true. Up until the time there was a

considerable increase in wages, there was strong pressure to put

people on night work and to increase the number put on night work,

but in the last two or three years, since the increase in wages has

been in effect, we have had to draft some people for night work.

Mr. Murphy. Even with the additional 15 per cent wage?

Mr. Carter. Yes, sir. TURNOVER* IN PERSONNEL

Mr. Murphy. Mr. Carter, could you tell the committee what

the turnover has been in the Government Printing Office in the

last five years? Has it gone up or come down?

Mr. Carter. The turnover last year was approximately 20 per

cent. Prior to that time it was about 30 per cent. With the in- creased wages, there has been a material reduction in the turnover. Mr. Taylor. How does that turnover come about, on account of

deaths, resignations, or marriages?

Mr. Carter. It comes about by deaths, resignations, and retire- ments.

Mr. Murphy. Is there any special department where it is larger

than in another department of your work?

Mr. Carter. The largest turnover, of course, is with the messenger

boys who come and go as the school terms come and go; and then

there is a considerable turnover among the laborers. But in the

skilled trades there is not so much turnover; the employment there

is pretty well fixed now,

Mr. Murphy. What would you look upon as a normal turnover

for an activity such as the Government Printing Office?

Mr. Carter. I think anywhere from 10 to 20 per cent would be a normal turnover, considering the deaths and retirements.

Mr. Murphy. Naturally in the Government service, by reason of

the retirements, there is an increase in the percentage of turnover?

Mr. Carter. Yes. Mr. Murphy. Because necessarily each year there are a number of

people retired from the activities of your office. Mr. Carter. Last year we retired about 50. Since the retirement

law went into effect in 1920 there have been 745 retirements from the

office. Mr. Taylor. How does the retirement in the Government Printing

Office service compare with retirement provisions in other big printing

establishments or newspaper offices? Mr. Carter. My impression is that newspapers generally do not

have a retirement provision for their employees. Some of the larger

offices do have provisions of that kind. The New York Times gives

a $5,000 insurance policy to each employee who has been in the service

30 years. Mr. Taylor. Very few papers do anything of that kind?

Mr. Carter. There are not many papers that have such provisions

for their employees. The Washington Star has a similar provision

I understand, but that is not the general rule.
24 Annual Report of the Public Printer

BALANCE RETURNED TO TREASURY

Mr. Murphy. Mr. Carter, last year you turned back to the

Treasury $963,651, or rather you had a balance of 'that amount.

Can you state just how that balance occurred and what happened

to it? Mr. Carter. It was all turned back into the Treasury to the

credit of the Government. Of that amount $9,196 was from the

office of the Public Printer and $936,988 was from the receipts for

work done. In addition $7,466 was from salaries appropriated for

the office of the Superintendent of Documents, and $10,000 saving

in expenses of the office of the Superintendent of Documents. Part

of the balance was due to the fact that Congress did not order printing

up to the full amount of the working capital, which it could have

done. Other balances were on account of work incompleted in the

prior year and charged in full for the last fiscal year. Mr. Murphy. The working capital was $2,500,000.

Mr. Carter. Yes, sir. Mr. Murphy. What you have stated would not account for the

difference between $2,500,000 and the amount in the figures you gave

us at the beginning of your statement.

Mr. Carter. I should explain further that part of the $936,988

turned back was an abnormal hang over of uncompleted work from

the preceding year. We can not charge up all our work absolutely on the 1st of July, so if part of the work is done in one fiscal year and

completed in the next year, the bills are collected in the year in which

the work is completed.

We had last year a very large hang over of work that had not been

completed in the preceding year. This was paid for in the last fiscal year, and that accounts in part for this very large surplus, which we

are sure will not obtain as to the next year because there is no prospect of such a large hang over of work.

Part of that surplus, also, was profit on money orders and postal

cards, which will not obtain another year, as we have reduced the

charges for that work approximately $209,000.

Mr. Murphy. That has already been absorbed by the Budget?

Mr. Carter. Yes, sir. We arbitrarily took a profit on postal

cards and money orders to pay for the presses and other new equipment, of which the Post Office Department was advised and with

which it was agreeable.

FINANCIAL statements

Mr. Murphy. Mr. Carter, we would like to have a financial state- ment of your office showing the amount of moneys paid to your

office by the various Government departments and establishments

for work done by you for them, showing how much you received

from each department.

Mr. Carter. I have that statement prepared.

Mr. Murphy. We would like to have that in the record.

Mr. Carter. I will put that in the record.

(The statement above referred to is as follows :)




Hearings on Appropriations 25

Mr. MuEPHY. Mr. Carter, does your office each year get out a balance sheet showing the amount of money received and expended,

and for what purposes?

Mr. Carter. Yes, sir. Mr. Murphy. You might put in the record the last balance sheet

of your office, prepared for 1927.

Mr. Carter. I will submit that. (The statement above referred to is as follows:)

Resources and lia'bilities under appropriations for the Government Printing

Office for the fiscal year ended June 30, 1927 EESOURCES

Appropriation for salaries, office of Public

Printer $156, 453. 00

Appropriation for working capital $2,400,000.00

Payments from all sources

for printing and binding 9, 696, 720. 67 Eefunds and receipts from

various sources 1, 918. 02 Transferred from 1924 appropriation, for estate of de- ceased employees (defi- ciency act, July 3, 1926)— 800.00

Bills receivable July 1, 1927, for printing and binding

furnished— 762, 624. 82

12, 862, 063. 51 Appropriation for salaries, office of Superintendent of Documents 382,050.00

Appropriation for general expenses, office of Superintendent of Documents 188,400.00

Total resources available for fiscal year 1927 $13, 588, 966. 51 LIABILITIES

Salaries, office of Public Printer: Disbursed to June 30 $141, 168. 12 Outstanding obligations, July

1, 1927 6,088.22

Total disbursed and out- standing obligations 147, 256. 34 Working capital and repayment

for printing and binding:

Disbursed to June 30 10, 501, 867. 81 Outstanding obligations, July

1, 1927 1,423,207.46

Total disbursed and out- standing obligations 11, 925, 075. 27

Salaries, office of Superintendent

of Documents:

Disbursed to June 30 358,308.19

Outstanding obligations, July

1, 1927 16,275.53

Total disbursed and out- standing obligations 374, 583. 72
26 Annual Report of the Public Printer

General expenses, office of Superintendent of Documents:

Disbursed to June 30 $107, 076. 37 Outstanding obligations July

1, 1927 71,323.63

Total disbursed and out- standing obligations $178,400.00

Total disbursed to June 30 11,108,420.49

Total outstanding obligations,

July 1, 1927 1,516,894.84

Total disbursed and outstanding obligations $12, 625, 315. 33 Unobligated balance (subject to 10 per cent over or under on

outstanding orders) 963,651.18

13, 588, 966. 51 The unobligated balance of $963,651.18, returned to the Treasury,

is made up from

Appropriation

:

Office of tbe Public Printer .$9, 196. 66

Salaries, office of Superintendent of Documents 7, 466. 28 Expenses, office of Superintendent of Documents 10, 000. 00

Difference between charges for work for Congress, Government

Printing Office, and Architect of the Capitol ($2,232,969) and

amount of working capital ($2,400,000) 167, 031.00 Excess of scale over cost of postal cards and money orders (to compensate for cost of new machinery and equipment and extra ex- pense of abnormal requirments) 371,419.38

Charges for printing and binding mostly done in 1926 and cost car- ried in expense of that year but not actually completed until after beginning of fiscal year 1927 and credit taken in 1927 (this was an abnormal condition not to be expected in other years) 398, 537. 86

Total 963, 651. 18 The amounts paid for work by each Government establishment

are shown in statement just submitted.

The following statement shows all expenditures by the Government

Printing Office in 1927, including payments from previous appropriations on account of outstanding obligations at close of fiscal vear

1926:

Recapitulation—All appropriations Total paid for labor during fiscal year ' $7, 685, 233. 77 Total paid for material and supplies 1, 208, 878. 65

Total paid for lithographing and engraving 125, 779. 20

Total paid for paper 2, 981, 195. 42

Total paid for printing and binding 12. 001, 087. 04

Total paid for salaries, office of Public Printer - 147, 159. 84

Total paid for salaries, office of Superintendent of Documents ^ 373, 010. 11 Total paid for general expenses, office of Superintendent of Docu- ments 191, 899. 10

Total 12, 713, 156. 09 Transferred to miscellaneous receipts 7, 891. 18 Grand total 12, 721, 047. 27

1 Includes amount paid to retirement fund $245, 960. 07

^ Includes amount paid to retirement fund 4, 400. 16

• Includes amount paid to retirement fund 11, 608. 75

Total paid to retirement fund 261, 968. 98
Hearings on Appropriations 27

Mr. Murphy. Is there anything further you would like to tell the conunittee in your general statement before we take up the items

in the bill? BLANK PAPEE SUPPLIED DEPARTMENTS

Mr. Carter. It may also be interesting, Mr. Chairman, to tell the committee about the amount of blank paper we have supplied the

departments under a provision which the committee incorporated in

the bill several years ago. For the last year it has amounted to approximately $542,000. We are now supplying to all the departments in Washington practically all the paper they are using, and

in that way they are getting the benefit of the lower prices on the

larger contracts awarded through the Joint Committee on Printing.

Mr. Taylor. Where does this paper come from ? Mr. Carter. It comes from all over the country, from as far west

as Wisconsin and Michigan.

Mr. Taylor. Do you import any paper from any other country

Mr. Carter. There is practically no imported paper included in

that. Mr. Taylor. Have you ever given any thought to the practicability of the Government doing something in the way of the production of paper in Alaska or elsewhere?

Mr. Carter. There was a bill pending before Congress foi" several

sessions proposing the establishment of a Government paper mill,

in which I was keenly interested. The Government has ample

pulpwood timber in Alaska and in the northwestern part of the

United States, and water-power sites, so that the only original ex- penditure would be for the construction and equipment of the mill. Mi\ Taylor. For the installation of the plant?

Mr. Carter. Yes, sir. At that time I think it was figured that a

50-ton mill could be built for about $1,000,000.

Mr. Taylor. And that was not done because of opposition to the

Government going into the paper-making business?

Mr. Carter. Yes, sir. Mr. Murphy. We will take up the items of the bill beginning on

page 79. salaries, office of public printer

Your first item is for public printing and binding. The current appropriation for this purpose is $2,500,000, and you are estimating

the same amount for 1929. Mr. Carter. The first item I wish to speak of is bracketed in the

bill. The effect of that would be to take out from under the classi- fication act approximately 90 employees who are now paid under

the working-capital appropriation.

Last year the committee consolidated the two items of appropriation, for the office of the Public Printer and for public printing and

binding, into one item, but in the consolidation they retained language which still keeps under the classification act about 90 of our

employees. That results in a discrimination against some of the employees, particularly the 90 whose salaries are fixed by the classifica-
28 Annual Report of the Public Printer

tion board. They constitute only 2l^ per cent of the entire number

of employees paid out of this particular appropriation, the other 97i^

per cent being under the Kiess Act. In some instances employees

who are paid under the classification act are working side by side

with those who are paid under the Kiess Act.

Tliis provision would not increase the appropriation at all, and

would alfect only a small group of employees.

Mr. Taylor, ^om say it would not a fleet the total amount of the

appropriation ? Mr. Carter. No, sir \ it would not. Mr. Taylor. And you feel that along the line of systematic and

orderly conduct of the ofiice that matter ouglit to be adjusted ? Mr. Carter. Yes, sir. I would be glad if the committee would

give careful consideration to that at this time.

Mr. Sandlin. In other words, 90 of your employees are under the

classification act? Mr. Carter. Yes, sir; as the language now stands in the bill it keeps the 90 employees under the classification act. Mr. Sandlin. And all the rest of your employees are under the

Kiess Act?

Mr. Carter. Yes, sir; 97% per cent of them are under the Kiess

Act.Mr. Sandlin. Is there any reason for that situation at all? Mr. Carter. When the Kiess Act passed, our office was of the opinion that it took from the classification act all of the employees paid

out of the appropriation for public printing and binding. We submitted the matter to the Comptroller General, who held that this

group of employees were continued under the classification act because of the language in the appropriation bill, which says that

it shall be in accordance with the provisions of section 3 of the

legislative appropriation act relating to the classification of

employees.

Mr. Murphy. Mr. Carter, the statement you have just concluded

indicates that this committee is powerless to do anything to relieve

that situation. It is a matter that should be taken up with the

legislative committee, is it not?

Mr. Carter. We think quite the contrary. The language which

keeps these employees under the classification^ act is inserted in this

appropriation act. If you were to leave out that language they

would automatically come under the Kiess Act. Mr. Murphy. Then it is your judgment that, if this language in

brackets were left out, those 90 employees who are now under the

classification act would automatically come under the provisions of

the Kiess Act ? Mr. Carter. Yes, sir; that would remove the restriction.

Mr. Murphy. Is that according to the comptroller's ruling?

Mr. Carter. Yes, sir; he pointed out in his ruling that it was be- cause of the language carried in this act. Mr. Murphy. Will you put a copy of that ruling in the record at

this time?

Mr. Carter. It was included, in part, in the hearings last year, and

I will insert the entire decision in these hearings.
Hearings on Appropriations 29

(The decision referred to is as follows :) Comptroller General of the United States,

Washington, August 25, 1924' The Public Printer,

Washington, D. C. Sir : I have your letter of June 26, 1924, requesting decision whether, in view

of the provisions of the act of June 7, 1924, Public, No. 276, you are authorized

to fix rates of pay for all employees and officers of the Government Printing

Office, notwithstanding the provisions of the classification act of 1923. The act of June 7, 1924, Public, No. 276, provides as follows

:

" That on and after July 1, 1924, the Public Printer may employ, at such

rates of wages and salaries, including compensation for night and overtime

work, as he may deem for the interest of the Government and just to the per- sons employed, except as otherwise provided herein, such journeymen, apprentices, laborers, and other persons as may be necessary for the work of the Government Printing Office ; but he shall not at any time employ more persons than the necessities of the public work may require, or more than two hundred

apprentices at any one time: Provided,, That on and after July 1, 1924, the minimum pay of all journeymen printers, pressmen, and bookbinders employed

in the Government Printing Office shall be at the rate of 90 cents an hour for the time actually employed: Provided further, That except as hereinbefore

provided, the rates of wages, including compensation for night and overtime

work, for more than ten employees of the same occupation shall be determined

by a conference between the Public Printer and a committee selected by the

trades affected, and the rates and compensation so agreed upon shall become

effective upon approval by the Joint Committee on Printing; if the Public Printer and the committee representing any trade fail to agree as to wages,

salaries, and compensation, either party is hereby granted the right of appeal to the Joint Committee on Printing, and the decision of said committee shall be

final ; the wages, salaries, and compensation determined as provided herein

shall not be subject to change oftener than once a year thereafter: Provided

further, That employees and officers of the Government Printing Office, unless otherwise herein fixed, shall continue to be paid at the rates of wages, salaries, and compensation (including night rate) now authorized by law until such

time as their wages, salaries, and compensation shall be determined as herein- before provided.

" Sec. 2. All acts or parts of acts in conflict with the provisions of this act are hereby repealed." Section 2 of the classification act of March 4, 1923 (42 Stat. 1488), expressly

includes the Government Printing Office, and under the clerical-mechanical

service of that act there is included

» * * * x\\ classes of positions which are not in a recognized trade or

craft and which are located in the Government Printing Office * * *." The act of June 7, 1924, Public, No. 225, making appropriations for the legis- lative branch of the Government for the fiscal year ending June 30, 1925, provides (pp. 13, 14, and 15), under the major heading of " Government Printing

Office," three subheadings, viz, " Office of Public Printer," " Public printing and

binding," and " Office of Superintendent of Documents." Under the first sub- heading is the following:

" Salaries : Public Printer, $6,000 ; Deputy Public Printer, $4,500 ; for personal

services in accordance with the classification act of 1923, $147,380; in all, $157,880."

Under the second subheading is provided the working capital for the execution of printing, binding, lithographing, engraving, and other authorized work

of the Government Printing Office for the various branches of the Government,

including provision for salaries, compensation, and wages. Under the third subheading is the following:

" For the Superintendent of Documents, assistant superintendent, and other personal services in accordance with the classification act of 1923, $339,960."

As Public, No. 276, and Public, No. 225, were approved the same day, June 7, 1924, it is necessary, if possible, to so construe their provisions as to give effect to both. Public, No. 276, deals with employment of " journeymen, apprentices, laborers,

and other persons as may be necessary for the work of the Government Print- ing Office." It fixes the minimum pay on and after July 1, 1924, of " all journey- men printers, pressmen, and bookbinders." It provides for adjustment in the
30 Annual Report of the Public Printer

rates of pay, including night and overtime work, on the basis of a conference between a committee appointed by the " trades affected " and the Public

Printer, subject to the approval of the Joint Committee on Printing. The

entire tenor of the act indicates that it is dealing with the various tradesmen,

laborers, etc., employed in the actual execution of printing, binding, etc., constituting the work of the Government Printing Office for the various branches

of the Government service, under the appropriation heading " Public printing

and binding." Its purpose was to enable the Public Printer, subject to the approval of the Joint Committee on Printing, to adjust wages in conference with tradesmen employed in the work of the Government Printing Office similar to the practice in private printing establishments. I find nothing in the act to indicate that it was intended to have any application to the administrative forces, such as clerks, stenographers, cataloguers, etc., appropriated for under the headings " Office of the Public Printer " and " Office of Superintendent of Documents," particularly in view of the express provision in the appropriations that such personal services shall be in accordance with the classi- fication act of 1923. Accordingly, you are advised that the classification act

is applicable to the administrative force employed under authority of the appropriations made under the subheadings " Office of Public Printer " and

" Office of Superintendent of Documents," and the act of June 7, 1924, Public, No. 276, relates only to personal services employed under the authority of the appropriation " Public printing and binding," and, to that extent only,

supersedes the classification act of 1923. Respectfully,

J. R. McCarl, Comptroller General. Mr. Sandlin. That language you are proposing to omit would

have been subject to a point of order as legislation on the appropriation bill, would it not?

Mr. Carter. No, sir ; I do not think so. Mr. Sandlin. I mean that originally it would have been subject

to a point of order.

Mr. Carter. This was originally a separate paragraph, and when

the classification act was passed in 1923 all of the employees in this

paragraph, except the Public Printer and the Deputy Public Printer, were included under the classification act. Then the Kiess Act was passed in 1924, and we were under the impression, and the report on the Kiess bill so indicates, that the Kiess Act applied to all of

the employees of the office. However, the Appropriations Committee

continued its restriction as to this particular group of employees.

Mr. Murphy. The Kiess Act was passed before the classification

act, was it not ? Mr. Carter. No, sir; it was passed afterwards.

Mr. Murphy. The classification act was passed in 1923. It became

effective July 1, 1923.

Mr. Carter. The Kiess Act was approved June 7, 1924, but no

attention was paid to it when the legislative bill was drafted in this

language.

Mr. Murphy. Then, it is your judgment that it was just an oversight at the time?

Mr. Carter. It was at that time, because when we raised the

question with the Comptroller General as to the application of the

Kiess Act, he pointed out this language to us as restricting it. Mr. Murphy. It is your best judgment that if this language is dropped from the bill these 90 employees will automatically come

nnder the Kiess Act?

Mr. Carter. Yes, sir; without doubt.

Mr. Murphy. If that should be done, what would be the effect on the salaries of those 90 employees?
Hemings on Appropriations 31

Mr. Carter. It will probably be to increase some of them. The

great bulk of these 90 employees are guards. About 50 of them are guards who now receive under the classification act $1,140, which I think is an utterly inadequate rate of pay for men who are required

to perform the duties that our guards have to perform. These are

not men who sit in chairs at the doors of officials, but they actually

protect and patrol a very valuable property. They not only protect

property but they have to pass upon all admissions to the office. Our

employees are not permitted to leave work at irregular hours without

passes, because their pay is regulated by the hours they are employed.

The guards have to check up very carefully by means of time clocks on every employee who passes in or out of the office at other than the

regular hours. They are constantly on patrol duty throughout the

entire plant, which, as you know, has a very grave fire risk in the

older buildings. Our guards are not chair warmers at all, but work

full eight hours a day.

Mr. Taylor. What would be the salary if this language were taken

out of the bill? Mr. Carter. It would be subject to fixing by the Public Printer,

with the approval of the Joint Committee on Printing. We have

never been able to get the Classification Board to consider that these men were in a different status from ordinary messengers in the

departments.

Mr. Taylor. Do I understand that the Public Printer fixes the

salaries of all the employees in the Government Printing Office ex- cept these 90?

Mr. Carter. The Public Printer fixes them with the approval of

the Joint Committee on Printing; yes, sir. The rates of wages are

fixed in that way.

To tell you the complete story, I will say there is also a group

under the Superintendent of Documents in a similar situation, and

the Superintendent of Documents will make a similar proposal as

to them. The 90 employees I refer to are under the Government

Printing Office proper.

MOTOR-PROPELLED VEHICLES Mr. Murphy. We have an item here for

motor-propelled vehicles for the carriage of printing and printing supplies, and

the maintenance, repair, and operation of the same, to be used only for oflBcial purposes, including purchase, exchange, operation, repair, and maintenance of motor-propelled passenger-carrying vehicles for oflScial use of the officers of the Government Printing Office. And so forth. Can you give us a little information about that item ? Mr. Carter. We have only two passenger-carrying cars. One of

them you saw when the committee recently visited the office, and the

other is a Buick car. The limitation on the purchase of other cars

is $4,000. The Cadillac car was procured when we turned in a car which Congress had provided that the War Department should transfer to our office without charge.

Mr. Murphy. Is this $4,000 to be used for the purchase of one

automobile, or is it intended for the purchase of a number of small

cars? Mr. Carter. It is the total expense for all of the passenger cars we

buv.

66983—28 3
32 Annual Report of the Public Printer

Mr. Murphy. That is all you expect to spend, whether you buy 1, 2, 3, or 4 cars? Mr. Carter. Yes, sir. Mr. Murphy. You would not use all of this money to buy one car, would you ? Mr. Carter. No, sir ; that has never been done.

NEWSPAPERS, MAGAZINES, ETC. Mr. Murphy. I notice that you include newspapers and magazines

in this item. That is new language ? Mr. Carter. We were subscribing for the United States Daily for

the use of our proof room, on account of the large amount of information it has in connection with governmental affairs, but the

Comptroller General turned down the account and we were compelled

to refund the payment. We subscribe also for quite a number of

trade magazines, but we are somewhat apprehensive that the Comptroller General may subsequently disallow the accounts, because they

may be held to be neither books of reference nor technical books.

Mr. Murphy. But it is necessary that you have them ? Mr. Carter. It is absolutely essential that we get the trade magazines. They are most valuable. It is not the purpose under this

language to subscribe for any ordinary newspapers.

Mr. Murphy. It is for the purpose of procuring technical and

informative literature ? Mr. Carter. Yes, sir. If the committee thinks it would make it clearer, you could put the word " and " between the word " news- papers " and the word " magazines," so that it will read " directories,

technical books, newspapers, and magazines." We have never subscribed for any ordinary newspapers and magazines.

Mr. Taylor. I think the United States Daily would furnish you a

lot of information.

Mr. Carter. Yes, sir; it is very valuable for our proof readers.

FURNISHING INKS, GLUES, AND OTHER SUPPLIES TO GOVERNMENT

DEPARTMENTS

Mr. Murphy. You have another item for furnishing inks, glues,

and other supplies manufactured by the Government Printing Office in connection with its work to departments and other establishments

of the Government upon requisition. Will you give us a statement

in regard to that activity?

Mr. Carter. That provision was put in a year or two a,go, and I was under the impression then that it was permanent law, but I notice it is continued in this appropriation. I would like to know

whether, in the opinion of the committee, it is permanent law; and

if so, whether it would not be advisable to take it out from this bill? However, if there is any doubt about its being permanent law, I strongly recommend that it be included again.

