DEPARTMENT OF COMMERCE

BUREAU OF STANDARDS

S. W. STRATTON j« DIRECTOR

MISCELLANEOUS PUBLICATIONS—No. 41

Weights and Measures

Twelfth Annual Confi^rence

OF REPRESENTATIVES FROM VARIOUS STATES

HELD AT THE BUREAU OF STANDARDS

WASHINGTON, D. C. MAY 21, 22 23, AND 24, 1919

PRICE. 20 CENTS

Sold only by the Superintendent of Documents, Government Printurg Office, Washington, D. C.

WASHINGTON

GOVERNMENT PRINTING OFFICE

1920

DEPARTMENT OF COMMERCE

BUREAU OF STANDARDS

S. W. STRATTON ^ DIRECTOR

MISCELLANEOUS PUBLICATIONS—No. 41

Weights and Measures

Twelfth Annual Conference

OF REPRESENTATIVES FROM VARIOUS STATES

HELD AT THE BUREAU OF STANDARDS

WASHINGTON. D. C. MAY 21. 22, 23. AND 24. 1 919

PRICE. 20 CENTS

Sold only by the Superintendent of Documents, Govenunent Printing Office, Washington, D. C.

WASHINGTON

GOVERNMENT PRINTING OFFICE

1920

OFFICERS AND COMMITTEES.

OFFICERS.

President, S. W. Steatton, Director, Bureau of Standards, Washington, D. C. First Vice President, Chas. G. Johnson, State Superintendent of Weights and

Measures, Sacramento, Calif. Second Vice President, Thxjbe Hanson, Commissioner of Standards, The State- house, Boston, Mass.

Secretary, Louis A. Fischer, Chief, Division of Weights and Measures, Bureau

of Standards, Washington, D. C. Treasurer, Feank Wanser, State Superintendent of Weights and Measures,

Trenton, N. J. COMMITTEES.

EXECUTIVE COMMITTEE.

S. W. Steatton,

Chas. G. Johnson,

Thttee Hanson,

LoTJis A. Fischer,

Feank Wansee,

Hso officio.

F. G. Baenaed, Sealer of Weights and Measures, Battle Creek, Mich.

W. F. Gluett, Chief Deputy Inspector of Weights and Measures, Chicago, 111. T. F. Egan, Superintendent of State Police and State Superintendent of Weights

and Measures, Hartford, Conn.

D. A. Gbegg, Deputy State Superintendent of Weights and Measures, Austin, Tex.

J. J. HoLWELL, Commissioner, Mayor's Bureau of Weights and Measures, Municipal Building, New York City. T. L. lEviNE, Inspector of Oil, Weights, and Measures, Salt Lake City, Utah.

T. F. Mahoney, Sealer of Weights and Measures, Chattanooga, Tenn.

O. Evans Mikesell, County Sealer of Weights and Measures, Washington, Pa.

J. M. Mote, Assistant Chief State Inspector of Weights and Measures, State- house Annex, Columbus, Ohio. Chas. C. Neale, State Commissioner of Weights and Measures, Old State Capitol, St. Paul, Minn.

Anton Runbeck, State Inspector of Weights and Measures, Mobridge, S. Dak.

R. W. Smith, Chief State Inspector of Weights and Measures, Madison, Wis.

W. F. Steinel, Sealer of Weights and Measures. Milwaukee, Wis.

G. B. Stewaet, State Inspector of Weights and Measures, Morgantown, W. Va.

F. W. Ttjce^k, Chief State Inspector of Weights and Measures, Indianapolis,

Ind. H. A. Webster, State Commissioner of Weights and Measures, The Statehouse,

Concord, N. H. W. T. White, Director, Bureau of Weights and Measures, Albany, N. T.

F. L. Woodwoeth, Food and Drug Commissioner, and ex officio State Superin- tendent of Weights and Measures, Lansing, Mich.

COMMITTEE ON SPECIFICATIONS AND TOLERANCES.

F. S. HoLBEooK, Inspector of Weights and Measures, Bureau of Standards,

Washington, D. C. Charles G. Johnson, State Superintendent of Weights and Measures, Sacra- mento, Calif. W. F. Cluett, Chief Deputy Inspector of Weights and Measures, Chicago, 111. 3
4 BTJEEATT OF STANDAEDS.

COMMITTEE ON LEGISLATION.

D. A. Geegg, Deputy State Superintendent of Weights and Measures, Austin, Tex. Joseph J. Holweix, Commissioner, Mayor's Bureau of Weiglits and Measures,

New York City.

I. M. Howell, State Superintendent of Weights and Measures, Olympia, Wash.

R. W. Smith, Chiul; State Inspector of Weights and Measures, Madison, Wis.

Edwin F. Stimpson, Deputy State Sealer of Weights and Measures, Lawrence,

Kans. ACTING COMMITTEES FOR THIS CONFERENCE.

committee on publicity. Leo S. Schoenthal.

O. Evans Mlkeseix.

Benj. M. Sharp.

committee on enteetainment.

A. W. Schwaetz.

F. G. Baenaed.

C. A. Bbiggs. IN CHAEGE OF EXHIBITS. M. J. J. Haueison.
LIST OF PERSONS WHO ATTENDED THE CONFERENCE.

STATE DELEGATES.

Connecticut Chas. A. Fine, Deputy Superintendent of Weights and

Measures, Hartford. Walter F. Stiles, State Inspector of Weights and Measures. Hartford.

District of Columbia Geo. M. Roberts, Superintendent of Weights, Measures, and Markets, Washington.

Dela\7are Clarence C. Killen, Chairman, State Survey Commission, Church Building. Wilmington.

Frank L. Grier. Milford.

Illinois Wm. F. Cluett. Chief Deputy Inspector of Weights and

Measures of Chicago, Chicago. Indiana Frank W. Tucker, Chief State Inspector, Statehouse,

Indianapolis. Kansas Edwin F. Stimpson, Deputy State Sealer of Weights and

Measures, Lawrence.

Massachusetts Thure Hanson, Commissioner of Standards, 194 State- house, Boston.

P. J. Tetrault, Inspector of Standards, 194 Statehouse, Boston. Michigan Fred 1j. Woodworth. Food and Dnig Commissioner, ex

officio Superintendent of Weights and Measures, Lansing. Minnesota G. H. Staples. Inspector of Weights and Measures, St. Paul. Nebraska Leo Stuhr, Deputy Commissioner of Weights and Measures, Jvincoln. New Hampshii'e Harold A. Webster, Commissioner of Weights and Measures, Statehouse, Concord. New Jersey Frank Wanser, State Superintendent of Weights and

Measures, Trenton, A. W. Schwartz, Assistant State Superintendent of Weights and Pleasures, Elizabeth.

J. Frank Fowler, Assistant State Superintendent of Weights and Measui'es, 120 Bridge Street, Trenton. Elliott Bolstron, Assistant State Superintendent of Weights and Measures, 128 Maple Avenue, Newark.

Charles H. Holtz, Assistant State Superintendent of Weights and Measures, 120 Bridge Street, Trenton. New York W. T. White, Dii'ector, Bureau of Weights and Measures, Albany.

John F. Farrell, formerly State Superintendent of Weights and Measures. 55 Liberty Street, New York

City. F. Reichmann, formerly State Superintendent of Weights

and Measures. 164 Plant Avenue. Webster Groves. Mo.

Ohio John M. Mote. Assistant Chief Inspector. Statehouse Annex, Columbus.

Pennsylvania James Sweeney, Commissioner of Weights and Measures.

Harrisburg.

Rhode Island W^m. F, Goodwin. State Sealer of Weights and Measures, Room 20, Statehon.?e, Providence. South Carolina H. W. McCreight, Chief Clerk, Department of Agriculture, Commerce, and Industry, Columbia.

South Dakota Anton Runbeck. State Inspector, Mobridge. Tennessee T. F. Mahoney, Sealer of Weights and Measures, City

Hall, Chattanooga, Texas D. A. Gregg, Deputy Superintendent of Weights and

Measures, Austin. Utah T. L. Irvine, Inspector of Oil, Weights, and Measures,

Salt Lake City. 5
6 BUREAU OF STANDARDS.

Virginia C. H. Morrissett, Secretary, Board of Legislative Research of Virginia, Richmond.

West Virginia G. B. Stewart, Inspector of Weights and Measures, 194 Charles Avenue, Morgantown.

Wisconsin Ralph W. Smith, Chief Inspector of Weights and Measures, ISIadison. CITY AND COUNTY DELEGATES.

Connecticut: Bridgeport Dennis Kelly, Sealer of Weights and Measures.

Fairfield County William H. Brown, County Sealer of Weights and Measures, Bridgeport.

New Britain Carl A. Carlson, Inspector of Weights and Measures, 76 Prospect Street. Stamford John F. Britton, Sealer of Weights and Measures.

District of Coliunbia: Washington Leo S. Schoenthal, Chief Inspector of Weights, Measures, and Markets, District Building. Geo. a. Howe, Inspector of Weights, Measures, and Markets, Room 313, District Building.

W. C. Diller, Inspector of Weights, Measures, and Markets, Room 313, District Building. James T. Townsend, Inspector of Weights, Measures, and Markets, Room 313, District Building.

George C. Wright, Inspector of Weights, Measures, and

Markets, Room 313, District Building.

Illinois: Chicago Wm. F. Cluett, Chief Deputy Inspector of Weights and

Measures.

* Indiana:

Indianapolis Ed. McGuff, City Sealer of Weights and Measures. Terre Haute. J. A. Buck, Deputy State Inspector of Weights and Measures, 833 North Fifth Street. Iowa:Sioux City H. Michelstetter, Sealer of Weights and Measures, 1510

Pierce Street. Kentucky:

Jefferson County Willson Ogden, Inspector of Weights and Measures,

Louisville. H. P. Ogden, Inspector of Weights and Measures, Louisville. Maine:

Portland Augustus F. Bove, Sealer of Weights and Measures.

Massachuisetts: Beverly Robert J. Rafferty, Sealer of Weights and Measures. Cambridge Felix C. McBride, Sealer of Weig"hts and Measures,

Brattle Square. Lowell Warren P. Riordan, City Sealer of Weights and Measures. Newton Andrew Prior, Sealer of Weights and Measures, City

Hall. Salem George L. Day, Sealer of Weights and Measures. Michigan:

Battle Creek Fred G. Barnard, City Sealer of Weights and Measures, City Hall. Detroit George F. Austin, Sealer of Weights and Measm'es.

Flint Edw. J. Friar, Inspector of Weights and Measures, City

Hall. Montana:

Phillips County W. G. Schneider, Clerk and Recorder, Malta. New Jersey: Bayonne Harry Mainhard, Superintendent of Weights and Measui'es. Bergen County John R. O'Connor, Superintendent of Weights and Measures, North Arlington.

Burlington County John B. Burtis, County Sealer of Weights and Measures, Columbus. ,
LIST OF PERSONS WHO ATTENDED THE CONFERENCE. 7

New Jersey—Continued.

Camden Harry F. Redding, Superintendent of Weights and

Measures. Cape May County Paul E. Carroll, Superintendent of Weights and Measures, Dennisville. Elizabeth William J. Bender, Superintendent of Weights and

Measures.

Gloucester County Wm. P. Asdell, Supeiintendent of Weights and Measures, National Park. Hudson County Thomas J. Waldron, Superintendent of Weights and

Measures, Courthouse, Jersey City.

Jersey City John S. Burke, Superintendent of Weights and Measures. Kearny (Newark P. 0.)JoHN D. Castles, Superintendent of Weights and Measures. Mercer County Stephen Plant, Superintendent of Weights and Measures, 1055 Indiana Avenue, Trenton. Middlesex County . . . Nathan Robins, Sealer of Weights and Measures, Metuchen. Monmouth County G. V. Johnson, Superintendent of Weights and Measures, Highlands.

Morris County Henry S. Worman, Superintendent of Weights and Measures, Boonton. Newark John 13. Sullivan, Superintendent of Weights and Measures, City Hall. Patrick J. Caufield, Assistant Superintendent of Weights

and Measures. Thomas J. Brennan, Super\'ising Inspector of Weights

and Measures, 173 Thirteenth Avenue. Bernard J. Kelly, Assistant Superintendent of Weights and Measures, 436 South Fourteenth Street. Passaic County Harry Rosenfelt, County Superintendent of Weights

and Measures, Paterson. Trenton James O'Donovan, Municipal Superintendent of Weights

and Measures. Union County Isaac Seeley, County Superintendent of Weights and

Measures, 25 Rohway Avenue, Elizabeth. Warren Abram Raub, County Superintendent of Weights and

Measures, Harmony.

New York:

Allegany County Allen W. CoRwm, Sealer of Weights and Measures, Wellsville. Erie County Clarence L. Egbert, Acting Count}^ Sealer of Weights

and Measures, Alden. Greene County Archie D. Clow, Sealer of Weights and Measures, Catskill. New York City Joseph J. Holwell, Commissioner, Mayor's Bureau of Weights and Measm-es, Municipal Building.

Fred H. Tighe, Deputy Commissioner, Mayor's Bureau

of Weights and Measures. Steuben County Leonard B. Walker, Sealer of Weights and Measures, Bath. North Carolina: New Hanover County. G. C. Simmons, Standard Keeper, Wilmington.

Ohio:Champaign County W. S. Coffey, Count\' Auditor, Urbana. Columbiana County... R. M. Patterson, Lisbon. Knox County J. C. Tinkey, Deputy County Sealer of Weights and Measures, Mount Vernon. Medina County J. D. Dannley, Deputy Sealer of Weights and Measui'es, Medina.

Pennsylvania:

Allegheny County. . . .George B. Moore, Chief Inspector of Weights and Measures, Pittsburgh.

Allentown B. Frank Rinn, Inspector of Weights and Measures. Bethlehem Erwin H. Seifert, Inspector of Weights and Measures. Bucks County L. C. Gorwell, Inspector of Weights and Measures, Holland.
8 BUREAU OF STANDARDS.

Pennsylvania—Continued. Cameron County P. H. Wheaton, Inspector of Weights and Measures, Emporium.

Chester County Chas. C. Townsend, Inspector of Weights and Measures, West Chester. Harrisburg George B. Nebinger, Bureau of Weights and Measures,

222 Market Street. Lehigh County Harry Biery, Inspector of Weights and Measures, Allen- town. Philadelphia County. .Benj. M. Sharp, Chief Clerk, Bureau of Weights and

Measures, 119 Parkway Building, Philadelphia. T. A. Seraphin, Special Inspector of Weights and Measures, 119 Parkway Building, Philadelphia.

PittsbTirgh Murray G. Livingston, Chief Inspector, 225 City and

County Building.

William B. McGrady, Inspector of Weights and Measures, 225 City and County Building.

Washington County 0. Evans Mikesell, County Sealer of Weights and Measures, Washington.

Tennessee: Chattanooga T. F. Mahoney, Sealer of Weights and Measures. Utah:

Salt Lake City T. L. Irvine, Inspector of Oil, Weights, and Measures.

Virginia:

Roanoke C. R. Vaughan, Sealer of Weights and Measures. Wisconsin: 'Milwaukee Wm. F. Steinel, Sealer of Weights and Measures. DELEGATES FROM STATE ASSOCIATIONS OF WEIGHTS AND

MEASURES.

Massachusetts State Association of Sealers of Weights and Measiu-es: George L. Day, Sealer of Weights and Measures of Salem, Mass. New York Weights and Measures Association of the State of New

York:

F. Reichmann.

VISITORS REPRESENTING MANUFACTURERS.

American Automatic Scale Co.

:

Henkt Deemer, Service Man, 100 Weirfield Street, Brooklyn, N. Y. American Kron Scale Co.

:

F. V. Atlee, District Manager, Baltimore, Md.

Ernst Ohnell, Treasurer, 430 East Fifty-third Street, New York, N. Y. Angldile Scale Co.

:

F. A. Gates, Superintendent, Elkhart, Ind.

J. G. SIMMS, President, Elkhart, Ind. Chatillon, John, & Sons

:

J. G. HuGEL, 87 Clife Street, New York, N. Y. Dayton Moneyweight Scale Co.

:

D. J. Moynihan, Eastern Sales Manager, Boston, Mass.

Detroit Automatic Scale Co.

:

W. J. Barnes, Special Representative, Detroit, Mich. Dover Stamping Manufacturing Co.

:

E. S. Rice, Cambridge, Mass. Carlton S. Whitney, Cambridge, Mass. Horace E. Whitney, President, 385 Putnam Avenue, Cambridge, Mass.

E. & T. Fairbanks & Co.

:

L. R. Boyer, Traveling Representative, St. Johnsbury, Vt. P. C. Brooks, General Manager, 30 Church Street, New York N. Y. The Fairbanks Co.

:

C. J. LaFoege, 416 Broome Street, New York, N. Y. General Automatic Scale Co.

:

L. F. Amsden, Baltimore, Md.

Edwin C. Jones, Woodard Building, Washington, D. C. W. F. Siegmund, Sales Manager, 41.5 Pierce Building, St. Louis, Mo. M. D. Vaeney, 21 Park Row, New York, N. Y.
LIST OF PERSONS WHO ATTENDED THE CONFERENCE. 9

Gilbert & Barker Manufacturing Co.

:

A. B. Dickinson, Wasliington, D. C. Elmer E. Yake, Engineer, Springfield, Mass. Guarantee Visible Measure Sales Co.

:

W. S. TowNSEND, Vice President, Washington, D. C. Henry Troemner

:

Samuel B. Peteeman, Philadelphia, Pa. Liquid Measuring Device Corporation:

J. F. MiLLiGAN, 120 Broadway, New York, N. Y. Louis F. Nafls (Inc.) : Louis F. Nafis, President, 544 Washington Boulevard, Cliicago, 111. Mabel S. N.^tis, Secretary, 544 Washington Boulevard, Chicago, 111. The Measuregraph Co.

:

J. A. Cochrane, District Manager, 349 Fifth Avenue, New York, N. Y. D. C. Palmer, Northeastern Representative, 99 Chauncy Street, Boston, Mass.

Pelouze Manufacturing Co.

:

Albert A. Guaedia, Sales Manager, Chicago, 111. S. F. Bowser & Co.: D. A. Corey, Factoi'y Manager, Fort Wayne, Ind.

.T. F, Gibbons, Representative, 206 Evans Building, Washington, D. C.

L. F. Johnson, Manager, Experimental Section, Fort Wayne, Ind. D. J. MiLLiGAN, Executive Assistant, Fort Wayne, Ind. Smith Scale Co.

:

J. F. Sullivan, Special Representative, 611 North Forester Street, Co- lumbus, Ohio. Standard Computing Scale Co.

:

M. D. RiBBLE, Detroit, Mich.

Standard Scale and Supply Co.

:

A. H. Chesley, Special Representative, 1631 Liberty Avenue, Pittsburgh, Pa. Nathan Hause, Manager, Baltimore, Md.

Tokeim Oil Tank & Pump Co.

:

J. A. Meskel, Agent, Fort Wayne, Ind. M. B. Maixen, Vice President, Fort Wayne, Ind. Toledo Scale Co.:

G. A. W. Bell, General Agent, 221 North Calvert Street, Baltimore, Md.

George R. Fbye, Toledo, Ohio.

C. B. Haskim, Salesman, 221 North Calvert Street, Baltimore, Md.

H. O. Hem, Consulting Engineer, Toledo, Ohio. .ToHN L. Theobald, Eastern Representative, 1219-21 Filbert Street, Philadelphia, Pa. Wayne Oil Tank & Pump Co.

:

F. A. Bean, Consulting Engineer, Chicago, 111. Whitall Tatum Co.

:

Ben.j. S. Thorpe, Assistant Manager, 410 Race Street, Pldladelphia, Pa. Wm. H. Nicholson, Jr., Assistant Works Manager, Millville, N. J. Winslow Government Standard Scale Works

:

Maelow H. Winslow, President, Terre Haute, Ind. W. & L. B. Gurley

:

H. M. Dibert, Sales Manager, Troy, N. Y. W. L. Egy, Assistant Engineer, Troy, N. Y. VISITORS REPRESENTING RAILROADS AND WEIGHING DEPARTMENTS.

Alfrey, H. H., Scale Inspector, C, R. I. & P. Ry. Co., El Reno, Okla,

Barry, Kellee H., Foreman Scale Shop, Pa. R. R. Co., Altoona, Pa. Basler, F. M., Scale Inspector, Pa. R. R. Co., Altoona, Pa. Chapman, W. S., Scale In.spector, P., C, C. & St. L., Indianapolis, Ind. DowEE, John, Supervisor Weights, Merchants Exchange, St. Louis, Mo.

Epright, a. W., Chief Scale Inspector, Pa. R. R. Co., Altoona, Pa.

GiFFOED, Jas. S., Foreman, Scale Department, Carnegie Steel Co., Munhall, Pa. GoE, R. B., Superintendent of Weighing, I. C. R. R., Chicago, 111. Gordon, B. B., Scale Inspector, Pennsylvania Lines West, Logansport, Ind. King, C. A., Chief Scale Inspector, Western Weighing and Inspection Bureau,

Chicago, 111. Ladd, M. H., Chief Weigher, Chamber of Commerce, Milwaukee, .Wis.
10 BUREAU OF STANDARDS.

Mayfield, R. R., Assistant Scale Inspector, Pennsylvania Lines West, Cincinnatti, Ohio. MUENCH, W. J., Chief Clerk, Weighing Department, A., T. & S. F. R. R., Chicago, 111. Peesun, C. a.. Scale Inspector, Pa. R. R. Co., Altoona, Pa. Sghmitz, J. A., Asisistant Weighmaster, Board of Trade, Chicago, III. Ward, William C, Scale Inspector, Pa. R. R. Co., Altoona, Pa.

Zeibel, a. G., Supervisor of Scales, T. & P. R. R., Texarkana, Tex. VISITORS REPRESENTING GOVERNMENT DEPARTMENTS.

Alsberg, C. F., Chief, Bureau of Chemistry, Washington, D. C. Baker, Thomas C. J., Inspector, Bureau of Markets, Washington, D. C. Downing, Feed P., Investigator in Marketing, Bureau,of Markets, Washington,

D. C. Gatewood, C. B., Lieut. Col., Ordnance, U. S. Army, War Department, Washington, D. C. Loosen, Jno. R., Weighing Supervisor, American Railway Express, Chicago, 111. Wells, W. C, Pan American Union, Washington, D. C. GUESTS AND OTHER PERSONS ATTENDING THE CONFERENCE.

BoGGS, Mrs. L. D., Secretary, Survey Commission of Delaware, Wilmington.

CoRwiN, Mrs. A. W., Wellsville, N. Y. Dannley, Mrs. .T. D., Medina, Ohio. Hasley, F. a., American Institute of Weights and Measures, New York, N. Y. HoLBROOK, Ernest E., Washington, D. C. Monk, Fred H., Official Stenographer, Washington, D. C. Reel, H. D., formerly Sealer of Weights and Measures of Harrisburg, Pa. Smith, Leslie C, Secretary, National Association of Ice Industries, Chicago, 111. Wilkinson, O. F., City Ice Delivery Co., Cleveland, Ohio.
CONTENTS.

FujST Session (Moening of Wednesday, May 21, 1919).

Page. Address by the president, Dr. S. W. Stratton 15 Report of the secretary, L. A. Fischer, chief of the Division of Weights

and Measures, Bureau of Standards 25 Report of the treasurer, submitted by L. A. Fischer, for Burr B. Lincoln- 27 Appointment of special resolutions committee 27 Reports of State delegates

:

California, Charles G. Johnson 27

Connecticut, Charles A. Fine 29 Delaware, Clarence C. Killen 30

District of Columbia, Geo. M. Roberts 31

Illinois, Wm. F. Cluett 31

Indiana, Frank W. Tucker .32 Kansas, Edwin F. Stimpson 33

Massachusetts, Thure Hanson 34

Michigan, Fred L. Woodworth 35

Second Session (As-teenoon of Wednesday, May 21, 1919).

Reports of State delegates (continued) : Minnesota, G. H. Staples 37 Nebraska, Leo Stuhr 37 New Hampshire, H. A. Webster 37 New Jersey, Frank Wanser 39 New York, W. T. White 41

Ohio, John M. Mote 41

Pennsylvania, James Sweeney 42 Rhode Island, Wm. F. Goodwin 43 South Carolina, H. W. McCreight 44 South Dakota, Anton Runbeck 45

Tennessee, T. F. Mahoney . 45

Texas, D. A. Gregg 45

Utah, T. L. Irvine 46

Virginia, C. H. Morrissett 47 West Virginia, G. B. Stewart 48 Wisconsin, Ralph W. Smith 49 Reports of delegates from other States: Maine, Augustus F. Bove 49 North Carolina, G. C. Simmons 49

Discussion of Federal approval of type of apparatus 50 Address by Thure Hanson, commissioner of standards of Massachusetts 51 Mechanical versus supervisional weights and measures work, by Ralph W.

Smith, chief inspector of weights and measures of Wisconsin 57 The sale of wood, by H. A. Webster, commissioner of weights and measures of New Hampshire 61 Progress of track-scale investigation, by E. D. Gordon, Bureau of Standards 04

Thied Session (Moening of Thuesday, May 22, 1919).

Automatic scales, by H. O. Hem 73 Appointment of committees and discussion of program 76 Short weighting in ice sales, by Leslie C. Smith, secretary, National

Association of Ice Industries 77 Discussion of above paper 80 11
12 CONTENTS.

Page. Inspection and regulation of taximeters, by George F. Austin, city sealer of Detroit 85 Remarks by F. Reichmann, former State superintendent of weights and

measures of New York 87 Salary system versus fee system of inspection, by George H. Staples,

inspector of weights and measures of Minnesota 87 Appointment of committee on resolutions 89 The present movement toward obtaining standard shipping containers for marketing fresh fruits and vegetables, by F. P. Downing, Bureau of Markets SO Discussion of above paper 94

FoTJETH Session (Afternoon or Thitksday, May 22, 1919).

Work of the Ordnance Department, by Lieut. Col. C. B. Gatewood, Ordnance, U. S. Army 99 Address in memory of Mr. John C. Connors 104 Fifth Session (Moening of Feiday, May 23, 1919). Recent developments in specifications for railroad track scales, by C. A. Briggs, Bureau of Standards 107 The meti'ic system, by F. A. Halsey, American Institute of Weights and

Measures 112

Discussion of above paper 110 Address by Hon. William C. Redfield, Secretary of Commerce 119 Weights and measures of Latin-American countries, by W. C. Wells, Pan

American Union 125

Discussion in regard to program 13;: Federal regulation of weighing and measuring devices, by Joseph J. Holwell, commissioner, Mayor's Bureau of Weights and Measures, New

York City 134

Discussion of above paper 13S Sixth Session (Afteenoon of Friday, May 23, 1919).

The problem of weights in the handling of grain, by J. A. Schmitz, assistant weighmaster, Chicago Board of Trade 140

Discussion of above paper 142 Discussion in re marking of wrapped hams, bacon, and other meats 145 Enforcement of net-weight amendment to the food and drugs act, by

C. L. Alsberg, chief, Bureau of Chemistry 148

Discussion of above paper 155 Mine scales and mine-scale investigation, by M. J. J. Harrison, Bureau

of Standards 161 Discussion of above paper 164

Election of officers 166 Report of committee on nominations 166 Seventh Session (Morning of Saturday, May 24, 1919).

Liquid-measuring pumps. A symposium of experiences and ideas for properly regulating this class of apparatus. Discussion opened by F. S. Holbrook, Bureau of Standards IGO Discussion continued by members 173

Tentative specifications and tolerances for liquid-measuring pumps pro- posed by the Bureau of Standards, and the discussion thereon 184 Report of committee on resolutions 205 Resolution in re decimal-weight flour bill 205 Resolution in re Federal serialization of type 205 Resolution in re sale of commodities by weight 205 Resolution in re metric system 206

Resolution in re education of public 207

Resolution in re standardization of packages 207
CONTEITTS. 13

Page. Report of special committee on resolutions 208 Eighth Session (Aftebnoon of Satueday, May 24, 1919).

Report of committee on resolutions (continued) 210

Resolution in re metric system 210

Resolution of appreciation to Secretary of Commerce 210

Resolution of appreciation to various members of the Bureau of Stand- ards 211

Resolution of appreciation to other persons assisting 211

Creation of permanent committee on legislation 211 Report of committee on sales by weight 212

Discussion of above report 213 Remarks by Dr. S. W. Stratton, president ^ 215

Discussion of questions involving legal procedure 218 Report of committee on publicity 222 APPENDIX.

Specifications and tolerances for liquid-measuring pumps 223

REPORT OF THE TWELFTH ANNUAL CONFERENCE ON WEIGHTS

AND MEASURES OF THE UNITED STATES

HELD AT THE BUREAU OF STANDARDS, WASHINGTON, D. C, MAY 21-24, 1919.

FIRST SESSION (MORNING OF WEDNESDAY, MAY 21, 1919).

The conference was called to order at 11.15 o'clock a. m. by Dr.

S. W. Stratton, president of the conference and Director of the

Bureau of Standards.

ADDRESS BY THE PRESIDENT, DR. S. W. STRATTOM".

Gentlemen : We are glad to see you here this morning after your

prolonged absence. I see among you a great many new faces, and,

what is more encouraging, I know from talks I have had with you,

and from your general appearance, that you come interested in the

really important business of weights and measures. This organization was established some 10 or 12 years ago or more ; so long ago that

I have lost track of it. In the early days we had meetings of half a dozen people present from two or three States interested in these

matters. It has been a hard, long, uphill job to get the weights and

measures officials throughout the country interested.

I think it well at this time to repeat our object in starting this

movement. When the Bureau was established, we were very much

surprised to find that, while Congress had given standards to each of

the States and had assisted by a little national legislation, there were many State laws, but little administration of such State legislation. The weights and measures laws of nearly every State were more or less dead letters, owing to the fact that not only in weights

and measures administration in State affairs but in national affairs we often forgot that the provision for the standard is but part of the

story. The rest is the provision for its use. Our standards at the

Bureau, no matter how carefully they are prepared, no matter how

carefully they are preserved, whether those of weights and measures

or of electricity, or temperature, or what not, do not mean much if we do not develop at the same time methods for their use. This means all the apparatus involved and the different means of providing for fixing the standards for the public and the manufacturers and comparing them with our own standards. Now, we have

realized at the Bureau that all this is an exceedingly important part

of the problem, and we have done what we could to carry out this

phase of it. Preparing for the use of a standard is far more difficult than the

preparation of the standard itself. Our efforts here included the

preparation for the use of the standards as well as the standards.

Now, the same is true in the States, but there is still something to be

15
16 BUBEAU OF STAlilDAKDS.

done, and that is the provision for the use of these standards by the

general public, and this must be through you, the administrating

officials of the States and cities. It was for the purpose of making

the Bureau helpful in this matter which pertains to your duties that

these conferences were first called. We felt that if you gathered here once a year you would see at the Bureau the latest equipment, and,

what is more important to officials from States which have not been

organized, you would have an opportunity of hearing and talking

with representatives from the States older in the business. That

has proven a remarkable success. Moreover, just as you must have the assistance of the Bureau in

carrying out this work, so the Bureau must have your assistance

in providing for the fundamentals here. It is through your organization, your representation, that we know what is necessary—^that we

can reach the public ; that we are made aware of existing conditions.

Your services are just as essential to us as ours are to you, and we

have recognized that from the beginning. Unfortunately, some of our earlier meetings were not devoted strictly to the technical things

in mind, and that was due very largely to the fact that we had but

few technical representatives present.

Now, in looking over the program for this meeting, I am delighted

to see that it is a program of definite papers—papers which will bring

out your experience ; papers by representatives of the Bureau which

will bring out their experience. A meeting conducted on such a plan can not but be very useful to both groups. The Bureau is, of course, interested in all matters pertaining to your local legislation. It en- deavors to leave those matters to local authorities ; but when it comes

to the technical questions involved, we are always glad to help, and

to that extent we are quite willing to enter into your local affairs merely in the capacity of advisor ; but beyond that we do not go and

are inclined to leave local legislation and local methods to the officials concerned. This is all the more reason why we should work through

the officials and why you should keep in close contact with the Bureau.

We have more State representatives here this morning than ever

before. We have a larger number of delegates present from all sources than we have had before, probably double the number. That means that during the last two or three years you have been active in

the States; that the subject has not been lost sight of. We have not

lost sight of it at the Bureau, and our regular correspondence and the

visits of officials to the Bureau have gone on just the same in so far

as this was found possible.

This leads me to the next part of my statement. I see I am due a

little later for a talk on war work at the Bureau, and I shall devote

the rest of the time you have allotted to me this morning to that subject. A good deal of this is not strictly related to your particular

line of work, but I know you will all be interested in it. We have seen

a decided tendency durmg the past two or three years to use the

Bureau for the lines that I have often suggested. Our weights and

measures officials can answer many, many questions and be very helpful by keeping in close touch with the Bureau. If he is asked a ques- tion in regard to building material and if he doesn't know that, he

should know that certain things are handled by the Bureau of Standards, and he ought to say, " Get in touch with the Bureau of Stand-
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 17

ards, where maybe they can help you." We want everyone of you

officials to be an agent for the Bureau of Standards in all of your

activities in so far as they relate to the development of your local

industries. We feel that the duties of your various officers, whether

State or municipal, will be very greatly enlarged and that you will

handle very many more things than you handle now. As that work

increases so your connection with the Bureau will grow in importance,

and there is no reason why the Bureau should not serve one thousand

people where it serves one now, and you can assist us very greatly in bringing that about.

During the war our functions were not changed. Our organization was not changed. We did not have enough people. We did

not have enough funds, but the military departments came to our

assistance. The Bureau is not organized along that line of activity.

Take, for example, weights and measures. You are familiar with

the Weights and Measures Division, devoted to matters pertaining

to length and capacity, weights, and time. The same staff kept at

this work, augmented by the military departments, because the questions pertaining to these matters came from the military rather than

the public. In the Weights and Measures Division the very first military activity was the standardization of precise-length gauges

used in making munitions. We know from the experience of the

Europeans that unless such gauges are standardized at a definite

place and made uniform the munitions will not be interchangeable.

Our military departments were organized on a small scale. The

navy yards and some arsenals would naturally use the things that were completely interchangeable so far as their own work was con- cerned ; but a new condition arose. It was necessary for each of the

military departments to call upon a vast number of manufacturers

to make all sorts of things here and there and assemble them. The

best illustration of that is the Liberty engine, but all sorts of munitions also fell in that class. It was necessary for the Bureau to anticipate this war need even in advance of the War Department.

Hence an - appropriation was secured for the standardization of

gauges, and at about the time this work was started the War Department then realized its importance and took from us Mr. Fischer,

chief of the Weights and Measures Division, and commissioned him

a major. That in a way was rather fortunate, because his services

there were very helpful to those people who had little experience

in such matters, but he still kept in touch with the Bureau, and this

created a working relation between the Bureau and the War Department, especially the Bureau of Ordnance, which had to do most

of this work. A very large staff was gotten together and provision

made for comparing these master gauges with the fundamental

standards of length. Thousands of such gauges were compared, and

one of the interesting things that came up in connection with this

work was our breaking away from importing certain classes of

standards.

Mechanics and those engaged in work of this kind must use end

standards; that is, standards in which the length is measured from

end to end rather than between marks on the standard. The standards in the early days were end standards, difficult to use. Scientific men require a greater degree of lirecision, and therefoi'e adopted

155530—20 -2
18 BUREAU OF STANDARDS.

line standards because they could draw very fine lines and accurately measure the distance between the lines. It is difficult to transfer

measurements from a line standard to an end standard. These end

standards which were so convenient, and which you can see when you

visit the gauge section of the Weights and Measures Division, are blocks the two opposite sides of which are at a definite distance from

each other and they must be plane and parallel. It is very difficult to take a block of material and get the two opposite sides plane and

parallel. That is why they abandoned end standards in the early

days. They didn't know how to make these opposite ends both plane

and parallel. Methods were later devised for doing this, and we

were importing from Sweden block guages made by one company.

The faces were so rperfect that they would slide together with practically noj error between. We could not, of course, proceed to use

these blocks as our; standard of measurement so we were compelled to

test them and compare them with the bar which is our standard of

length. The method of comparison finall}' adopted brought out one

of the most interesting things in the history of weights and measures. You know that for many j^ears physicists endeavored to provide a standard of length, a standard which could not be destroyed but

which could be set up anywhere. Until recently we depended upon

a particular bar of metal which was preserved somewhere and which

had graduation marks upon it. Fifteen or twenty years ago, physicists determined the relation between certain wave lengths of light,

which, as you Imow, is propagated by waves. A definite kind or color

of light is alwaj^s of the same wave length. The standard bar—the

meter gauge at Paris—was compared with the wave length of light.

Now, knowing the exact number of wave lengths in this standard

bar and knowing the relation between the standard meter and the

standard yard, we at once have the relation between all three and can

pass from one to the other as readily as from dollars to pounds sterling or the reverse. Now, such end gauges, as stated, were very difficult to compare with

line gauges, almost impossible to do with line standards, but we know

the numerical value of measurements of wave lengths of light, and we

can measure these gauges in that way. The theoretical and scientific standard that scientists developed a few years ago—the wave of

light—which is now proposed as the fundamental standard of wave

lengths, was used to test these master block gauges. They were not

measured by the standard yard or meter. Another interesting step is that during this period, when we were

testing these gauges, a gentleman came along with a method, a proposed method, for making such precision block gauges in this country.

Now, the method of making may be correct, but the workman can not

.

work any closer than he can test. His plan of making the gauges

combined with the Bureau's plan of testing by means of wave lengths

of light resulted in the making of these gauges in this country. And

when you visit the Bureau you will find that a large number of these

sets have been made and tested. The industry was entirely in Sweden

before the war. An American manufacturer is now turning out sucli gauges, Avhich had hitherto been confined to one individual firm in one

foreign country. The Avar brought out many cases where we were

compelled to depend for one article upon one producer.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASUllES. 19

In the Weights and Measures Division there was during the war

a great demand for tlie ordinary work of testing scales and weights

of precision, and so on; but these requests came from the military

bureaus, the navy yards, and arsenals which were producing enor- mous supplies and required the precise weights tested. They Avere making a great many analyses and doing experimental work ; so the

work of the Weights and Measures Division was precisely the same

as before, but there was more of it and it came from different sources. This can be illustrated in almost all parts of the Bureau. Take, for

example, other divisions—electricity, which is housed in this building. In ordinary times the Electrical Division is devoted to the development of electrical researches and measurements, radiotelegraphy, and many other practical applications of electical processes. During the war the departments were buying all sorts of electrical

machinery ; they were using all sorts of electrical devices, and you

would be surprised to know how many of these devices the Bureau

was called upon to test, especially to assist in developing.