Under that provision we are supplying the departments with many

of the materials that we make for our own use. During the first year we saved the departments approximately $20,000 of the prices

they would have had to pay for the same materials if procured commercially. I think the savings will eventually run to $35,000 or $40,000 a year. Mr. Murphy. Does that represent the total sales under this item?
Hearings on Appropriations 33

Mr. Caetek. No, sir; the total savings.

Mr. Murphy. What are the total sales? Mr. Caetee. Do you mean the total cost to us ? Mr. Murphy. Xo: the total sales of these various manufactured

articles. Mr. Carter. I can submit a detailed report covering that by prices

and quantities.

Mr. MuPvPHY. Let your statement show the total amount of money

received from the sales, and the savings, if any, to the Government.

Mr. Carter. The Government Printing Office charge was $13,976.57,

and the cost of the articles, if they had been procured commercially^

would have been $34,059.87, showing a saving of $20,083.30. I will

insert in the record a statement of that in detail. (The statement referred to is as follows:)

Record of misceUaneous materials furnished to all Government agencies, fiscal year 1921

Kind of material Amount furnished

Govern- ment

Printing

Office charge

Cost to depart- ments

through

former

channels

Savings to Govern- ment

Printing inks: BlackCanceling

Miscellaneous Colored—

Snufi brown

other colors Multigraph inks: BlackGrade A

Grade B

Colored.- Mimeograph inks: For open cylinder machines.. Do

For closed cylinder machines. Do

Numbering-machine inks: Red

Blue

Black Stamp-pad inks: Red

Blue... Black Green

Writing inks: Blue-black for fountain pen

and office use. Do.

1,200 pounds.

604 pounds...

590 pounds...

66 pounds

772 pounds.

195 pounds.

142 pounds.

4,716 pounds in 4-pound cans.

7,129 pounds in 1-pound cans.

1.534 pounds in 4-pound cans.

3,779 pounds in l-poimd cans.

51 pounds66 pounds.

72 pounds.

Blue-black record. Do

Red.Do.

Do.

VMolded glues Miscellaneous: Flour paste Ink solvent. Addressograph inks: Black Blue

Purple writing ink for duplicators.

240 pounds.

152 pounds.

584 poimds.

4 pounds... 227H gallons in quart bottles...

869 gallons in gallon or larger containers (not including containers) . 62 gallons in quart bottles

50 gallons in gallon or larger containers (not including containers) . 47 gallons in quart bottles 91M gallons in pint bottles 126H gallons in gallon or larger containers.

1,422 pounds

4,070 pounds

5 gallons

309 pounds

11 pounds. 4H pounds 1 Total.. ...1 ; 13,976.57

$600 00

273! 15

$1, 200. 00

' 500! 60

$600. 00

227! 45

354. 00

43. 55 590.0086. 85 236.00 43.3a

424. 60

48. 75

104. 80

1, 003. 60

253. 50

344. 05

579. 00

204. 75

239. 25

2, 593. 80

4, 277.40

843. 70

2, 267. 40

7, 074. 00

10, 693. 50

2, 301. 00

5, 668. 50

4, 480. 20

6, 416. 10

1, 457. 30

3, 401. 10

238. 75 815. 67 576. 92

497. 65 614. 42 116.77

182.00

330. 72 1 962. 37 449.60

59.72

32.00 }

148. 96 57.24

26. 32 73.40

25. 30 1 246.68 121. 66

191.91 318. 90 126.99

122. 10

6. 25

191. 29

17. 50

69. IS

11.25

309. 00

11. 00 9.00

843.57

36. 96

18.00

534. 57

25.96 9.00

13, 976. 57 34, 059. 87 20, 083. 30
34 Anmial Report of the Publie Printer

Mr. MuBPHY. We have quite an elaborate and detailed statement

in the bill here showing the number of employees, the salaries, and

the various activities of the people employed in your establishment.

Is there anything further that you would like to add to what is now

in the bill in that regard ? Mr. Carter. No, sir; in the estimate we submitted we covered

as thoroughly as we could the probable needs of the office for the

coming fiscal year. Of course, you recognize that the organization

of our office is absolutely dependent upon the amount of funds that are appropriated to the other departments for printing and binding.

We can only guess at that, or approximate it from past experience.

We can only estimate the total amount that will be provided. Our

organization is based upon what we think Congress may do in the

way of appropriating to the departments for printing and binding

for the coming fiscal year and also upon what the requirements were last year. Mr. Murphy. Do you believe that this amount of $2,500,000 is a

sufficient working capital for your activities in 1929 ? Mr. Carter. I think it is, in view of what we spent last year. In

the coming year or the year following we will have considerably

increased expenditures on account of the addition to the building

which has been authorized by the Public Buildings Commission.

The commission authorized $1,250,000 for an addition to the Government Printing Office. The land for that addition has been con- demned, and contracts for the building will be awarded within the

next few months. Of course, there will be a heavj^ expense in moving

and getting additional equipment, outside of the cost of construction

itself. Mr. HoLADAY. Where is that building to be located?

Mr. Carter. It will be west of the main building on G Street. It will increase our square foot space about 20 per cent. We have now

about 750,000 square feet, and the addition will make the total about

913,000 square feet. Mr. HoLADAY. How much of your present building is fireproof?

Mr. Carter. All of the main building is fireproof. It is only the

old portion of the building on North Capitol Street, at H Street,

that is a bad fire risk. We do not propose to take down that building at this time, on account of the fact that it is partly filled with

shops—electrical, carpenter, machine, pipe-fitting, etc.—all of which

are to be moved over into the new addition, which will be fireproof.

Then, at some other time the question will come before Congress as

to taking down the old building and replacing it with an adequate

fireproof warehouse. The logical move seems to be now to erect the

addition so that we can get the shops permanently located without

having to put them in rented space for the time being.

Mr. Murphy. There is no provision made in this bill for any

money that you might need in transferring the machinery and for

making the other needed adjustments.

Mr. Carter. Yes, sir ; that can be used out of our working capital, or out of funds coming from other departments. We include the

whole cost of operation in our charges for printing and binding.

Mr. Murphy. It will be charged up, then, under the cost of

printing ?
Heanngs on Appropriations 35

Mr. Caetee. Yes, sir; under the cost of printing; but, in order to make sure that we will have adequate funds. I think the working

capital should be kept up to $2,500,000.

COOPEEATIOX WITH PEI^'ATZ ESTABLISHMENTS

Mr. MiTEtPHT. Is there anything else ? 'Mi. Caetee. I have just one minor amendment I would like to propose to the committee. It is subject to a point of order, but is such a minor question that I doubt whether the point would be raised.

This amendment provides for cooperation with commercial industries in perfecting standards, testing supplies, and developing specifications for various printing materials. This privilege is now en- joyed by practically all of the other branches of the Government

service. A nrjnber of years ago the executive departments and a number of specifically named establishments, including " any hereafter established.*' were granted the privilege of cooperating with

organizations, like farmers' associations cooperating with the Department of Agriculture and manufacturers cooperating with the

Bureau of Standards: but. on account of the fact that the Government Printing Ofiice was not a part of any executive department, it was excluded from the privilege. Xor did the Government Printing

Office come under the provision that the privilege of cooperation

should apply to any bureau " established hereafter." because our

office was already in existence. The Bureau of Standards itself just

got in under the wire by being established the next day after this act passed. I want to ask permission of the committee to include a proviso that

this act in question shall also apply to the Government Printing

Office, so that we can cooperate with the typothetse and other busi- nesses and industries interested in the work of the Government

Printing Office. I have now a proposition on my desk from the

American Xewspaper Publishers' Association for cooperation in the

investigation of paper, type metals, inks. etc. It is a work that we

must undertake for our own printing office, and it is felt that the

printers of the country are entitled to the benefit of our experience.

It will be just the same as the cooperation between farmers' organizations and the Department of Agriculture and that of business men

with the Bureau of Standards.

The organizations would furnish funds to meet whatever additional expense there might be in the operation of the joint investigations. This is the kind of work that is done by the Bureau of

Standards in a very large way now.

If it were not for the restriction in the law applying it only to

specific branches of the service and to establishments created after- wards, we could proceed with the work the same as all other establishments of the Government. For instance, there are included now

all the executive departments, the Library of Congress, the Museum,

the Patent Office, the Bureau of Education, the Bureau of Ethnology,

the Bureau of Standards, the Botanic Garden, the Coast and Geodetic Survey, the Xaval Observatory, the Zoological Park. etc. We

are the only one not granted that permission imder the law.

Mr. Saxdles-. What additional cost would be involved ?
36 Annual Report of the Public Printer

Mr. Carter. No additional cost. Mr. Murphy. What provision of l^w do you propose ? Mr. Carter. I will hand it to you. As a matter of fact, we have

been doing some of this cooperative work with the United Typothetse

of America, but it has been called to my attention that other departments have specific authority of law to do it, and I feel reluc- tant to go ahead unless we are included in the law.

Mr. Murphy. This, of course, is legislation and subject to a point

of order.

Mr. Carter. Yes, sir. This amendment which I ask to have in- serted as a new paragraph at the bottom of page 91, reads as follows

:

Section 91, chapter 5, title 20 of the Code of Laws of the United States is hereby amended so as to include and apply to the Government Printing Office. The section of the code referred to in the above amendment reads

as follows:

Section 91. Literary and scientific collections accessible to investigators and

students.—The facilities for study research and illustration in the Government

departments and in the following and any other governmental collections now

existing or hereafter to be established in the city of Washington for the pro- motion of knowledge shall be accessible, under such rules and restrictions as the oflacers in charge of each department or collection may prescribe, subject to such authority as is now or may hereafter be permitted by law, to the scientific investigators and to duly qualified individuals, students, and graduates of any

institution of learning in the several States and Territories and the District of Columbia, to wit:

1. Of the Library of Congress.

2. Of the National Museum.

3. Of the Patent Office.

4. Of the Bureau of Education.

5. Of the Bureau of Ethnology.

6. Of the Army Medical Museum.

7. Of the Department of Agriculture.

8. Of the Bureau of Fisheries.

9. Of the Botanic Gardens.

10. Of the Coast and Geodetic Survey.

11. Of the Geological Survey.

12. Of the Naval Observatory.

13. Of the Zoological Park. (Apr. 12, 1892, No. 8, 27 Stat. 395; Mar. 3, 1901,

c. 831, 31 Stat. 1039.) OFFICE OF superintendent OF DOCUMENTS

GENERAL STATEMENT

Mr. Murphy. The next item is for the office of Superintendent of

Documents. Mr. Tisdel, are you prepared to make a short state- ment regarding the activities of your office ? Mr. TiSDEL. Yes, sir. As an introduction, I will make a concise

statement of the functions of the office. The office was created in

1895 for the purpose of having general supervision over the distri- bution of Government publications. This distribution now involves over 10,000,000 copies of publications sold a year, and the mailing

for the departments run.s anywhere from 45,000,000 to 50,000,000

publications a year. In addition to our distributing activities, we

are a central office of information in answering letters of inquiry

involving all publication of the Government, which last year totaled

about 175,000 letters.
Searings on Appropriations 37

We also publish the official catalogues, which include a monthly cat- alogue covering all the publications printed during the period of one month, the document index, indexing congressional documents

and reports for each session of Congress, and the document cata- logue, published at the close of each Congress, which is a comprehensive index of all the publications, both departmental and congressional, that are printed.

Those are the major activities of the office. Other duties may be

summarized as follows: (a) Distributing publications to depository

libraries; (&) compiling bibliographies and price lists; {c) receiving all accumulations of Government publications from the departments and annually taking over their surplus for distribution; {d)

maintaining the most complete library in the United States of all Government publications ; {e) maintaining a reference catalogue con- taining general and specific information concerning the work and

publications of the Government departments.

Mr. Taylor. How do those activities at the present time compare

with those of the past year, or several years back? Are they in- creasing, diminishing, or simply holding their own ? Mr. TiSDEL. There is a very decided growth in the work, and when

you come to the item in the appropriation where additional money

is requested, I will tell you something of that increase. From a little group of less than 50 employees in 1895, the force has grown to about 280, and from about 3,000 publications sold during the first year of its activity, the total has mounted to nearly 10,000,000, swelling the cash receipts from $1,000 during the first year to approximately $600,000 for the fiscal year ending June 30, 1927. Mr. Taylor. Go ahead and make any statement you like concern- ing this matter, and which you think should go into the record, in

the way of giving us prelimmary information. Of course. Congress

likes to know of the activities of the different departments, what you

are doing, and what you are there for. Mr. TiSDEL. The sale of Government publications is decidedty on

the increase. Years ago there was a feeling in the departments that

publications should be given away, but that thought is being re- placed with the idea that better use is made of the publications when

paid for, and, besides, it is the only way of eliminating waste. Converting the department to the sales idea has been slow work, but our advocacy of such a policy over a long period of years is gaining support throughout the various departments, with the inevitable result

of increased sales. The Department of Commerce has curtailed its free distribution so that now only those who are collaborating with

their department, libraries and other institutions are receiving copies

without charge. In place of this free distribution, thej^ are sending

out thousands of circulars announcing publications and advising the

public that they can be obtained from the office of the Superintendent

of Documents at a nominal price.

The Director of the Budget, General Lord, is very much interested

in the sale of documents, and I am sure he advocates that policy

for all the departments when they appear before him in connection

with estimates for printing and binding.

Mr. Taylor. Is there anything further in a preliminary way that

you wish to say before taking up the items ?
38 Annual Report of the Public Printer

Mr. TiSDEL. There has been an increasing demand for additional

service both by the public and the libraries. The public is impatient

when delayed in receipt of publications ordered and each year there

is a material growth in deposit accounts which now number about

2,500 and besides there is a noticeable growth in continuation orders

whereby various publications will be sent as issued. The libraries are taking more interest in Government publications as a result,

of a wider public interest in their contents and, as our office makes

distribution to the designated depositories they naturally look to us

for assistance.

The American Library Association since 1919 has been advocating a library information service, and, although several bills have

been introduced and some favorably reported, none of them as yet

became a law. It is their desire to establish a separate unit in our

office to handle this service, which includes the preparation of bibliographies, a weekly list of selected publications to go out to the

libraries, and to assist in educating the librarians to use and dis- seminate the knowledge that is in the publications. It wasi their

intention to have a bill introduced covering that field at this session,

but my latest information is that they have been persuaded by the

Joint Committee on Printing to accept our present facilities, and I understand they would be satisfied as a starter if our office would

issue weekly a selected list of publications. I mention these facts so that the committee might know something of the demands being made

on our office. Mr. Murphy. Your office, Mr. Tisdel, is the Government bookstore, is it not ? Mr. Tisdel. Yes, sir. Mr. Murphy. And from your office the free distribution of documents is made?

Mr. Tisdel. We perform the mailing operations only in the free

distribution by the department. The designation of those who

receive those copies comes from the departments.

Mr. Murphy. But it is handled through your office ? Mr. Tisdel. Yes, sir. PAY OF LABORERS

Mr. Murphy. I notice you have some additional language here, and

you have omitted some language. It seems that you have in your

activity two different sets or groups of employees, or employees

working under different pay plans, one coming under the classi- fication act and the other under the Kiess Act. Would you state

at this time why this happened and how?

Mr. Tisdel. At the present time all of our employees come under

the classification act, and the recommendation I have made here

is to exclude from the operations of the classification act a certain

class of our employees who work eight hours a day, so that their pay

may be fixed by the Public Printer under the Kiess Act. Mr. Murphy. Has this matter been passed upon by those who

have the authority to take care of it? Does the Budget Bureau look

after it?
Hearings on Appropriations 39

Mr. TiSDEL. No, sir. Our estimates are submitted through the

Budget Bureau but they do not review them, that being left to Congress.

The purpose of this change is to allow our laborers to be paid

the same rate of pay that is now paid to this class of employees in

other divisions of the Government Printing Office. Last year that

difference in pay was explained to the committee, and they evidently were in sympathy with the proposition, because they favorably rec- ommended in the bill a sufficient sum for our office to equalize

this pay discrepancy.

Unfortunately, after the money was granted, the Personnel Classification Board refused to reallocate our laborers so that they might

receive the 55 cents per hour rate. When we explained to them the

condition they agreed it was not one to make for efficiency, and, besides, one that naturally would result in a great deal of dissatisfaction. However, they claimed it was a matter that ought to be remedied by Congress. The situation now is, we received the money to make the advance but were unable to expend it, and can not until

this class of employees is taken from under the classification act. Mr. Murphy. In other words, the Personnel Classification Board

has passed adversely upon the present arrangement ? Mr. TiSDEL. They have refused to change their grade so as to allow

them to receive 55 cents per hour, the same as all other laborers in the

Government Printing Office. Mr. Murphy. They have passed on this law and denied you the

right to advance these employees to 55 cents per hour ? Mr. TisDEL. Yes, sir; they have denied it. They said it was a matter that would have to be adjusted by Congress, although I was

of the opinion their classification should be changed from the present

grading of clerical-mechanical 1 to clerical-mechanical 2, which

would permit the 55 cents per hour rate of pay. At the present

time, under clerical-mechanical 1, 50 cents per hour is the maximum

that can be paid.

Mr. Murphy. This is clearly a piece of legislation is it not?

Mr. TiSDEL. No; only a change in the wording of what was

originally written by your committee in an appropriation act. I

believe it was originally intended that the Kiess Act would be applied

to all employees in the Government Printing Office. This class of

employees is working eight hours per day and if they are doing the same kind of work as other employees in the Government Printing

Office they should receive the same rate of pay.

Mr. Murphy. Mr. Tisdel, you appreciate the fact that this is clearly a piece of legislation, and it has been the policy of this subcommittee, under the instructions of our chairman, not to touch anything in the way of legislation. It looks as though this might be a

piece of corrective legislation, and if the purpose of it were frankly

stated by the committee to the House, a point of order might not be

raised against it. However, that is a matter that the conmiittee will

have to take care of in executive session. The committee will decide

then what to do with reference to this matter. Mr. TiSDEL. Of course, you understand it is impossible to prevent

unrest and dissatisfaction when our laborers are paid 50 cents per

hour, while those with whom they are associated in other divisions in
40 Annual Report of the Public Printer

the Government Printing Office, doing the same class of work, and

who are rated just the same, so far as their civil-service status is concerned, are receiving 55 cents per hour.

Mr. Murphy. What change in the amount of money required for

this activity would be made if these employees were transferred from

the classification act to the Keiss Act ? Mr. TisDEL. The change involves $8,764.

Mr. Murphy. It would increase the estimate by $8,000 ? Mr. TiSDEL. No, sir; we have it. It has already been appropriated,

but it remains unexpended until the change can be made. You have

allowed the increase.

Mr. Murphy. This legislation suggested by you is intended only

as a matter of fairness to employees doing the same kind of work in

the same place, side by side with other employees who are working

under a different law.

Mr. TiSDEL. Yes, sir. Mr. Taylor. It has been approved by Congress by appropriating

money for that purpose.

Mr. TiSDEL. Yes, sir; your committee favorably recommended an

increase in the amount of money for this purpose, and it was passed.

increase in appropriation

ADDITIONAL EMPLOYEES

Mr. Murphy. For 1929 you are asking $465,000 as against $420,000

appropriated for 1928. Will you tell the committee the reason for

estimating this additional amount of money?

Mr. TiSDEL. The additional amount of money is requested to provide additional employees for the office. In our appropriation

for' the present fiscal year we received nothing for additional employees, whereas the work has decidedly increased. The cash orders

during last year were 43,034 more than in the previous year, and

for the first eight and one-half months of this year we have received

56,000 more cash orders than during the same period last year. Conservatively stated, it will run about 75,000 this year, or a total increase in two years of about 31% per cent in the sales orders.

You might ask the question, how we are getting along with such an

increase with our present force, and the answer would be that we

are not getting along. We are behind, especially with our sales orders.

RECEIPTS FROM SALES

Mr. Murphy. What were the receipts of your office last year?

Mr. TiSDEL. Last year the receipts from the sales of publications were more than $590,000.

Mr. Murphy. According to the bill they amounted to $594,840.25.

Mr. TiSDEL. Yes, sir; that is right.

Mr. Murphy. Or an increase of 54 per cent in four years, while

the number of employees increased 14 per cent during the same four

years, according to the bill. Mr. TiSDEL. There has been a greater rate of increase in the work

since July 1 than ever before in the history of the office.
Hearings on Appropriations 41

Mr. MuKPHT. How many books and pamphlets does this represent?

Mr. TisDEL. It represents the sale of over 10,000,000 publications.

Mr. MuKPHY. For last year?

Mr. TiSDEL. For the last fiscal year ; yes, sir. Mr. MuKPHY. At this point I would like to have you put in the

record the amount of money you have received m your office each

year and the number of publications sold and handled by your office. Mr. TiSDEL. That would include the free distribution for the

departments?

Mr. MuEPHY. Yes. Make a statement of that covering a period of

five years. I would also like for you to put in a statement showing

the number of employees you have had during each of those years. Mr. TiSDEL. I will supply that for the record.

Number

of employees Numberof cash

orders Receipts from sales Number

of publications sold

Total dis- tribution including

sales and

depart- mental

1922-23 234

239

256

267

338, 821

372, 987

375, 571

374, 915

417, 543

$382, 368. 18

440, 904. 93

487, 922. 63

544, 937. 51

594, 840. 25

6, 623, 069

7, 244, 741

7, 770, 782

9, 962, 571

10, 461, 157

56, 037, 433

57, 919, 339

59, 338, 927

59, 991, 408

60, 848, 063

1923-24. - 1924-25 - 1925-26.

1926-27 280 Note.—The increase in sales orders this year figured on the first months will amount to 75,000

orders, making a 31H per cent increase in two years. ADDITIONAL EMPLOYEES

Mr. Murphy. If the committee should decide not to give you the

$45,000 additional asked for in this bill would it ^materially affect the efficiency of your office ? Mr. TiSDEL. I am positive of it. Mr. Murphy. How many people are you asking for ? Mr. TiSDEL. We are figuring on about 30 additional people.

Mr. Murphy. You are asking for 30 more people?

Mr. TiSDEL. Yes, sir. Mr. Murphy. What rate of pay would these people receive? If

you divided the $45,000 increase among 30 people it would be about

$1,500.

Mr. TiSDEL. If I may I will insert in the record the schedule on which we base this estimate.

It has been apparent for some time that the organization of the

office needed to be expanded to more efficiently handle the work, and

a study of its operation was made for that purpose. The survey

has progressed far enough to realize that a separation should be

made in the work now supervised by the cashier, so as to confine

his duties to the receipt and disbursement of cash. This would mean the creating of a bookkeeping section to handle all book records,

ledger accounts, and the auditing and analysis of cash mail.

At the present time the clerks connected with the cashier and

bookkeeping section are used in the opening of the mail, to the detriment of their own work, and we are therefore asking an appropriation
42 Annual Report of the Public Printer

for a separate group of employees to handle exclusively the opening

of the mail.

It is also necessary to create a section to be charged with the re- sponsibility of ordering the sales stock, which involves the expenditure of approximately $400,000 annually. This work would require

the analyzing of ^the sales possibilities of all publications, and the

following up of stock when received for the purpose of increasing

the sales by obtaining all publicity possible from the issuing offices. Besides, it would be the duty of such a section to make a continuous

study of the stock for the purpose of eliminating obsolete and excess

copies.