I have time to give you just one illustration, and that is Imown as ranging, which is almost wholly an electrical problem. During the war guns were located—the position of the enemies' batteries was

located by means of sound waves—by finding the direction of the

source of sound of a gun fired at a distance, oay we had three different stations here [illustrating on blackboard]. We have these

different stations here, three or more, and there is a source of sound,

say, in the back pai"t of this room. That sound radiates in spherical waves. Sound, like any other radiant energy, goes out in all directions equally and travels in spherical waves. If the sound is produced in the back part of the room—say by a single source, like an

explosion—^that sound, traveling as the arc of a circle reaches this center first. I can put this on the board [illustrating]. The source

is shown above, and if we have our various stations along the way, we have to reach this one first, this one [indicating] later, and this one still later on. We can measure accurately the time that elapses

between its arrival at these different stations, and this gives us the

element for constructing this curve. This involves the measurement

of time to the one-thousandth of a second ; the unit is that or smaller,

and it was used on the battlefield and guns were located quite simply

with that method. It meant the measuring by these recording in- struments placed at this point and reading out the record of vibrations on the photographic strip drawn before a pencil, and also at other recording stations here and here [indicating]. All of these

instruments left their record on a film, and the difference of time

that elapses can be read from that film and may be used to compute

the distance to the gun.

One very interesting film was this record near the end of the war. One of these observing stations was observing all of these photographic strips from the various sections and interpreting them, but

at 11 o'clock on that day, the vibrations ceased, and it is just as

clear on that strip as it can be. I think some of them will show you

that strip.

[ could give you a great many examples; this we class as an elec- trical problem, because the measurement of those impulses were made

electrically. The recording devices were all operated electrically
20 BUREAU OF STANDARDS.

and the important problem of it was the electrical part of it, and we

couldn't always conduct that work on precisely the same lines. Another illustration of our work was in connection with the use

of batteries, both primary and secondary. Many millions of dollars were spent for the use of batteries, and our work in connection with

testing and specifying the performance of these batteries for the

military departments was very great. Much that we were doing was

the same thing that we had been doing for the manufacturers and the

public generally. Now, such work as is continued will be for the

public, although there has always been and will continue to be a

certain amount of military work.

Another very interesting illustration is in connection with the

Division of Heat and Thermometry. A group of men was engaged

in testing thermometers measuring the heat properties of materials,

lieat conductivities of materials used in refrigerating, and latent

heats and conductivities of all sorts of substances. A large amount

of work was done by that division in developing the constants and

other data needed hj the refrigerating industries. In the war we

needed to know a great many facts about heat engines in connection

with aviation and other kinds of internal-combustion motors. It was necessary to make measurements of radiators and carburetors

and of the engines themselves, involving these same heat principles.

The people who had been trained to make those heat measurements,

for instance, took the Liberty engine, placed it in a room and ex- hausted the air, and ran that engine under the conditions they would

find at an altitude of 30,000 to 40,000 feet. The temperature was

lowered so we had in this chamber the precise conditions we would

find above. That was a very diffic\ilt piece of investigational work

where the men engaged were these experts of the Division of Heat

and Thermometry. They were simply doing a different problem in

that same field of physics, the problem having a bearing upon

aviation.

Our Division of Optics is usually devoted to spectroscopy and

polariscopic investigations and the development of instruments of

various kinds and testing the instruments bought by the Government.

During the war they were called upon to develop all sorts of optical

instruments, gun sights, and periscopes for submarines, which it had not done before, as this division is not a military department.

We were called upon to develop optical methods for all sorts of work.

We were called upon to develop optical glass. In fact, the Bureau,

in its material sections, had been for several years and since its existence endeavoring to assist in the building up of industry in this

country, industries which did not exist before. There is no reason why we should import all of our filter paper, or our chemical porcelain, and our dyes and optical glass. We were importing glass from

Germany and graphite from India.

The Bureau for some time and for another reason had been helping establish some of these industries in this country. The Bureau

developed porcelain and optical glass. We had been experimenting

in optical glass even before the war broke out in Europe. There is no other activity which has been so hedged about with secrecy and in

the hands of few people, and we were entirely dependent upon two

or three foreign makers for the glass used. We were quietly trying

to get at these mysteries. We must be students before we attempt to
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 21

teac]\. We began in a small way and worked out some of the principles and went throng-h with it smd put up a full-sized pot whicli

produces a thousand pounds at a melt. It cost some thousand dollars. The pots we used in the beginning were those used for window glass.

But to secure the requisite quality of glass it was necessary to develop the pots themselves. At about the time we entered the war we

had a satisfactory pot developed and were familiar with the main

essentials of the glass work and were in a position to cooperate with

manufacturers, and did, when they asked, and helped the manufacturers Avho came in to niiike optical glass during the war. In 8 or

10 pots we made from 1 to 2 tons per )nonth ourselves. We learned

a great deal from that experimental work.

I could talk to you for the rest of the morning in illustrations

of that kind regarding the optical materials and instruments alone.

The time is too short. I will give yow just one more example of

optical work which illustrates the fact that one never knows what

scientific principle is going to be useful. I do not know of a single

branch of physics, I mean of what we call the purest kind of science,

that has not been used during the war and will not be used now in

time of peace. Take, for example, spectroscopy. I gave you one good illustration of that in the testing of these gauges. We have

been working on the interference of light waves in optics and we

little thought that that would have any practical importance. We

knew that in time it would be used to measure length, but it was not

suspected that it would have to be used right now. This other illus- tration was with spectroscopy. Our spectroscopists were experimenting with photographic plates. They used photogi'aphic plates

in recording the spectra of the distant stars, and in studying the

characteristics of these stars they needed plates requiring the low

end of the spectrum. We call the red end the low end, and these

plates are insensitive to the red lines. (That is the continuation of one of the war problems which we will speak of later.) They had

developed a plate—that is, a photographic plate—stained with a

certain dye that becomes sensitive to the red, and so the spectroscopists could record the longer waves in the red. which they coukl

not record on the photographic plate before. Unfortunately, it is a

particular dye made in Germany, and our supply was cut off. We

did get throughout the Avar small quantities for our use, but the

thing that is of importance is that we have succeeded in making it in this country, and that that dye will be made here from this time

on. Now, the application is this: Those red rays, the red rays of

light, penetrate fogs or mist a great deal better than other rays of

light, and some one suggested that these plates be used in aviation

photography, and they turned out to give most excellent results, be- cause they would give photographs of objects in the distance that

you could barely see with the eye, that are almost obscured by mists

and haze—give most beautiful photographs where the ordinary

method would practically give no photograph at all; so, our astro- nomical experts were sent abroad to introduce this method. Here,

again, this in time will be applied to all kinds of commercial photography. There are inany cases in commercial photography, and I suspect that even in the kodak the film Avill be stained this way so

it will give better color values in the photograph. At the present
22 BUREAU OF STANDARDS.

lime with the ordinary plates we get much higher value of lights

and blues than we should, relatively. With these two things we had

f most valuable experience in warfare, and they are going to have a greater value in time of peace. Our Chemical Division was called upon not only to work out a great many things in connection with these problemis, but in con- nection with other lines of research. Thej' had to work out pure

materials and test materials and so on, for use in our own problems.

There is scarcely a - problem that comes up which does not in some way involve the chemical department. You have seen that in the

development of helium gas for balloon work. We are not so sure but that the suggestion arose from this Bureau.

At the time the war broke out we had no balloon fabric in this

country. Now, the people interested and our experts and manufacturers got together and the Bureau's particular function was to examine these fabrics for their property of holding the gas—their

impermeability to gas. A good fabric will not let the hydrogen go

through, but hydrogen is difficult to keep in. Then there were many problems like the development of " dope " for airplane fabric. Such fabric is coated with a varnish, called a

" dope," and that consisted mostly of foreign materials. New ones had to be developed. New varnish to suit certain materials had to be developed, and so not only was our chemical department called

upon to take part in the enormous number of these developments of

materials and military inventions, but the use of chemistry was so great in the war that they established a chemical warfare service,

and men from that service were detailed to the Bureau. At one time we had something like 1.200 employees and 200 soldiers and 10 or 15 officers detailed here for our assistance. Our work from the

military standpoint has not decreased, but has increased. Our military departments will admit themselves that they did not realize the

importance of the application of science. The war taught them a

lesson, and they are coming to us now for many of those things they

ought to have sought before and are continuing the work that was

started during the war.

I have given you an illustration of a material developed in the

case of optical glass. There are many others. A very notable one was the case of the fabric for airplanes. As you probalbly know, the

airplanes were covered almost entirely with linen, and at the out- break of the war. when this coiintry entered into the war. Great

Britain was supplying almost all the linen for her planes and for

those of France and Italy. When our own planes were developed,

it was soon seen that there would not be enough linen for the foreign

planes alone, and there was a deej^-seated prejudice against any other

fabric. The Germans were forced to use other fabrics and developed

ramie, a species of jute, more like linen cloth. This Bureau needed this knowledge, and it came about in a curi- ous way. I am going to tell you the story, because it will show you

how these things join up together. About eight or ten years ago we

were called upon to investigate the automobile-tire fabric, a strong canvas that was woven so that its strength is the same in each di- rection. We were called upon to settle a dispute between the maker

and purchasers of a large amount of this canvas. We made a scries

of tests and became familiar with the cloth.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 28

It occurred to us when this aviation problem came up that what

was needed was the same sort of cloth, but lighter in weight. We

took it up with a mill and on our own initiative had a new cloth made,

knowing it would be right. When our program was wearing the

point where they had to consider what source the cloth was to come

from, we received a request one day to come immediately to the

War Department, and they said: "What are we going to do for

linen?" Answer: "Use cotton." "Where can we get it and try it out?" At that time we had at Pensacola and Hampton Roads cloth

to be tried out. It was tried in a yery few days, and the office of the

Chief Signal Officer immediately placed an order for half a million

yards of cotton cloth. That is made from the long staple cotton woven in a texture that takes the " dope " and has the same strength

in each direction.

It is unfortunate that Ave couldn't have got at these things before,

because when we came to buy them in great quantities we had to take what we could get and could not spring surprises upon manufacturers; but, nevertheless, they were disposed in the bureaus of

the War Department to purchase these things on a definite specification as far as they could; and what is exceedingly valuable is that we have gathered a lot of experience out of this work, and that

experience will be utilized by the public. The time is not far distant

when we will have in this country a pure-materials law, like the

pure-food law, when it is going to be a misdemeanor to misbrand a

textile or any article of that kind, and that is the time when you

people will be called upon to take up that class of work. If you

don't, somebody else will, because it is going to be handled. It is next in importance to the pure-food law.

The same story might be told in connection with leather, ri\bber,

lubricating oils, paper, and many of these materials. We thought

that the paper section would not be called upon for military work.

Paper is a substance not ordinarily used. The very first question

that came to us for the paper section was building boards. The

cantoimients used enormous quantities of building boards, and they

are classed as paper ; a great manj' of them are paper. The next development of paper was paper to be used as a filter in the gas masks,

and there are several other cases. The paper section was kept busy

all the time on the development of these things.

Now, after the war, the War Department found itself in

possession of, I think, six or eight million dollars' woj-th of cotton

linters. Linters is the name given to cotton that is taken off the seed, the very small, short fiber combed from the seed, the last thing taken off. This is used as a source of cellulose in the making of smokeless powder; enormous (]uantities were gotten to- gether for the making of such powder. Then with the armistice

the use of powder was cut off all at once; there was no need for

these linters. The great problem was what to do with this enormous

quantity of cotton linters in the hands of the Government. We were

called upon to make a suggestion. We found that it could be used

in the making of a special silk substitute and could be used to make

paper. Yet the paper people and many experts had said it was too

short a fiber and that paper could not be made out of it. But in

less than two weeks after they asked us the question they were given
24 BUREAU OF STANDARDS.

good paper made in the Bureau's experimental paper mill. So, the

cotton linters will make paper, and it will make good paper.

I could give you a great many illustrations like that in going from

a peace basis to a war basis and the reverse, from a war basis to a peace basis, without making any change in our organization or in the class of problems. They remain the same.

I am afraid I have taken too much of your time already. A good

many of these things can be seen at the Bureau, and I hope the

officers of the Weights and Measures Division will give you an op-; portunity to see some of them. I think I can say that the Bureau

has received a very great impulse due to the war work. The public

understands it and its aims better than ever before. This not only

applies to your own work but to the work of all sections of the

Bureau, and the great problem before us in the years to come, and

especially the next five or six years, is how to help industry. We are entering into a period that has given us a great deal of concern in

this country. We are short of labor. Labor has increased in price

to such an enormous extent that it is going to be necessary to utilize machinery where we didn't utilize it before.

Furtliermore, thei'e is going to be an enormous competition for foreign trade. We have to keep up a foreign trade because there are some things we must import, and as long as we import we must export, but, in addition to that, there is no reason why this country

should not have its proportion of foreign trade. It serves to sta- bilize our production in many, many waj^s. We can only get some

of this trade just as far as we excel in our manufactures.

The Bureau has established a very close relation to all of the important branches of manufacture. I will not be able to be with you

to-morrow or the next day on account of having to meet with an

association of the heads of big business in New York to-morrow.

- It is called the Industrial Cooperation Association, where the heads

of large manufacturing industries in this country are getting to- gether with a view to considering the common interests, and one

of these interests is the introduction of scientific research into their

work—how they can do it and how they can cooperate with the

Bureau.

One of the verj^ large divisions of the Bureau is its metallurgical

branch. I did not intend to touch upon that, but that division has

been called upon to develop all sorts of light alloys for aviation

work and steel alloys for armament and guns. An enormous amount

of woi'k is being done there, and it has developed the fact that we

really knew very little about steel and about some of these neAv

lighter alloys. The iron and steel men of the country have become

very greatly interested in the metallurgical work of the Bureau.

So on the day following the meeting of the Industrial Cooperation

Association, the Iron and Steel Institute is having a meeting in New

York, and one of the things they are going to discuss is how they

can assist the Bureau and how the Bureau can assist them. When

the Iron and Steel Institute, composed of the financial members of

the iron and steel industry, begin to ask questions of the scientific men, then I think there is some hope that we can get what we want

in the future and make the Bureau still more useful to the industries.

Your work is just as much related to industries as to anything
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 25

else. One of the vital and fiindaniental questions that comes np in the industries is accurate measurement of all kinds, and you will

find yourselves more closely related to the industries as time goes on, and you can also help ns in making the Bureau useful to the industries. There is no reason why yonr work should be altogether regulatory. Your primary function is regidatory, but it can be helpfxd

at the same time. I predict in the future that you will be handling

all sorts of questions in regard to the standardization of measixre- ments.

I thank you very much for your attention this morning. Everything will be done here at the Bureau to make your stay successful,

and 1 Avant you to visit the various laboratories of the Bureau and

get ont of them what you can. That is the story I have to tell you

this morning.

REPORT OF THE SECRETARY. L. A. FISCHER, CHIEF OF DIVISION

OF WEIGHTS AND MEASURES, BUREAU OF STANDARDS.

Mr. Chairman and gentlemen : One of the advantages of being

secretary of an organization which has no constitution or bj'-laws is that one is not compelled to confine his report within certain re- stricted limits, but is privileged to discuss anything that suits his

fanc}'. "Whether the view is justified or not. it is the one I have taken

in past years, and, never having been called to account, I am going

to assume that I am at liberty to do the same thing once more. I can

promise, however, that my remarks will be very brief. A word at

this point as to the reasons why no conference has been called since

1916. Shortly after the United States Avent to war with Germany,

_you will recall that our railroad systems showed early evidences of

being badly overstrained. Under these circumstances it did not seem

desirable to impose any burden upon them not directly concerned

with the conduct of the war.

Also, as a result of the tremendous increase in the activity of the

(Government, particularly in the Army and -^avy. the facilities of

Washington were severely taxed for accommodation, and it would

have been well-nigh inipossible to have secured hotel accommodations

for our members. Lastly, it appeared desirable to postpone all ac- tions not directly connected vrith the prosecution of the war. These Avere the main reasons Avhich led the executive committee to decide to jjostpone further meetings until the fighting had ceased. In

following this course the conference Avas in accord with the actions of

other organizations for pi actically all of the large national organizations called off their meetings during the same period.

Although circumstances denied us the opportunity to meet here,

there is no evidence that there was lack of interest in the work. On

the contrary, legislation, which is an index to interest, has been

enacted in a number of States which have heretofore manifested very

little interest in this subject. As representatives of these States are or will be present and Avill be called Tipon to say something, I shall leave it to them to give the details. In so far as the work of the Bureau is concerned, there was no

interruption except that due to the general scarcity of men of technical training Avithin the militarj' age. The Bureau was, however, able
26 BUREAU OF STANDARDS.

to hold most of its trained force, and in the same fields of work to add greatly to it by the detail of soldiers from the Army, particularly

for work having a direct military bearing. In one section of the

^Veights and Measures Division—namely, the gauge section—the

force rose from one or two men to over 200 in aboiit one year. This

ratio was not maintained for the whole Bureaii, but the increase of

the entire force was about 300 per cent. In those branches in which

you are most interested our force remained about the same as it was

before the war, and the work was carried on with little serious interriqjtion. As a mere matter of record, I might add that I was in the

Army from September, 1917, until February, 1919, during which

period the work was carried on very efficiently by Mr. Holbrook and

Mr. Briggs, who are on the program and will give you a full account

of some phases of their work.

Since our last meeting a considerable number of our best known

officials have gone into other activities and have been lost to weights

and measures. Am.ong these are Mr. William L. Waldron, commissioner of weights and measures of New Jersey and vice president of

this organization, and Mr. Burr B. Lincoln, of Michigan, treasurer. Both of them were energetic and enthusias1:ic, and their loss to the

conference is a distinct one. Particularly shall we miss the tact and good judgment of Mr. Waldron, who could alwaj's be counted on to pour oil upon the troubled waters if they became turbulent.

Four members of the executive committee will be missed from this

and future meetings. They are Mr. John F. Farrell, former State

superintendent of w^eights and measures of New York ; Mr. George E.

Carpenter, former State commissioner of weights and measures of

Vermont; Mr. Edward C. Lytton, chief State inspector of weights

fnd measures of Iowa: and Mr. O. N. Creswell, State inspector of

weights and measures of Arizona.

Our greatest losses, however, have been by death. First and foremost is that of Mr. John C. Connors, a moinber of tlie committee on

tolerances and specifications, whose devotion to the cause of honest

weights and measures will long be remembered. There is hardh'' a man in our field of work who is not indebted to him for some act of kindness or for assistance in some form. Your secretaiy freely

acknowledges his indebtedness to him for information and advice

from his fimd of practical knowledge, which was always at the dis- posal of his friends.

Another death Avas that of Mr. John T. Willett, chief inspector of

-weights and measures of Indiana tind a former treasurer of the

conference. He possessed many of the characteristics of Mr. John

C. Connors, whose friend he was for many years. Still another was

that of Mr. James R. Smith, a member of our executive committee

and an energetic official. Doubtless, the conmiittee on resolutions

Avill give us an opportunity to exjiress in a formal way our sentiments

respecting these three men. A very full program has been arranged, and we shall have to work

fast to get through with it. I shall not, therefore, take up any more

of your time at this moment, but make no promises about what I may do later on.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 27

REPORT OF THE TREASURER, SUBMITTED BY L. A. FISCHER FOR

BURR B. LINCOLN.

The report of the treasurer, which Mr. Lincohi has asked me to submit to the conference, is as follows:

Receipts

:

By subscription ' $135. 00 Balance turned over to Mr. Willett 24. .35 $1.59. .35 Disbursements

:

Cost of canceling excursion to Chesapeake Beach GO. 00

Printing of tickets 0. 00 Badges —— 28. 00

97. 00

Balance on hand §62. 35 The secretary holds the check of Mr. Lincoln for the balance of

$62.35 and will be glad to turn it over to his successor. APPOINTMENT OF SPECIAL RESOLUTIONS COMMITTEE.

Mr. F. G. Barnard. Mr. Chairman, due to the fact that quite a number of the delegates have been acquainted in the past with our

deceased brothers—Messrs. John C. Connors, John T. Willett, and

James R. Smith—I desire to move at this time that a special committee be appointed by the chairman to prepare a resolution of

memorial and respect upon these brothers.

(The motion was seconded and agreed to.) The Chairman. I will appoint as a special resolutions committee

Messrs. Barnard. Holbrook, and Cluett.

Next on the program are the reports from the State delegates.

Personally, I think this is one of the most interesting parts of our program, as there are always a number of new delegates, especially

when we have not had a meeting for some little time.

REPORTS OF STATE DELEGATES.'

CALIFORNIA.'

By Chari.ks G. .Tohnson, Slate Siiperinteiulcut of ^yciohts and ifcasiircs. The operation of the weights and measures laws in the State of

California has permanently established their usefulness and practicability, and the cost of their enforcement is fully justified by the

result. The officials in the service have all seriously applied themselves to the study of the several laws and the conditions effected by their en- forcement. Few changes have taken place among them, thereby'

retaining in the service that competency and efficiency which can best

be obtained through practical field experience. I have always maintained that the usefulness of the laws to the public is conditioned,

in a large degree, upon the personal qualification of the sealer, and in

California I want every sealer to be inspired by the confidence that

1 This subscription was coUocted to ooTpr espouse incurred duo to cancellation of cxciir- sioD to Chesapeake Beach. 'For convenipnce of i-ofrrencc (lirsc rpjinifs have been arraiigi'd in alphabetiVal order.

1 Submitted by mail.
28 BUREAU OF STANDARDS.

their superintendent is a cowoi'ker and adviser in a service that is Avortliy of our earnest labors. The "v^'eights and measures law has been found practical and workable, and I conscientiously contend that every weighing and measuring device and every weight employed in the avenues of trade should

be inspected and sealed as provided. All milk bottles and other

standardized containers are correct within the prescribed tolerances

and all apparatus in commercial use conforms to specifications promulgated by the Bureau of Standards.

The most substantial cooperation has been developed, which minimized the necessity for prosecutions, and the general conduct of the

officials is such as commands respect.

The net-container act is modeled to conform with the regulations

and requirements of the Bureau of Chemistry, thereby effecting uniformity and cooperation with interstate trade. Space does not per- mit of recording the diversified application of this law. During 1918,

1,154,987 containers Avere inspected. Nearly all bad trade customs

express themselves in the sale of commodities in containers. When

these have come to our attention we have prosecuted them vigorously

and exterminated them. 'Several hundred prosecutions have been

instituted, and I have no record of failure to obtain judgment.

One cannery of string beans declared contents at 6 pounds, and

upon inspection the drained edible weighed 2 pounds and 10 ounces, and the water, 3 pounds 6 ounces. Seventeen thousand cases were

placed imder condemnation and relabeled, and the packers fined. Interstate shippers of 11 carloads of flour declared contents in conflict with standard net weights and were extended convenient time to

refill and cause their containers to declare a truthful statement of

contents. Wood when sold is uniformly estimated and sold by the standard

cord, well stowed. Grain, beans, and hay are all sold by net weight

and net weight in California means just what the word implies—the

weight of the container is not included in the weight of the commodity. Every safeguard is extended to commercial honesty and fair

dealing, and we have no patience with short weighers or commercial

misconduct.

The operation of the public-weighmaster act is solving a big

problem and in a practical way accomplishing more commercial re- form than any other agency. Fourteen hundred persons, firms,

and corporations have qualified as public weighmasters and are all issuing the legal form of weight certificates which are recognized in exchange and accepted as a true record forming the basis of settle- ment. By the operation of this law the State presumes to represent

the absent party at the time the commodity is weighed. The policy

of enforcement has been found practical and applicable and has deAeloped commercial harmony where before there was suspicion and

bad faith. All apparatus employed by public weighmasters is given

special attention. All new installations are of modern construction

and installed on substantial foundations, in properly prepared pits.

Many standard weights of common commodities in containers have

been established. The department by the standards presumes to define the meaning of such terms as " sack of coal," " sack of potatoes."

" square of butter." etc. Designing persons advertised ]:)otatoes at at $2.10 per sack, when honest merchants could not sell for less than
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 29

$3.50. We found that the sacks shipped under the advertisement

weighed 65 pounds. Under the standard a sack of potatoes must

contain a minimum quantity of 100 pounds, net weight, and a sack

of coal 100 pounds, net weight.

The dry standards of measurement have been discarded as an

antiquated system based on expediency. Dry commodities are all estimated by weight, and liquid by measure. A systematic campaign of education is constantly maintained.

The State department of education is cooperating by devoting appropriate space in the textbooks to the subject of weights and measures in general, and the school children are taught the fundamental

principles expressed in the weights and measures laws. All opportunities to address conventions, fraternities, organizations, and

s<-hools are accepted, and respectful attention is given the addresses.

The service is of such a character that it dignifies any person as- sociated with it. Its underlying principles are fundamentals which

humanity must accept. The protection of our standards of weight

and measure is just as important as the protection of our standards

of currency.

I want to take this occasion to express my sincere thanks for the

valuable assistance extended to the department by the Bureau of

Standards. I sincerely trust that these happy relations will continue and that I may always have the privilege of the valuable

counsel of the Bureau.

. CONNECTICUT.

Hy Chakt.ks A. Fink, Dcpiify Htdte Hupenrilendent of Weujhts and Measures. Mr. Chairman, ladies, and gentlemen, I have a very brief report

here to make. Our superintendent was not able to be here at this

conference. You are pretty well acquainted with him, and as he

has always taken a large interest in the weights and measures work,

National and State, he was very sorry that he could not be here

for this conference. I will say for him that the weights and measures work in the

State of Connecticut has steadily progressed since the last conference. Six of our eight counties now have sealers who are fairly well

compensated and who give close attention to their work. Our seven

leading cities all have active and well-equipped sealers, several of

whom are men of long experience in this work. Their last annual

reports show ac-tivity and progress. Our law is modern in every particular, except that relating to the

weights per bushel of certain commodities. In 1917 changes were made in our law giving the State department more direct authority

to seal commercial weights and measures, and it is our policy to in- spect and seal or condemn any instrument whenever we have complaint that local sealers have neglected to attend to such instrument. Our State department also gives close attention to dealers

who give short weight or measure, with particular reference to

retailers of food and fuel. The results obtained meet with public

approval and warrant the expense involved. These results tend to confirm the opinion sometimes expressed here that inspection work

can be more successfully conducted by trained inspectors who have
30 BUKEAU OF STAITDAilDS.

no local affiliations than by sealers who are bound to be well known

to offenders.

Mr. Chairman, our little State, which is not called a Commonwealth, is well represented at this conference. I find there are six

men here from the small State of Connecticut. There are three city

sealers—from Bridgeport, New Britain, and Stamford—and also a county sealer from Stafford County. I can not account for the

fact that there are not more county sealers. Mr. Stiles, who is my

associate in the work of inspecting weights and measures for the

State, is also present.

In conclusion. I will say that our department has done very good

work, especially during the war. Our work with several other departments was greatly appreciated in supervising sales of fuel, sugar,

and a few other things. Our superintendent, who has a large ex- perience in these lines, was able to secure an automobile which cost a handsome sum of mone}', and in the automobile is what we call a camouflage gasoline tank used for testing purposes. We shall be

able to catch manipulators who are selling 4 gallons for 5, with

whom we have had experience in previous years. The word " manipulation " is perfectly famiUar to a good many

sealers. "We find many pumps the trouble with which is not the

fault of the pump maker. Such pumps can be easily manipulated

by men who understand their operation. In one particular case a man gave us short of 5 gallons of gasoline, and we prosecuted the

gentleman and claimed that he made five strokes to 5 gallons. He

claimed that he gave four strokes to 5 gallons, and simply made

a mistake. But in the measure we found that there were 4 gallons

and a fi'action of a gallon, and so were positive that he gave five strokes instead of four. A man who is a sealer of weights and

measures is familiar with the mechanism of pumps, and should learn

how these pumps can be manipulated. The reason I mention gasoline is because the gasoline proposition is now one of the most vital

importance. At one time in a past conference we heard a lot of

talk about coal and about butter. Now, the high price of gasoline

and the gi'eat amount that is being consumed make it a very important feature for the sealer to look out for. I do not think I have

anything more to say. I should like to hear from the other sealers.

DELAWARE.

By Clabence 0. Kn.LEisr, Chairman of State Survey Commission.

Mr. Chairman and delegates, it is my privilege to represent the

governor of Delaware. Strictly speaking, we have no inspection of

weights and measures in Delaware. One of the counties has a

county inspector appointed by the governor, a very poorly paid

official and one who, I am afraid, is doing poor work. In the city of

Wilmington the clerk of street markets has the power of regulating

weights and measures in the markets only. I am connected with

the State commission, which is going to prepare legislation of this

character, and we hope by the time the 1921 session meets Delaware

will be in the front rank of legislation of this Idnd.

The Chairman. That is another very good illustration of how

this conference helps all those who are starting out. I have not the
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 31

slightest doubt but that next year we will hear from Delaware in some active work. We have seen this so often before.

DISTRICT OF COIiinMBIA.

By Geo. M. Robehts, Superintendent of WeigTits, Measures, and Markets. Mr. Chairman, I shall not consume all of the five minutes allotted

to me. Since the last confei-ence the force of inspectors employed in

the weights and measures department of the District of Columbia

has been increased by congressional action, and the scope of our work has been broadened. During that time we have taken up the

work of regularly testing the gasoline-measuring pumps and pre- scription scales. Although this work is very important, it had never

been done before, on account of the inadequacy of the inspection

force. Besides doing this additional work we are now able to keep a

closer watch over retail establishments and do our work more

thoroughly than before.

We have not secured any other legislation. A bill to revise the

weights and measures laws of the District passed the House of

Representatives during the last session of Congress, but, on account

of the press of war legislation, it failed to pass the Senate. I hope

that a similar bill may become a law during the present session of

Congress, as a new weights and measures law, for the District of

Columbia is very much needed.

ILLINOIS. By William F. Gluett, Chief Deputy Impector of Weights and Measures of Chicago.

Mr. Chairman, delegates, and guests, it has be&n my privilege to attend a number of these conferences. This is the first conference

that ! have ever attended, however, in which the State of Illinois

could really say they have ever made any progress in State weights

and measures legislation. At the past session of our State legislature, in 1917, Senator Cliff, of Sycamore, introduced a bill regulating

the weights and measures of the State and putting them under the

supervision of a superintendent of standards. This bill was patterned after the model law indorsed by these conferences, and it passed through the senate of the State in fine shape, but when it reached the committee in the house it was so emasculated that very

little was left that was not already in the statute. However, they

did leave the office of State superintendent of standards in it, with

the provision that he should inspect the measures in the State insti- tutions, the gasoline pumps, and have the usual supervision of

weights and measures in the State. Mr. Adams, of Ogle County, has

been appointed superintendent of standards in the department of

trade and commerce, and he works under the supervision of Mr.

Baldwin, director, and James F. Paulding, assistant director. They

have procured a complete set of standards, balances, and weights,

and measures and have done some little work along the lines that

have been set forth.

Mr. James F. Baldwin, the assistant director, under the immediate supervision of the superintendent, has taken a keen interest
32 BUREAU OF STANDAEDS.

in weights and measui'es work from the beginning, and early this year, when the present session of the legislature was convened, he

caused to be introduced an entirely new bill on weights and measures which is patterned after and follows closely the provisions of the

model law. About two weeks ago I had the pleasure of going to Springfield to appear before a coimnittee there, and this bill has

been passed through the senate in its entiretj^ as introduced. The

bill has to come up before the committee in the hoiise and we hope

that, on account of the administration of the measure being in the

department of trade and commerce, it may not be emasculated,

but will go through the way introduced. So we will have some

regulations in Illinois that we have not had before; some things to enforce and somebody to look after the enforcement of them. The

only thing done in the State in the past in the way of weights and

measures legislation has been done by some city inspectors of weights

and measures working under city ordinances passed in city councils

under the police powers of the council. They had very little State

weights and measures legislation to back them up. I hope that at the next conference I shall be able to say that Illinois is doing as good work as other States that have been in the game longer.

The Chairman. Mr. Cluett has suggested a point that often comes up here; that is, whether the Bureau should send a representative

when you have matters pending before your legislatures. Our

feeling in regard to that is that we do not wish to send representatives instructed to oppose or favor any specific legislation, but if at any time a representative of the Bureau is requested by a proper

official to be there to discuss general weights and measures problems

or to answer questions that arise, we will always send a representative. I wish to make it perfectly clear that we are not there to in- terfere with local conditions, but merely to be helpful and to answer

questions.

INDIANA.

By Frank \V. Tucker. Chief Slate Inspector of Weights and Measures. Mr. President and gentlemen, I am representing a State that we

think is second to none. We from Indiana have been very busy in

the last two years in cooperating with the Government in the publicliealth woik and the conservation of food. At the same time, since

that has passed, I have not found that we have gone backward in our department. I wish to differ with some of the representatives

liere in regard to the combination of the food and drug and the

weights and measures departments. They may be placed in a rather

peculiar position, but we have a man in Indiana that is big enough

to handle both departments, namely. Dr. H. B. Barnard. I think some of you know him.

In the weights and measures department we have lost one of our

representatives, Mr. Willett, mentioned earlier in the convention.

The inner tube on the wheel has been blown out. I have succeeded

Mr. Willett, and I hope to fill his place as well if not better than it has been filled, for the reason that I have gained in the last year some very competent covmty officials that have been appointed in the

State. We have some 22 deputy State weights and measures in-
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 33

spectors to-day. We have a law that counties of 50,000 inhabitants or over must have a county sealer. All other counties may have such an official. That leaves, on this basis, about 80 per cent of our population without any protection. We have tried to make it mandatory

to appoint county sealers in counties having a population of 20,000,

but some of our representatives could not see why it was necessary. We got one bill through the last legislature in favor of weights

and measures, and that was in regard to bread. The law in the

State of Indiana now requires ^, |, 1, 3, or 5 pound loaves, and

there must be a sticker on each loaf specifying the net weight of that

loaf, together with the name of the manufacturer. We claim this

has already been a big protection to our bakeries against those of

other States who have been shipping into our State bread under our

weights. In fact, we have weighed up quite a number of " pound " loaves coming from Ohio, and also Illinois, containing only 14

ounces. We are ready at any time, and will only be too glad in the near future, to furnish to you a list of the people in your State who

are violating our laws, and we would be very glad if you would

furnish us with a list of people in our State who are shipping into

your State in violation of your laws. We would be very glad to cooperate with you and assist you in running them down, because we

do not want that class of people in the State of Indiana.

I have conferred Avith our jobbers' and our fruit dealers' organizations in the State of Indiana, and we are practically getting away

from the bushel denomination in selling vegetables by weight. They

are now beginning to sell these to the dealers on the 100-pound basis. I would like to see a national law, as well as a State law, that would

require the sale of all the dry commodities, excepting small berries, on the 100-pound basis. That would simplify the purchase to such an extent that a 14-year-old child would have no trouble in getting

what he wanted. We would like to see the same law in adjoining

States. KANSAS.

By Edwin F. Stimpson, Deputy State Sealer of Weights and Measures. Mr. Chairman and gentlemen, I have no written report. My coming here was rather sudden. The State of Kansas is not doing very

much nor advancing very rapidly in matters of weights and

measures. I think we have not been represented here for four or

five years, and during that time we have allowed a law to remain on

our statute books allowing gi'oss weights on several commodities.

However, in flours and things of that sort we have been able to get

rid of that, so that we require net weight in the case of these commodities. We have not been able to get rid of our law allowing

liquid quarts for berry boxes, however. Kansas is also still under

the old system of inspection, and county clerks are still ex officio sealers; that we have been unable to change. This is one of the

States where most of the inspection is done by the food and drug

inspectors. They have done a great deal of work and have made

prosecutions where that was necessary. Also, there is an inspector

now who takes care of foodstuffs, such as sacks of feed for stock food,

of which many thousands of tons are shipped into the State. They

155530—20 3
34 BUBBAU or STANDAEDS.

are doing a great deal of work along that line and in reweighing are finding a great many short-weight packages among those coming into

the State, as well as those put up in the State itself. We have tried several times to get a better law and a better system

of inspection for the State, but up to the present time the legislature

has turned a deaf ear to any such proposition. I believe that is all I have to say. MASSACHUSETTS.

By Thuee Hanson, Commissioner of Standards. Mr. Chairman and delegates, like Mr. Cluett and other old-timers, I am a veteran myself. Massachusetts, as you know, is not really a

State; it is a great Commonwealth. I am glad to say that I represent the great Commonwealth of Massachusetts.

Relative to weights and measures, we in Massachusetts have been

at that a long time. In fact, a great munj of our laws date back to colonial times, but I might add that they have been amended several

times since then. We feel in Massachusetts that the weights-and- measures work, particularly in the State department, should show

progress. I am absolutely in accord with Dr. Stratton's ideas on the

law of progress. I do not want to stand still; I would rather quit

the job. My idea is to go ever forAvard; just the same as when

going to school. If you stay in the primary grades all your life you will never learn much. Likewise, weights and measures, and

scales and balances are only the A B C of the weights-and-measures

field. In Massachusetts we have gone ahead. We have, only within the

last year, changed the name of our department from " weights and

measures " to the " department of standards." In other words, we

are trying to rival the Bureau of Standards. We have gone into

similar activities, as Dr. Stratton told you this morning. We have

added a large laboratory, in which we have physicists who are working out scientific problems as well as practical problems. If

you go into scientific work, gentlemen, always remember the practical

end of it. We have started in, as possibly some of you know, on thermometers.

We test the clinical thermometers and any other kind of thermometer submitted to our office for test. Under a law in Massachusetts no clinical thermometer can be sold or offered for sale unless tested

by our office. In tests that we recently made it may surprise you

to know that in one city we rejected nearly 50 per cent of clinical

thermometers offered for sale. In fact, in many institutions, State

and city, the rejections have been all the way from 25 to 35 per cent. The trouble was largely with what we call the " retreaters." We have also done a great deal of war work, and we are ready to go into the textile end of it. Mj plans are all laid, as we get larger

appropriations for textile work. We expect as soon as this Bureau

establishes the standard of gasoline to go ahead on that. I understand that the Bureau of Mines has practically completed these

specifications. Next year, if this is feasible, perhaps we will have

standard gasoline. We have a bill before the legislature in Massachusetts to fix standards of anthracite coal in Massachusetts. This
TWELFTH ANNUAL CONFEEENCE ON WEIGHTS AND MEASUKES. 35

bill will undoubtedly go through, as it has passed the first two stages

at the present time.

As I was telling Dr. Stratton, I am soon going to start in testing

all dry or liquid measures far more accurately than we do at the

present time.

I think my five minutes are up, but I will tell you more this

afternoon, as I understand I am on the program.

MICHIGAN,

By Fked L. Woodworth, State Superintendent of Weights and Measures. The Michigan weights and meaures law was passed six years ago. Previous to that time there was no law on the subject, although five

cities—Detroit, Grand Rapids, Saginaw, Flint, and Port Huron

had local ordinances and city sealers. Our act builds up an enforcing organization with the food and

drug commissioner, who is ex officio superintendent of weights and

measures at its head, and depending for its field work on county and

cit}^ inspectors who may be appointed by county boards of supervisors

and city councils.

Up to date only about one-half the people of the State are served

by such appointees. We have tried to do considerable educational

work to encourage the appointment of county sealers, and several more have been appointed as a result. We have also tried to en- courage a demand for a law that will make the appointment of a county sealer mandatory.

At present the Michigan food and drug department has three men

who work on scale inspection all the time and seven who examine

counter scales in connection with food-inspection work. In the past

3-ear one of our regular scale men has visited every county and city

sealer and in most cases spent considerable time with him. We have

also tested and sealed all new and many of the old weights used by

the county and city sealers. In the counties that have no local sealere we try to get to each scale once a year. The greatest shortcoming in the scale-inspection work in Michigan

is on wagon scales. I think I am making a conservative estimate

when I say that wagon scales are used in transactions involving 60

per cent of the money that changes hands over scales. The delays

in transportation, together with the excessive cost of draying, make

it impracticable for the inspector to take heavy weights with him on

railroad trips. To meet this situation, we are equipping a motor

truck with the necessary outfit and will try to reach the wagon scales that have been neglected heretofore.