Mr. Murphy. We would like to have that. (The statement referred to is as follows:)

1 chief bookkeeper $2, 200. 00

1 assistant bookkeeper 1, 860. 00

1 chief of purchase section 2, 200. 00

1 assistant chief of purcliase section L 860. 00

1 clerk in charge of opening mail 1, 500. 00

2 mail openers, at $1,140 2, 280. 00

3 reference clerks, at $1,680 5, 040. 00 2 checkers, at $1,500 3, 000. 00

2 stenographers, at $1,500 3,000.00

2 label writers, at $1,320 2, 640. 00

1 ledger clerk 1, 500. 00

1 refund clerk ^ 1,320.00

1 stencil cutter 1, 200. 00 2 revisers of subscriptions, at $1,500 3, 000. 00

2 stockkeepers, at $1,377.20 (55 cents per hour) 2,754.40

2 assemblers of cash orders, at $1,502.40 3, 004. 80

5 wrappers, at $1,377.20 6, 886. 00 Total 45, 245. 20 Mr. Taylor, "y^ould these employees be selected from the civil- service register, or how would you obtain them ? Mr. TisDEL. All of them would be civil-service employees. There

might be some employees promoted in the office, but others would come in under the civil-service regulations to take their places.

Mr. Murphy. If you received this additional amount of money,

and employed these 30 people, would it enable you to get out the

documents in less time than now?

Mr. TiSDEL. Yes, sir. Mr. Murphy. Very materially less? Mr. TiSDEL. Yes, sir; unless we shall be handicapped by a still further increase in the business, or more than is anticipated at the

present time. Of course, that is an entirely unknown factor, and we have no emergency fund with which to meet those conditions

as they arise. Mr. Murphy. The figures you give here are given with the ex- pectation that the activities of the office will grow somewhat, and

this will absorb a certain percentage of the growth, as well as take

care of the drag?

Mr. TiSDEL. It will take care of a reasonable growth. This year we have had an exceptional increase, which I do not anticipate

will continue.

Mr. Taylor. What is the reason for that ?
Hearings on Appropriations 43

Mr. TiSDEL. Probably it is because of more publicity, although

there is no paid publicity. More of the trade journals and newspapers are paying attention to Government publications than before.

There is not a day there does not come to my desk one or more copies

of trade journals that will be marked, and those journals will devote

3 or 4 inches of space to the review of publications, at the same time

indicating the price at which they are sold by our office. Mr. Taylor. At the present time you say you are somewhat behind in sending out pamphlets and documents that you have for free

distribution. If we were to give you this additional amount of

money, would you be enabled to overcome that difficulty, and you

would get these pamphlets and documents in the mail within a reasonable time?

Mr. TisDEL. That is my belief. Mr. Taylor. There is some complaint now among Members of

Congress at the delay, especially, in sending out free publications^

such as farmers' bulletins, etc. Mr. TiSDEL. Yes, sir. I read in the record what Mr. Cochran

said on the floor of the House. He suggested that Congress should

give the Agricultural Department more money to enable them to employ additional people so that they could prepare their orders more promptly. That is very true, and the Agricultural Department is probably behind in its work anywhere from six to seven days.

However, that would only be a partial remedy. It would be useless

to provide the necessary facilities to eliminate delay in the publication division of the Department of Agriculture without a corre- sponding increase in the Government Printing Office. In a letter I addressed to Mr. Cochran I explained it takes a great deal longer

to prepare 20,000 documents for mailing than it does to write an

order for 20,000 and make a record of it in a book.

Mr. Sandlin. I notice that in sending out farmers' bulletins, where

there are only two or three ordered, they are placed in envelopes,

without being tied up in packages. In many instances, where they

have to go a considerable distance, they are torn to pieces. It seems

to me that the quality of envelopes used in sending them out should

be better. Mr. Tisdel. We have had some trouble on account of the grade of

envelopes used, but we are using an envelope now that is giving

better service. Mr. Sandlin. When was that change made?

Mr. Tisdel. Within the last six months.

Mr. Sandlin. I noticed that condition last year. Mr. Murphy. How long does it take your office to send out pamphlets or agricultural bulletins after you receive the flanks from the

Agricultural Department?

Mr. Tisdel. Under ordinary conditions, they are sent out within

24 hours. At the present time, or on last Saturday night, we were up to within 24 hours, but if the Agricultural Department should

accumulate a good many orders, and send down to-day a large con- signment, we might fall back two or three days. We work day and

night on that particular end of the work to keep it up to date as nearly as possible.
44 Annual Report of the Public Printer

Mr. Taylor. Is it necessary to have the yearbook go out as late as it does?

Mr. TisDEL. That is a question I would prefer the Public Printer

would answer. Mr. Carter. The law now requires that the annual report of the

Secretary of Agriculture shall be included in the yearbook, and, of

course, that delays the publication until the Secretary of Agriculture

has submitted his annual report in December of each year. Mr. Taylor. It generally does not come out until about July ? Mr. Carter. In June or July. That is entirely up to the ^lepartment in getting the copy to us. They have been very slow in furnishing the copy.

Mr. Taylor. How long does it take you to get the yearbook out

after they furnish the copy ? Mr. Carter. We print in editions of 100,000 copies each, and we

get 100,000 copies out in 35 or 40 days.

Mr. Taylor. Most of the delay is with the Department of Agriculture ? Mr. Carter. The department does not submit copy for the yearbook, as a rule, until after the 1st of February. Copy was received

recently for the yearbook for 1927. The Agricultural Yearbook is always published in the year following the year it is dated, thus the

1927 yearbook comes out in 1928.

cost or DAILY INDEX ON CONGRESSIONAL RECORD

Mr. Taylor. How much would it cost to have a little index on the

first page of the Congressional Kecord showing, for example, what

was done, just as it appears in some of the newspapers? Many of the

daily papers show on the front page what is contained in that issue

of the paper; and if there could be a little index on the front page

of the Congressional Record conveying like information it would

relieve people of the necessity of hunting through the whole Record,

like looking for a needle in a haystack to find what they are interested in?

Mr. Carter. The expense would not be great because the Record

costs only about $50 per page; but the getting up of such an index

would be an almost impossible task in the way the Record has to be

printed. Members, as you know, have the privilege of holding out copy until midnight, and we must go to press between midnight and

3 o'clock in the morning. If the Record should contain 200 pages,

it would be almost impossible to index it and get out in time. I would not want the job of indexer, because if we omitted some in- significant item for a particular Member of Congress, a head might come off. Mr. Taylor. I have spoken about that many times, and the public

generally, I think, feel that there should be something of that kind.

The newspapers of the country would find it of great use to them.

They do not have time to read through the entire Record to find

what they want, and they frequently throw it in the wastebasket.

Most of the newspapers in Colorado tell me to stop sending it to them, because they say that life is too short to go through it to find

what they want. If there were such an index as I have indicated,
Hearings on Appropriations 45

they could glance through it and refer to what thej^ care to see. It would be a wonderful help to them. How many copies of the Record

are published every year?

Mr. Caeter. Thirty-five thousand copies.

Mr. Taylor. Every day?

Mr. Carter. Yes, sir; and there are 6,000 bound sets printed at the end of the session. Mr. Tateor. You could not estimate the cost of such an index

as I have indicated, and you say it is entirely impractical ? Mr. Carter. I do not say it is entirely impractical, but it would

be very difficult. I think the Joint Committee on Printing has considered that several times. They have full authority to do that now

if they can be convinced that it is feasible. increase for catalogues and indexes

Mr. Murphy. Mr. Tisdel, you are asking for $Y,000 additional this

year for catalogues and indexes: Will you explain to the committee

why that is necessary?

Mr. Tisdel. The $7,000 additional is based entirely on the actual

cost of the publications we are required by law to issue. I will insert

a table showing the cost of the monthly catalogues for 12 months,

the document index, and the document catalogue. Now, the total

cost of those publications will be more than the appropriation we

are asking for, but the document catalogue covers a period of two

years, and we will be able to use $12,500 of the appropriation for one

year along with $12,500 of the appropriation for next year, and in

that way cover the total cost. We can make our requisition in one

year, but the job will not be completed until the following year, and

in that way we make available two appropriations to defray the

expense.

Monthly catalogue

July • $422. 29 August . 412. 21 September 425. 78 October 280. 93 November 418. 35 December 527. 85 January 668. 95 February 872. 15 March 640. 44

• April 488.70 May 472. 88 June 470. 00 Annual index 2, 232. 71 Document index 3, 447. 77 Document catalogue . 25, 285. 24

Total 37,066.05

Mr. Murphy. Does your office make any profit on the sale of

pamphlets and documents sold to the public ? Mr. Tisdel. We are not supposed to make any profit, but we turn

into the Treasury as miscellaneous receipts about $200,000 every year. Mr. Carter. They make 10 per cent. Mr. Murphy. What was the total amount of business done through

your office last year?
46 Annual Report of the Publie Printer

Mr. TiSDEL. Do you mean the total amount of sales?

Mr. Carter. The sales amounted to about $594,000.

Mr. Murphy. How much material did you order printed?

Mr. TisDEL. Our printing bills for sales publications amounted

last year to $425,975.77.

Mr. Murphy. Will you put a statement in the record showing the

full operations of your office? Mr. TiSDEL. Yes, sir ; such a statement has already been requested,

which will be inserted. We pay for our publications as soon as we

receive them, but we may be selling those books four or five years

from now. Mr. Murphy. Do you keep an inventory of your stock ? Mr. TisDEL. It is absolutely inventoried. We can tell down to a book how many we have in stock any time of day of the approximately 30,000,000 that we have on hand.

Mr. Murphy. Would you be able to tell us at this time the number

of books and pamphlets you have in your department and the value

of the same ? Mr. TiSDEL. No, sir; I can give you the number of publications,

but I could not begin to give you the value.

Mr. Murphy. You can give the number of documents in stock?

Mr. TiSDEL. Yes, sir; belonging both to the departments and to our office. Publications in stock as of June 30, 1927

Departmental stock. Sales stock

Total. 32, 606, 426 Mr. Murphy. Mr. Carter, have you anything further that you

would like to bring to the attention of the committee?

Mr. (yARTER. We have nothing further, Mr. Chairman.
DIVISION OF ACCOUNTS

STATISTICAL TABLES

66983—28 4 47

STATISTICAL TABLES

Compiled by Superintendent of Accounts and Budget Officer

Table 1.Resources and liahilities under appropriations for the fiscal year ended June SO, 1927

RESOURCES

Appropriation for salaries, office of Public Printer $156,453.00 Appropriation for working capital $2, 400, 000. 00 Pajrments from all sources for printing and binding 9, 696, 720. 67 Refunds and receipts from various sources „ 1, 918. 02 Transferred from 1924 appropriation, for estate of deceased employee (deficiency act, July 3, 1926) 800.00

Bills receivable July 1, 1927, for printing and binding fur- nished 762,624.82

12, 862, 063. 51 Appropriation for salaries, office of Superintendent of Documents 382, 050. 00 Appropriation for general expenses, office of Superintendent of Documents... 188, 400. 00 Total resources available for fiscal year 1927 $13, 588, 966. 51 LIABILITIES

Salaries, office of Public Printer: Disbursed to June 30 $ 141, 168. 12 Outstanding obligations, July 1, 1927 6, 088. 22 Total disbursed and outstanding obligations $147, 256. 34 Working capital and repayments for printing and binding: Disbursed to June 30 10, 501, 867. 81 Outstanding obligations, July 1, 1927 1, 423, 207. 46 Total disbursed and outstanding obligations. 11, 925, 075. 27

Salaries, office of Superintendent of Documents:

Disbursed to June 30 358, 308. 19 Outstanding obligations, July 1, 1927... 16, 275. 53 Total disbursed and outstanding obligations 374, 583. 72 General expenses, office of Superintendent of Documents:

Disbursed to June 30 107, 076. 37 Outstanding obligations, July 1, 1927 71, 323. 63 Total disbursed and outstanding obligations 178, 400. 00 Total disbursed to June 30. 11, 108, 420. 49 Total outstanding obligations, July 1, 1927 1, 516, 894. 84 Total disbursed and outstanding obligations 12, 625, 315. 33 Unobligated balance (subject to 10 per cent over or under on outstanding orders) 963, 651. 18

13, 588, 966. 51 49
50 Annual Report of the Public Printer

Table 2.

Summary of financial transactions in fiscal year ended June 30, 1927,

covering appropriations for fiscal years 1925, 1926y and 1927

APPROPRIATION FOR 1925

Resources

i

1 Disburse- ments

i

Unexpended

balance July 1, 1927

Salaries, office of Public Printer: Unexpended balance July 1, 1926— $13, 848.11

i $13, 848.11

1 UDlic printing and bincling: Unexpended balance Julj^ 1, 1926

1

1 129, 632. 61

1 4.00 Disbursed for material and supplies $8, 424. 06

izy, 000. Di 5, 4z4. Oo 121,212. 55

Salaries, office of Superintendent of Documents: Unex- pended balance July 1, 1926 10, 777. 22 10, 777. 22 General expenses, office of Superintendent of Documents: Unexpended balance July 1, 1926 17, 416. 71 Disbursed 17, 415. 67 Total 17, 416. 71 17, 415. 67 1.04 Grand total appropriation, 1925 Unobligated balance of 1925 appropriations on June 30, 1927

171, 678. 65 25, 839. 73 145, 838. 92

145, 838. 92 APPROPRIATION FOR 1926

Salaries, office of Public Printer: $21,281.00 Disbursed $5, 991. 72 Total 21, 281. 00 5, 991. 72 $15, 289. 28 Printing presses, Government Printing Office: Unexpended balance July 1, 1926 122, 350. 00 Disbursed... 115, 618. 77 Total 122, 350. 00 115, 618. 77 6, 731. 23 Public printing and binding: Unexpended balance July 1, 1926 1. 283, 956. 62 For extra pay to night messengers (deficiency act, July

3, 1926) 3, 200. 00 Credits to appropriation by payments from all sources

for printing and binding and other receipts from miscellaneous sources. 560, 081. 28 Transferred to miscellaneous receipts 7, 891. 18 Disbursed for labor 229, 096. 70 Disbursed for paper Disbursed for lithographing and engraving

785, 196. 39

66, 131. 61 Disbursed for material and supplies 294, 751. 70 Total 1, 847, 237. 90 1, 383, 067. 58 464, 170. 32

Salaries, office of Superintendent of Documents: Unexpended balance July 1, 1926 25, 543. 59 Disbursed 14, 701. 92 Total 25, 543. 59 14, 701. 92 10, 841. 67 General expenses, office of Superintendent of Documents: Unexpended balance July 1, 1926. 67, 408. 02

1

i Disbursed. 67,407.06 Total 67, 408. 02 67,407.06 .96 Grand total appropriation... 2, 083, 824. 51 1, 586, 787. 05 497, 037. 46 Deduct for outstanding obligations- .-. .. .. 15, 508. 00 Unoblieated balanre of 1 926 annrnnrifitions on Jnnp 8(1. 1 (527 481,529. 46
statistical Tables 51

Table 2.Summary of financial transactions in fiscal year ended June 30, 1927,

covering appropriations for fiscal years 1925, 1926, and 1927—Continued

APPROPRIATION FOR 1927

Resources

Disburse- ments Unexpended

balance July 1, 1927

Salaries, ofBce of Public Printer: Legislative act of May 3, 1926 $156, 453. 00 Disbursed.. $141, 168. 12 Total 156, 453. 00 141, 168. 12 $15, 284. 88 Public printing and binding:

Legislative act of May 3. 1926 2, 400, 000. 00 For reimbursement of estate of deceased employee, by

transfer from 1924 appropriation (deficiency act, July

3, 1926) 800. 00

9, 698, 638. 69

Credits to appropriation by payments from all sources

for printing and binding and other receipts from

miscellaneous sources _ Disbursed for labor . 7, 458, 137. 07

2, 195. 999. 03

59, 647. 59

790, 084. 12 Disbursed for paper

Total 12, 099, 438. 69 10, 501, 867. 81 1,597, 570. 88

Salaries, oflBce of Superintendent of Documents:

Legislative act of Mav 3, 192C 382, 050. 00 Disbursed 358, 308. 19 Total 382, 050. 00 358, 308. 19 23, 741. 81 General expenses, office of Superintendent of Documents:

Legislative act of May 3, 1926 188, 400. 00

107, 076. 37 Total.. 188, 400. 00 107,076.37 81,323.63 Grand total appropriation, 1927. 12, 826, 341. 39

762, 624. 82 11.108.420.49 1 1.717.921.20

Bills receivable . 762, 624. 82 Deduct for outstanding obligations

10, Ooo, yoo. 01 11, 108,420. 49 2, 480, 546. 02

1, 516, 894. 84 Unobligated balance of 1927 appropriations on June 30, 1927. Total unobligated balances (subject to change by 10 per

cent over or under on outstanding obligations):

1925

963, 651. 18

145, 838. 92

481, 529. 46

963, 651. 18 1926

1927Total 1, 591, 019. 56 RECAPITULATION—ALL APPROPRIATIONS

Total paid for labor during fiscal year i $7, 685, 233. 77 Total paid for material and supplies 1, 208, 878. 65 Total paid for lithographing and engraving 125, 779. 20 Total paid for paper 2, 981, 195. 42 Total paid for printing and binding 12, 001, 087. 04 Total paid for salaries, office of Public Printer. 2 147, 159. 84 Total paid for salaries, office of Superintendent of Documents 3 373, olO. 11 Total paid for general expenses, office of Superintendent of Documents.. 191, 899. 10 Total 12,713,156.09 Transferred to miscellaneous receipts 7, 891. 18 Grand total 12,721,047.27

1 Includes amount paid to retirement fund $245, 960. 07

2 Includes amount paid to retirement fund _ 4, 400. 16

• Includes amount paid to retirement fund . 11, 608. 75 Total paid to retirement fund.. 261. 968. 98
52 Annual Report of the Public Printer

Table 3.

Moneys received during fiscal year 1927, the source, and Treasury

deposit

1925 Deposited to the credit of appropriation for public printing and binding: Refunds. . $4.00 Total $4.00

1926 Deposited to the credit of appropriation for public printing and binding: For printing and binding for departments and bureaus $555, 532. 18 For miscellaneous printing and binding 4, 461. 97 Refunds.. 61.13 Amount collected as damage to truck. _ 17. 00 Auditor's disallowance 9. 00 Total 560,081.28

1927 Deposited to the credit of appropriation for public printing and binding: For printing and binding for departments and bureaus $9, 607, 517. 14 For miscellaneous printing and binding 89, 203. 53 Refunds 148. 14 Amount collected as damage to automobiles and trucks 100. 25 Amount collected for crating, drayage, etc 300. 55 Refund on advances for subsistence 1, 363. 25 Auditor's disallowance 5. 83 Total 9,698,638.69 Deposited to the credit of miscellaneous receipts: Sale of waste paper $49, 960. 11 Sale of waste metal 5, 794. 11 Sale of waste wood 1, 244. 04

Sale of leather scraps 5.02 Sale of condemned material 1, 051. 23 Sale of waste gold 1, 662. 20

Sale of documents 131,857.74 Total „ 191,574.45 Grand total 10, 450, 298. 42 Table 4.

Production of principal items entering into prmting and binding in

fiscal years 1925, 1926, and 1927

Item Main oflQce and Congressional Library branch:

Total charges for printing and binding dollars, Jackets written number.

Estimates made do...

Bills computed do... Total ems set do... Time work in composing sections hours. Electrotypes and stereotypes square inches. Postal cards printed.. number. Money-order books shipped do... Forms sent to press do... Actual impressions do... Chargeable impressions do... Sheets folded by machine do... Signatures gathered by machine do... Tips made by machine do... Copies wire stitched do... Copies paper covered do... Books and pamphlets trimmed do... Books rounded and backed do... Books marbled and edged do... Stamping impressions do... Books cased in do... Indexes cut do... Sheets passed through ruling machine do... Signatures sewed do... Copies punched and drilled do... Sheets and lines perforated do... Tablets made do... Miscellaneous rebindings, etc do...

11, 532, 954. 66

52, 731

45, 830

66, 000

2,128,394, 700

274, 609

10, 447, 231

1, 595, 376, 890

1, 102, 603

145, 005

471, 384, 300

2, 129, 585, 606

235, 489, 426

139, 940, 616

7, 217, 929

46, 426, 889

4, 583, 788

56, 726, 117

1, 192, 311

150, 359

2, 742, 491

1, 257, 079

140, 311

21, 096, 848

83, 821, 611

102, 005, 765

6, 582, 474

2, 850, 376

93, 295

11, 799, 074.87

54, 074

45, 309

67, 991

2, 168, 890, 100

257, 288

10, 948, 121

1, 596, 862, 880

1, 100, 827

160, 345

465, 549, 492

2, 066, 808, 214

221, 987, 941

130, 286, 798

9, 535, 440

47, 442, 436

5, 367, 364

56, 392, 663

1, 121, 799

184, 385

2, 573, 041

1, 272, 999

129, 872

21, 657, 309

71,977, 215

100, 661, 589

7, 569, 351

2, 903, 111

92, 538

1927

I 13, 492, 314. 49

54, 168

47, 452

72, 546

2, 060, 248, 100

242, 836

11, 356. 708

1, 950, 608, 300

1, 002, 364

145, 831

484, 678, 679

1, 960, 834, 989

226,008, 387

165, 233, 669

8, 250, 587

45, 115, 690

8, 574, 396

53, 913, 955

1, 160, 085

163, 477

2, 736, 425

1, 436, 213

140, 359

22, 589, 915

76, 210, 279

95, 356, 979

6, 861, 125

2, 889, 402

102, 519

J Includes $800,000 estimated labor and material on uncompleted jobs.
statistical Tables 53

Table 5.

Charges for ivork and to whom delivered during the fiscal year ended June SO, 1927

Congress $2,232,969.00 Work ordered by Members of Congress: Miscellaneous charges - 938. 24 Documents, reports, bills, etc. _. 22, 991. 08 Speeches -. 66,272.22 Private orders for electrotypes - _. 883. 46 Superintendent of Documents. 613,924. 58 State-- 186,710.65 Treasury — 927,861.17 War - - 645,415.52 Navy - 585,019.21

Interior 236, 488. 50 Geological Survey 93,615.17 Smithsonian Institution - -. 76, 305. 67

Justice - 268,418.17 Post Office - - - 2,431,370.62 Agriculture - - - 997,337.83 Commerce - 803,091.46 Patent Office 1, 046, 296. 86 Labor 239,483.09

Libi-ary of Congress.. 320,996.47 White House-- 3,603.55 Pan American Union 39, 630. 29 Supreme Court:

District of Columbia .„ 4,850.90 United States - 4, 643. 69 Court of Claims — 32, 127. 53 Interstate Com merce Commission 219, 981. 06

Civil Service Commission 60, 869. 47 Geographic Board- 428.71 General Accounting Office 40, 603. 63 Alien Property Custodian 3,129.72 Bureau of the Budget 25, 575. 84 District of Columbia 14,819.47 Employees' Compensation Commission 2,963.19 Federal Reserve Board 51,716. 03 Federal Board for Vocational Education. _ 8, 403. 87 Federal Trade Commission. 20,999. 56 National Advisory Committee for Aeronautics. 14, 978. 49 Panama Canal 44,316.83 Railroad Administration 1,813.24 Board of Mediation 1,185.06 Shipping Board 90, 689. 30

Tariff Commission 17,804.88 Veterans' Bureau 157,600.05 War Finance Corporation 1, 473. 71

Office of Public Buildings and Public Parks 4, 544. 81 Arlington Memorial Bridge Commission 99.81 American Battle Monuments Commission. 765. 79 Bureau of Efficiency 210. 60 Commission of Fine Arts.. 1,729,96 Federal Power Commission 3, 350. 24 National Forest Reservation Commission 311.00 National Home for Disabled Volunteer Soldiers 377. 44

Special counsel, oU leases, etc 40. 37 Board Of Tax Appeals 18,237. 69 National Capital Park and Planning Commission. 493.49 National Sesquicentennial Exhibition 6. 70 Inland Waterways Commission 453. 86 Two Hundredth Anniversary of George Washington's Birthday. 263. 91 Federal Radio Commission 672.44 Panama Railroad Co. 259. 64 Total 12,692,314.49
54 Annual Report of the Public Printer

Table 6.