The last two legislatures have added greatly to the duties of the

food and drug department. It has grown since I have taken the office from 26 employees to 101. Some of these additional duties are, we hope, of a temporary nature. Wlaen Federal prohibition goes

into effect next January, we shall be able, and expect, to add con- siderably to our weights and measures department.

Michigan needs one State inspector of weights and measures for,

roughly speaking, each congressional district in addition to local

sealers. To head this organization I have selected Mr. A. A. Greer,

of Port Huron. Mr. Greer is one of the most experienced and sue-
36 BUREAU OF STANDARDS.

cessful weights and measures officials in the State. I am sure that

under his guidance the work will be a great success. As in most institutions, public and private, our scale work has

been somewhat upset by war conditions, but, like almost everything

else, it promises to come out of the ordeal stronger and more active

than before.

Mr. Barnard. Mr. Chairman, I move that we now take a recess for lunch.

(The motion was seconded and agreed to.)

(Thereupon the conference took a recess until 2.30 p. m.)
SECOND SESSION (AFTERNOON OF WEDNESDAY, MAY 21,

1919).

The Conference reassembled at 2.30 o'clock p. m., Dr. S. W. Strat- ton presiding.

REPORTS OF STATE DELEGATES—Continued.

MINNESOTA. . By G. H. Staples, Inspector of Weights and Measures. Minnesota has not progressed as rapidly in the past two years as it had for six years previous to that time, owing to the fact that the

legislature reduced the appropriations to such an extent that one-half

of the force had to be laid off. At the present time, however, Minnesota is in much better shape than it has been during the past two

years. The legislature has increased the appropriations and raised

the men's salaries so that after July 1 the work will progress much

more rapidly than it has in the past two years. NEBRASKA.

By Leo Stuhk, Deputy Commissioner of Weights and Measures. In Nebraska we have a food, daii'y, drug, and oil division.

Weights and measures is one of the subjects that is handled by this

division. We have six inspectors for this line of work. Some of the

work is handled by the drug men. At the last session of the legislature there were several new fea- tures added to the weights and measures law. One of them was the

section providing for the licensing of slot machines, and one was

placing everything on a weight or numerical count basis. The legislature also passed what is known as the code bill in Nebraska, which

will put the food, drug, and oil division under the department of

agriculture. Up to this time the food, drug, and oil division has

operated directly under the governor. It is a very large department

handling all these various subjects.

The work of the weights and measures section has been limited

practically to the testing of scales, with the exception of track scales. We do not handle any other line of standards, and this work is progressing in good shape. The entire division is operated upon

the fee basis, so that there are ample fees collected to take care of all the work in good shape, and we expect to make a very good showing

in the next report.

NEW HAMPSHIKE.

By H. A. Webstee, State Commissioner of Weights and Measures. This is the first time that New Hampshire has been represented at once of these conferences by its State commissioner. The establishment of a State weights and measures department had been strongly

advocated at several sessions of the legislature by Maj. James F.

37
t

38 BUREAU OF STANDAEDS.

Brennan, who at one time was sent to one of the conferences as a representative of New Hampshire ; but it was not until April, 1917,

that there was established a weights and measures department in

New Hampshire. The passage of the bill then was due to the persistent efforts of Gov. Keyes (now our junior United States Senator),

members of his council, and a few members of the house and senate. The governor took the position that a bill of this sort, which had been

passed in the house by a 3-to-l margin at two previous sessions,

should not be killed in the senate. New Hampshire had been, prior to the passage of this act, about

the only State in the Union which did not have some sort of protection in the matter of weights and measures, and the lack of such

protection, it was estimated, had cost the people of New Hampshire

nearly a million dollars a year, for this State had been the dumping

ground of fradulent devices for the whole of New England.

It was estimated that in one of our cities the loss to the consumers through short weights was 4 cents on every dollar spent, but the

inhabitants of this city, in common with the other citizens of the

State, realize that they are no longer paying tribute to unscrupulous

dealers and that they are no longer contributing nearly a million

dollars a year due to fraud, of which they were the victims. New

Hampshire no longer has the reputation of an "easy-mark " State,

susceptible to such imposition as no other State in the Union tolerates. The law protects the purchasing public, which includes every consumer in the State. After my appointment as commissioner of weights and measures,

I spent several vveeks at various State departments for the purpose

of familiarizing myself with matters pertaining to the management

of a department. I came to Washington and spent a week with the

officials here at the National Bureau of Standards. The instructions

which I received from the various State commissionei"s and the Federal officials in Washington have been very valuable. During the

first week of July, 1917, 1 appointed three State inspectors of weights

and measures. Let me assure you that I used the utmost discretion

in the selection of these men, for I fully realized that the department

would be judged largely by its representatives, and I have been

equally careful in making recommendations of men who have been

candidates for the position of city sealer in the various cities. There

are at the present time seven city sealers in the iState. The people throughout the State are taking great interest in the

work of the department of weights and measures. The department

has endeavored to enforce all the weights and measures laws, but it should be stated that we have made a clear distinction between an

intent to defraud and carelessness. There have been many persons

prosecuted who haA^e been guilty of violating various sections of the

law, more particularly those pertaining to the sale of coal, wood, and

ice. The original weights and measures law was amended at the

recent session of the legislature in such a way as to make it compulsory to sell wood for fuel purposes by definite measurements.

The Government test car has been in New Hampshire, and all the

important railroad track scales have been tested with a load of 80,000

pounds.

There has been placed in every mercantile establishment in the

State a large comniodity card giving the weights of 1 bushel, 1
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 39

peck, and 1 quart of certain vegetables as provided by the laws of

New Hampshire. A standard barrel for fruits and vegetables has

been defined. Copies of the weights and measures law have been

sent broadcast in order that the public might be familiar with the

provisions of the new act. I have issued a pamphlet defining the

tolerances and specifications for weights and measures and weighing

and measuring devices. The second edition of Household Economy

is nearly exhausted. This is a booklet containing valuable information for the housewives of New Hampshire. And let me emphasize

this, that the efficient management of the household is materially en- hanced by the exercising of due care on the part of the housewife

in the weighing and measuring of the various commodities purchased,

and it should be the duty of every woman who is responsible for the

culinary department of the home to compare every day the weights

and measures of commodities delivered with the quantity charged

or paid for. The domestic science teachers in the State have ordered copies of

this book for their pupils. In fact, school superintendents have con- sidered this subject of such importance as to have it introduced as

a special course in the schools of New Hampshire. Apart from their

direct results, measurements in the household are, when properly

made, of educational value.

The picture in our report of confiscated articles shows the material

which was being used intentionally and unmtentionally by the dealers

of New Hampshire. An enormous saving to purchasers of all commodities has been brought about by the purchases which have been

made with accurate scales in contrast with those shown in the picture. Three thousand and fourteen scales, weights, measures, and

weighing and measuring devices have been confiscated by the department during a period of one year, and this does not include 2,503

scales, weights, and measures which were condemned for repairs and

afterwards reinspected and sealed by representatives of the department, or 6,041 scales, weights, measures, and automatic pumps which

were adjusted before being sealed. The satisfaction that consumers feel by reason of these accomplishments is also shared by the honest dealer, who, as he reads our report,

will undoubtedly feel that his particular business, together with all others in the State of New Hampshire, is now on a more equitable

basis. This would not have been the case had the previous competition continued with dishonest dealers who used fraudulent devices

and who sold commodities which were underweight.

It seems to me that there is no question affecting the commercial

relations of the people of any State upon which everyone agrees with

greater unanimity than that the giving of short weight and measure

is a grievous wrong and detrimental to sound business principles.

NEW JERSET.^

By Fbank Wansee, State Superintendent of Weights and Measures.

Mr. Chairman and gentlemen, in New Jersey we have a live,

working State organization consisting of 60 members, comprising

^ This report, prepared by Mr. Wanser, was read by Mr. A. W. Schwartz at the former's

request.
40 BUBEAU OF STANDARDS.

the State, countj^, and municipal weights and measures force of the

State. When I was inducted into the weights and measures department

something over two years ago, an early meeting of this association was called and the same loyal support was pledged to me that had

been accorded to Mr. Waldron, my predecessor, and the slogan of

" Watchful action " was adopted ; both the pledge and slogan have

been lived up to fully, and, it is needless to say, they have been productive of mighty fine results. At our last two annual conventions the New Jersey, weights and

measures laws were freely discussed by members of the association; amendments and new laws were suggested; these suggestions were taken up with the attorney generals office of our State; the

entire laws were gone over very carefully, section by section; and

amendments wei'e prepared to cure the defects and new bills drawn

to cover essential points that seemed to haA^e been overlooked, with

the result tliat important constructive and corrective weights and

measures legislation was enacted by the legislatures of 1918 and

1919. One of the important acts passed in 1918 was a law making it mandatory that when certain commodities were sold by dry measure they must weigh a certain specific number of pounds. This

law has worked out well. Many merchants throughout the State

have discarded the dry measures and are selling by weight entirely,

both the merchant and consumer thus becoming gradually educated

to the sale-by-weight idea, so that we do not anticipate much serious

opposition in 1920 when we purpose having a sales-by-weight law

introduced.

It was our intention to endeavor to have such a law passed in

1918, but, owing to opposition by some of the members of our State* board of agriculture, a compromise was made, resulting in the exist- ing law, on the theory that " half a loaf is better than no bread,"

and it has proven, as we anticipated, a step in the right direction.

Other measures passed in 1918 were corrective legislation, such

as: Perfecting the Net-weight Container Act; requiring that all weights and measures used in trade in the State be tested and sealed

at least once each year; requiring county and municipal superintendents to make monthly as well as annual reports to the State

department ; extending the time allowed for an appeal from two to ten days ; putting teeth in the violation act ; and last, but not least,

increasing the salary of the State superintendent from $2,500 to $3,600 per annum.

In this connection I am proud to be able to make the statement

that at least 80 per cent of our counties and municipalities have

shown their appreciation and recognition of the valuable work ac- complished by their weights and measures superintendents by awarding them substantial salary increases during the past two years. The 1919 session of our legislature treated us as fairly as that of

1918, passing a bill requiring all ice to be sold by weight; a bill changing the method of procedure in bringing suits under the net- weight container act ; a bill fixing penalties for giving short weight

or short measure ; and a bill correcting the tenure-of-office act. Our department feels that, with what has been accomplished in

the way of legislation, when a sales-by-weight law has been enacted
TWELFTH A^TNUAL CONFEEENCB ON WEIGHTS AND MEASURES. 41 we will have a mighty good set of practical Working laws, the only

thing needed to complete them being the passage by Congress of a national law requiring miiform standard containers.

The New Jersey dei^artnient is now on a practical business basis. It has been, and is our policj^, not to persecute, but when violations are flagrant there is but one course to pursue, and that is to prosecute.

For instance, late in 1917, investigation showed that there was gross

short-weighing by coal dealers. A State-wide campaign was in- augurated, and during the fiscal year which ended June 30, 1918,

covering a period of but eight months, the fines paid by coal dealers

aggregated $2,797. That this heroic treatment proved beneficial is evidenced by the fact that for the past 10 months the fines from this source have been only $510, while the reweighings have been even more frequent than during the period mentioned.

For the past two years the work of the superintendents has been

particularly arduous, for, in addition to their regular duties, which

have not been neglected, the entire department has cooperated fully

and freely with the fuel and food administrations and with the

exemption boards, and it is with a great deal of personal satisfaction

and pardonable pride that I can point to the fact that the entire

force has alwaji'S cheerfully, willingly, and promptly answered every

call made upon it in connection with war movements.

In conclusion, I might add that, owing to the whole-souled and

hearty cooperation of our county and municipal superintendents with

the State department, weight and measure conditions are in very

good shape in New Jersey.

NEW TORE.

By W. T. White, Director of the Bureau of Weights and Measures.

Since I was appointed to ray present position as recently as the

22d of last April, I am not able to give an intelligent report on the

work that has been done by the State department of New York.

I will say, therefore, only that I am glad to be here and to meet the

gentlemen from the other States.

OHIO. By .John M. Mote, Assistant Chief State Inspector of Weights and Measures. The State of Ohio has made great progress in weights and measures work; and we feel that public opinion now is greatly in favor

of such protection—more than ever before.

We are extremely proud of the activities and interest manifested

by Ohio weights and measures men in devoting their time and as- sistance to the enforcement of Government food regulations during

the great World War and the effort which they made to protect the

public against the many frauds which so commonly appear in war

time.

The present session of the Ohio Legislature has just enacted two

laws on weights and measures that we believe will be a great step

forward in protecting the pocketbook of the public. One of these was the standard-container act, which is almost a copy of the pro-
42 BUKEAU OF STANDAKDS.

posed Federal law regulating the size and dimensions of hampers

and baskets which are manufactured or used within the State. The

other bill was what we call a net-weight-sales law, which is designed

to prohibit the meat packers' practice of wrapping an excessive

amount of paper around the meats sold to dealers and weighing this

cheap grade of paper in at the price of the meat contained in the

package.

Another section of the bill compels dealers to plainly mark net

contents on containers filled with liquid commodities. What was

probably the greatest activity of the State bureau of Ohio during

the past two years was the crusade made against retail oil companies

in the citj- of Cleveland, Ohio. For a number of years it has been

a common practice for many of these firms to overgauge the shipments of lubricating oils sold, and the practice became so bold that

many of these firms were charging for 34 and 35 gallons of a com- modity when the actual capacity of the barrel or drum was but 30

gallons. Up to the present time 17 of these companies have been

prosecuted by the State, and some of them have made refunds to

their customers which totaled many thousands of dollars. Under the law just enacted by the Ohio Legislature, these companies will face a $500 fine in case a fradulent mark as to the net contents is placed upon the package; and once this task is completed

we believe that we can safely say that the Ohio weights and measures bureau has saved the public from being defrauded of many

thousands of gallons of oil every year. We believe that the regulations now in effect pertaining to scales meet all of our requirements, while the regulations and the reports

of inspectors clearly indicate that some steps should be taken to more fully protect the public against the inaccuracies of automatic

measuring pumps.

Within the past two years our department has been confronted

with rather perplexing problems as to interstate shipments found to be short in weight. In most instances we were forced to depend upon

the honesty of the shipper to make adjustment of such interstate

shipments, and we believe that there should be immediate Federal

legislation along this line. Through the great number of exhibits held by the State bureau

we have started an educational campaign that creates unusual in- terest and awakens the public mind to the fact that our work is a most worthy one, and the support given us by the press clearly in- dicates that Ohio is going forward in the battle for honest weights

and measures.

I am pleased to say that four county sealers from Ohio are here

to-day.

PENNSTLVANIA.

By James Sweeney, Chief of State Bureau of Standards. Mr. Chairman and gentlemen of the convention, I have the honor

to represent the great Commonwealth of Pennsylvania, a State

which has always taken an advanced position on all questions that concern the welfare of its people. Its legislation has ever been of

a character looking to the conserving of the interests of the public.
TWELFTH ANNUAL CONFERElsrCE ON WEIGHTS AND MEASURES. 43

With this view, its statesmen saw the need of the enactment of legislation which would protect its people from those who were inclined

to increase their profits by defrauding the public by giving short

weight and measure. This law has been in existence but a few years. Under its provisions every county and city has one or more in- spectors of weights and measures, and the faithful way in which

these inspectors perform their duties has made the office of inspector

of weights and measures one of the most important in our Commonwealth, and the public has come to regard the inspector as the guardian of their interests. When a commodity is purchased, they feel safe that they are receiving the full amount for which they pay.

This is true of commodities that are sold in package form or containers of any kind, as well as those that are sold over a scale or in a measure. Every package is inspected, and when the contents in the

package or container is less than is indicated on the outside thereof

the inspector forbids the sale of the package or container, and if the

merchant neglects to comply with the warning given him he subjects himself to the penalties imposed by the act of assembly.

Since the work of inspection of weights and measures began in

1912 the total inspections up to and including 1918 of measuring

and weighing devices have been 2,542,120, the total number con- demned or confiscated being 262,774, thus forever removing from use

devices that have been used as a means to defraud purchasers.

In addition to the inspection and confiscation of weighing and

measuring devices, there were inspected 2,608,165 packages in which

commodities were sold, of which 136,659 were condemned, as they

did not contain the quantity that was indicated on the outside of the

package.

During the war period the inspectors devoted a large part of their

time to assisting the food administrators in enforcing the regulations

imposed by the Federal authorities, that our boys over there might

be given the proper food that would enable them to continue the

struggle for a world democracy, all of which proves conclusively

the great importance to the public of the weights and measures

legislation.

RHODE ISLAND.

By William F. Goodwin, State Sealer of Weights and Measures. Mr. President, delegates, and guests, I want to say that I am

pleased to be with you to-day. I did not expect to be here, but at the last moment I was talking to the secretary to the governor, and

he thought that it would be advisable for a delegate to attend. I am

going to confine myself to as few remarks as possible, because I desire

to give my neighbor from Massachusetts the opportunity of having more time. But I want to assure you, gentlemen, that the organization of weights and measures is doing good work in Ehode Island, even during these strenuous times. Rhode Island almost always goes over the top when she starts anything, and she is still holding her

record. In the two years since we last met here we have passed some special legislation in Rhode Island in the interests of weights

and measures, and I wish to say that I have been given a small appropriation and am thankful for it.
44 BUEEAU OF STANDAEDS.

I am glad to see so many old faces here. I deplore the fact that

my dear friend Connors is not here. I miss his presence to-day.

He was a .valuable man and always a good friend. I deeply appreciate that fact and deplore his loss. Gentlemen, I do not know that there is anything I can say further

that will interest you.

SOUTH CAROLINA.

By H. W. McCkeight, Chief Clerk, Department of Agriculture, Commerce,

and Industry.

I have the honor to represent the State of South Carolina at this

important convention. The department of agriculture has a good

many things to look after, including weights and measures. It is also delegated by the State legislature to regulate the inspection of

feeds, foods and drugs, gasoline and kerosene, and factories, and has

quite an up-to-date laboratory. We have about five inspectors, not

entirely on weights and measures, but their duties also include that

work. We are not dependent upon State appropriations in this

work, and are not thus handicapped, as many States here represented

are. We maintain the department from the receipts of funds derived

from inspection fees on feeds, oils and seeds, food and drugs, and

gasoline and kerosene, and turn in about $25,000 to the State treasury.

In 1913 the legislature at its session enacted a law on weights and

measures, and this has been amended from time to time. The work

is proceeding satisfactorily, and we feel that now, in this time of war and the high cost of living, much depends upon giving the people accurate weights and measures, and we are giving close supervision to that, matter now.

This department has for years promulgated and distributed bulle- tins free of charge containing weights-and-measures laws, also a list of various agricultural commodities and articles of food with the

corresponding official weights. The department now emi^Dloys eight

inspectors having authority to inspect weights and measures. South

Carolina is constantly on the alert to keep up with these progressive

times, being prompt to adopt new laws and amendments with this

object in view. We hope to pi'ogress and keep up with the other

States and at the next session of the legislature, which is annual, we

hope to revise the law somewhat.

The Chairman. The last speaker, Mr. McCreight, has mentioned

a point of much interest to us. We find so often that the weights and

measures affairs are administered in connection with the food and

drugs acts and matters of that kind. That may be necessary in a good many places. We feel that the weights and measures work in

most cases is sufficiently important to be handled by itself, but in case those two fields are combined it ought not in any way to destroy your

interest in the weights and measures work as such and your relation

to this organization. It is a great mistake to assume that because

these things are administered by some other department of the State

you can not keep up the same connection and do just as good work as

if you were in a department by yourselves.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES, 45

SOUTH DAKOTA.

By Anton Runbeck, State Inspector of Weights and Measures. Our last legislature passed a weights and measures law, going into

effect July 1, the enforcement of which is in the hands of the food

and drug department. In our department we have to do the best we

can. We have no experienced men in technical scale work and only

a very limited appropriation with which to go ahead.

^ TENNESSEE.

By T. F. Mahont, County and State Sealer, of Chatta/nooga.

Mr. Chairman and gentlemen, since the organization of weights

and measures work in our State we have progressed greatly. Of

course, a great deal of this is due to the Bureau of Standards in giving the sealers advice. The adoption of the national law in 1914

has also enabled us to be more efficient in our work.

I have one suggestion to offer, which is not intended as a reflec- tion on any official. Our superintendent of weights and measures

is an ex officio official, being primarily food and drug commissioner.

Now, I think, if the food and drug commission were made a separate

office, and the weights and measures department were made a separate one, we w^ould have more success in our work and more count}^

sealers throughout the State. As it is now the appropriation for

the combined departments is $20,000 for two years. There are

six deputies to take care of the food work, but weights and measures

matters are neglected. I went into Bradley County, which adjoins

Hamilton County, and in 10 stores I found bottomless measures, and every man knows that this is the crookedest measure on earth.

There is also a great deal of wildcatting of second-hand scales throughout districts without sealers. I wrote Gov. Eoberts of my

findings and also the superintendent. Now, I think that we would

get better results if the weights and measures department were under

its own head.

We have only 6 sealers in the State of Tennessee when we should

have at least 26. I am endeavoring to organize the sealers of the

State, and am going to take this up after my return home.

This concludes all I care to say at this time, as my purpose in at- tending the convention is to gain knowledge. I guarantee you that

in the future Tennessee will be the banner State of the South as far

as weights and measures is concerned.

TEXAS.

By D. A. Geegg, Deputy Superintendent of Weights and Measures.

Mr. Chairman, I really have nothing to report as to the activities

of the weights and measures department of Texas, since for more

than 70 years we have had practically no system of inspection of

weights and measures. Some of the delegates this morning referred

to their States as States, and some of them as Commonwealths. I believe I could refer to Texas as an empire. Texas, as you know, was
46 BTJRBATJ OP STASTDAKDS.

once an independent nation. It came into the Union voluntarily,

and since that time it seems that one of the most important things

that affect the economic life of that State has been overlooked. I had the honor to serve the people of Texas in another capacity for a good many years, and at that time my attention was called to the

necessity of weights and measures legislation, and I studied the matter to some extent. I went out of that position into private life, but was called back as chief clerk and attorney for the markets and

warehouse conmiission, and I began a study of the question again. I soon determined that no marketing commission could be successful!}'

carried on without a well-regulated system of weights and measures and adequate laws to put it into effect, and consequently I called the

attention of the legislature to this omission. I was delegated to write a law. The law was written and introduced. With some slight

amendments in the committee, prescribing the units of weights and

measures, a general weights and measures law was enacted without

discussion, and without amendments, which is rather remarkable for a Texas legislature.

I believe we have at least the starting point for a well-founded

system of inspection of weights and measures, and, gentlemen, I hope that at the next conference I will be able to report satisfactory progress along these lines. The legislature of my State has

given us $20,000 with which to organize this department. It is our purpose to put 50 inspectors in the field. Of the city sealers some

50 or 75 became State sealers. The power of appointment is not

taken away from the city, but they have to work under the direction

of the State supervisor of weights and measures, which will give us

a force of something like 100 to 125 men. Even this is hardly suffi- cient, I realize now, because Texas has 254 counties, some of which

are larger than some States that are here represented. We hope to make satisfactory progress, however, and I feel satisfied that with

the unanimous support of our Texas Legislature, we can get practically anything that we want. I want to receive suggestions from

the Bureau of Standards and from those who have successfully con- ducted their departments in the different States of the Union.

UTAH.

By T. L. Ievine, Inspector of Weights and Measures.

Mr. Chairman and gentlemen of the convention, I suppose I

represent a cow coimtry in the West, but I am pleased to be here

and take part in this convention. I iDelieve this is the second time

that the State of Utah has been represented at the Bureau of Standards. Some four years ago. or a little more, I was appointed city

inspector for Salt Lake City. We had practically no law, at least the law was inadequate, and, after having labored under that condition for some time and seeing the necessity for better legislation, I communicated with the Bureau of Standards. They immediately

wired Mr. Holbrook, who was then in Arizona, and he came to Salt Lake City, and met our governor, who was mayor at the time. I was given a free hand to lobby a bill through the legislature. It was some lobby. After 60 days, when there were only a couple of
TWELFTH ANNUAL CONFEKENCE ON WEIGHTS AND MEASURES. 47

days of the session left, we finally got our bill through, just about

as Mr. Holbrook and the State commissioner and I had outlined it. I believe it went through with just one amendment.

I think we have a weights and measures law that is practically

up to date, except that the State dairy and food commissioner is ex

officio superintendent of weights and measures, and we have the same trouble our friend from Tennessee has. They devote niore at- tention to the food and drug work than they do to the weights and

measures work, and the State is suffering on account of that. I am

a firm believer in having a separate department of weights and

measures. I believe the work is so important it should be a separate

department in every State, and I believe it is so important that sufficient money should be given to the department to carry out the

work in a successful manner.

I do not know that I have any special report to make, except

that we are jogging along in our quiet way, endeavoring to make the

people be good, if they are inclined to be otherwise, although I believe 90 per cent of the people who are 'doing business are honest. I came here for information more than to give information, be- cause I do not have sufficient knowledge to dispense any information

to a body of this kind.

The Chairman. I am very glad to hear the gentleman express

himself as he has. Without in any way detracting from the importance of the food and drug work—because it is a really important

matter—I have felt that when the weights and measures officials come to take up all those things that they surely will in time, then

this whole subject should be removed from the other, since it calls for an entirely different class of experts. That is the reason why I have that opinon.

VIRGINIA. By C. H. MoKEissETT, Secretary of Board of Legislative Researdi.

Mr. Chairman, this is my first visit to this conference. I was

asked by the governor of our State to come up here mainly for the

purpose of securing sufficient information to enable one of our boards

in Virginia to draft a modern weights and measures law. Virginia,

being one of the older States, has for a long time had a law on its statute books, but it is antiquated and not enforced to any great

extent, although more so than in some of the other States. The

Constitution of the United States says that Congress shall have

power to fix the standard of weights and measures. Now that power

would enable Congress to pass any law on this subject which would

put into force and operation those standards which are fixed by the

Congress.

It has occurred to me that, instead of the States going about and

regulating these matters, it would be much better if the Congress of

the United States could be prevailed upon to pass a comprehensive

weights and measures law, in order to make it absolutely uniform

throughout the Nation. That law could be enforced by State inspectors, if necessary, or by the inspectors of the Federal Government.

We have laws on our books. Most of the States have laws on their

books to-day which are absolutely of no force and effect because
48 BUREAU OF STANDARDS.

they are in conflict with the laws of Congress, an act of Congress

being supreme over the land. Now, I would like some of the members of those States having model weights and measures laws to let me know if I can get copies of them to help our governor in drafting a law for Virginia.

The Chairman. The last speaker has touched upon a very important point, the question of national laws. Of course, I think he will

concede that it would be unwise to draw up a national law having

to do with local inspection. There is quite a considei-able amount of

national legislation that should be taken up, however, and it would

be well for this conference to consider such legislation in order that

the Bureau may go to Congress with the indorsement of the conference. Furthermore, there are a great many things in regard

to which we need uniformity, and it would be well for you to consider from time to time the question of issuing standard regulations

regarding certain matters. In such cases, the Bureau would be

pleased to use them as Government publications, which could be

copied by the various States. A great deal could be also done to bring about uniformity by getting together and adopting uniform

legislation regarding local matters.

WEST VIRGINIA.

By G. B. Stewart, State Inspector of Weights and Measures.

I will say that I am glad to have the privilege of being with you,

and I am glad also to have the privilege of representing the Commonwealth of West Virginia. We are making progress in West

Virginia along the lines of weights and measures. In the last two

yeai's we have made some advanced steps. First, while we do not

require everything to be weighed now, practically every commodity

that is sold in bulk in the Stale is based on the standard bushel.

We have also a law on our statute book, passed in the last legislature, wherein a justice of the peace has the right to try and determine a case. Heretofore, we had to go before a jury, and we

have found by past experience tliat when you bring a case before a

jury, if there is an oiuice variation on a pound of butter, the

farmer does not think this very much. He does not realize that

this amounts to several hundred pounds a day perhaps; and it was

very hard for us to get a conviction. However, I have lost but one or two cases in the State. That has been our trouble, but since

the present commissioner of weights and measures has been in office we have been making very rapid strides. As you know, in our State we have a great many coal mines.

In the last year we prevented or settled something like 42 strikes. We find that the department of weights and measures has been of

value in the State in various ways, but the greatest thing I have to

tell you to-day is that the general public of the State is lining up

behind us and is now helping us. The Wholesale Grocers' Association—I was just in conference with them the other day—said

that from now on they will help us to get through anything we

desire. We feel that the people are waldng up to the value of

weights and measures work.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES, 49

WISCONSIN.

By Raxph W. Smith, Chief State Inspector of Weights and Measures. Mr. Chairman and gentlemen, I was not advised that the secretary

wanted a written report, so I prepared none. I think that all of

you are, perhaps, familiar with the work Wisconsin has done along

the weights and measures line. When I came to the State, I found

a very efficient organization, and I found an efficient and valuable

set of statutes and regulations, so that my work consisted largely of

attempting to carry on the work which was started. I feel that we

are doing much in a fair sort of fashion; but there is one part of

my work with which I am not satisfied, and I am going to mention

it at this time because I am in hopes that I can take back with me

some definite regulation on this subject—that is the question of oil pumps. It is the most troublesome question I have to contend with

at the present time.

The Chairman. I hope you will insist that our weights and

measures department give you satisfaction before you leave. After we get well started, we have specifications on liquid-measuring

pumps that will be discussed. By your experience you will decide

whether they should be adopted or not. We have finished the list of States. I note we have here a number of city officials from States not officially represented, and as it will take but a few minutes I would like to hear from at least one

delegate from these States. There is a representative here from the

city of Portland, and I would like to hear what Maine has done

recently along weights and measures lines. REPORTS OF DELEGATES FROM OTHER STATES.

MAINE.

By Augustus F. Bove, Sealer of Weiff7}ts and Measures of 'Portland. I have not much to s.ay, since my experience has been very short. I was elected by the city officers in the month of May, 1918. In

December I filed a report, and I called the attention of the mayor to the fact that we did not have enough weights and measures laws in

the city ©r in the State. I was directed to call it to the attention of

the State sealer. I think it will interest this convention to know that we passed a law

in the Legislature of Maine last February to the effect that no scale should be offered for sale, sold or used, unless it is approved by the

Bui'eau of Standards in Washington. I think this is a very good

law and that the State of Maine did well to pass it. I think the

Bureau of Standards favors such a law. That is all I have to say. NORTH CAROLINA.

By G. C. Simmons, Standard Keeper of New Haiwrer Coimfy.

We have no regularly appointed representative from North Carolina; so I have as much right to represent that State as any other.

We have a very good law on standards and have 75 inspectors in

North Carolina. Several counties in the State are governed by

special acts of the legislature, and they are getting along very nicely.

155530—2 4
50 BUREAU OF STANDAEDS.

I have for the past four years been trying to organize the State of

North Carolina by counties, since we have no State force. "We need some new laws. I think that in the next two years we will have an

organization of the counties and have annual meetings. Then we

can suggest to the legislature of the State any law we see fit and

have the strength to pass it. I think that is all I have to say. DISCUSSION OF FEDERAL APPROVAIi OF TYPE OF APPARATUS.'

The Chairman. Eeferring to the remarks of Mr. Bove, I think he was entirely right in his attempt to put that through. There is no

such national law. There ought to be, but the fact is that it has not

as yet been enacted. I think that of all the legislation that has been

proposed in connection with weights and measures a national law

along these lines is the most important, and there should not be the

least objection to it. Much to our surprise, we find a lot of foolish

opposition every time it is brought up. One argument Avhich has

been urged is that the Bureau of Standards would take that opportunity to require apparatus to be in the metric system. Of course, we would not do so, nor would we have any authority to do so. There should not be any device used that is not accepted by experts

as being proper.

Mr. BovE. May I be permitted again? When we passed that

law last February, it was at first provided that such tests should be

made by the sealer of weights and measures of the State of Maine,

and then suggested that the State sealer, perhaps, did not have the

experience that the Bureau of Standards had, and it was accordingly

changed on that basis. I appeai'ed before the committee in favor

of it. I had to condemn 75 out of 100 scales in the city of Portland.

That is why that law passed. Maine was the first State in the Union

to pass that law.

Mr. Goodwin. I believe the gentleman has the right idea. Any

scales that do not pass the test of the Bureau of Standards ought

not to be allowed to be sold in this country. I think the proper

thing for any scale manufacturer to do is to send his scales here and

have the Bureau of Standards pass on them.

Am I right in my impression that the Ashbrook bill, considered at a previous conference, covers this question ? The Chairman. Yes, indeed.

Mr. Goodwin. It has the sanction of this Bureau ? The Chairman. It has been approved by this conference.

Mr. MiKESELL. Is the bill still pending ? The Chairman. It will be reintroduced. The bills all die when

Congress dies. This is the beginning of a new Congress.

Mr. MiKESELL. I fully understand that, but I meant the intention

is to follow it up?

The Chairman. It is, so far as the Bureau is concerned.

Mr. MiKESELL. That is what I meant.

Mr. Tucker. I have a reason why it is necessary for the Bureau

of Standards to verify whether the type of scale would stand a rigid inspection. There was a make of scales we had not come across

in the State of Indiana and we wished to know whether they should

' See also paper and discussion of this subject on pp. 134-139, and resolution on p. 205.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES, 51

be allowed to come in. If it were so that the clitferent scale firms of

the United States would have to submit their specifications to the

Government, we could get information immediately on such questions. The Chairman. I think that there will be no difficulty in getting

the Bureau to pass upon them. It is the question whether our objection would prohibit much of itself. You would have to be

backed up by your laws. As matters stand, you yourselves would

have to take the responsibility of prohibiting the importation and

sale. Mr. Tucker. A scale that would not be approved by the United

States Bureau of Standards should not be allowed to enter into inter- state commerce. The Chairman. Under present conditions we would simply serve

as your advisers.

Mr. Gregg. On that particular subject I want to ask a question of

interest. Could not objections of manufacturers and of Members

of Congress who oppose this bill be eliminated by limiting the ap- proval to the type instead of to the individual scale? Have the

type approved by the Bureau of Standards.

The Chairman. The proposed legislation refers only to type. I presume that ample opportunity will be given for discussion of this

subject as we progress along the program.

Mr. Steinel. At this time I would like to make a suggestion,

after listening to these various reports and seeing new States repre- sented here. I would like to have the chairman instruct the secre- tary to furnish us with a list of the States represented here this year, because when we get home the first question that is asked is, " How

many States were represented ? " If you can give a table of that

kind showing how the work is growing it would be very useful. It could be compiled easily and given to all the members before we go. The Secretary. We certainly could give him what he asks for. The Chairman. We can give a list of names, papers, the text of

the resolutions passed, etc. Mr. Hanson. I think it would be well to get the names and addresses of every one here. Mr. Steinel. Possibly those who are not represented; it would

bring them into the organization of weights and measures. Mr. MiKESELL. I think that is gotten out by some of the boys here,

who always prepare a list for us. We always get the list. I have

already asked Mr. Holbrook to furnish a list of all those present, to- gether with information as to whether they are delegates or guests. I think that is the list that Mr. Steinel speaks of. ADDRESS BY THTJRE HANSON, COMMISSIONER OF STANDARDS OF

MASSACHUSETTS.

Mr. Chairman and gentlemen, while the subject assigned me was

a resume of the work done by the Massachusetts department during war times, I told the secretary that the allotted time for preparation was so short that I could not get all the material together. I will

give you, however, a resume of the work our department did in co- operation with the local sealers in enforcing the food regulations and

also the ooal regulations.
52 BUREAU OF STANDARDS.

During the months preceding the entrance of the United States

into the late World War the export of foodstuffs from American

ports increased tremendously. Whether the market be the whole

world or a single city, delivery is a considerable problem and usually one of the chief items of expense. While there were huge stores ol

wheat in Australia, Argentina, and India, the shortage of shipping

eliminated these distant sources of production during the entire

period of the war. When our country entered the war in the spring of 1917, the food

problem immediately became acute. In a few months approximately

2,000,000 men were inducted into our Army and Navy, reducing production and at the same time increasing consumption of food and

other necessities. Food regulation became necessary in order that by

eliminating waste and using substitutes the savable surplus might be

sufficient to keep our Army and those of our allies fit for fighting.

While the great majority were willing and anxious to cooperate in

the conservation program of Mr. Hoover, there were, as usual, some

slackers, some few who must always be policed to prevent them from

confounding liberty and license, and it became necessary to appoint

food administrators in the various States and to regulate sales of

sugar, flour, meats, etc., by requiring dealers to be licensed and by

suspending or. revoking these licenses for violation of the regulations.

In order to secure the greatest degree of efficiency, it was necessary

to have a representative of the Food Administration in every city

and town. In other States it was necessary for the food administrator to build up an organization of volunteer assistants in the

varioiis cities and towns. Massachusetts has a sealer of weights and

measures in every city and town, and when this opportunity for

patriotic service was called to their attention there was a unanimous

response. There have been numerous occasions when special information from a particular city or town was necessary or desirable.

Invariably a request from my department to the local sealer for such

information brought an immediate response. The ready response to

all calls has been impressive, and the service rendered by the local

sealers, in cooperation with my department, has been officially recognized by State and Federal authorities.

When the rules and regulations governing the manufacture of

bakery products became effective on December 10, 1917, this alreadyestablished organization of weights and measures officials, acting

as bakery inspectors, enabled Massachusetts to set the pace for all other States in their administration and enforcement. In order to

facilitate the work and render the cooperation of the sealers more

effective, my dejDartment issued a bulletin of 20 pages, containing

the rules and regulations, instructions to bakery inspectors, etc. I may say here that at the time the Food Administration ques- tioned the advisability of making a uniform loaf to be sold throughout the country the Food Administration telegraphed to Massachusetts and asked if we had any data. Previously we had compiled

data as to the weights of bread. A few days afterwards we received

a telegram asking if it was possible for us to give the weight, selling

price, etc., of bread made in Massachusetts or sent to us. This tele- gram was received in my office about 4 o'clock in the afternoon and

at 7 o'clock that night we had a circular letter put through a multigraph machine and sent out to all the city and town sealers. In a
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 53

few days we had information from every corner of Massachusetts

relative to the weight of bread, price, wholesale and retail, and all other information the administration wanted, and inside of seven days the information was down here at Washinglon.

While the Food Administration was emphasizing the fact that

food was necessary in order to win the war, the Fuel Administrator was pointing out with equal emphasis that coal was needed to trans- port troops and supplies, to make munitions and other war matei'ials,

and to keep our industries going. Coal dealers were licensed, shipments regulated, and prices fixed for various commodities. Our

State inspectors and local sealers again materially assisted in en- forcing these regulations and restrictions, while I supplemented their

eflPorts by the publication of a special number of the Thrift Series."

calling attention to the importance of economy in the use of coal for

cooking and other household activities ; to the opportunities for in- telligent substitution of other fuels, such as wood, kerosene, gas, and

electricity; and to the practice of economy in selecting, cooking,

and serving foods, showing how to eat plentifully and wisely without waste.