Cosi of production

Division, office, or section

Salaries, wages, leave, and hohday

Material and

supplies for operation Maintenance and upkeep

Work by

other sec- tions, includ- ing proof and

apprentice pay

Job toot; QQQ KQ ?>D, yoo. uy <tQA fiQft 7R tpoO, OoD. (

D

$77, 721. 40

01 OQQ Alk ZiO, Zoo. ^0 i, ODy. I'i ftf^Q fi7 0% DOo. 0 1 277, 232. 82

AflA 077 07 DUO, zi 1. y/ /, 000. DU ^f\7 ftflQ At IKIi, DUO. 11 665, 502. 04

o/y, Ui ( . Do ID, oO(. 11 iOU, Oil. OZ 1, 038, 106. 43 Hand OQO QzlO QA zyz, y'lZ. yi Z, Loo. ZO AH KRA (\A 10, 001. 0* 66, 006. 38

yio, Ob/. 00 941. 65 j-oy, 0Z4. 10 15, 894. 03

ZoD, ^oD. 10 01 K nt; ZIO. 00 00, ZUo. 01 57, 209. 99

OIQ Q17 Q'i zxo, 81/. yo 10, ioU. 10 ly, KJIL. Uo 28, 193. 12 Photo-engraving _ . ... 63, 886. 28 9, 777. 77 12, 366. 86 14, 613. 38 Press ... 1, 006, 927. 69 80, 782. 09 224, 579. 16 101,356. 30 Pamphlet binding . _ ... ... 541, 304. 06 7, 555. 58 100, 445. 18 181, 367. 87

009, 4oo. 00 8, 461. 72 AO oon QQ Dz, yyu. yo 8, 161. 92 Forwarding and finishing. ... 552, 838. 09 8, 567. 40 102, 909. 26 20, 911. 40 Money order...

. ... 43, 040. 64 1, 978. 85 8, 525. 35 795. 82

Postal card-. 112, 344. 65 38, 814. 40 60, 069. 49 946. 47 Library printing branch 55, 755. 55 5, 672. 09 5, 158. 04 7, 915. 15 Library binding branch 125, 875. 11 221. 43 5, 601. 62 363. 98 Cutting and packing... _ 83, 947. 46 4, 457. 59 16, 164. 84 403. 97 Metal 12, 811. 31 21, 220. 63 9, 978. 15 536. 20 Details chargeable 23, 004. 01 1. 38 Stores 139, 000. 14 1, 897. 90 30, 334. 94 107. 11 Ink 12, 021. 04 23, 509. 79 7, 232. 01 Paper stock—Press division

Illustrations Outside purchases.. Work for stock returned to stores 60, 714. 21 Light and power for city post office 30, 228. 87

21, 736. 67 Miscellaneous service for Superintendent of Documents—other than printing and binding. Total

6, 696. 71 313. 70

6, 704, 878. 05 270, 389. 29 1, 303, 633. 04 2, 624, 373. 69

1 Grand total expense of all apprentices.
Statmtical Tables

for the fiscal year 1927

55

Expense of delivery of product and

storage of plates

Administrative and

clerical expense

Paper and

other stock

issued, illus- trations ordered, outside purchases vouchered

Reconciliation between

issues and

orders, and same items computed

Total

Credits by

work for other

sections Total cost of production

$5,422. 69

4, 695. 22

13, 184. 47

19, 110. 90

6, 532. 69

13, 477. 90

2, 504. 89

5, 104. 23

1, 663. 20

23, 128. 12

7, 918. 61

5, 073. 65

8, 137. 53

655. 85

2, 288. 44

1, 312. 55

1, 795. 67

1, 277. 43

546. 15

2, 039. 06

564. 48

1, 935. 96

$18,880.33

17,665.00 I 49,485.52 I 72,353.61 I 24,241.26 j 75,642.38 1 19, 212. 56

19, 160. 39

757.

195. 682.

263.

186.

118. 007.

666. 377.

441.

604.

180. 522.

$400. 42

9, 852. 28

56, 622. 74

145, 292. 48

70, 631. 42

644, 217. 06

27, 529. 94

9, 063. 58

475, 478. 34 +$24, 730. 78

91. 20

1, 913, 499. 49

109, 793. 96

9, 142. 33

+37, 126. 04 +37, 081. 46 +630. 29 -60, 714. 21

$371, 168. 86

551, 055. 10

1, 449, 612. 01

2, 175, 820. 61

440, 420. 54

1, 164, 047. 77

1 353, 787. 78

335, 446. 88

108, 474. 45

1, 515, 931. 18

893, 639. 32

515, 481.31

894, 919. 69

128, 814. 53

869, 799. 39

107, 350. 49

151, 587. 75

612, 838. 10

47, 534. 43

24, 701. 21

183, 559. 33

45, 850. 30

1,950, 625. 53

146, 875. 42

9, 772. 62

$30, 133. 27

75, 543. 00

123, 689. 87

283, 036. 79

288, 745. 20

1, 164, 047. 77

231, 366. 81

92, 243. 34

1, 106. 36

188,871. 85

952. 54

2, 484. 41

16, 999. 45

440. 03

$341, 035. 59

475, 512. 10

1, 325, 922. 14

1, 892, 783. 82

161, 675. 34

2, 157. 20

9, 611. 39

1. 35

47, 534. 43

122, 420. 97

243, 203. 54 107,368.09

1,327,059. 33

892, 686. 78

512, 996. 90 877,920.24

128, 374. 60

869, 799. 39

105, 193. 29

141,976. 36

612, 836. 75

27. 58

45, 860. 30

24, 701. 21

183, 631. 75

1, 960, 625. 53

146, 875. 42

9, 772. 62

30, 228. 87

30, 583. 04

30, 228. 87

30, 583. 04

128,; 567, 813. 15 3, 471, 615. 24 +38, 854. 36 15, 109, 926. 51 2, 604, 842. 94 12, 505, 083. 67
56 Annual Report of the Public Printed'

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P. 1 P. § if

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a;^ 1=13 © §

05 .2-2.2 3 Q ® w

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Statistical Tables 57

Table S.—Inventory of quantity and cost of paper and envelopes, material and

supplies, and machinery and equipment on hand June 30, 1927

Description Sheets Pounds Cost

Paper and envelopes: Printing 13, 375, 000 $107, 615. 68

70, 504. 30

18, 752. 69 17,307.30

1, 212. 26

43, 73 L 68

12, 078. 00

7, 519. 72

33, 620. 50

1, 762. 20

153, 894. 34

63, 043. 84

19, 204. 40

33, 292. 51

9, 606. 95

4, 818. 80

13, 407. 92

5,356.00

6, 172. 00

21, 631. 00

4, 110. 34

5, 489. 24

63, 502. 44

10, 335. 28

2, 284. 00

16, 108. 20

24, 778. 70

Do 1, 383, 000 Mimeo^aph 4, 214, 000 United States money-order writing 157,400 Safety writing 119,000 Writing 8, 586, 000 Do —- 196, 000 Map 373.000 Manifold 6, 422, 000 Do 9,000 Bond. 10, 716. 000

3, 050, 000 461,000

1, 646, 000

1, 059, 000

Ledeer

Index - Cover - Manila Do 113,000 Kraft.. : 1, 537, 000 Do 99, 000 Manila tag board. 326,000 Do 244, 000 Cardboard 141, 000

Bristol board ... . 548,000 Do 1, 180, 000 Miscellaneous.- . .. 1, 592, 000 Do 18, 200 Binder's board 526, 000 Envelopes

Total, paper and envelopes 771, 140. 29 Other material and supplies: Miscellaneous supplies 210, 748. 97

24, 876. 89

7, 382. 96

10, 434. 27

3, 326. 84

Book cloth Leather Ink (made in Government Printing Oflace) Total, material and supplies 256, 769. 93 Total, material and supplies, paper and envelopes 1, 027, 910. 22 Machinery and equipment:

Machinery 3, 751, 057.36 Equipment 363, 793. 08 Total, machinery and equipment 4, 114, 850. 44 Grand total 5, 142. 760. 66
58 Annual Report of the Public Printer

Table 9.

Publications, including annual reports and documents, printed on

requisition during the fiscal year ended June 30, 1927, for Government depart- ments and independent establishments {Congress not included)

Copies

State 383,799 Treasury 5, 099, 908 War.- 11,820,025 Navy _ 1,983,537 Interior 2,710,106

Justice - 53,644 Post Office . . 1, 752,978 Agriculture T 32,086,091 Commerce 3,900,185 Labor 1,806,354 Smithsonian 184, 287 Library of Congress 152, 098 White House 60,762 Pan American Union 231, 903 Supreme Court:

District of Columbia 1,016 United States 15,355 Court of Claims 5,076 Bureau of Efficiency 1,128 Federal Power Commission ^ 7, 107 Interstate Commerce Commission 1, 832, 980 Ci vil Service Commission 232, 167 Geographic Board 9, 950 General Accounting Office 12, 803 Alien Property Custodian 663 District of Columbia 22, 594 Employees' Compensation Commission 17,258 Veterans' Bureau 962, 959 Federal Board for Vocational Education 65, 152 Federal Reserve Board 524, 416 Federal Trade Commission. 54, 917 National Advisory Committee for Aeronautics 31, 620 Panama Canal 2, 638 Railroad Administration 1, 513 Shipping Board . 487,151

Tariff Commission... 20, 320 Board of Mediation 2,531 National Forest Reservation Commission 1, 500 War Finance Corporation 1, 200 Commission of Fine Arts 526 Bureau of the Budget 60, 545 Public Buildings and Public Parks. 733 Miscellaneous 27,229 Total 66,628,724 Table 10.

Receipts from miscellaneous sales during the fiscal year ended June

30, 1927

Condemned material, machinery, etc $1,051.23 Waste wood 1, 244. 04 Waste metal 5,794.11 Waste paper 49,960.11 Leather scraps. 5. 02 Waste gold 1,662.20 Total - 59,716.71
/

DIVISION OF TESTS AND TECHNICAL CONTROL

(FORMERLY TESTEnG SECTION)

REPORT OF THE TECHNICAL DIRECTOR

[Reprint of Report, pages 1 to 35, inclusive]

59

REPORT OF THE TECHNICAL DIRECTOR

To the Public Printer:

I have the honor to submit the following report concerning the

work ©f the division of tests and technical control of the Government Printing Office for the fiscal year ended June 30, 1927:

The total number of samples analyzed during the fiscal year 1927 was 7,336, compared with 6,844 for the preceding year, an increase

of 492 samples, or 7 per cent. This includes all samples tested in

connection with the technical inspection of delivered material, the

testing of samples offered by bidders, the analysis of technical control

samples of type metals, inks, glues, etc., and samples tested in connection with investigational problems.

INCREASE IN NUMBER OF SAMPLES TESTED

The rapid growth of the work and the importance of the division

of tests and technical control are best shown by the accompanying

tabulation, listing the number of samples of various materials analyzed

in each fiscal year since its establishment in February, 1922.

Tabulation of samples tested by the division of tests and technical control

1922 (5 months) 1922-23 1923-24 1924-25 1925-26 1926-27

Paper and paper products, including bid, delivery, and investigational samples 1, 258 3,731 4,045 3,942 4,397 4,768

Textiles, including bookbinding cloths, and cordage.

-

103 543 466 516 589 692 Bookbinding leathers. 16 26 60 35 50 142 Metals, including type metals, babbitt metals, tin, antimony, and lead 16 44 15 165 1,066 899 Glue -. 8 (») 44 43 37 Ink-making materials 15 194 234 266 231 323 Lubricating oils and greases 27 65 62 82 54 39 Gasoline 9 52 63 72 97 123 Chemicals (0 (0 136 134 115 Miscellaneous, including soaps, waxes, turpentine, etc. 61 176 164 76 183 198 Total 1,503 4,831 5,109 5,354 6,844 7,336

1 Included under "Miscellaneous." The foregoing tabulation shows that the samples of paper tested

have increased considerably each year since the division of tests and technical control was established and also shows the largest

increase of the various materials tested over last year. This has been

due to the fact that the amount of paper purchased by the Government Printing Office has increased annually and also on account of

the extended investigations of paper for the purpose of improving

the present specifications and methods of testing. 61
62 Annual Report of the Public Printer

Due to the supplying of blank paper to various Government departments and establishments, the quantity of paper purchased by the

Government Printing Office has increased considerably the last three

years. Over 4,800,000 more pounds of paper were purchased in the

fiscal ye.ar 1927 than in the previous year. The number of samples of paper tested includes all materials made

of paper, such as envelopes, file jackets, fiber shipping containers,

binder's board, and paper for special uses. A large number of samples

have been tested in connection with the cooperative work being

conducted on the standardization of paper.

Special attention has been given the past year to bookbinding

leathers, bookbinding cloths, and ink-making materials. Most of

this work has been of an investigational nature for the purpose of determining the essential requirements for these materials and to develop standard specifications for the qualities used by the Government Printing Office. As a result of the careful technical mspection maintained over all materials delivered to the office, there has been a marked improvement in the quality of the various supplies received. In many cases

rejections are due to unfamiliarity with the requirements of the

Government specifications. The technical inspection of materials

has been gradually broadened since the establishment of the laboratory and now includes all materials purchased or produced by the

Government Printing Office. The value and importance of the routine technical testing of all supplies can not be judged merely by the number of deliveries

rejected but should be based on the total value represented by the

materials purchased. During the past year supplies to the value of $4,000,000 were purchased. For paper alone a total of $2,900,000 was expended.

REJECTIONS OF PAPER AND OTHER MATERIALS

As a result of the technical inspection and testing of all deliveries

of materials purchased, 301 deliveries were rejected, of which 206 were paper, 31 envelopes, and 64 miscellaneous materials.

The following is a tabulation of the rejections of paper, some deliveries being rejected for more than one deficiency:

Not within weight tolerance 39 General appearance 19 Unsatisfactory finish 1 Unsatisfactory opacit}^ 2 Unsatisfactory in color 6 Deficient in stock 21

Deficient in folding endurance 68

Deficient in bursting strength 80

Excessive ash 2 Deficient in absorption 1 Deficient in thickness 6 There is also submitted a detailed tabulation of the inspection

and testing of all deliveries of paper received during the year Jul}^ 1, 1926, through June 30, 1927, giving the total number of pounds

delivered, the total number of pounds rejected, the number of deliveries of each kind of paper recei^^ed, and the number of deliveries

rejected. In certain instances portions of deliveries were rejected

and the remainder accepted, due to variation in the quality of paper

in a single delivery. In such cases the rejection is listed as a delivery.

The table follows:
Report of the Teclin icai Vi rector 63

Amount of paper received and results of technical inspection

Number Number

Kind of paper Amount Amount Amount of de- pf de- delivered accepted rejected liveries liveries tested rejected Pounds Pounds Pounds

Xewsprint 1, 4S0, 340 1, 397, 968 82, 372 39 3 "Machine-finish book . ..... 10, 372, 514 9, 607, 221 765, 293 416 32 Supercalendered and halftone book 3, 947, 005 3, 922, 382 24, 623 175 2 Coated book 720, 9S1 716, 723 4, 258 33 2 Mimeograph paper

UlllUCV-I OLclLCo ULlL/llC^ LlCl OalCtj al±\± tllXLi-Lig.

1, 915, 197 1, 766, 323 148, 874 85 13

612, 859 612, 859 28 0 Map paper 224, 614 146, 093 78, 521 34 16 Chart paper 218, 910 218, 910 32 0 Manifold 573, 100 564, 190 8. 810 66 4 Sulphite writing . 2, 099, 432 1, 756, 016 343; 416 114 15 Bond- 4, 582, 184 4, 032, 440 549, 744 369 54 ledger 703, 352 663, 136 40, 216 116 g Index .... 216, 501 209, 313 7, 188 37 4 Tissue 11, 236 11, 236 10 0 Cover paper 384,297 362, 136 18, 161 52 3 Wrapping paper 1, 533, 975 1, 259, 980 273, 995 100 20 Tag board ... 583, 030 576, 448 6, 582 43 2 Manila cardboard 37, 675 31, 257 6, 418 6 1 Railroad board 91, 841 87, 877 3, 964 17 1 Wood bristol 627 994 123 600 34 9 United States postal-card bristol 11, 75l! 348 11, 613, 593 137i 755 318 13 Miscellaneous—paraffin., gummed, stereotype molding, oiled manila tympan, plate wiping, back lining 36, 845 33, 212 3, 633 23 3

139, 317 130, 839 8, 478 15 699,060 699, 060 27

8 0

21, 592 21, 592 Binder's board 861, 620 861, 620 23 0 Total... 44, 447, 739 41, 811,948 2, 635, 791 2, 220 206 Frequently paper complying with, the specifications in quality is rejected for noncompliance ^vith the weight tolerance of 5 per cent above or below the ordered weight. There were 29 such rejections

included in those listed for the year. On a total purchase for the

year of 44,447,739 pounds of paper, the total quantity rejected

amoimted to 2,635,791 pounds, or approximately 5.5 per cent. Considering the total amount of paper purchased and the fact that

a considerable quantity of paper rejected was for noncompHance

with weight only, the total quantity rejected for noncompliance

with the standard specifications is considered low.

During the year 568 deHveries of envelopes were received, covering a total of 41,112,962 envelopes of paper qualities varying from

wood manila to the highest grades of bonds and ledgers. Thirty- one deliveries, totahng 5,264,719 envelopes, were rejected during

the year for noncomphance with specifications.

The follo^-ing tabulation gives the total of each kind of envelopes

purchased during the year:

Kind Number of envelopes Number

of deliveries Wood manila enveloi)es . - 1, 459, 721

33, 535, 885

306, 364

76, 525

4, 883, 840

89, 900

127, 400

624, 072 4,275

21 439

174

4310

1020

4

Kraft envelopes. . _ Rope manila enveloptes . Sulphite manila envelopes - _ . . White writing envelopes .. Fine white writing enveloptes . .. Ledger envelopes ... . . . Fine white bond envelopes

Cloth-lined envelopes Total 41, 112. 982

5, 264, 719

568

31 Total rejected 66983—28 5
64 Annual Report of the Public Printer

COOPERATION WITH CONTRACTORS

In order that reliable information may be obtained by contractors and prospective bidders on materials used by the Government Printing

Office, especially paper, the division of tests and technical control

has offered to test preliminary samples before shipment or any other

samples which may be submitted to determine whether such material

would comply with Government specifications. Copies of the test results are furnished the manufacturers submitting these samples for

their own information and guidance. This policy of cooperation

with Government contractors and bidders has proved to be of

mutual advantage and has brought about a better understanding

between the Government and the manufacturers furnishing paper

and other materials to the Government Printing Office. During the

present year approximately 550 samples of materials were tested in

this connection. Of this number 445 were samples of paper.

In addition to the technical inspection of all materials purchased

and the technical control work in connection with the materials manufactured by the Government Printing Office, the division of tests and

technical control is engaged in investigational problems that are of

the utmost importance to the office. The results of these investigations have been reported during past years and have shown the

importance and value of this work, not only to the Government

Printing Office but to the printing industry in general.

PAPER INVESTIGATIONS

INVESTIGATION OF BOND AND LEDGER PAPERS

The final report on the cooperative work conducted with the

United Typothetse of America and the paper manufacturers for

jointly working out a technical standardization of bond and ledger

papers has recently been published, including the proposed specifications for these papers. This report combines the two reports already

published and includes a necessary revision of the tentative specifications for bond and ledger papers issued in 1924. Considerable interest

in this work has been shown by the paper manufacturers, and especially by the large consumers of paper. Copies of this report are available to anyone interested in this work and will be furnished

upon request.

A number of mills have sent in additional samples of their papers

to be tested in connection with this investigation, and other mills

which had not previously cooperated have furnished complete sets of their mill brands of bond and ledger papers. Forty-three paper

mills have cooperated in this investigation by submitting samples

of their regular mill brands of bond and ledger papers. For both the

first and second investigations, a total of 230 samples of bond and

112 samples of ledger papers were tested. These results represent

the most comprehensive survey of technical tests ever issued for these

kinds of papers.

The present Government specifications for bond and ledger papers were adopted as a result of this extended investigation. These

specifications, which have been used b}^ the Government for over

three years, have proved very satisfactory in use and are a decided

improvement over the specifications formerly used for purchasing

these grades of paper.
Report of the Technical Director 65

The folding endurance test has proved to be the only available

physical test for furnishing reliable information as to the quality

of the various grades of bond and ledger papers. The burstingstrength test has been found inadequate for measuring the quality

of these papers. The specifications for bond and ledger papers are

in harmony with good commercial practice, and no difficulty is experienced in securing competitive bids on the Government's

requirements for these papers.

INVESTIGATION OF KRAFT PAPER

The results of the extended investigation on kraft paper which

has been conducted are now being tabulated for publication, and every

effort will be made to issue them at an early date. The Government

specifications for kraft paper, which were adopted in 1925 as a result

of the investigation, have proved to be a decided improvement over

the specifications formerly used for the purchase of this grade of paper.

The folding-endurance test has proved more satisfactory than the

bursting-strength test, which was the only physical test formerly used

for measuring the quality of kraft paper. The ''pop" test could be

met by the addition of sizing or by other means which added nothing

to the serviceability of the paper.

ASSISTANCE TO PAPER SPECIFICATIONS COMMITTEE

During the last five years many changes have been made in the

paper specifications of the Government Printing Office to materially improve and make them in harmony with good commercial

practice. Every change made in the paper specifications has been

proposed as a result of investigations conducted by the division of

tests and technical control or the experiences of this division in testing

paper delivered to the office. Comparison of the quality of paper

previously purchased with that received during the last few years

clearly shows the strides which have been made in the development

of suitable specifications for the purchase of paper of proper quality

for the various Government requirements. Further investigations

are under way relative to paper testing and the specifications for other

grades of paper.

INVESTIGATION OF PRINTING PAPERS

An extensive investigation on book papers is now being carried

out in cooperation with the paper manufacturers. This investigation will include machine-finish, supercalendered, and coated book

papers of all qualities. Fifty-eight paper manufacturers have been

requested to furnish samples of their regular mill brands of papers for

this investigation. These samples will be subjected to all available

tests for measuring the various qualities and the most satisfactory tests for indicating quality will be determined. The results of this investigation will be used in a revision of Government specifications for these

grades of paper and will be of value in developing a commercial

standardization based on technical tests. Special attention will be

given to a study of the relationship of printing inks to papers and the

development of methods for measuring these qualities by laboratory

tests.
66 Annual Report of the Public Printer

INVESTIGATION OF NEWSPRINT PAPER

A similar investigation relative to newsprint paper is also under

way in cooperation with the mechanical department of the American

Newpaper Publishers' Association. The newsprint investigation will prove of value to both the manufacturers and consumers of this paper.

STUDY OF ATMOSPHERIC CONDITIONS

The investigations relative to atmospheric conditions and moisture

content of various kinds of paper have been continued. The installation of humidifying equipment in the Government Printing Office

has been extended. The maintenance of uniform atmospheric conditions and the elimination of low relative humidity have proved a decided advantage in securing maximum production and in eliminating pressroom difficulties attributable to atmospheric conditions.

The data being collected relative to the moisture content of various

kinds of paper are proving to be of great importance. The addition

of a moisture requirement in the specifications for postal-card paper

has proved the importance of maintaining the moisture content of certain papers within specified limits. The results of this work will prove of importance in connection with the use of paper on presentday printing equipment and in overcoming static electricity, curl,

wavy edges, wrinkles in roll stock, and other difficulties experienced

with paper, due primarily to moisture content. INDOOR ATMOSPHERIC CONDITIONS IN EUROPE

The subject of atmospheric conditions was studied by the technical

director when in Europe in 1926, and it was noted that there was

considerable difference between atmospheric conditions in Europe

and those which exist in the more populous portions of the United

States. These conditions were studied in England, Germany, and

France. No difficulty appeared to be experienced in those countries

with low relative humidity or static electricity, the source of most

troubles in printing plants in the United States. This was found to be due to the higher relative humidity conditions existing indoors

and outdoors in Europe throughout the year. A study of the moisture content of paper in Europe and the atmospheric conditions under which paper is handled indicate that the

difficulties experienced there were due chiefly to high relative humidity

conditions. The adoption of a relative humidity of 65 per cent and a temperature of 65° F. for standard paper-testing conditions in European countries is fully justified in view of the normal indoor

conditions existing in these countries. However, this does not

justify the adoption of a similar standard in this country. The

standard atmospheric testing condition for paper of 70° to 75° F. temperature and 50 per cent relative humidity adopted by the

United States Government has proved quite satisfactory and fur- nishes test results which are in harmony with the actual conditions

under which paper is handled in the United States. The following tabulation gives the indoor temperature and relative

humidity in London for each month for the years 1925 and 1926.