It should not be understood, however, that other activities of the

Massachusetts department were at a standstill while carrying on the

special work incident to the war. On the contrary, more than the

usual amount of progressive legislation has been enacted in the years

since the last conference, and the following summary may be of in- terest to those present.

Legislation relative to the work of my department enacted by the

general court since the last conference may be summarized as fol- lows:

Chapter 44, General Acts of 1916, authorizing the commissioner of

weights and measures, with the approval of the governor and council,

to establish district offices. Chapters 48 and 242, General Acts of 1916, relating to licensing

of hawkers and peddlers. The statute governing this subject was

originally enacted in 1846, and, in the amendment of different sec- tions since that time, there had been no attempt at a comprehensive

revision of the entire statute. The result was an apparent conflict

between different sections, and the enactments of 1916 were designed

to facilitate the construction and enforcement of the law.

Chapter 120, General Acts of 1916, transferred the licensing of

itinerant vendors from the secretary of the Commonwealth to the

commissioner of weights and measures. The chief distinction between the " itinerant vendor " and the " hawker or peddler," as defined by the Massachusetts law, is that the former occupies a building or structure for a temporary or transient business, while the latter travels about from town to town, or from place to place in the same

town. Upon the assumption of this additional duty by my department it was found that but three itinerant vendors' licenses had been

issued during the entire year 1915, the license fees amounting to

$75. In the first eight months my department issued 41 licenses, col- lected fees amounting to $1,025, and successfully prosecuted three

unlicensed itinerant vendors.

Chapter 151, General Acts of 1916, provides for testing and marking the capacity of containers, which are furnished by the purchaser
54 BUKEAU OF STANDARDS.

of milk at wholesale upon petition of the seller to a sealer or deputy

sealers of weights and measures. Chapter 154, General Acts of 1916, requires that range boilers shall be marked with their capacity in terms of standard liquid measure,

together with the maker's name, and that range boilers, or other

vessels or tanks in which water is to be heated under pressure, shall

have stamped thereon the maker's guarantee that it has been tested

to not less than 200 pounds to the square inch by hydraulic or

hydrostatic pressure, together with the maximum working pressure

at which it may be installed.

Chapter 157, General Acts of 1916, amended the existing bread law

so that it shall not apply to bread sold in wrapped or package form

having the net quantity of the contents plainly and conspicuously

marked on the outside of the covering or container.

Chapter 8, General Acts of 1917, amends the law providing for the

testing of both weight and value indications upon computing scales, so that it shall also apply to any measuring device which purports

to indicate the price as well as the amount of the goods offered for

sale. Chapter 13, General Acts of 1917, relates to the marking of quantity

of contents on closed packages of apples.

Chapter 14, General Acts of 1917, establishes a fine not exceeding

$100 as the penalty for violation of the statute providing that if commodities are sold by weight it shall be understood to mean net weight.

Chapter 15, General Acts of 1917, permits the sealer to give a certificate, in such form as may be approved by the commissioner, when

sealing apothecaries' weights or other weighing or measuring devices

which are too small to be sealed in the usual manner. Chapter 21, General Acts of 1917, requires the commissioner of

weights and measures to establish specifications for graduated glass measures, and provides that he may authorize manufacturers of such measures to seal those which conform to samples which have been

approved by him as complying with the specifications.

Chapter 98, General Acts of 1917, transfers the duty of testing and

sealing taximetei's from the commissioner to local sealers of weights

and measures. Under the amended law the commissioner retains

the power to make such rules and regulations as he may deem neces- sary to insure accuracy in the use of these devices and a penalty of

$10 is provided for neglect or refusal to comply with these rules or

regulations.

Chapter 125, General Acts of 1917, repeals the mandatory provision which required that city and town standards should be verified

and sealed by the commissioner at least once in five years. It is now

provided that this work be performed at least once in 10 years, or

oftener if the commissioner deems it necessary. Chapter 152, General Acts of 1917, establishes a State clinical

standard thermometer and penalizes the sale or offering for sale in

Massachusetts of any clinical thermometer Avhich has not been sealed

either by the commissioner of weights and measures or by the manufacturer.

Chapter 237, General Acts of 1917, amends the itinerant vendors'

license law so that it shall not apply to a temporary or transient sale
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 55

in any city or town in which taxes have been paid upon the stock in

trade during the current year. It also permits the commissioner to accept a bond in lieu of the $500 cash deposit formerly required of all applicants for these licenses. Chapter 243, General Acts of 1917, increases the salary of the

commissioner of weights and measures from $2,000 to $2,500.

Chapter 65, General Acts of 1918, provides for the appointment

of local weighers, measurers, and surveyors of commodities in cities and towns upon petition of any person, firm, or corporation engaged

in buying, selling, or transporting goods or commodities which re-, quire weighing, surveying, or measuring.

Chapter 218, General Acts of 1918, provides that the commissioner of weights and measures shall hereafter be known and designated as the commissioner of standards and establishes his salary at $3,000 per annum. The new title is sufficiently comprehensive _ to include all divisions of the departmental work, the scope of which

had gradual^ broadened until the title of " weights and measures

" gave but slight indication of the activities of this branch of the

public service. Chapter 22, General Acts of 1919, authorizes the granting of special licenses as hawkers and peddlers without fee to disabled vet- erans of the present war. Chapter 63, General Acts of 1919, an act to prevent fraud in baling, or in packing in any container, any commodity sold by weight,

including wool, leather, cotton, waste, rags, and paper, by placing

any foreign substance in the package.

Chapter 91, General Acts of 1919, becomes effective January 1, 1920, and amends the present law relating to the sale of coke, charcoal, and kindling wood. It provides that when edgings or kindlingwood are sold in bundles the same shall be closely packed and not

less than 27 inches in circumference ; that unpacked kindling wood,

except when sold in bulk b}^ the load, shall be sold only by measure; and that baskets and similar receptacles used in selling coke,

charcoal, or kindling wood by measure shall be 1 bushel or multiple

thereof, shall have their capacity marked thereon, shall be sealed,

and shall be filled at least level full. It also standardizes paper bags used in the sale of coke, charcoal,

and kindling wood by measure, providing that their height shall

be not less than 25 inches, width not less than 13J inches, and width

of bottom not less than 4f inches. These bags shall contain and

shall be sold as containing one-half bushel and shall be so marked,

together with the name and address of the party who puts it up, and

they shall be filled to a point not more than 6 inches from the upper

end. A fine not exceeding $50 is the penalty for violation of the provisions of this act. Chapter 218, General Acts of 1919, amends the law regulatingfees receivable by sealers of weights and measures, providing a fee

of $1 for all scales with a capacity of 5,000 pounds; 50 cents for

all scales with a weighing capacity of 100 to 5,000 pounds; 10 cents each for all other scales, balances, and measures on pumps; and

3 cents each for all weights and other measures. There is also pending in the present session of the legislature a

bill relating to salaries of inspectors in the department of stand-
56 BUREAU OF STANDARDS.

ards. This provides that salaries shall hereafter be fixed by the

heads of departments under authority of the supervisor of administration, subject to the ajDproval of the governor and council.

Other, and perhaps the most important legislation now pending,

relates to the consolidation of departments. Under the nineteenth

amendment to the constitution of Massachusetts, submitted by the

late constitutional convention and ratified by the voters at the last State election, it is required that every executive and administrative

office, board, or commission, except those officers serving directl}^

under the governor or the council, shall be organized in not more

than 20 departments on or before January 1, 1921. As there are now more than 100 such officers, boards, and connnissions to be

consolidated and combined into not more than 20 departments, the

problem is a difficult one. Many tentative plans have been pre- sented only to be discarded or modified after discussion. Some of

these plans provided that the connnissioner of standards should be

placed in the department of the secretary of the Connnonwealth,

although there is little, if any, correlation in the duties and powers

of these two departments. The latest plan suggested Avould establish a new department of labor and industry, combining the present

board of labor and industries, board of conciliation and arbitration,

minimum wage commission, free employment agencies, labor statistics and statistics of miuiufacture, commissioner of standards,

and surveyor general of lumber, and board of elevator regulations,

provision to be made for dividing the department into various

divisions.

To many who have studied the question, a more logical combination would be that of the district police and the commissioner of

standards. It is impossible, however, at this time to venture any

opinion as to what combination of departments Avill eventually be

decided upon.

In addition to the new and progressive legislation included in the

foregoing summary, chapter 43 of the resolves of 1916 provides for

the appointment of commissioners to consolidate and arrange the

laws of the Commonwealth. As a preliminary to the final consolidation, the legislature of 1918 made 21 amendments to existing laws by

the enactment of chapter 257 of the general acts of that year, al- though these amendments do not become effective until February 1, 1920.

Among other bills we have laid a bill before the legislature in Massachusetts standardizing coal. In this bill we have provided

that the coal dealers shall be licensed in the same way that Ave li- cense peddlers. Every peddler in Massachusetts is controlled from

the State office. If the peddler is convicted for short weight, we

do not go to court and get a fine of $5 or $10, but simply suspend

or revoke his license, which has a better result. The bill relative to coal is drafted on the same principle. If a dealer in coal gives short

weight, it is easy to bring him into court and fine him $5 or $10;

but is that the desired result? Personally, I believe not, because,

gentlemen, you would have to be behind each and every man. My

recommendation to the legislature is that every coal dealer be licensed.

Then Avhen anyone is reported to our office for short weighing coal,

instead of bringing him into court have the sealer submit all his
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 57

facts and evidence, and if it is justifiable with one stroke of the pen we will suspend his license or revoke it. The Chairman. At this point on the program there was to have

been an address by Mr. Charles G. Johnson, of California. Unfortunately, Mr. Johnson can not be with us. Next on the program is the paper of Mr. Ealph W. Smith, of Wisconsin.

MECHANICAL VERSUS SUPERVISIONAL WEIGHTS AND MEASURES

WORK, BY RALPH W. SMITH, CHIEF INSPECTOR OF WEIGHTS

AND MEASURES OF WISCONSIN.

In talking upon the subject of a comparison between the mechanical and the supervisional sides of weights and measures work I do

not hope to present any distinctly new thoughts. I lay no claim to a greater knowledge of the details or a more comprehensive grasp

of the possibilities of weights and measures work than is possessed

by any of you. But I have two hobbies, so to speak, in connection

with my work; one of these is the metric system, which I sincerely

hope to see generally adopted in this country at no far distant date

;

the other is a sort of homemade ideal of what weights and measures

supervision should mean, an ideal which I strive to keep before me

in my own work. I do not wish to pose as a teacher but rather as a reminder; and if the thoughts which I present are obvious I think at the same time they are frequently overlooked and forgotten,

and if my remarks are instrumental in bringing them again to your

attention I shall feel that my paper has served its purpose.

You will agree with me, I think, that weights and measures work

may be rather sharply divided into two general classes, one of which

deals with the equipment itself and the other with the manner in

Avhich that equipment is used ; and I shall refer to these two classes as the mechanical and the supervisional.

In the early days of weights and measures activity, thought was

largely given to only one phase of weights and measures Avork,

namely, the condition of the various weighing and measiiring machines and devices which were in use. This was proper, because the

first essential requirement for desirable conditions along this line is that the weighing and measuring instrumentalities themselves be correct. So, for the first few years attention Avas concentrated upon

eliminating faulty devices, testing and adjusting and approving such

devices as it was proper to use, and working with the manufacturers

in raising the standard of new equipment.

The importance of this work can not be overestimated. As I said

before, it is absolutely necessaiy that the machines themselves be of

the proper type and be in proper condition in order to secure the desired results. We still find it necessary to examine critically the

equipment which is in use and ncAv equipment which is being manufactured for use, with a view not only to maintaining the standards

established, but also to improving them Avhere our experience has

shown improvement can be made. The actual testing of equipment

is a feature of our work Avhich can never be done away with, because

a scale or an oil pump is nothing but a machine and as such will wear

out and will get out of adjustment. The ordinary merchant or user of such equipment is not sufficiently skilled to recognize the necessity

for, or to make, the necessary repairs and adjustments, and as a result

this work falls to the weights and measures official.
58 BUREAU OF STANDARDS,

I shall not presume to advance any suggestions as to the methods

of performing the mechanical work except to point out that it is by

his expertness along mechanical lines that the inspector in the field is first judged. He should constantly strive to perfect himself in the

details of his work, keeping the motto of " Accuracy " ever before

him.

And if I may digress for a moment, I would like to emphasize the

necessity for care on the part of the official in properly marking the

e(iuipment which he examines. This is of prime importance, first, because it is an assurance to the merchant and to the public that the

equipment has been properly examined, and, second, because it is a constant reminder of the existence of a supei-vising agency. This

point has been brought out by Mr. Holbrook in his recent book of in- formation to weights and measures officials in which he says

:

When apparatus is sealed, it is desirable that one be able to ascertain from

the apparatus itself certain facts ; for instance, by what authority it was sealed and when it was last sealed. The mark placed upon equipment by any sealer should be as con- spicuous as possible, and it should convey to all interested parties

not only the fact that the equipment has been examined, but also the

date on which it was examined. The practice of leaving the last year's seal upon equipment without change when it is found upon

subsequent inspection to be correct should, I believe, be condemned,

because after the sealer has left there is nothing to show for his most

recent inspection except the report which is left with the merchant.

The report is a necessary document, but the seal upon the actual

equipment itself is the thing which the public sees and this seal should convey all possible information.

The effects of the attention given to the mechanical side of our work have been most noticeable during the first few years of a department's existence. The result of this activity has been that the

faulty and fraudulent equipment has been gradually eliminated and

that the errors found on the later inspections have been largelj^ due

to what I ms.y term " natural causes "—wear, the accumulation of

dirt, carelessness, etc. ; and as the mechanical condition has improved

it has become the duty of the sealer to devote a greater portion of his

time to the supervisional side of his work.

I have said that it was his duty to devote more time to the supervisional work, and I used that term advisedly. I think most of the

laws under which we operate make it mandatory for the sealer to perform try-out woik of some kind or other, and, while supervisional

work embraces other activities besides try-out work, the implication

is that the sealer should perform this work just as faithfully as though it were specified in the statutes. The conscientious sealer

overlooks no opportunity to benefit the users of weighing and measuring equipment and the public in general, and for his department to realize its greatest usefulness he must branch out into many fields not specifically defined in his law.

Briefly, supervisional work embraces try otits made upon packages

put up for sale and upon packages in the process of delivery, inspections of weighing and measuring equipment (and I contrast this witli actual testing of such equipment), educational work among merchants and users of scales and measures, educational work among the
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 59

people at large, and, finally, prosecutions. At the present time I consider this phase of the work to be fully as important as the

mechanical part, and I feel that it should receive an equal, if not a greater, amount of attention from the weights and measures official. We have never before experienced a period in which high prices

have so uniformly prevailed or, in consequence, a period, in which

slight deviations from the straight and narrow path of absolute ac- curacy have meant so much to the purchaser- The weights and measures official, whether he be the director of a State department or the

inspector in the field, may well feel a justifiable pride and satisfaction in correcting even the smallest irregularities in the equitable determination of quantity.

By try-out work, as I shall use the term, I mean the weighing up

of packages put up for sale by the merchant himself, wiiether on his counters or in process of delivery, and also packages put up by vari- ous manufacturers and found upon the merchants' shelves. No purpose is served if a merchant's scales are correct providing he does

not use them correctly. If packages are put up which are short in

Aveight it may be due to one of several causes : The scale may be out

of balance, the merchant may be careless, his clerks may be improperly instructed, he may not be familiar with the provisions of

the net-weight law, or he may be Avillfully dishonest. Fortunately,

the last reason will not often hold good.

Once telling a merchant may be all that is necessary in a good

many cases, but I believe it will, in the majority of instances, be

necessary for the sealer to exercise a rather careful supervision

extending over a considerable period before compliance with all of our regulations becomes automatic on the part of our dealers. Visits

of inspection at frequent intervals, particularly when the visits are unexpected, have a very salutary influence upon the merchant. If

he is careless, it will help him to overcome his carelessness; if his

clerks are not properly instructed, that instruction can be given and

emphasized by the sealer; and, if the merchant is willfully dit

honest, he will be deterred from indulging in fraudulent x^ractices by the fear of being caught by the sealer, and eventually compliance

will become a fixed habit.

Try-out work also includes investigations in other places than a

retail store. It is the sealer's duty to see that coal companies and

grain companies, wholesale establishments of dilferent kinds, milk

depots, bottling plants, etc., comply with the regulations applicable

to those businesses. And one of the important things, it seems to me, in try-out work is to approximate as closely as possible actual

"customer conditions." This may best be realized when examining

goods put up for delivery or in process of delivery.

The investigations of complaints preferred by various consumers

also fall under this heading, and I might say that I believe one of

the best ways for the weights and measures official to advance his

department and make it valuable is to encourage his ])eople in reporting all apparent violations of the law for investigation. If a per- son reports such a violation or reports what he thinks to be a violation

and finds that the sealer promptly and thoroughly investigates the

matter and takes vigorous action to correct the error, if error is fonnd, he immediately conceives a very favorable impression of the
60 BUREAU OF standards:

department and of the official and feels that his interests are being

properly safeguarded. This is equally true Avhether the complainant

be a householder buying from a retail merchant, a retailer buying

from a wholesaler, or a wholesaler buying from a manufacturer.

In any event he is made not only a friend of the department, but in

most cases will become an ardent supporter of it and from that time on will lend that cooperation which is so essential in achieving

results. When a place of business is visited for the purpdse of making try outs upon package goods or for investigating methods of sale, the

equipment used by the dealer should be examined to see that it is being maintained in proper condition. It is only a matter of a moment to see whether a scale is in balance and working freely, and

the vibration of a computing scale may be as readily noted. Since

balance has been mentioned, I might say that I consider a scale out

of balance a fraudulent weighing machine, and I think that it should be treated as such. I can see no reason Avhy a merchant using one of oiu- modern computing scales, where the balance can be checked

with no effort at all on every occasion when the scale is used, should

maintain such a scale in an out-of-balance condition. This can only

be accounted for by gross carelessness or by a desire to defraud, and

I think that if this condition is found repeatedly it is sufficient grounds for prosecution.

Xor should examination of eciuipment stop with the scales. The

oil pumps should be checked to see whether they are working properly ; the measures used for heavy oils should be examined to see that

they are not partially filled or coated, thereby lessening their effec- tive capacity; weights should be examined to see that the adjusting

material shows no evidence of having been tampered with since the

last sealing. In other Avords. the supervisional visits should be a general survey of the merchant's establishment for the purpose of

determining his compliance or noncompliance with our regulations,

I also believe that the importance of keeping full and complete

records of all try-out work performed shoulcl not be overlooked.

I have said that education was one of the important features of a

sealer's duty. I think that is one of the fundamentals upon which

our success is largely dependent. Educational work properly car- ried on will make friends or enemies of the people we work for and

with. Let us convey to the merchant the idea that we want to cooperate with him and that we desire his cooperation with us. Let us encourage him to look upon us more as assistants than as inspectors.

And educational work should not cease with the merchant, but

should be carried to the public generally. Many means are available for this purpose : Helpful publications for general distribution,

the public press, meetings of business men, meetings of women's

clubs and various societies, frequent reports of our work, etc. There was a time in the early days when an exhibit of faulty equipment was considered an essential pail of any weights and measures talk

;

but I think that the time has passed Avhen we should lay emphasis

upon the faulty, fradulent side of our work. We should hold up to view the good equipment, the correct scales and measures, rather

than the incorrect ones. In publicity work among the . housewives an effort should be made to interest the individual in checking all
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 61

purchases made by means of reliable sealed equipment. That publication of the Bureau of Standards entitled " Measurements for the

Household " will be found a source of great assistance along the line

of weights and measures from the standpoint of the laymen. It should be borne in mind that the housewife is the one who makes

the majority of purchases for the household and that missionary

work among the housewives will bring most satisfactory returns. Cooperation may well be termed the keynote of successful weights

and measures work; and cooperation is dependent upon knowledge.