This datum was kindly furnished by Mr. Edw. A. Dawe, examiner

of the receiving and examining branch of His Majesty's stationery

office, Stamford Street, London, S. E. 1. The results were recorded in

the testing laboratory of the British stationery office, where all paper
Report of the Technical Director 67

and other materials purchased are inspected and tested. These

results were obtained from readings taken three times a day, 10 a. m.,

1 p. m., and 4 p. m. It will be noted that the indoor temperatures

are lower than usually exist indoors in this country, due to custom

and climatic conditions.

Temperature and relative humidity in London, 1925 and 1926

[His Majesty's stationery oflBce, Cornwall House, Stamford Street, London, SE. 1. Receiving and ex- amining branch. Edw. A. Dawe, examiner]

ISIonth

January.. February. March

April May

June

July.

Average tempera- ture

O p

62.8

63.8

65.6

64.7 66.8

69.0

71.2 August 61.4 September 61. 5 October 61. 5 November 59.2 December... 60.9 Average for year. 64.0

Relative humidity

Average

Per ct. 62.9

59.9

51.5 48.0

58.9

54.1 60.7

71.0

70.1 69.2

58.7

53.0

Maxi- mum

Per ct. 75.0

68.0

59.0 53.0

72.0

73.0

81.0

70.0 62.0

59.

Mini- mum

Per ct. 51.0

51.0

47.5 40.0

51.0

33.0

40.0

56.0

50.0

53.5

50.0 46.0

Month

1926 January

February March

April May

June

July August

September... October November

December

Average for year

tempera- ture

o61.4

63.4

62.9

64.9 59.4

67.6 70.0

70.1 65.3

59.9

59.9

57.9

Relative humidity

Average Maxi- mum

Per ct. 56.3 60.5

53.5

56.9

68.5

66.5

67.4

65.0

71.9

61.1 61.1

58.6

Per ct. 68.0

77.0

60.0 63.0

77.0

78.0

78.0

76.5 87.0

72.5 70.0

69.0

62.3

Mini- mum

Per ct. 51.0

52.5

46 0 49.0

55.0

48.0

46.5

50.0 55.0

52.0

55.0

52.0

For comparative purposes the tabulations published in last year's

report giving the indoor and outdoor temperature and relative

humidity in Washington for each month for the same period of time

are also given.

Indoor Outdoor Month Temper- Relative humidity Temper- Relative

ature, ature, humidity,

average Average Maximum Minimum average average

1925 °F. Per cent Per cent Per cent °F. Per cent January... 80.9 23 35 16 32.3 67.3 February .... _ 81.3 29.2 41 18 42.7 64 March 79.6 30.6 46 20 46.7 61.3

April.. 78.3 34.4 49 20 54.3 56.6 May 80.6 34.6 51 23 62.7 57 June -. 84.3 34.9 48 21 79 59 July.. 82.7 39.3 55 25 77.7 64.7 August .. 81.6 55.6 66 41 71 68 September 80.7 60.5 79 45 72.7 68.7 October . 79.3 43.9 63 26 53 68.3 November . 80.1 22.3 31 12 44.7 63 December 78.9 28.2 37 18 37 61 Average for year 80.7 36.4 56.1 63.2

1926 January 78.5 31.4 41 21 33.7 64.7 February 78.8 21.8 39 15 36.3 66.7 March 80.4 23 33 12 39.7 54 April . . . 81.2 31.4 42 20 52 48.7 May 79.5 39.8 49 25 65.3 50.4 June 80.6 46.8 68 29 70.4 61 July 84.3 55.1 72 45 77.7 66.7 August 79.1 57.9 75 36 76 75.3 September ... 78.1 65.8 79 56 68.7 77 October.. 78.7 55.7 75 33 57.7 73.3 November .. 80 39.2 54 25 44.7 66.7 December 79.4 21.2 32 13 33.7 69.7 Average for year 79.8 40.7 54.7 64.5
68 Annual Report of the Public Printer

INVESTIGATIONS RELATIVE TO DURABILITY OF PAPER

Considerable investigational work is being conducted by the

division of tests and technical control relative to the durability and

permanency of paper. One of the most important considerations in

the purchase of paper for the use of the Government is the development of specifications which v/ill insure the highest quality of durable

paper for the records of the Government. It is of prime importance

that in the production of many Government documents the most

durable paper obtainable shall be used. The Government Printing

Office offers probably the best field available in this country for the

study of the permanency of paper. In addition to producing important record books and Government documents, the office employs

many experienced bookbinders who devote their entire time to the

preservation of valuable Government records. This offers an exceptional opportunity for the examination of the paper used in old

records and for a study of the causes of deterioration of paper. The

data obtained will prove of value in the development of specifications

for durable paper.

The specifications for 100 per cent rag ledger paper were modified

last year in order to obtain paper of the most durable quality. The

specifications now require the use of new white or cream rags only

and prohibit the presence of any sizing materials or chemicals which

might limit the permanency of the paper. These requirements, to- gether with the folding-endurance tests previously added to the

specifications, should insure the highest quality of this grade of

paper.

In cooperation with the New York Times and the paper manufacturers, investigational work is being conducted relative to the

production of an all-rag newsprint paper for the printing of permanent

library editions of newspapers and periodicals. The work which has

been done on this problem has proved to be of considerable interest

and value also to the research work of the Government Printing

Office. An investigation has also been made relative to methods for measuring the absorption of blotting paper. Three different methods

proposed for this purpose were used, including the 1 -cubic-centimeter

standard-ink method, the Klemm or mounting test, and the Dahlen

absorption test. As a result of this investigation it was found that

the results with the 1 -cubic-centimeter standard-ink method, which

method has been in use in the Government specifications during the

last four years, gave satisfactory results in harmony with actual

service. Further work is now under way in order that a complete

report may be issued.

RELATIONSHIP OF PAPER TO PRINTING INKS

Considerable investigational work has been conducted by the

chemists of the laboratory on the relationship of paper to printing

inks. This investigation has dealt with methods for measuring the

opacity of paper and the resistance of paper to printing inks. Owing

to the increased use of lightweight printing papers to-day, considerable interest has developed in this work. The resistance of

paper to printing ink is just as important as the opacity of the paper

in studying difficulties experienced with the showing through of
Report of the Teclinical Director 69

the printing. The work so far conducted has dealt especially with

mimeograph, newsprint, and book papers.

The prehminary investigation has shown that tests for measuring

the degree of sizing of paper will not furnish information as to the

relationship of paper to oil-base inks, such as mimeograph and

printing inks. Two methods have been developed and are now

being used for testing printing papers. This work is being con- ducted in cooperation with the paper-testing committee of the

Technical Association of the Pulp and Paper Industry and will be

of considerable interest to the paper and piinting industries.

At the request of the District of Columbia government, specifications have been prepared for the purchase of paper for the use of the

Washington schools. All bid and dehvery samples submitted under

these specifications have also been tested for compliance with the same. At the request of the superintendent of the reading room of the

Library of Congress, investigational work is being conducted relative

to the development of specifications for jacket envelopes for filing

pamphlets on the shelves of the library. As a result of this work,

specifications will be recommended for the most serviceable and

economical quahty of paper for use in these jackets.

Assistance has also been rendered the American Red Cross relative

to tests on samples of coated and supercalendered book papers for use in their pubhcations. Considerable difficulty had been experienced ^vith the breaking at the fold of the paper in these pubhcations.

Over 30 samples of paper were tested for the Bed Cross and it was

found that the folding-endurance test furnished the most rehable

information as to serviceability of papers for its use. TECHNICAL CONTROL OF TYPE-METAL ALLOYS

O^^fing to the importance of the technical control work on typemetal aUoys in the Government Printing Office, a complete summary

of the work since it was started is given in this report. This work

was first imdertaken during the year 1925 and has proved to be one

of the most important investigations undertaken by the division of

tests and technical control.

The maintenance of standard quahties of linotype, monotype,

stereotype, and electrotype-backing metals is essential in order to obtain maximum production of good printing. The value of the

technical control of type-metal alloys is reflected not only in the

priQtirig division, where the use of tmiform standard-quality metal

results in the maximum production of good composition with a minimum of defective type, but also in the plate-making division, where

stereotype and electrotype plates are produced from the type, and

in the press division, where longer runs of better-quahty printing will

restilt. The maintenance of a uniform standard of stereotype metal

also results in plates which give a maximum production of good

printiag.

As a result of the technical control work, every pound of hnotype,

monotype, or stereotype metal used by the Government Printing

Office to-day is of a standard composition for each kind of metal.

Between 20,000 and 30,000 potmds of type metal in lots of approximately 10,000 pounds each are analyzed and corrected daily to the
70 Annual Report of the Public Printer

standard formulae for linotype, monotype, and stereotype metals,

respectively.

The following tabulation gives the amount of each kind of metal

corrected to standard formulae between July 1, 1926, and June 30,

1927, together with the amounts of new metals or alloys used in

maldng such correction.

An accurate record of the dross from each of the various type

metals was not kept for the entire year. The total amount of dross

from hnotype, monotype, and stereotype metals approximately 90,000

pounds for the year, which accounts for a type-metal loss of approximately 81,000 pounds. This should be taken into consideration in

noting the increase in the various metals due to technical control.

LINOTYPE METAL

Pounds Old metal melted 4, 842, 425

Lead used in correction 129, 300

Lead-antimony alloy ^ used in correction 30, 340

Total corrected metal 5, 002, 065

Increase due to correction 159, 640

Percentage increase due to correction 3. 3 MONOTYPE METAL

Old metal melted 1, 615, 750

Lead-antimony alloy ^ used in correction 20, 842

Tin used in correction 2, 165 Tin-antimony alloy 2 used in correction 9, 570

Total corrected metal 1, 648, 327

Increase due to correction. 32, 577 Percentage increase due to correction 2. 0 STEREOTYPE METAL

Old metal melted 426, 100 Lead-antimony alloy ^ used in correction 3, 390

Lead used in correction 400

Tin used in correction 510

Tin-antimony alloy 2 used in correction 200

Total corrected metal 430, 600

Increase due to correction 4, 500

Percentage increase due to correction 1. 0 Due to the condition of the various type metals in the Government

Printing Office previous to technical control, the quantity of the

respective metals has been constantly increased by the addition of

the necessary alloys to bring the old metal up to the standard quality

adopted for each metal. In order that the full significance of this

work may be shown, there is tabulated herewith each month's results

of the technical control of type metal since this work was started in

1925 for linotype, monotype, and stereotype metals. In each of

these tabulations are given the amount of old metal melted, the

amount of new alloys required to bring the metal up to the respective

standard formula, the total amount of corrected metal, and the percentage increase due to the addition of necessary correction alloys.

1 Lead-antimony alloy consists of approximately 55 per cent lead and 45 per cent antimony.

» Tin-antimony alloy consists of 33 per cent tin and 67 per cent antimony.
Report of flie Technical Director 71

LINOTYPE METAL

[Standard formula: Tin, 4 to 4.5 per cent; antimony, 11.5 per cent; lead, 84.5 to S4 per cent]

Period uiQ meiai melted

Correction metals used

Lead- antimony Lead

alloy 1

Total cor- rected metal

Increase due to correction

1925 Pounds Founds Pounds Poun ds Per cent October 10, 550 765 3, 1S5 14, 500 37.4 November S2, 650 6, 935 2/, 170 116 755 41. 2 December ,

.

172, 650 9, 400 34, oOO 216, 550 25. 4 1926 January 468, 575 14, 045 64, 160 546, 780 16. 7 Februarv 396, 950 8,465 34, 160 439, 575 10. 7 March-— o42, 950 5, 975 26, 075 575 000 0. y April 472, 900 5,530 29, 470 507; 900 7. 4 May 374, 100 5,325 20,225 399, 650 6.8

484, 450 5, 365 21, 510 511, 305 5.5 July 435, 550 5 365 20 155 461, 520 5.8 August. 488, 000 5 110 18 600 511, 710 4. 8

472, 30O 3' 580 15, 370 491. 250 4. 0 October 333, 600 1, 340 6,310 341, 250 2. 3 November 347, 500 265 10,415 358, 170 3.

1

December 228,250 540 2, 210 231, 000 1.2 1927 January 391, 100 810 4, 340 396, 250 L3

February 379, 600 1, 190 5, 210 386, 000 1.7 Do 32, 700 960 3,640 37, 300 » 14.0 March . 122,200 3, 460 12,240 137, 900 i 12.8 Do 298, 750 1, 250 4,150 304, 150 1.8 April 440,500 2,575 7,275 450, 300 2.0 May 470, 725 2, 900 14, 070 468, 845 3.6 June 401, 650 995 5, 315 407, 960 1.6 Total 7. 945, 640 8, 429, 010

1 Lead-antimony alloy consists of approximately 55 per cent lead and 45 per cent antimony.

1 These special lots of linotype metal were corrected to 4 per cent tin to determine the relative merits of

4 and 4.5 per cent metal for use on the hnotype machine. MONOTYPE METAL

[Standard formula: Tin, 7 per cent; antimony, 16.5 per cent; lead, 76.5 per cent]

Period Oldmetal melted

Correction metal used Lead- antimonv

alloy! Tin

Tin-anti- mony

aUoy 3

Total

corrected metal

Increase due to correction

April, May, Jime.

July August

September

October November

December

1925

January

February.. March

April May

Jtme

July August

September.

October November.

December..

1920

January... Do...

February. March

Do...

April May

Jime

1927

Pounds

171, 820 93,300

99. 180

162, 520

164, 940

150, 645

135, 960

118, 900

137, 100 200,100

157, 500

143, 750

164,835

162, 800

152, 550 163,250

102, 550

131, 300

66, 450

88, 500

97, 950

141, 750

146, 250

9, 500

12s, 500 121,250

103, 150

Pounds

11,270 5,035

4, 555 5,740

3, 570

5, 715

Pounds

310 Pounds

4,630

5, 720 5,370

5, 325

3, 730

3, 455

4, 870

3, 170

3, 070 2,817 I 3,295

1,315 1,880 i

425

5,375 141,E35

Pounds

183.400 98,410

103, 735

168, 260

167,810

156, 360

20844

370

337 465 i

123, 728

142, 864

205, 840

163, 162

147, 945 330 168,620 40

535 260

370

415 200

270

1,690 2,380

2, 115 1,350

545 1.490

167, 710

156, 255

166, 580

105, 737

135, 010

67, 965

90, 650

99, 640

144, 130

148, 365

9, 925

129, 850

121, 870

104, 640 Total. 3,545,460 i - 3,661,766

Per cent

1 Lead-antimony alloy consists of approximately 55 per cent lead and 45 per cent antimony.

» Tin-antimony aUoy consists of 33 per cent tin and 67 pper cent antimony.
72 Annual Report of the Public Printer

STEREOTYPE METAL*

[Tentative standard formula, adopted October, 1925: Tin, 8 per cent; antimony, 15.5 per cent; lead, 76.5 per cent]

Period Old metal melted

Correction metals

Total

corrected metal

Increase due to correction Lead- antimony

alloy 1 Lead Tin

Tin- antimony

alloy 3

1925 June. Pounds

10, 100

10, 490

17, 560

26, 780

58, 770

Pounds

1,695

1, 135 1,774

2, 378

543

(«)

512 970

840

1,225 320

655 640

660

450 490

Pounds

750

1,445

1,840 2,835 2,724

(«) C)

664

500

760 2,245

680

Pounds Pounds Pounds

12, 545

13, 082

21, 174

31, 993

62, 040

Per cent 24.2

24.6 20.6

19.5

5.6

July 12 August

September « .-. October November .-. («)

261

(') December (') 1926

54, 530

49, 400

58, 650

71,050

58, 850

68, 300

60, 000

41, 000

30, 900

41, 050

20, 200

21, 100

51, 750

40, 850

60, 000

20, 200

19, 000

20, 050

55, 967

50, 870

60, 285

74, 560

59, 940

69, 000

60, 640

41, 880

31, 350

41, 540

20, 200

21, 400

52, 050

41, 290

60, 100

20, 300

19, 510

20, 340

2.6 3.0

2.8 4.9

1.8 LO

1.

1

2. 1 1:5 1.2

0

2. 0

.6

1.1.2

.4

2.7

1.4

February March 3540

9045

April May

July August 220 September... October November

December 300

300

350

100

100

1927 January 90 February March

April May.. 400 110 June 90 200 Total 910, 570 I 942, 053

1 Lead-antimony alloy consists of approximately 55 per cent lead and 45 per cent antimony.

3 Tin-antimony alloy consists of 33 per cent tin and 67 per cent antimony.

< Owing to the wide variation in the quality of the old stereotype plates in the Government Printing

OflSce, it has been necessary, in order to standardize this metal, to remelt the old plates in 10,000-pound

lots, correct each lot to the tentative standard formula adopted, and then pour the metal in 25-pound pigs

for use in the stereotype pot. It would have been impossible to correct this metal in the stereotype-casting pot as used.

« During the first four months the metal was corrected to the following tentative formula: Tin, 7 per cent; antimony, 16.5 per cent; and lead, 76.5 per cent.

6 No corrections. It will be noted that a considerable economy and reduction in

the amount of necessary correction alloys added have been effected

during the last year by the use of a correction alloy of 33 per cent

tin and 67 per cent antimony for standardizing monotype and stereo- type metals. The use of this alloy is especially efficient with monotype metal, which the work has shown requires a consistent correction

after each casting of approximately 0.3 to 0.4 per cent tin and 0.6 to 0.8 per cent antimony, due to dross losses on the casting machines

and in the remelting process.

It will also be noted from this tabulation that the quantity of

correction metal required, or the increase in amount of type metal

due to correction of the old metal, was much greater when the technical control of type metal was first begun than during the last year.

This is due to the fact that the condition of the metal has materially

improved under technical control and that most of the metal has

been through the standardization process at least once.
Report of the Technical Director 73

The correction of type metal has now reached the point where the

increase due to correction is practically offset by the normal losses

due to drossing. The technical control of the metals will therefore cause practically no further increase in the metal stock of the Government Printing Office, but will maintain the standard qualities and

quantities of the various type alloys.

INCEEASE IN TYPE METALS DUE TO STANDARDIZATION

The technical control work has added a needed supply of 631,159

pounds of type-metal alloys to the stock of the Government Printing

Office. It should always be kept in mind in noting the increases

due to correction, that there is a continual loss in type metals due

to drossing, amounting to between 1 and 3 per cent. The increase

in each kind of metal since technical control was started to June

30, 1927, is given below:

Pounds Linotype increase 483, 370

Monotype increase 116, 306

Stereotype increase 31, 483

Total 631, 159 BENEFITS OF TECHNICAL CONTROL OF TYPE ALLOYS

A saving of approximately $20,000 has been effected in producing

the increased quantity of type metals if compared with the market

values of alloys of the same compositions during the time this work

was done. In addition, a decided improvement has been effected

in the quality of all type metals, which has been reflected throughout

the work of the Government Printing Office. This has resulted in

another appreciable economy which is difficult to estimate in figures.

A complete standardization of the approximately 4,500,000 pounds

of linotype, monotype, and stereotype metal in the Government

Printing Office would have cost about $360,000, if handled by commercial concerns. The condition of most of the metal was such

that it would have required replacement with new alloys of standard

qualities adopted in exchange for all old metal, and this estimate is based on the cost of such a transaction. This does not include

the cost of handling and the inconvenience which would have resulted

from such an exchange. This is therefore a conservative estimate

of the actual savings effected as a result of this technical control of

type metals.

INVESTIGATIONS RELATIVE TO TYPE-METAL DROSS

• The composition of type-metal alloys changes after continued use

in casting, melting, and recasting, due to loss of certain metals by

oxidation or drossing and by contamination with other metals.

There is a continual loss in the amount of type metal due to drossing.

An investigation is now under way to determine the normal losses

by drossing of the respective type metals, the composition of various

type-metal drosses, and the best method to reduce dross losses to a minimum. It is hoped by this investigation to reduce materially

the amount of dross during the next year. The investigation should

be of interest to commercial printers, as there appears to be no

rehable data available on this subject at present.
74 Annual Report of the Public Printer

Type-metal dross is composed mainly of the oxides of tin, antimony, and lead, together with any impurities removed in the process

of drossing, and more or less dirt from sweepings around the machines

and metal pots. The amount and composition of the dross from

each kind of metal varies somewhat from day to day. About 80 to 85 per cent of the weight of dross can be recovered as metal by

reduction processes. The actual loss of type metal due to drossing

is probably about 90 per cent of the weight of the dross.

It is the present practice of the Government Printing Office to exchange all dross for correction alloys which are used in bringing

type metals up to the standard formulae. During the fiscal year

133,058 pounds of hnotype, monotype, and stereotype dross, which

includes a considerable amount accumulated from the previous year, was exchanged for 22,931 pounds of correction alloy consisting of

33 per cent tin and 67 per cent antiniony, and 10,000 pounds of

linotype metal of the composition of 4 per cent tin, 11.5 per cent

antimony, and 84.5 per cent lead. The following tabulation gives complete data for the latter portion

of the fiscal year 1927 relative to the amount of dross from each kind

of metal, the loss or gain in the amount of each type metal due to the

correction metal added, and the dross loss: Dross losses and correction increase data on type metal

Kind of metal Oldmetal melted

Increase due to correction metals added

Increase due to correction Weight

of dross

Dross cal- culated on old metal

Metal

lost by

drossing i

Per cent- age of metal

lost by

drossing

Per cent- age of gain or

loss

Pounds Pounds Per cent Pounds Per cent Pounds

Linotype 1, 991, 225 44, 930 2. 25 16, 473 0. 83 14, 826 0. 75 +1. 50 Monotype. 670, 400 7, 380 1.1 16, 503 2. 46 14, 853 2. 22 -1.12

Stereotype 139, 900 1, 470 1. 05 945 .68 851 .61 -f.44

1 Calculated from the amount of dross, allowing a 90 per cent metal value. Note.—Linotype and monotype metal data cover the last 5 months of fiscal year (February through

June). Stereotype-metal data cover only the last 4 months. Definite conclusions can not be drawn from this tabulation as to the normal loss or gain of these metals in the Government Printing

Office owing to the fact that even to-day metal will be received in

the metal room for remelting that has not previously been standardized by technical control and will therefore require the addition of

correction metals or alloys in excess . of the amount lost by drossing.

As previously noted in the tabulation on the correction of stereotype

metal, the data on this metal are given on the remelting of stereotype

plates in the metal room and pigging the corrected metal for use in

the stereotype pot. It does not include the loss by drossing in the

stereotype-casting room. The standard formulae which were tentatively adopted last year

for the respective metals have been adhered to throughout the year

with but a slight modification of the monotype formula. Standard

formulae have been adopted for both linotype and monotype metal.

Further investigations are being conducted relative to stereotype

metal before a standard formula for this metal will be adopted.
Report of the Technical Director 75

MONOTYPE METAL

During the past year further investigations were conducted on

different composition alloys for monotype metal. This work was

conducted primarily to determine the most satisfactory quality

metal to withstand the pressure required in wax molding. Further

work will be done in testing out various composition alloys on the

presses to determine their relative wearing resistance. Metal of the standard composition has given satisfactory results in presswork.

Analyses of test runs of monotype metal

Designation of metal Tin Anti- mony Copper Lead

(by dif- ference)

1—standard Per cent 7.0 Per cent 16.6 Per cent 0.25 Per cent

76. 25

2 8.7

6.8

18.8 1. 10 71.4

3 - 16.1 .30 76.8

4 9.3 18.1 .80 71.8

5a-. — - 8.4 19.3 .25 72. 05 6b 8.4 19.3 .25 72.05

6 7.9 18.0 .50 73. 60

All type was cast at 750° F., except 5b, which was cast at 8oi° F. These six monotype-metal alloys were used on the same casting

machine and the same two-column page of six-point type was set with each metal. A careful inspection was made as to the quality of the type cast with each alloy and the pages were then submitted to the plate-making division for severe molding tests. As a result of these tests it was found that no better results were obtained with any

of the new compositions than with metal of the composition of the

tentative standard of 7 per cent tin, 16.5 per cent antimony, and

76.5 per cent lead. Investigation indicates that in casting there is a consistent loss of

tin and antimony from the alloy. If the composition of the metal

added to the melting pot on the casting machine is 7 per cent tin, 16.5 per cent antimony, and 76.5 per cent lead, analysis of the type

cast will show a slight decrease in the percentage of tin and antimony.

Data indicate that approximately two parts of the antimony are

lost to one part of tin. This loss is due to the high melting point of an alloy of this composition, the temperature maintained on the

casting machine being approximately 750° F., and also to the high

antimony content of the alloy. In an alloy containing a high per- centage of antimony, above the eutectic point for antimony and lead

(13 per cent), a portion of the antimony is present as a mechanical

mixture and is not chemically alloyed. The unalloyed metal will tend to rise to the surface of the molten metal and be skimmed off with the dross. At 750° F. temperature there will also be an appreciable loss by oxidation of the metal exposed to the air on the surface

of the pot.

The standard composition adopted for monotype metal is 7 per

cent tin, 16.5 per cent antimony, approximately 0.25 to 0.4 per cent

copper, and the remainder lead. However, in order to insure that

the type cast will not be below this composition, correction is made

to 7.3 per cent tin and 16.8 per cent antimony. All monotype metal
76 Annual Report of the Public Printer

has been corrected to this standard since February 1, 1927. For

type cast for special use or for intricate type faces, where additional

hardness is desired, a composition of 9 per cent tin, 19 per cent antimony, 0.4 to 1 per cent copper, and the remainder lead is used.

The presence of a small quantity of copper in monotype metal does

not interfere with its use on the casting machine and adds to the

hardness and wearing quaUty of the type cast. LINOTYPE METAL

The high tin content of the linotype metal in the Government

Printing Office when technical control work was first started made it more economical to correct all linotype metal to 4.5 per cent tin rather than 4 per cent tin. Tests made at that time indicated that

4.5 per cent tin, 11.5 per cent antimony, and 84 per cent lead gave

very satisfactory results on the linotype machines.

In order to determine definitely whether any better results could

be obtained with metal of 4 per cent tin, 11.5 per cent antimony,

and 84.5 per cent lead, 175,000 pounds of linotype metal were cor- rected to this formula during the year. This metal was used con- tinuously on eight linotype machines for comparison with the results

obtained on the other machines using metal of the tentative standard

formula of 4.5 per cent tin, 11.5 per cent antimony, and 84 per cent

lead. Inspection of the type slugs cast and the action of the metal on the machine showed no apparent difference in the quality of type

slugs with either alloy. Therefore the Government Printing Office

has adopted as its standard formula for linotype metal, 4 to 4.5 per

cent tin, 11.5 per cent antimony, copper preferably below 0.05 per

cent and not over 0.08 per cent, and the remainder lead. METHODS OF TECHNICAL CONTROL OF TYPE ALLOYS * Important factors in the handling of type-metal alloys are the

methods employed to properly purify the metals, the temperature at which the necessary metals or alloys are added to bring the metal to the proper composition, and the proper alloying and agitation of the

corrected metal. Various composition fluxes have been used, and

both hand and mechanical agitation employed, to accomplish the

desired results. As a result of the investigations, the use of a block

of green oak wood, immersed in the molten metal and held near the

bottom of the pot, has been adopted for this purpose. This is a modification of the old-time methods of purifying type-metal alloys

in which pine knots, green bones, or raw potatoes were used, and has

proven very satisfactory and economical for agitating and purifying

the metal. It is believed to be superior to mechanical or hand

agitation. A block of green oak about 12 by 8 inches in size will create an active agitation of the 10,000 pounds of metal for two or

three hours. The use of any flux has been abandoned, unless analysis

shows the presence of an impurity which requires special attention.

As a result of the investigational work conducted on type-metal

alloys and the experience of over two years in handling more than

13,000,000 pounds of linotype, monotype, and stereotype alloys, the

following methods have been adopted for the remelting and correction

of these metals in order to secure the best-quality metals:

1. All old metal after being melted must be carefully drossed and

stirred in order to secure satisfactory samples for analysis. Samples
Report of the Technical Director 77

must be taken with a clean ladle by dipping down to the bottom of the

pot and pom'ing the metal in a small mold holding about one-half

pound. Information must also be furnished with each sample as to the total weight of molten metal in the pot.

2. The addition of correction metals or alloys to the molten type

metal must be made only when the metal is at a temperature between

750° and 800° F. A tin-antimony alloy consisting of 33 per cent tin

and 67 per cent antimony, and a lead-antimony alloy consisting of

60 per cent lead and 40 per cent antimony, grade A lead and grade A

tin, are now used for standardizing type metal. Up to the present

time all antimony added to type metal has been introduced after previously being alloyed with lead or tin.

3. For alloying, agitating, and purifying the metal, a block of

green oak wood, immersed in the metal and held near the bottom of

the pot by iron cages, is used. This is one of the most important operations in the handling of type-metal alloys. All metal must be agitated

at least one hour before being poured. The procedure is to allow the

oak block to remain in the pot until action ceases. In addition,

the metal must be thoroughly stuTed every hour during pouring.

4. Corrected alloys of linotype, monotype, and stereotype metal

must be poured only in water-cooled molds, and linotype and stereo- type pigs m_ust be skimmed immediately after being poured. Aircooled molds must not be used. Linotype and stereotype metals are poured at approximatelv 600° F. and monotype metal at between

700° and 750° F.

5. In order to remove small amounts of copper from linotype and

stereotype metals the metal is allowed partially to solidify overnight

after being corrected. Any copper or unalloyed antimony present

will tend to separate from the alloy and come to the top as the metal

chills. The metal is melted in the morning without agitation and the

temperature raised to approximately 550° F. It is then carefuUy

skimmed to remove the impurities which separated during the cooling

process. The metal is then thoroughly stirred before being poured.

This effects a gradual reduction of the copper content to approximately 0.07 per cent, which will not interfere with the use of the metal

on linotype machines or in stereotype work. Sulphur can also be

employed for this purpose and wiQ further reduce the copper content. The metal room is equipped with an indicating pyrometer by means

of which the temperature of any of the pots can be determined at a

glance, and also a recording pyrometer for use in recording the range

of temperature in any pot for any period of time.

The quality of the metal has been improved to a marked degree

since technical control has been in effect and no complaints relative

to the quality of any type metal have been received during the year. PROPOSED INVESTIGATIONS ON TYPE-METAL ALLOYS

The following investigations relative to type-metal alloys are now

under way or planned for the next year:

1. To determine normal loss of each kind of metal due to drossing

and to investigate methods to reduce dross losses to a minunum.

2. To determine the normal change in composition of the different

type-metal alloys due to continued use and how often it is necessary

to tone these alloys in order to maintain the quality and to ascertain

the best composition alloys for different kinds of printing. This work
78 Annual Report of the Public Printer

will be conducted in cooperation with the mechanical section of the

American Newspaper Publishers Association.

3. To investigate, in cooperation with the General Electric Co.,

the use of electric heat for melting and correcting type-metal alloys.

4. To investigate the following points in connection with stereotype

metals:

(a) The relative merits of virgin metal alloys and old alloys free from injurious impurities corrected to the proper composition.

(b) The maximum allowable copper content of stereotype metal in

order to secure the best results.

(c) The effect of the rate of cooling on stereotype plates, with

particular reference to clearness of face and durability on the press.

5. To investigate electrotype backing-up metal in order to ascertain

the best composition alloy for this purpose.

The Government Printing Office has approximately 1,800,000

pounds of electrotype-backing metal, the composition of which has

heretofore been adjusted without chemical analysis or control. It varies considerably in different lots. A tentative formula of 4 per

cent tin, 3 per cent antimony, less than 0.1 per cent copper, and

the remainder lead has been adopted for this alloy.

WORK OF THE INK SECTION

The work of the ink section was materially increased during the

year, due chiefly to supplying various inks to departments and independent establishments of the Government in accordance with

authorization by the Sixty-ninth Congress. The total production

for the year was 147,589 pounds. This shows an increase of 25 per

cent over last year, when 118,061 pounds of ink were produced. The

following tabulation gives the ink production for each of the last

five years, showing the percentage increase for each year over the

previous year:

Fiscal year Amount

Increase over previ- ous year

1923.. Pounds

101, 695

112, 471

113, 356

118, 061

147, 589

Per cent7.2

10.5

1.0 4.5 25.0

1924

1925..

1926. 1927In addition, the ink section produced during the last year 1,000

gallons, or 4,000 quarts, of blue-black writing inks of two qualities,

and 900 quarts, or 1,800 pints, of red writing ink.

The largest amount of ink supplied to various Government establishments was for multigraph and mimeograph purposes. A total of 17,742 pounds of black mimeograph ink for open and closed type

machines, 1,298 pounds of black multigraph ink of two qualities, and

150 pounds of red, blue, and green multigraph ink was produced

during the year. An indelible black printing ink was developed at the request of the

Post Office Department for the precanceling of postage stamps. A

total of 1,200 pounds of this ink was supplied during the year. The Weather Bureau, Department of Agriculture, was furnished

with 840 pounds of various kinds of printing ink, some of which was

produced specially for their use.
Report of the Technical Director 79

A total of 1,183 pounds of stamp-pad and nunibering-niacliine inks,

in 4 and 8 ounce cans, of three colors, red, blue, and black, was also manufactured and furnished to various Government agencies.

The production of the various inks for the use of the different Government agencies required considerable research work in order to furnish the most suitable material and to meet the varied requkements. AU of the formul^B used in the production of these mks were

developed by the chemists of the division of tests and technical control. As a result of this work the Government is now securing ink of superior quality to that formerly obtained and at a substantial saving,

as will be noted in this report under the heading ^'Supplies furnished

other departments."

REDrCTIOX IX NUMBER OF IXKS PRODUCED

Last year 75 different kinds of ink were manufactured by the ink

section to meet the requu-ements of the Government Printing Office. A wide variety of different kinds and shades of ink is used to meet

the varied requirements of printing for the Government. During the

last year every effort has been exerted to reduce the number of different inks manufactured to a minimum and stiQ meet all requirements. This year a total of 55 different mks was manufactured,

includiQg 15 kinds which were not manufactured in sufficient quantities to be listed last year; 3 kinds of writing inks; 3 colors each of stamp-pad and numbering-ma chine inks; black canceling printing

ink for the Post Office Department; snuff-brown pruiting ink for the

Weather Bureau; 2 mhneograph iaks; and 2 black multigraph inks.

The following tabulation gives the amount of each kind of printing

ink manufactured during the year, the small amount produced in

several instances being due to the special shades required to match

the copy for certain jobs:

Ink production, 1927

Kind of ink Pounds Kind of ink Pounds

Black:Book

Job Rotary halftone Record

Halftone Mimeograph, open cyUnder type

?*Iimeograph, closed cylinder typeStationery job—

Money order Carbon coating Cancehng

Multigraph, grade A...

Multigraph, grade B

Proof press Eulogy. Addressograph Stamp pad

Xumbering machine

Spot carbonizing Book cloth Book (made from waste ink) Yellow: Tampa

Orange. Lemon

Orange poster Brown:

Snuff Bismark

Blue;Bronze, for printing and multigraph

use

33, 342

21,444

14, 495

13, 309

12, 974

11, 677

6, 055

6, 136

1, 955

1, 534

1, 210

842

456

783 412

365

547

11584

33

5, 520

1, 141 796 614

10

276

Blue—Continued.

Stationery Money order Shipping Board Stamp pad

Xumbering machine. Embossing Pan .\merican Book cloth. Marble paper

Green:

Postal card French medium, for printing and

mulrigraph use

Slate, sensitive Windshield Ohve cross line Book cloth... Red:

Job, for printing and multigraph use- Poster Marble paper Stamp pad

Xumbering machine

Passport seal Book cloth Miscellaneous:

Special shades, experimental inks,

etc Cream marble paper Gold marble paper.

346

254

256

10185

9384

17

16

6, 552

548 126

34

14

13 634

193 179

211

162

26

13

155

76

13 490 66983—28-
80 Annual Report of the Public Printer

REDUCTION IN QUANTITY OF WASTE INK

The problem of waste ink returned from the press division has been

the subject of constant study since the ink section was placed under

the direction of the division of tests and technical control in April,

1924. Every effort has been m.ade to reduce this waste to a minimum. The amount of waste ink was materially reduced during the

year. The following tabulation shows the amount of waste ink

returned to the ink section during the last five years, together with

the percentage relation of the waste ink to the total ink production

for the same year:

Waste ink returned by the press division

Fiscal year Amount

Ratio of waste ink

to total ink produced

each year

1923 Founds

13, 650

14, 785

12, 350

9, 896

5, 520

Per cent 13.4

13.1

9. 25 8.4

3.7

1924

1925

1926 - 1927The waste ink was reduced from 13.4 per cent of the total production of 101,695 pounds in 1923 to 3.7 per cent of the total production

of 147,589 pounds in 1927. The value of this 10 per cent reduction,

calculated on the total 1927 production, amounts to a saving of approximately $4,500.

It should be stated in this connection that all waste ink returned

to the ink section is utilized in the production of book ink and is therefore not a material loss. The chief causes for waste ink ui the

press division are due to incomplete removal of ink from cans, surface

of ink skinned over by drying, paper lint or skins in ink removed

from press fountain, and improper protection of ink left in cans. The reduction in waste ink has been due mainly to the foliowiag

changes which were put into effect during the year 1926:

1. All ink containers are scraped clean of old ink and thoroughly

washed before being reused.

2. The dimensions adopted for ail cans specify shallow cans of

wide diameter, facilitating complete removal of the ink from the can by the press division. The cans formerly used were deep and

narrow and were therefore difficult to scrape clean.

3. All ink immediately after being canned is covered with oiled

paper before the lid is put on the can. The large containers in which

book and record inks are sent to the pressroom are also covered with

oiled paper. This prevents the formation of skius on the surface

of the ink and also keeps out dust and paper lint. The paper can

be replaced after part of the ink has been removed, thus preserving

the remaining contents of the can for future use.

4. Rolled rims on the lids as well as on the edges of cans are also

specified. This feature adds considerable strength to the cans, makes them much easier to open, and materially increases the life of the cans, effecting considerable economy.
Report of the Technical Director 81

RESEARCH ON PRINTING INKS

An additional chemist experienced in the manufacture of printing

inks has been added to the personnel of the division of tests and

technical control and extensive plans have been outlined for next

year relative to the standardization of all materials used in the

manufacture of printing ink, including any necessary revision of the

present specifications for such materials, the testing of new materials not previously used by the Government Printing Office, and

the standardization of the formulae for all inks manufactured by the

office. In this work particular attention will be given to securing

the best quality of ink for each specific purpose. Methods of testing

the finished inks wiU be adopted in order to secure uniformity in the

quality of every lot of ink produced.

The work which has been planned will be of considerable interest

to all consumers of printing ink, as there appears to be no public

data available at present on methods of checking the quality and

production value of printing ink. The results of this investigation

will also be of considerable value in connection with the work being

conducted relative to the measurement of the relatioliship of paper

to printing ink.

DETECTION OF FRAUDULENT POSTMARK

The importance of definite technical specifications for materials was

showTL in the case of the United States v. B. G. Lipscomb, who was

convicted of perjury in the United States District Court at Tulsa,

Okla., in September, 1927. At the trial the technical director was

called upon for expert testimonj^ in connection with the ink alleged

to have been used by Lipscomb for canceling a post-card stamp.

The Post Office Department offered as evidence against Lipscomb a post card on which it was claimed that the postmark was a counterfeit.

The card had been used as evidence as an alibi at a previous trial to secure an acquittal on a charge of violating the prohibition act. The

technical experts of the Government Printing Office were requested to make a chemical examination of the ink used for canceling the

questioned postmark and to compare it with the ink used by the Post

Office Department for canceling United States mail. The examination showed the ink used in making the cancellation on the postal

card was not the same as that used by the Post Office Department.

The testimony of the technical director in conjunction with that of

the Post Office inspection service brought a conviction in the case, the

jury being shown that the ink used for the counterfeit mark could be

removed easily by chemical bleaching agents which had no effect on

the regular ink used by the Government.

INVESTIGATIONS OF BOOKBINDING MATERIALS

Considerable technical research has been conducted since the

establishment of the division of tests and technical control relative

to the quality of various materials used in bookbinding. Keference

is made in this report to aJl results so far obtained.

FLAX BOOKBINDING TWINE

One of the first investigations made was on flax book twine for use in high-grade bindings, the results of which have been published
82 Annual Report of the Public Printer

in various trade journals. As a result of this investigation, standard

specifications were developed for all plies of best-quality flax bookbinding twine, and all twine of this quality now purchased by the

Government Printing Office complies with these specifications. A

decided improvement has been noted in the serviceability and durability of books bound since the adoption of the specifications. Previously, jute and mixtures of jute and hemp twines were furnished

the office as ''best-quality" flax twine, which proved very unsatisfactory in service and unsuitable for permanent high-grade bindings.

Reference was made to the results of this investigation in the annual

report of the Public Printer for 1923.

BINDERY RULING INKS

An article has also been published in trade journals giving the

results of an extended investigation conducted on ruling inks and

dyes. A complete report of this investigation was made in the annual

report of the Public Printer for 1926. The results of this investigation have been of considerable value to the Government Printing

Office, which now purchases all its ruling inks and dyes in accordance

therewith.

BINDERY GLUE

One of the most important investigations conducted was relative

to glue, which is a most essential material in the bindery. This

investigation included methods for testing the quality of glue, the

preparation of definite specifications for the various qualities used

by the Government Printing Office, methods for the economical

handling of glue in the plant, and the development of formulae for

flexible glues for various bindery uses. A full report was made in

the annual report of the Public Printer for 1926. Additional information in this connection is given in this report under ''Glue investigations."

BOOKBINDING CLOTHS

Much work has been done relative to the quality of various bookbinding cloths for the purpose of developing standard specifications.

Since the establishment of the division of tests and technical control

in 1922, approximately 900 samples of various kinds of bookbinding

cloths have been tested, representing samples from all deliveries

received, samples offered by bidders, and investigational samples

obtained from available sources of bookbinding cloths. This work

has been conducted in cooperation with the manufacturers of book

cloths and of imitation-leather fabrics.

As a result of this work, standard specifications have been developed

and adopted for the following book cloths used by the Government

Printing Office: Book cloth, common colors; book cloth, extra colors;

heavy-weight buckram; medium-weight buckram; light-weight book

cloth, vellum finish; medium-weight book cloth, vellum finish; imitation leather; cotton drilling; and cotton duck.

The specifications state the quality of stock and the minimum

requirements for weight, weave, and tensile strength. Owing to the

difficulty of defining color, finish, pattern, and general characteristics,

samples are required for this purpose. The samples are also tested
Report of the Technical Director 83

for permanency of the colors to light and the resistance of the cloth

to attack by insects.

Due to the wide variation in the qualities of cloths commercially

offered for bookbinding purposes, the importance of specifications

covering the quality can be readily appreciated. If the finishing

materials used in the manufacture of a book cloth are removed and

the base cloth inspected, it will be noted that base cloths of the

cheaper grades are of a very open weave and possess but little strength. In the better qualities, the base cloths are close woven

and possess good strength. The serviceability and durability of

bookbinding cloths are dependent primarily on the quality of the

base cloth. In order to secure the finishes and other characteristics desired for

bookbinding cloths, finishing materials, consisting of sizings and

mineral fillers, are added to the base cloth. There is no doubt but

that the most serviceable book-cloth bindings from all standpoints

would be obtained by the use of fabrics containing no finishing

materials, such as sizing or mineral fillers, whatsoever. Such cloth

would be immune to attack by insects, would be flexible, and its serviceabihty would depend upon the weave and strength of the

cloth. However, in the production of a fabric for bookbinding

purposes, there are certain requirements that must be met in order

that the cloth can be handled in the bindery with the modern machinery that is necessary to secure volume production of book cases. Book cloths must have sufficient stiffness to carry on the machines

properly and must be so filled that the adhesives will not penetrate

through the cloth. In order to obtain book cloths of maximum

ser^^ceability, it would be advisable to use the minimum quantity

of filling and sizing materials, and for this reason considerable data

have been obtained for the purpose of establishing the maximum

amount which should be allowed in the various kinds of bookbinding

cloths. It is appreciated, however, that the use of large amounts of finishing materials produce effects which appear to be desired by the

book buyer, and also permit the production of cheap-grade binding

materials.

However, an open-weave base cloth containing an excessive amount

of finishing materials lacks flexibility and resistance to tear. Of two

book cloths having the same quality base cloth, the one containing

the lesser amount of finishing materials will be the more serviceable

for bookbinding purposes.

In the follo^ving tabulation are given the percentages of mineral

matter and sizings used in the finishing materials of various types of

standard bookbinding cloths used by the Government Printing Office. This tabulation shows that the cheaper grades of book cloth contain

the larger percentage of finishing materials, while the better quahty

book cloths, such as buckrams, show the lesser amount.
84 Annual Report of the Public Printer

Results showing percentage of finishing materials in bookbinding cloths HEAVY-WEIGHT BUCKRAM

Test No.

20379

22931

Color Weight

per square

- yard

Weight

per square yard of base cloth

after re- moval of finishing materials

Total ex- tracted

fijiishing materials, including

sizing and

mineral matter

Ash or mineral matter

Sizings '

Brown

Dark brown

Ounces

9.7

9.7

Ounces

7.9

7.6

Per cent 18.4 21.6

Per cent4.4

3.5

Per cent 14.0

18.1 MEDIUM-WEIGHT BUCKRAM

21716 23899

23346

29231

Blue Red

do

7.2

7.7 7.3

7.1

6.0

6.0

5.1 5.0

16.5 22.5 30.2 30.03.2

4.1 4.5

4.3

13.3 18.4

25.7 Brown 25.7 BOOK CLOTH, COMMON COLORS

23638 23639 Gray

do

5.0

6.0

3.1 3.4 37.0

43.5

7.5 4.2

29.5 39.3 BOOK CLOTH, EXTRA COLORS

22520

23831 RedGreen

6.0

5.3

2. 8 53.

7

2. 8 48. 0

7.1 11.4 46.6

36.6 LIGHT-WEIGHT BOOK CLOTH, VELLUM FINISH

21542 Green 5.0 2.4 52.5 9.2 43.3 MEDIUM-WEIGHT BOOK CLOTH, VELLUM FINISH

19396 Yellow - 6.4 3.9 39.0

j 12.0 27.0 IMITATION LEATHER

Test No. Color Weight

per square yard

Weight

per square yard of base cloth

after re- moval of finishing materials

Cellulose coating and

mineral matter

Ash or mineral matter

Cellulose coating material and sof- tening

oils

17458

21483 Blackdo

Ounces

7.4

7.4

Ounces

4.1 4.0

Per cent 44.6

45.8

Per cent6.3

2.

1

Per cent 38.3 43.7

1 Obtained by difference between total extracted materials and ash. Note.—Extractions were made with acidulated water on all book cloths for determination of total sizing material. Organic solvents were used for the removal of the coating on imitation leather. Imitation leathers are fabric-base book cloths coated with flexible cellulose compounds. This cellulose coating is pliable and improves

rather than injures the serviceability or wearing resistance of the
Beport of the Technical Director 85

cloth. However, as with other bookbinding cloths, the quaHty of the

base cloth is a controlHng factor in the serviceabihty of cellulose- coated fabrics. The standard specifications adopted for imitation

leather, in addition to specifying the weight, weave, and tensile

strength, state that the base cloth shall be an unsized and unfilled cotton cloth. DESTRUCTION OF BOOKBINDING CLOTHS BY INSECTS

One of the most serious problems which arises in connection with

bookbinding cloths is the destruction of book covers by insects. Considerable investigational w^ork has been conducted on this subject and

a large number of bookbinding cloths and cases have been exposed to attack by insects. This work shows that most book cloths are

readily attacked by insects, owing to the amount and kind of sizing

materials in the cloth, such as starch, dextrins, flour, and other gums

that offer an attractive food for insects. Book-cloth manufacturers

have made much effort from time to time to overcome this defect by

adding certain ingredients to the finishing materials to repel attacks

by insects. However, experience has shown that, although these

treatments in some cases with some insects have given good results,

most of them under certain conditions fail to accomplish the desired

purpose. Book cloths containing a lesser amount of finishing materials, such as buckrams, are more resistant to attack by insects.

Continued investigations will undoubtedly yield a book cloth w^hich

will be resistant to insects under most conditions.

From the results obtained by the Government Printing Office, it seems that the cloth itself, and not the adhesives used in manufacturing book cases, is the primary cause for the destruction of bookbindings by insects. Data have been secured that the adhesives used

in producing a book case are not the cause under normal conditions

for attack by insects. Book cases made up with book cloths which

are insect resistant in themselves, such as drilhng, duck, and imitation

leather, have shown no indication of attack by insects, although no

insect-repellant materials were added to the adhesives used.

Book cloths not resistant to attack by insects have shown practically the same amount of damage if exposed to insects alone as when

the same cloth is glued to binders' board with the usual adhesives,

and no insect-repellant materials used.

The only book cloths which have resisted attack by insects are

imitation-leather or cellulose-coated fabric, oilcloth, and unsized duck

and drilling. It should be stated, however, that the tests have been

made in Washington or in temperate climates, and these results

should not be considered conclusive for all climatic conditions. The

most serious damage is done by insects in tropical countries or under

warm and humid atmospheric conditions.

Experiments have also been conducted by treating the surface of

book-cloth bindings with certain sizing materials and varnishes for the

purpose of rendering them resistant to attack by insects. For this

purpose spar varnish, shellac, and cellulose lacquers have been used.

The results indicate that flexible cellulose lacquers are satisfactory,

possess better durabihty, have no injurious effect on the cloth, are

flexible, and impart a pleasing finish to the cloth. All of the tests have been conducted by exposing the various book

cloths or book cases m_ade from the book cloths in localities known to-
86 Anmial Report of the Public Printer

be frequented by insects, both the "croton," or common water bug,

and the large American roach. The tests have not been made under

abnormal conditions, such as imprisoning insects in bell jars with the

material to be tested, that are not indicative of actual conditions to which books are exposed.

Considerable assistance has been rendered the division of tests and

technical control in connection with its investigations relative to the

attacks by insects on bookbinding cloths by the techno-chemical

division, Bureau of Chemistry and Soils, Department of Agriculture.

BOOKBINDING LEATHER

During recent years the use of leather for high-grade bookbinding

purposes has been replaced to a large extent by bookbinding cloths

and imitation leathers or cellulose-coated fabrics. This has not

been due entirely to the high cost of leather bindings but primarily

to the inability to secure serviceable and durable bookbinding leathers. Inspection of the books in libraries will show the rapid deterioration that has occurred in most leather bookbindings, expecially

during the last 50 or 60 years. Realizing the importance of using only bookbinding leathers of the highest quality when books are bound in leather for Government

libraries, the Government Printing Office has endeavored to secure information relative to the essential qualities to be specified for such

leather. Considerable difficulty has been experienced in obtaining

domestic leather which would comply with the adopted specifications, and in many instances where highest quality was desired it has been necessary to procure foreign bookbinding leather. The

following specifications have been adopted tentatively for use in the

purchase of bookbinding leather:

Best-quality durable bookbinding leather.—Must be tanned exclusively with

pyrogallol tanning materials and shall be free from mineral acids and contain not more than 0.25 per cent acidity as determined by the Proctor and Searle method on moisture-free basis. Dyes that will impart acidity to the leather must not be used. Award will be made only on leather fully complying with these specifications

and of best quality as determined by other chemical and physical tests. The

leather must be "full binding quality," free from cuts, scars, and blemishes. The most essential points in a durable bookbinding leather are freedom from mineral acids and catechol tanning materials. Sumactanned leather or leather tanned with materials of the pyrogallol

group have been found the most durable for bookbinding leather.

Tanning materials belonging to the catechol group have been found

decidedly unsatisfactory for permanent-quality bookbinding leathers.

A large collection of English and German bookbinding leathers was secured by the technical director during his trip to Europe in

the summer of 1926. These samples represent the highest quality

bookbinding leathers obtainable in Europe and were represented to be sumac tanned, acid free, and produced in accordance with the

recommendations of the Report of the committee of the British

Society of Arts on leather for bookbinding" issued in London in 1901.

Thirty skins of various kinds of bookbinding leather were obtained,

including goat, sheep, pig, cow, and calf. Complete chemical and

physical analyses are being made of the skins. Books have been

bound with these leathers for the Library of Congress, library of the
Report of the Technical Director 87

Department of Justice, and library of the Department of the Interior.

Books bound with the foreign leathers are marked and recorded so that a careful record can be kept as to their durability and serviceability in actual use. The Government Printing Ofhce is indebted to the cordial cooperation of the leather section of the techno-chemical division, Bureau

of Chemistry and Soils, Department of Agriculture, in connection

with the investigation on bookbinding leather. The specifications

adopted were recommended by that division and practically all analyses on bookbinding leathers have been made by its laboratory.

Cooperative work is now being conducted with American tanners

to develop the production of durable bookbinding leathers tanned

in accordance v/ith recognized standards for durable leather.

INVESTIGATION ON IMITATION GOLD LEAF

As a result of the rapid discoloration and tarnishing of imitation

gold stamped work on book covers, an investigation was conducted

to develop a laboratory m^ethod of testing imitation gold stamping

leaf.An inspection of a considerable number of books which had been

stamped with imitation gold leaf showed a wide variation in the

amount of discoloration of the stamping. The following are among

the causes of these variations: (a) Difference in the quality of the

stam.ping leaf used; (b) difference in material stamped; (c) difference

in conditions under which the books are stored, as some might be more exposed to chemical fumes, moisture, heat, and light than others.

This inspection led to the conclusion that a considerable portion of

the discoloration was probably due to the action of sulphides from

various gases in the air and to some extent to the action of heat and

Hght.

Exposure of stamped book covers to hydrogen sulphide gave results

which resembled very closely the tarnishing that develops on most

samples of imitation gold leaf. There was a wide variation in the

effect of this treatment on the different samples. All were affected,

but some were only slightly tarnished, while others were not only

tarnished but were completely blackened.

Exposure to sulphur dioxide did not show the differences between

samples to nearly the same extent as did hydrogen sulphide. The

results, however, were corroborative.

Tests made with the fadeometer gave results indicating similar

discoloration to the exposure tests with hydrogen sulphide and sul- phur dioxide. It was also noted that the stamping on black material was affected more than that on the red material in the same length

of time. This was no doubt due to the greater absorption of light

and heat by the darker material. Further work is planned in this

connection, using a wide variety of colored bookbinding materials

and studying the effect of the dye or pigment in the binding material on the stamping materials.

A set of covers exposed in the laboratory indicated the same relative

tarnishing of the stamped work as in the other tests. Laboratory

tests therefore will give results in one or two days indicative of those

obtained in longer actual service under normal conditions.

The results obtained in all cases indicated the same relative differ- ences in the quality of the various samples of stamping leaf. How-
88 Annual Report of the Public Printer

ever, the effect of the hydrogen sulphide test was much more evident

than in the case of the other tests. Therefore, it appears necessary- only to use the hydrogen sulphide test on imitation gold stamping leaf. The results of the tests indicate that they will give comparative

data as to the serviceability of different makes of imitation gold

stamping leaf, and all such material purchased by the Government

Printing Office is now tested in accordance with these methods.

The aluminum leaf and the 22.5-karat gold leaf were unaffected in

any of the tests. Technical investigations have also been conducted on various

other bookbinding materials, as a result of which standard specifications have been adopted covering the following materials: Two

qualities of super, silesias, various widths and weights of cotton

sheeting, filled cotton cloth, and different kinds of jute and cotton

twines for wrapping purposes.

INVESTIGATION ON QUALITY OF BINDER's BOARD

Definite specifications for binder's boards, best quality and No. 2 quality, have been developed from extensive tests made by the division

of tests and technical control on these materials. These specifications were adopted by the paper specifications committee for the fiscal year beginning March 1, 1928. They are the first definite specifications to be used by the Government in the purchase of binder's

boards.

Considerable difficulty has been experienced in purchasing linen

and cotton book sewing threads of a satisfactory quality, and an

investigation is now being undertaken to develop standard specifications for these materials. The investigation covers fiber stock, size of thread, finish, yardage, and strength.

GLUE INVESTIGATIONS

During the past two years reference has been made in the annual

reports of the division of tests and technical control to the investigations which were being conducted relative to glue, one of the

most important materials used in the bindery. The results of this work were published in complete form in last year's report and have

attracted widespread interest among commercial bookbinders and

glue manufacturers. As a result of these investigations, methods

have been adopted for the testing of glue and specifications developed

for the necessary glues for the use of the Government Printing Office. Improved methods have also been adopted for handling glue, and

formulae developed for flexible glues to meet the various requirements

of the office. Owing to the interest manifested in this investigation by commercial concerns, it is deemed advisable to republish in detail the glue

specifications and the formulae for the molded glues used by the

Government Printing Office, since minor changes have been made

in the specifications and two new formulae have been added to those

submitted last year. In using these formulae it is of the utmost

importance that the glues be of the respective qualities covered by

the specifications.
Report of the Technical Director 89

SPECIFICATIONS FOR GLUES

All glue shall be clean and free from foreign matter, A solution of any grade

shall not develop a strong or sour odor when kept 48 hours at a temperature of 25° to 35° C. Tests will be based on a 12 per cent moisture content and will be

made according to the methods adopted by the National Association of Glue

Manufacturers, Deliveries to be made in paper-lined bags or paper-lined wooden

barrels, GLUE NO. 1 Bone or hide glue, ground, for general bindery use: Viscosity—Not less than 50 millipoises.

Jell strength—Not less than 130 grams. pH value—Not less than 6.0 nor more than 7.0. GLUE NO. 2 Bone or hide glue, ground, quick-setting and nonfoaming:

Viscosity—Not less than 60 millipoises.

Jell strength—Not less than 165 grams. pH value—Not less than 6.0 nor more than 7.0. GLUE NO. 3 High-grade hide glue, ground or flake, for roller manufacture and bindery use: Viscosity—Not less than 130 millipoises.

Jell strength—Not less than 400 grams. pH value—Not less than 6.4 nor more than 7.0. FORMULA FOR MOLDED GLUES

The following formulse give the ingredients used in the preparation

of approximately 350 pounds of material in each case. The glue after

soaking in cold water is melted at a temperature of not over 150° F., the other ingredients added, and then the melted mixture is poured

into moulds of approximately 10 pounds each. The melted glue is strained through fine-wire screens in order to remove any lumps,

trace of dirt, or other foreign material. When chilled, the molded

glue is stored in a refrigerator ready for use.

Regular flexible molded glue for general binderv use: Glue No. 1 pounds- _ 123

Glvcerin do 90 Water do 123 Beta naphthol ounces.- 8 Terpineol do . 8

'Extra flexible, for use on gathering, stitching, and covering machines

and wherever a high-quality, quick-setting, flexible glue is re- quired : Glue No. 2 pounds- _ 75 Glue No. 3 do 75

Glvcerin do 64 Water do 134 Beta naphthol ounces-- 8 Terpineol do 8

Perfect binder flexible, for use on Perfect binding machine:

Glue No. 3 pounds-- 150

Glvcerin do 105 Water do 135 Beta naphthol do 8 Terpineol do 8

Tablet composition:

Glue No. 1 pounds-- 120

Glycerin do 113 Water do 113

Zinc oxide do 5 Betanaphthol ounces-- 8 Terpineol do 8
90 Annual Report of the Public Printer

Regular bindery, for use in modifying other glues when necessitated by weather conditions: Glue No. 1 pounds- _ 175

Glycerin do 10 Water do 175 Beta naphthol ounces-- 8 Terpineol do 8 Case making, for use in case-making machines:

Glue No. 2 pounds-- 175

Glycerin do 10 Water do 175 Beta naphthol ounces-- 8 Terpineol do 8 Cahinetmaking:

Glue No. 2 pounds-- 87^/^ Glue No. 3 do 873^

Glycerin do 10 Water - do 175 Beta naphthol ounces.- 8 Terpineol do 8 Molded-glue formulae now contain two ingredients, beta naphthol

and terpineol, which are added to prevent mold and bacterial action

and to give the glue an agreeable odor. An investigation is now

under way to determine the most efficient materials for the prevention

of mold and bacterial action in molded glues.

UTILIZATION OF WASTE ROLLER COMPOSITION

Waste press-roller composition has been utilized during the last two years in the manufacture of glue for bindery purposes as a

result of research conducted by the division of tests and technical

control. This is feasible only where the character and quality of

such composition are known. For instance, if molasses or similar

material for toughening the composition is used in the production

of rollers, the discarded composition will not melt and can not be

used. Molasses is not used in the manufacture of rollers by the

Government Printing Office. The glue, glycerin, and other materials

used are purchased on definite specifications for quality. The waste

composition can, therefore, be used by the Government Printing

Office in the manufacture of molded glues without difficulty. The

chief use of this material is in the production of tablet composition.

It is also utilized to a certain extent in two other formulae for molded

glues.

Following are the formulae for the molded glues in which waste

roller composition is used by the Government Printing Office:

Regular flexible, for general bindery uses: Glue No. 1 I pounds-- 123

Glycerin do 50 Waste roller composition do 40 Water do 123 Beta naphthol ounces. _ 8 Terpineol do 8

Tablet composiiion: Waste roller composition pounds.- 200

Glue No. 1 do 20 Water do 90

Zinc oxide do 5
Beport of the Teclmical Director 91

Regular bindery, for use in modifying other glues when necessitated by weather conditions! Glue No. 1 pounds. _ 175 Waste roller composition do 30 Water do 175 Beta naphthol ounces-. S Terpineol do S At the recommendation of the technical director the manufactm'e

of molded glue for bindery uses was transferred last year : j :::e roller and glue section, where more modern equipment was available,,

thereby consolidating the handling of glue in one section. Dming

the year 74,640 pounds of molded glue were produced, as follows:

Regular flexible 24. 000 Extra flexible 12. 7S0

Perfect binder flexible 1. SoO Regular bindery 11. 520 Case making 19. 7S0 Tablet composition 4, 670 The above includes 1.422 pounds of the various glues supphed to different Govern ment agencies and not used by the Government

Priuting Office. The following materials were used in the manufacture of the molded

glues, not including the glue and glycerin used in the manufacture of press rollers: Glue Xo. 1 15. 1S5 Glue Xo. 2 12, 155 Glue Xo. 3 3. 600

Glycerin 6. 664 Waste roUer composition 7, 560 At the request of the Post Office Department, special samples of glue-glycerin composition, similar to that used for press rollers, were submitted for test in the prodtiction of composition canceling

stamps. The samples were reported to be superior to the material

previously used, giving from two to three times longer service. This

composition is now being supplied at an appreciable saving.

As a result of the investigations on glue, the amount of glue pm^-

chased annually has been decreased materially, In 1921 60.750

pounds of glue were pmxhased at a cost of $7,031.50, while in 1927

30,940 potmds were prnxhased at a cost of 83.950. a saving of $3,100.

In addition, 7,500 pounds of waste roller composition are used

annually, having a value of approximately $1,150 when used as glue.

This material was formerly sold as waste. There were also over 1.400 pounds of molded glues furnished

Government agencies in 1927. None had been furnished previous

to this fiscal year. In addition to the above-mentioned savings, the quality of the

work in which glue is used shows a marked improvement over that

done prior to the adoption of technical methods of testing glue, the

adoption of methods for handling glues, and the development of formulae for flexible glues.
92 Annual Report of the Public Printer

DETERGENTS

The previous recommendations made by the division of tests and

technical control as a result of its extended investigation on solvent

and alkali detergents for the removal of printing inks from type, the

removal of wax from electrotype shells, the cleaning of press rollers,

and the cleaning of ink containers have been followed during the

year without change and excellent results are being obtained throughout the office. A full report of this investigation has been published

in trade journals and in the annual report of the Public Printer for

1925. The investigation has proven of interest to the commercial

printers and considerable information has been furnished by the

Government Printing Office relative to the proper detergents to be

used for any specific purpose.

As a result of the investigations relative to detergents for use in

the printing and press divisions and for laundry and general cleaning

purposes, a saving of approximately $10,000 has been made, compared

with the cost of a similar quality of materials formerly used for the

specific purposes.

SUPPLIES FURNISHED OTHER GOVERNMENT AGENCIES

During the fiscal year 1927 considerable quantities of miscellaneous

supplies, such as inks, glues, and paste, have been furnished to the

various departments and independent establishments of the Government in accordance with the following provision of Public Act 222,.

Sixty-ninth Congress:

Provided, That inks, glues, and other supplies manufactured by the Government Printing Office in connection with its work may be furnished to departments

and other establishments of the Government upon requisition, and payment made

from appropriations available therefor: In the following tabulation is given a complete report relative to the kinds and quantities of materials supplied to the various Government agencies. There is also stated the charges made for these

materials by the Government Printing Office and the corresponding

commercial prices. The latter prices are quoted from contract

awards of the General Supply Committee. On items not carried on

the General Supply Schedule, the prices formerly paid were reported

by the department purchasing such material.

Record of miscellaneous materials furnished to all Government agencies, fiscal year 1926-27

Kind of material Amount furnished Govern- mentPrinting

Office charge

Cost to depart- ments

through

former

channels

Savings ta Govern- ment

Printing inks: BlackCanceling 1,200 pounds $600. 00

273. 15

354. 00

43. 55

424. 60

48. 75

104. 80

$1,200. 00

500. 60

590. 00

86. 85

1, 003. 60

253. 50

344. 05

$600. oa

227. 45- 236. oa

43. 3a

579. oa

204. 75

239. 25

Miscellaneous 604 pounds... ColoredSnuff brown 590 pounds.

Other colors 66 pounds

Multigraph inks: BlackGrade A 772 pounds

Grade B 195 pounds.

Colored 142 pounds
Report of the Technical Director 93

Record of miscellaneous materials furnished to all Government agencies, fiscal year 1926-27—ContinMQd

Kind of material Amount furnished

Govern- ment

i Printing

Office charge

4,716 pounds in 4-pound cans.. 7,129 pounds in 1-pcund cans..

1, 534 pounds in 4-pound cans.

3,779 pounds in 1-pound cans., 51 pounds

66 pounds

72 pounds

240 pounds

152 pounds

5S4 pounds

4 pounds..

Mimeograph inks: ; For open cylinder machines. Do

For closed cylinder machines. Do

Numbering-machine inks: Red .' Blue : Black Stamp-pad inks: ! Bed

Blue

Black Green

Writing inks: Blue-black for fountain pen ' 227J^ gallons in quart bottles and office use. ! Do I

$2, 593. 80

4, 277. 40

843. 70

2, 267. 40

238. 75

Blue-black record. Do

Bed.Do.

Do. Molded glues Miscellaneous: Flour paste... Ink solvent Addressograph inks: Black.. Blue

Purple writing ink for duplicators.

689 gallons in gallon or larger containers (not including containers) . 62 gallons in quart bottles

50 gallons in gallon or larger containers (not including containers), i 47 gallons in quart bottles j 915^^ gallons in pint bottles 1 126J'^ gallons in gallon or larger i containers. [ 1, 422 poimds

4, 070 pounds.

5 gallons

309 pounds.

11 pounds.. 4H pounds.

Total - 13, 976. 57

Cost to depart- ments

through

former

channels

$7, 074. 00

10, 693. 50

2, 301. 00

5, 668. 50

815.67

182.00

330. 72

Savings to Govern- ment

614. 42

2. 37

$4, 480. 20

6, 416. 10

1, 457. 30

3, 401. 10

116. 77

59. 72

32.00 1

148. 96 57.24

26. 32

73. 40

25. 30 1

246. 68 121. 66

191.91 318. 90 126. 99

122. 10

6. 25

191. 29

17. 50

69. 18

11.25

309. 00

11.00 9.00

843. 57

36. 96

18.00

534. 57

25. 96

9.oa

13, 976. 57 34, 059. 87 , 20, 083. 3a

It will be noted from the foregoing tabulation that -inks, glues, and

paste were furnished to the various departments at a total charge of

$13,976.57. The same quantity of materials, if purchased through

the General Supply Committee contracts or former sources of supply,

would have cost the Government $34,059.87. Therefore, a saving of

$20,083.30 to the Government during the fiscal year was effected in the manufacture of these supplies by the Government Printing Office, as authorized by law.

A careful study of the total quantities of the materials which will be supplied by the Government Printing Office in accordance with

the provisions of law, indicates that the supplies furnished represent

only approximately six months' requirements for the fiscal year. The

savings for a full year should effect an economy of between $30,000

and $35,000.

During the fiscal year 1927 three schedules were issued listing

materials, with prices, which could be furnished to the departments

by the Government Printing Ofi&ce. Most Government agencies have purchased writing inks in 1 -gallon

and 5-gallon containers, filling their own quart bottles, which proved

to be economical and satisfactory. However, to meet the requirements of small offices, the Government Printing Office is prepared to
94 Annual Report of the Public Printer

furnish blue-black writing inks in quart bottles, and red ink in pint

bottles. All orders for such materials have been handled through the division of tests and technical control and practically all were made by

the ink and glue sections. The quality of the materials furnished to the departments is equal to and in most cases superior to that formerly

obtained from commercial sources. COOPERATION WITH VARIOUS INDUSTRIES

The division of tests and technical control has continued to cooperate with commercial concerns furnishing materials to the Government Printing Office, for the purpose of developing specifications for

various materials, and to supply reliable information to Government

bidders and contractors as to the requirements of the Government

Printing Office. Cooperative work has been continued with the National Association of Glue Manufacturers in connection with glue, and with the

United Typothetse of America and the paper manufacturers relative

to the standardization of paper. Cooperative investigations are now

being started with the mechanical section of the American Newspaper

Publishers Association relative to type-metal alloys of all kinds and

newsprint paper.

During the last year the inquiries from commercial concerns interested in the research work being conducted by the Government

Printing Office have been very heavy. Approximately 2,000 letters have been written during the year in supplying desired information.

These requests have been for information on specifications for paper

and other materials used in printing, binding, and allied industries.

Considerable information has been requested relative to type-metal

alloys. Information has also been requested relative to bookbinding

materials, and for assistance in production difficulties experienced

in various commercial plants similar to those met by the Government

Printing Office. Owing to the interest displayed in the annual report of the technical director printed in the annual report of the Public Printer for 1926,

it was necessary to have 1,500 copies of this report reprinted and the

supply has been practically exhausted.

The division of tests and technical control has rendered assistance

to the Treasury Department, the Post Office Department, Library

of Congress, and other Government agencies in connection with

paper, inks, and glues, and problems which could be handled by the

experienced chemists of the Government Printing Office. The technical director is a member of the following committees

and devotes considerable time in connection with the work of these

committees:

Paper specifications committee of the Joint Committee on Printing

;

Federal Specifications Board; also the following Federal specifications committees: Paper technical committee, committee on inks

and typewriter ribbons, technical committee on color, shippingcontainer committee, and committee on specifications for lubricants

and liquid fuels. During the year the technical director has delivered addresses on • the technical work of the division of tests and technical control before
Beport of the Technical Director 95

the Washington Club of Printing House Craftsmen and the mechanical section of the American Newspaper Publishers' Association, both

of which have been published.

The importance of the work being conducted by the chemists of

the division of tests and technical control of the Government Printing Office is shown by the following order issued by the PubHc Printer:

DIVISION" OF TESTS AND TZCHXICAL CONTROL

GovEPvXMzxT Peixtixg Office,

Office of the Public Printer,

JVashington, August 16, 1927. To all Ojncers and Employees of the Government Printing Office: The testing section on and after this date shall be designated as the division

of tests and technical control and shall be under the supervision and direction

of the technical director, who shall take over and perform the duties formerly

assigned to the chief of tests. The division of tests and technical control shall take over and continue the work of the testing section and shall have full charge

and direction of all testing and technical control and research, under the direction

of the Public Printer, including the manufacture and supply of ink, type metal,

press rollers, and bindery glue.

The ink room shall hereafter be designated as the ink section, the metal room

as the metal section, and the roller room as the roller and glue section, all of which

sections shall constitute a part of the division of tests and technical control and

shall be under the direction and supervision of the technical director. George H. Carter, Public Printer. Kespectfully submitted.

Edwaed 0. Reed,

Teclinical Director.

66983—28 7
/
DIVISION OF PUBLIC DOCUMENTS

REPORT OF THE SUPERINTENDENT OF DOCUMENTS

[Reprint of Report, pages 1 to 9, inclusive.]

97

REPORT OF THE SUPERINTENDENT OF DOCUMENTS

United States Government Printing Office,

Office of Superintendent of Documents,

Washington^ September 15^ 1927.

To the Public Printer : Sir : I have the honor to submit herewith the annual report of the

Superintendent of Documents for the fiscal year ended June 30, 1927.

The activities connected with the distribution of Government

publications during the last fiscal year have taxed to the limit the

facilities of the public documents division, and it is the old story of

growing interest in Government publications, combined with more

publicity from some of the issuing offices. An analysis of the sales for the last five years shows an average increase in the receipts from

sales of $50,000 per year, as indicated below

:

receipts from sales

1922-1923 $382,368.18

1923-1924 440,904.93

1924-1925 487, 922. 63

1925-1926 544, 937. 51

1926-1927 594, 840. 25

Converting the departments to the sales idea has been slow work,

but our advocac}^ of such a policy over a long period of years is gaining support throughout the various departments, with the in- evitable result of increased sales. The Director of the Bureau of

the Budget and the Chief Coordinator are giving considerable

thought to the subject, as they seem convinced that all Government

publications should be sold to the public except where it can be

shown that free distribution is for the best interests of the public.

We hear from all sides that there should be wider publicity to the

fact that we have a reference section, which not only prepares price

lists on important and timely subjects but answers letters which

require special knowledge and research. This is, no doubt, true,

but at the present time we are unable to handle promptly requests

for publications and information on account of the increase in the

work, and it would not be advisable to broadcast the functions of the

office until we are equipped to give better service.

It has been apparent for some time that the present organization

needs to be expanded, and the committee that the Public Printer

appointed in the latter part of April to consider various problems

affecting the office is making a detailed study of the operations, and

hopes to be able before long to submit a report of its findings, which

would result in improved conditions and better service to the public.

99
100 Annual Report of the Public Printer

DISTRIBUTION FOR THE DEPARTMENTS

There was a reduction of 2,795,013 in the number of publications

mailed for the departments during the year, which was reiSectec almost entirely in the distribution made by the Department of Agriculture, due to the fact it was not a campaign year. Although

10,461,157 copies of publications were sold, the distribution of

44,905,264 copies of publications by the departments is evidence of a continuance of a very generous free distribution.

STORAGE or PUBLICATIONS

Notwithstanding 1,705,692 copies of publications were taken from

the departments' consigned stocks and destroyed as obsolete or excess

copies, our books show an increase OA^er last year in the total stock on hand. It is apparent that unless some drastic action is taken

the time is not far distant when additional storage room will be

required, as it is difficult now to find room for the current publications.

The committee, consisting of the Superintendent of Documents

(chairman), the Deputy Public Printer, and the Superintendent of

Accounts, which the Public Printer appointed to consider various

problems affecting the documents office, met on several occasions

for the purpose of drafting a policy with reference to handling the

stocks of publications belonging to the departments that are now

stored under the custody of the Public Printer. Preliminary to a general discussion the following sections of the printing law of

January 12, 1895 (28 Stat. L. 610, 611), which are the only ones bearing on the subject, were read

:

Sec. 61 (par. 5), He (the Superintendent of Documents) shall have general supervision of the distribution of all public documents, and to his custody

shall be committed all documents subject to distribution, excepting those printed

for the special oflBcial use of the executive departments, which shall be

delivered to said departments, and those printed for the use of the two Houses

of Congress, which shall be delivered to the folding rooms of said Houses and

distributed or delivered ready for distribution to Members and Delegates upon

their order by the superintendents of the folding rooms of the Senate and

House of Representatives.

Sec. 67. All documents at present remaining in charge of the several executive departments, bureaus, and offices of the Government not required for official use shall be delivered to the Superintendent of Documents, and hereafter all public documents accumulating in said departments, bureaus, and offices not needed for official use shall be annually turned over to the Superintendent of Documents for distribution or sale. Neither " official use " nor " special official use " is defined in the

act, but the wording of other sections throws some light on what these

terms may be considered to mean.

Section 92 (28 Stat. L. 623) provides that publications received for

executive departments, " whether for official use or for distribution,"

shall be distributed by a competent person. Here is a clear-cut dis- tinction between two classes, each of which is exclusive of the other,

and neither of which needs definition. Publications for official use evidently include those needed in the internal operation of the department. The term " publications for distribution " speaks for itself. The restriction of the term "official use" to distribution for the

internal operation of the departments is further strengthened by the
Reports of Superintendent of Documents 101

language of section 90 (28 Stat. L. 623). This section provides that

the departments shall cause an order to be sent to the Public Printer

for documents, reports, bills, and resolutions " for official use." It can hardly be contended that Congress intended each of the departments to distribute documents, reports, and bills, but provision is made for the departments to acquire sufficient copies for the transaction of public business. In the case of documents and reports the

quantity to be sent to the departments is limited to the " number of

bureaus in the department and divisions in the office of the head

thereof."

It is a well-recognized rule of construction that all parts of an

act must be taken into consideration in construing any part. Therefore, the term " official use " as employed in section 67 must be inter- preted in the light of the term " for official use or for distribution,"

as employed in section 92. The term " special official use," as employed in section 61, evidently is synonymous with " for official use,"

as used in section 92. This interpretation allows a consistent application of the three

sections. According to section 61 all departmental publications

should be delivered to the departments, where they are to be dis- tributed by a competent person, as required by section 92. Section

67 then provides that annually all publications not needed for official use shall be turned over to the Superintendent of Documents for

distribution or sale. The printed debates show that Congress was

interested in reducing the stock of publications by putting them in the hands of persons who could use them. This was to be accomplished by turning existing surplus publications over to the Superintendent of Documents and allowing the departments one year in

which to distribute all subsequent publications.

The committee believes that those who drafted the printing act of

1895 had in mind the centralization of distribution, as section 61,

paragraph 5, provides that the Superintendent of Documents shall have general supervision of the distribution and to his custody shall be committed all documents subject to distribution. Whereas, the same paragraph and section contains exceptions, which permit the

departments, bureaus, and offices of the Government to exercise control over the distribution of their publications, it is evident that

Congress intended that such control should be for but one year after the printing of a publication; otherwise there would have been no

occasion for writing into the law section 67. The act of August 23, 1912 (37 Stat. L. 414), has no bearing on. the operation of section 67 of the act of 1895. The act of 1912 simply

makes the Public Printer the agent of the departments in storing

and mailing publications, the control of the departmental distribution

remaining in the departments as before. The act of 1912 therefore

supplements the act of 1895. Under the act of 1912 the Public

Printer has no right to take a single copy without the permission of

the department controlling the publication. But as section 67 of the

act of 1895 has not been amended or modified, at the end of one year

the Public Printer is justified in turning the surplus over to the

Superintendent of Documents for " distribution or sale," in accord- ance with the provisions of section 67 of the act of 1895. The fact

that the Superintendent of Documents is the agent of the Public

Printer in storing and mailing the departmental stock has no bearing
102 Annual Report of the Public Printer

on the question, except that the Superintendent of Documents, acting

alone, can not take over the departmental stock; this transfer must

be the action of the Public Printer, as the publications are in his

custody. In the subsequent distribution the Superintendent of

Documents has plenary authority by law. The fact that administratively he is the subordinate of the Public Printer and presumably

acts under his direction has no bearing on the question.

The act of 1912 provides that the Public Printer shall furnish

copies " only in accordance with the provisions of law or the instructions of the head of the department or establishment issuing the

publication." This evidently indicates that whatever control the

departments had was to be continued, and when that control expired

the general provisions of law should be followed.

The failure of the departments to operate in accordance with

section 67 of the printing act of 1895 does not repeal it in any way

or prevent its enforcement at this time, which is recommended by

the committee. The following regulation is suggested to be signed

either by the Public Printer or possibly by the Director of the

Bureau of the Budget

:

PROPOSED REGULATION The departments, bureaus, and offices of the Government must withdraw

copies of sruch publications as may be required for official use that have been

stored in the Government Printing Office for one year. The remaining copies

will be transferred to the Superintendent of Documents for distribution or sale, as provided for in section 67 of the printing act of 1895. Whenever the number of copies requested for official use appears excessive, the number

actually to be turned over will be determined by a board of review to be named

by the Bureau of the Budget.

Publications such as Farmers' Bulletins, some of those of the

Children's Bureau, and those where reprints are continually ordered

would have the time of distribution extended, as the date for calculating the year would be advanced when additional copies were

printed.

Realizing that some of the departments might attempt to withdraw their active stocks under the authority granted for retaining

copies for their official use, it seemed advisable to create an outside

agency for reviewing requisitions that seemed excessive, and possiblj^

made for the purpose of evading the law. No doubt some of the

departments will register objections to surrendering their stocks of

publications on the ground that the functions of their offices will be

handicapped. Where it has been their practice to use publications

as a means of reducing correspondence by sending marked copies, it seems to the committee that reference could be made to the publication, quoting sales price, if copies were no longer available for free

distribution. In cases where the departments fail to retain a suffi- cient number of copies for official use, the law will permit turning

back copies taken over by the Superintendent of Documents so long

as copies received from the departments are available in stock. MAIL LIST SECTION

The stenciled mailing lists on June 30, 1927, had reached a total of 1,339 separate lists, an increase of 119 during the year, and the

number of names on these lists had increased from 848,396 to 900,000.
Reports of Superintendent of Documents 103

Xew lists received from the Department of Agriculture accounted for

most of the increase, as they added 91 within the year. More departments have adopted the practice of sending out an- nouncement cards for new publications, so that the recipient may

select the publications if of interest to him. This is far better than

the old plan of sending out the publications without affording an

opportunity for selection. The change in policy, coupled with the

card work involved in the revision of the mailing lists, required the

making of 800,000 impressions from the stencils last year, which was

in addition to the 23,166,824 impressions made on envelopes, labels,

and wrappers used in mailing publications.

Six new publications were placed on a subscription basis last year, which now makes a total of 64. The greatest difficulty experienced

in subscription work is the congestion which occurs at various periods

of the year as a result of the large number of subscriptions expiring

at the same time. There seems to be no practical way of preventing

this congestion. During the month of June 30,000 expiration notices were sent out, largely on account of the nibnthly supplement to the

Postal Guide.

PUBLICATIONS ISSUED BY THE OFFICE

Index to Monthly Catalogue, July, 1925. to June, 1926 (196 octavo

pages).

Twelve numbers of Monthly Catalogue, July, 1926, to June, 1927

(totaling 969 octavo pages).

Twenty-eighth Preliminary Schedule of Volumes, Reports and

Docmnents of the Sixty-ninth Congress, first session, December 7, 1925, to November 10, 1926, and special session of the Senate, March

4 to 18, 1925 (7 octavo pages).

Document Index No. 36, Sixty-ninth Congress, first session, December 7, 1925, to November 10, 1926, and special session of the Senate,

March 4 to 18, 1925 (380 octavo pages)

.

Fifty price lists and three leaflets. The Document Index, No. 36, Sixty-ninth Congress, first session,

December 7. 1925, to November 10, 1926, listed above, is the largest

Document Index issued since No. 18, Sixty-second Congress, first and second sessions. 1911-12. No. 36 indexes 3,438 documents,

divided as follows: 1,189 Senate reports; 1,607 House reports: 161

Senate documents; 481 House documents.

The Document Catalogue of the Sixty-sixth Congress, July 1, 1919,

to June 30, 1921, is in course of preparation, and it is hoped to have

it ready for printing at an early date in the new year. DEPOSITORY LIBRARIES

The last annual report of the Public Printer called attention to the lack of flexibility of the present depository law to meet changing

conditions, because it was based upon an arbitrary designation of

libraries on geographic lines. Certain suggestions were made which

were incorporated in Senate bill 4973, Sixty-ninth Congress, second

session, introduced by Senator Johnson, of California. This bill, which failed to pass, provided that the designations should be made

jointly by the Superintendent of Documents and the Librarian of
104 Annual Report of the Public Printer

Congress. Doctor Putnam, however, believes the bill should be

changed so that the Librarian of Congress would act only in an

advisory capacity. His argument for such change is that the

Librarian of Congress has fewer channels of information open to him than those that are available to the Superintendent of

Documents.

A copy of Senator Johnson's bill was sent to about 75 of the

prominent libraries and their replies indicated that they were unanimous in their approval of the legislation.

The question of change in the law was discussed at the Toronto

conference, June 20 to 25, 1927, of the American Library Association, and the following resolution was passed June 24, by the council

of the American Library Association

:

Whereas the distribution of public documents by the United States Govern- ment has always been a subject of vital interest to librarians and therewith,

also, the allotment of designated depository libraries ; and

Whereas Senator Johnson, of California, introduced into the United States Senate in the second session of the Sixty-ninth Congress Senate bill No. 4973, which would provide for a more equitable designation of depository libraries throughout the States, and from which should result a wider and fairer distri- bution of the publications of the National Government ; Therefore be it Resolved hy the Council of the American Llhrary Association, That the ap- proval of the association be given to the project of securing by proper legal action a more just and equitable designation of depository libraries in the United

States ; and that the proper committees of the association are hereby authorized

to take appropriate action to accomplish this result. MIMEOGEAPHED AND MULTIGRAPHED MATERIAL

During the past year the documents office has been conducting a study and investigation of the material issued by mimeographed,

multigraphed, or other duplicating processes, as to the amount and

character, the first object being to determine what to keep, how much

is of such permanent value as to justify filing and entering in the

library and catalogues; also the care, treatment, and annotation for

that only temporary in character. After taking into account the

material being received by the library, the following report was

submitted

:

The executive departments, the bureaus thereunder, and the various inde- pendent Government offices have for some time past put out considerable material mimeographed, multigraphed, and done by other processes of "near

printing." This material is not all ephemeral as press notices, office memoranda, etc., but embraces well-defined series, periodicals, and reports, which

are of permanent value and would seem of sufficient importance to warrant

printing. Some series which have been mimeographed for some time and later printed are as follows: Weekly News Letter, issued by the Department of Agriculture, volume 1, Nos. 1 and 2, mimeographed; volume 1, No. 3, to volume 9, complete, printed. Forest Worlier, issued by Forest Service, September, 1924, to November, 1926, mimeographed; January, 1927, to date, printed.

Agricultural Situation, issued by the Agricultural Economics Bureau, vol- umes 1 to 10 mimeographed; beginning with volume 11 (current volume),

printed.

Technical News, issued by Bureau of Standards, Nos. 1 to 96, mimeographed

;

No. 97 to date, printed.

Reading Courses, issued by Bureau of Education, Nos. 1 and 2, mimeographed

;

Nos. 3 to 30 and later edition of 1 and 2, printed.

Venereal Disease Information, issued by Public Health Service, volumes 1 to 4, No. 4, mimeographed ; volume 4, No. 5, to date, printed.
Reports of Superintendent of Documents 105

This material is a serious problem to those receiving it from the various

offices, especially the libraries, and the question is what shall be kept and what

discarded. The public documents library keeps well-defined series and periodicals and reports of value, but does not by any means receive all valuable

material, nor is there any sure way of checking up. Material is discarded

which seems to be of only temporary value, such as press notices, advanced

information later to be incorporated in permanent reports. The recommendation that the public documents library receive all mimeographed material having been approved, the following letter,

dated April 25, 1927, was sent to all officers of the Government

establishments

:

To Officers of the Government Estadlishments: For recording in the official catalogues and indexes of the Federal Govern- ment section 62 of the act of January, 1895 (28 Stat. L. p. 611), provides that

the head of each of the executive departments, bureaus, and offices of the Government shall deliver to the Superintendent of Documents a copy of each

and every document issued or published by such department, bureau, or office not confidential in its character. Under the authority granted by this act it is requested that copies of all such publications, whether printed from type, mimeographed, multigraphed, or produced by any other duplicating process, be supplied regularly and promptly

to the Superintendent of Documents. In all cases address to the Library, Office of Superintendent of Documents, Government Printing Office, Washington, D. C. Your compliance with the above request is necessary in order that the Govern- ment catalogues and indexes may properly record this valuable information. In reply to this letter quantities of mimeographed and multigraphed material have been received. Most of it was deemed advisable to keep in the library, even if not entered in the Monthly

Catalogue, and it will probably be entered in the Document Catalogue. The well-defined series are classified and treated in the

library as any other series, and most of this material consists of

periodicals or continuations. Miscellaneous material are assigned to

classes at the end of the issuing office designated as "Z" classes; that is, capital " Z " after the period and before the colon. These

classes are modified after the " Z " if more than one, book numbers

being assigned in the same manner as for the regular classes of

printed publications.

Librarians have been greatly surprised at the value of much of

this material—so good that it ought to be printed. Some valuable

material is preliminary in character, subject to revision, and later

to be incorporated into permanent reports, but it serves its purpose,

namely, to advise the public relative to conditions both at home and

abroad. This holds good especially for statistical reports put out by the Census Bureau and the Bureau of Foreign and Domestic

Commerce. It is recommended that this preliminary material be

not entered in a permanent form, but held for a time until the final report has been received.

It is hoped shortly to submit a plan listing such material to be

held in the public documents library, also what to be discarded at once and what to be retained for a time, to be determined by the

character, purpose to be served, and frequency of issue. To care for

this material so that it serves its purpose involves additional work,

but as soon as it is systematized we hope to keep it up to date. Until

(hen a final report as to its usefulness to the office can not be made.
106 Annual Report of the Public Printer

Following are a few examples of miscellaneous mimeographed

publications, which will give an idea of some of the subjects treated

:

Bureau of Agricultural Economics

:

Marketing Western New York Peaches, Season 1926 ; by R. L. Sutton and

A. L. Thomas.

Agricultural Situation in Austria ; by Louis G. Michael. 1923. Cattle Situation in Argentina ; by George B. L. Arner. Character of Farm Prices of Farm Products and Wholesale Prices of Nonagricultural Commodities ; by months, 1910-1926. June, 1927. The July, 1927, Hog Outlook. Development of Cooperative Cotton Gins in Northern Texas, A Preliminary

Report. June, 1927. Beginnings of Cooperative Dairy Organizations. A Preliminary Report. June, 1927. Cooperative Marketing of Wool, 1920-1926. June, 1927. Note.—This bureau does not maintain a mailing list for its mimeographed material, but it is listed in State and Federal Marketing Activities, a weekly mimeographed periodical issued by the bureau, making it possible to note and, if desirable, apply for copies.

Federal Board for Vocational Education:

Personality and Leadership in Prospective Home Economics Teachers. February, 1926. Report of Western Regional Conference on Civilian Vocational Rehabilitation, Salt Lake City, Utah. January 25, 26, 27, 1927. Overcoming Prejudices Against the Employment of the Physically Disabled. November 1, 1926. Organized Cooperation in Civilian Rehabilitation, Michigan, Minnesota,

Wisconsin. July 1, 1926. Tenth Annual Southern Region Conference, Agriculture, San Antonio, Tex. March 28 to April 2, 1927. Vocational Education for Those Engaged in the Retail Meat Business;

Conference Topics on Pricing Fresh Meat.

Note.—These are designated as Misc. (number). They are on various

subjects having to do with the work of the board in preparing the veterans of the World War to earn a living along lines best suited to the individual. Of especial interest are the reports of different region conferences held in different parts of our country along different vocational lines. We regret that we have not the earlier reports and it is doubtful if they can be secured now. Those we have came in reply to the letter of April 25. 1927. Tariff Commission

:

Bentwood Chairs, Cost of Production.

Fluorspar, Cost of Production. Maple Sugar and Maple Sirup, Cost of Production. Note.—The above titles have been issued as preliminary statements, pursuant to provisions of section 315, Title III, of the tariff act of 1922. At the 1927 conference of the American Library Association, in

Toronto, Canada, the librarians of business libraries stressed the

value of mimeographed material to their patrons. Being received

much more promptly than possible were it printed, it gives out

advance information, statistics, and statements showing the trend of

manufactures, markets both at home and abroad, production of foodstuffs, livestock, growth of cities, etc. To a business man or firm

material affecting his business is of vital importance, and the library

that can serve him is a labor saver as well as a source of information.

The issuing establishments of the Government ought to adopt a

color scheme, using the same color for all press notices, another for

material prepared to answer correspondence, short statements to be

inclosed in official letters and form letters, another for preliminary

statements to be later incorporated in reports ; in fact, using as many

colors as the character of the advanced information put out by an
Reports of Superintendent of Documents 107

individual office warrants. This would make the sorting much easier,

being able to determine at a glance where to place it. Permanent

material should be on white paper.

To the Public Printer we would suggest that a campaign be carried on with the issuing offices to the end that material of permanent value

will be printed. In time, mimeographed publications deteriorate, the

paper being poor and the printing not distinct. We recommend that

the public documents library receive all mimeographed material, dis- carding the undesirable, noting the title, and indicating that it was

not kept in the library ; other material to be discarded from time to time, listed as briefly as possible, noting how long to hold before dis- carding. Material of a permanent value from our standpoint should

be retained and entered as real publications, whether classified in a

" Z " class or as a series in the regular classification. Some series are partly printed and partly mimeographed. In the past it has been

advisable to assign a class to such publications, even if only one be

printed out of a number, hoping that in the future all would be printed.

In such cases the printed ones are entered in the Monthly Catalogue

with a note to the effect that the mimeographed ones are not entered

in the catalogue.

CONCLUSIONS AND RECOMMENDATIONS

The study now being made will no doubt result in improved service,

but the real reason for dela}^ in handling orders is that the business

of the documents office has outgrown the present force. The cash

orders received last year totaled 417,543, which was 42,628 more than

for the previous year, or an increase of over 11 per cent. The inevi- table result of such an increase is need for additional employees for

all sections of the office, who have been provided for in our estimates

for the next year's appropriation.

The business of the office having passed the half-million mark,

there should be a separation in the work now supervised by the

cashier, so as to confine his duties to the receipt and disbursement of

cash. This would make necessary the creating of a bookkeeping

section to handle all book records, ledger accounts, and auditing and

analysis of cash mail. At the present time clerks connected with

the cashier and bookkeeping section are used in the opening of the

mail, to the detriment of their own work, which practice should be

changed by providing a separate group of employees to handle

exclusively the opening of the mail.

Another recommendation is that a section be created to have charge

of the ordering of all publications for sale and the examination of

stock for the purpose of eliminating excess and obsolete publications.

There is no question as to the need of such a section, and its activities directed along the proper lines would result in improved service. Respectfully submitted.

Alton P. Tisdel,

Superintendent of Documents.


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