The dissemination of knowledge concerning all that relates to our departments—laws, regulations, and our own activities—should be our constant aim. Consistent, constructive publicity will accomplish

wonders.

As the final phase of supervisional work comes prosecution—the means by which the weights and measures official enforces compliance with the law and regulations. And as prosecution is a heavy

weapon, it should be used judiciously. It should be resorted to only

when gentler methods fail or when the gravity of the offense makes

necessary a severe punishment.

If I may sum up what I have tried to express, I would say that I

feel we must consider our duties as weights and measures officials to be twofold—mechanical and supervisional—and that for our work

to attain a full and complete development each phase must receive

its due share of attention, with particular emphasis at this time upon

the supervisional. And. I would like to leave with you the two words

which I feel convey the essence of my thought about our work^—

" accuracy " for the mechanical side and " cooperation," with its corollaries " knowledge " and " publicity, " for the supervisional

side. THE SALE OF WOOD, BY H. A. WEBSTER, COMMISSIONER OF

WEIGHTS AND MEASURES OF NEW HAMPSHIRE.

Mr. Chairman and gentlemen, when I accepted Mr. Fischer's in- vitation to address the conference on the matter of regulating the

sale of wood for fuel purposes I stated that I did not regard myself

as an expert in this matter, nor did I consider the bill which was

passed at the recent session of the New Hampshire Legislature as an

absolutely perfect one. Until recently there existed in New Hampshire a custom of selling wood for fuel pu.rposes by an indefinite load

measurement, and, of course, the only avenue through which to proceed with any success in alleviating the condition of affairs was the

legislature. I therefore submitted a bill as an amendment to the

original weights and measures law which establishes definite meas- urements by which wood for fuel purposes shall be sold. The old statutes concerning the sale of wood were not as stringent

as they should have been, and consequently many people when purchasing wood by the " load " rather than by the " cord " or by a

" standard load measure " had been paying at the rate of $24, or more,

a cord for wood. Such a condition of affairs was deplorable, for the

public had had no redress, and therefore had been at the mercy of

many unscrupulous wood dealers. The term " load " used in the

sale of wood was vague, for it represented no system of measurement,

and therefore provided a very convenient opportunity for deception.
62 BUREAU OF STANDAEDS.

Wood dealers in New Hampshire were thoroughly familiar with the

insufficiency of the old law, and the public was also familiar with it and constantly appealed to me for help, for they realized that carelessness and indifference in the estimation of quantities in the sale of

wood ought to be prevented. The prices demanded by the wood

dealers were fully ample, and therefore they had not the least excuse

for delivering, for instance, two-thirds of a cord as a "load" and

accepting the price of a cord, for they deliberately took one-third of

the purchase price. I gave the matter a great deal of publicity in the newspapers

which aroused the people of New Hampshire to a realization of the

prevaling conditions. I pointed out to them that they should see to

it that their chosen representatives in the legislature voted for the

bill that had been presented, and thereby abolish the iniquitous cus- tom which had been very flagrant throughout the State and which was nothing more or less than a gross imposition upon the public.

After the wood dealei-s became aware that there was a movement

on foot to establish some definite measurements by which wood for

fuel purposes should be sold, they literally swarmed into my office. In most instances the dealers agreed with me that something should

be done to relieve the situation, but were very solicitous in offering

suggestions, which, if accepted, would of course in the main have

been helpful to them. It was the opinion of several wood dealers

that the law should define the number of cubic feet in a cord of loose

wood. I told them repeatedly that a provision of this sort would

not be considered.

In substance, the New Hampshire wood law provides that all wood

sold for fuel purposes over 16 inches in length shall be sold by the

cord or fraction thereof, and that no cord of any length wood shall contain less than the equivalent of 128 cubic feet of compactly piled

wood. It provides that wood 16 inches in length and under, edgings,

bobbin wood, clippings, slabs, and other waste may be sold by the

cord, ol" by the load in the loose, provided the load contains 80 cubic

feet ; that three-fourths of a load contains 60 cubic feet ; that one-half

of a load contains 40 cubic feet; that one-fourth of a load contains

20 .cubic feet ; and that no wood shall be sold by the load in any

other dimensions than as heretofore stated. It provides that wood

not exceeding 12 inches in length and waste may be sold by the

bushel and also that no person, firm, or corporation selling or offer- ing for sale wood not exceeding 16 inches in length, edgings, bobbin

wood, clippings, slabs, and other waste by the load in the loose shall

neglect after May 1, 1919, to specify in figures at least 1 inch in

height the cubic contents of the cart or delivery vehicle upon the outside of the container used in such delivery. The penalty for violating this section of the weights and measures law is provided for in

section 7 of the original act, which states that upon the first conviction a fine shall be imposed of not less than $20 nor more than

$200 and imprisonment and that a fine of not less than $50 nor more

than $500 and imprisonment shall be imposed upon a second conviction.

After making a careful review of the laws governing the sale of

wood for fuel purposes in other States, I was surprised to find that

so little legislation had been enacted on this very important matter.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 63

North Carolina and Vermont are the only States, in addition to New

Hampshire, which have adequate regulations concerning the sale of wood. The North Carolina regulation is statutory and is as follows

:

All firewood sold in incorporated towns shall be sold by the cord and not othenvise ; and each cord shall contain 8 feet in length, 4 feet in height, and

4 feet in breadth ; and shall be corded by the seller under the penalty of $2 for each offense to the use of the informer. In Vermont the commissioner has the power to regulate the sale

of all commodities, and in view of this privilege which is granted

in that State, Commissioner Scott issued the following regulation

:

All wood sold for fuel purposes in the State of Vermont, with the exception

of slabs, edgings, kindling, clippings, and other mill waste, shall be sold by the cord or fraction thereof. A cord shall contain 128 cubic feet of wood. A

cord of 16-inch wood shall contain the equivalent of three piles of wood 4

feet high, 8 feet long, and 16 inches wide. A cord of 12-inch wood shall contain the equivalent of four piles of wood, 4 feet high, 8 feet long, and 12 inches, wide, and no cord of any length wood shall contain less than 128 cubic feet of wood.

In all other States where this subject is touched upon at all, with

the exception of Minnesota, a cord is defined as containing 128 cubic

feet, and, in fact, there is no other definition for a cord in this country. Of course, this applies to fitted wood as well as the usual cord

length of 4- foot wood. There should not be several definitions for a cord of wood any more than there should be several definitions for an avoirdupois pound, and if a custom were inaugurated which would

be the means of deviating from this universal measurement it would

i"esult in confusion. The people have been burdened enough lately

with definitions and regulations, and, as it is probably harder to regulate the sale of firewood than any other commodity, the old

system of measuring wood by the cord should be continued ; but in

order to prevent increasing the price of fitted wood I have found

that it was feasible to standardize a load of thrown-in wood. The

fact that there is a shrinkage should not be overlooked, for if a cord

of 4-foot wood is sawed three times and piled again it will be' found

that a shrinkage exists for the reason that short pieces of wood will

lie more compactly together than long ones. However, if a cord of

4-foot Avood be sawed and split it will be found, after piling, that in

many cases the cubic contents will be larger than in the first place.

Many experiments have been made to determine the cubic contents of

a cord when cut into various lengths and thrown hit or miss into a

bin or wagon body, and it has been found that there is a variation.

Therefore, if this particular feature were embodied in any statute

it would be found that in order to have an absolutely accurate defini- tion it would be necessary to establish at least 25 or more tables. For

instance, the same definition for cleft wood would not apply to round

wood, nor would a definition for 12-inch wood of either kind apply

to 16-inch wood of either cleft or round wood, and, besides, the di- mensions of the bin would have some effect upon the number of cubic

feet. It was this particular feature which prompted me to establish a standard load rather than cord definitions for the various lengths

of cleft and round wood. Eighty cubic feet of loose wood is approximately the equivalent of half a cord of the same wood when piled up.

T realize that the ideal way of selling all wood for fuel purposes is
64 BUREAU OF STANDAEDS.

by the cord measurement of 128 cubic feet, but the labor in piling

will in all cases increase the price, and, of course, the main advantage

in standardizing a load is that the public will be able to purchase

wood by some definite measurement without paying the extra cost of

piling.

Both features of selling by the cord and by the standard load are embodied in the New Hampshire law. As I stated at the beginning

of this address, I do not regard the New Hampshire law as absolutely

perfect, and I am of the opinion that an amendment should be added

regulating the sale of edgings, as the sale of this particular kind of

wood by the bundle is not prohibited, and yet if edgings are sold by

the bundle the bundles should have some uniformity. However,

New Hampshire has many acres of woodland, and consequently many

sawmills are operated and prices charged for waste wood are low,

except in the cities, and even there the people find that it is much

more economical to buy either a cord, or a standard load, of fitted wood rather than waste. The wood law in New Hampshire has been in effect only since

May 1, 1919; but already the people are heartily commending it, and

I thoroughly believe it is one of the most important, as well as most

popular, features of the work in connection with the New Hampshire

department of weights and measures. Since I have come to this conference I have learned that Minnesota

has a law regixlating the sale of wood. I understand that Minnesota

has defined the number of cubic feet in a loose cord of wood, etc., and

I imagine that they have a gi-eat many definitions thei*e. The New Hampshire law does not state that 80 cubic feet of loosely

piled, sawed-and-split wood is a half cord, but after making many

careful inspections it has been determined that it is approxnnately

this amount. I thought it better, however, not to attempt to define

the number of cubic feet in a loose cord of wood.

PROGRESS OF TRACK-SCALE INVESTIGATION, BY E. D. GORDON,

BUREAU OF STANDARDS.

At the time of the last Annual Conference on Weights and Measures—namely in the spring of 1916—the Bureau of Standards trackscale-testing equipments had made about 600 tests. Test car No. 1 had been in service about two years and test car No. 2 only a few

months. Nearly all of this work was more or less scattered throughout the country, and logically so, for it was the purpose of the

Bureau in the early days of the track-scale investigation to obtain

a knowledge of railroad track-scale conditions in general as quickly

as possible. This work covered all of the territory east of the Mississippi Eiver and a few States bordering on the west bank of that

river.

Since that time these two equipments have been working continuously, and, in addition to these, testing equipment No. 3 started work

about one year ago. At the present time the Bureau has tested in

all about 2,300 different railroad track scalds throughout the country.

From 50 to 100 of these scales have been tested two or three times,

so that the total number of tests to date is very nearly 2,500. This

work, of course, covers the entire country from coast to coast, and,

although, still more or less scattered, yet it is fairly representative

of the different sections of the country when based upon the density
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 65

of scales, so to speak. As yet the Bureau has never attempted to

test all of the scales of any one railroad, especially the larger sys- tems, but in some cases it has been advisable to concentrate the work

in a certain locality.

Although this number of 2,500 seems somewhat large at first, yet

I believe it would be interesting to plot the results of your answers

if I were to ask each of you gentlemen to give an estimate of the

total number of railroad track scales in the United States. I am

inclined to believe that some of your replies would be similar to that of a State superintendent of weights and measures one time

when a Bureau testing equipment was about to do some work in his

State. He met us one day at the beginning of the work and during

the course of conversation about our plans in his State said that he

hoped we would remain long enough to test most of his track scales,

although he understood that it would require considerable time, for

there were at least 80 scales in the State. We concurred in his

opinion and stated that we would probably test the majority of them

in that case. As a matter of fact, there were more than 600 track

scales in that State, and at that particular time we tested about 90

of them.

The Bureau has recently made a census of railroad track scales throughout the country, including those owned both by railroads

and by industries. The results of this census indicate that there

is a total of approximately 10,000 railroad track scales in the United

States. From these figures, then, you can readily see that to date the

Bureau has tested about 25 per cent of all these scales. When it is considered that these tests cover a period of about five years and

have been so placed that practically all of the railroads, especially

the larger ones, are included in these tests, then I am sure you will

agi'ee with me that the results of the work of this investigation

indicate quite accurately the general condition of scales throughout

tho country. Some of you may take issue with that statement for

the reason that 25 per cent does not seem to be a sufficient^ large

percentage in order to give an accurate representation of general

conditions. However, we believe it is, because the Bureau's exjDeri- ence has been that when a considerable amount of work has been

done on any one railroad we have found that the testing of 10 to 20

per cent of the scales owned by that road when selected at random

would give a very good representative idea of the scale conditions

for that particular road.

In addition to the regular testing of railroad track scales, the

Bureau's precision equipments No. 1 and No. 2, have, during the past

three years tested all of the railroad master scales in the country once

a year, making these tests upon a regular schedule, in cooperation

with the American Eailway Association. In the fall of 1915, when

the subject of track-scale investigation was under discussion, it was

realized how important a step it would be for the proper maintenance of track-scale accuracy to have all of the railroad master scales regularly calibrated and adjusted to within a specified accuracy by a

single standard. As the Bureau of Standards was the logical place

to look for such a standard weight, and as the Bureau's precision

equipments, because of their unique design, were the only testing outfits in the country which were properly equipped for such testing, an

agreement was entered into with the American Eailway Association

155530—20 3
66 BUREAU OF STANDARDS.

whereby all of the railroad master scales would be tested and adjusted by the Bureau precision equipments once a year. The far-reaching importance of this work can not be overestimated.

If all the railroad track scales were properly maintained by their

respective owners, then every railroad weight throughout the country

would be very closely related to a standard weight, for there is only one element of transfer between the master scale when certified as

Si

^ a

a 3 — oa

as

o a, ao M

71 U

a°

O il So

•• u o

•A . P. 2 3=>

X M (S

correct by the Bureau and the railroad track scale—namely, the rail- road scale-test car. Now, I wish to give in a general way a summary of the results of

the first 2,000 tests made by the Bureau's testing equipments. In

order to make this summary as simple and as clear as possible, I have

it here in two different forms : First, in the form of graphical curves, and, second, in the form of a table (fig. 4).
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 67

The curves are self-explanatory when one is close enough to read

them, but under the present circumstances I will give a few details

about them before discussing the results. You will note that there

are three curves here, two of them each representing a series of 500

tests, and the last one, or curve No. 3, represents a summary of the

first 2,000 tests made by the Bureau. Now, upon examining one

of these sheets closely you will note that it is subdivided into little squares and that there are exactly 500 such squares across the sheet

in a horizontal direction, so that we have made each little square

represent one scale test. In the vertical direction each little square,
68 BUREAU OF STASTDARDS.

of which there are 400, represents 0.01 of 1 per cent error. In plotting the curve, therefore, we plot the number of scales in the hori-

'iontal direction and the errors in the vertical direction. The heavy

black line in the center of the sheet represents zero error and is the

dividing line between the plus and minus errors. You will note that

1 Ir:'. V ---

CO

=3 0)"

S 4)

the plus errors have been placed above this line and the minus errors below. The manner in which we plot these curves may be of interest. The first thing that is done is to draw the zero line and then

indicate on the first vertical line to the left the points for the per- centages of error. You will note in this particular curve that the

top line represents -j-2 per cent and the bottom line —2 per cent.
TWELFTH ANNUAL CONFERElSrCE ON WEIGHTS AND MEASURES. 69

Then we proceed with the results of the 500 tests by separating all the plus errors from the minus errors and then further separate

these errors into groups, depending upon their value. Now we are ready to plot the results, and upon curve No. 2 you will note that in

this particular case we had three tests with errors greater than +2

per cent. The next largest error was +1.85. There was only one

scale that had this particular error. The next largest error was

+1.49, and there was but one scale having this error. This method

is continued until all the plus errors have been plotted. Then the

minus errors are plotted in the same manner. You will note that

toward the ends of the curves the horizontal lines are short, which

indicates that there are in these cases only a few scales tested with

these errors, and in the middle of the curve the horizontal lines are

relatively longer, which indicates that there are several scales having

these particular ei'rors in each case. After the curves have been

plotted then the tolerance lines are drawn and are shown on the curve

as the horizontal dash lines above and below the zero line. This

tolerance represents plus or minus 0.2 of 1 per cent. You will note that the most striking feature about these curves

is their similarity. This is somewhat to be expected, because the

Bureau in all this work has endeavored to make these tests as representative as possible of the general conditions, and for this reason very few duplicate tests have been made, and also in each year's

work the Bureau has endeavored to cover the entire country as far

as possible. You will note also that the number of scales having a minus error was slightly greater than the number of plus errors. This condition would tend to prove the idea that all scales theoretically will wear toward the minus error. However, in this connection

I wish to state that in all the Bureau's experience in carrying on

this investigation we have never discovered any attempt at fraud.

In this last curve (fig. 3) there is included all the tests contained

in the other curves. In this case, each little square horizontally

represents four scale tests. The squares in the vertical direction

lepresent hundredths of 1 per cent error, the same as on the other

curves. The table given herewith was hastily prepared for summarizing the same 2,000 tests in a comparative form, so that at a glance one is able to note several interesting features connected with each series

of the 500 tests. Before proceeding any further let me state that these 2,000 tests include both railroad-owned scales and industry-owned scales, in

a proportion of approximately 1,100 to 900, respectively.

Summary of 2,000 tests on railroad track scales.

Group. Year. Number

of scales. Per centpassed. Per centfailed. Per centplus. Per cent minus.

1913

1914

1 500 32 68 44 56

1915 1916 500 45 55 42 58 1917 500 39 61 54 46

1918 500 44 66 44 56

1913-1918 2,000 40 60 46 54

Figure 4.
70 BUREAU OF STANDAKDS.

Now, suppose we turn our attention for a few minutes to the tabulated form (fig. 4). Each vertical column is headed by appropriate

notation; the first column gives the grouping or series of test; the

second column gives the year during which the tests were made ; the

third column gives the number of scales in question ; and so on across the sheet we have the per cent of scales which passed, next the per

cent of scales which failed, and the next two columns give the per

cent of scales having plus errors and minus errors. In the horizontal lines are given statistics for the first, second,

third, and fourth series of 500 tests, and then the sum or total of

2,000 tests. This table is a hasty analysis, we will admit, but it gives in a general way the results of the investigation as it has progressed from

year to .yeai', and it also indicates quite accurate!}^ the general conditions of railroad track scales throughout the countrv. You will note

that the values in the failed column are larger in every case than the

values in the passed colunm. It is interesting to note how persistentlj' the ratio of iO per cent passed and 60 per cent failed continues.

The ratio of 32 per cent ]3assed and 68 per cent failed, as shown for

the first series of 500, is somewhat different from the others and tends

to show that a general improvement of track-scale conditions took

place after 1915. This difference, however, is not sufficienth? great to enable us to make any decided statements. Furthermore, it is ver}' singular that this ratio of percentage for

the railroads and industries separately happen to be the same. It would be we]] to state liere that we have found good scales and bad

scales on both sides. It is true that we hear considerable amount of

criticisms pro and con about railroad scales and industry scales, and

the criticisms are often justifiable in particular cases; but as a general

proposition they even up, as we have seen. I well remember several

years ago testing an industry scale which was used by a coal operator for selling the coal produced at his mine. We found the scale with an error of minus 4,000 pounds, or 2 tons. He was losing more

than $100 a day because of this scale's condition, yet he had deliberately purchased a cheap scale of light construction and had allowed

it to wear out apparently without any attention. I asked the operator why he had an engineer to take care of the machinery in his

power plant, but apparently had made no effort to take care of his

scale, upon which his income to a large extent was based. He said

that he did not know any better. I was glad to hear him admit the

truth so frankly, and personally I believe that that reason is true

for the majority of cases, especialty concerning industries, and is also true in the case of railroads more generally than is admitted.

Concerning railroad scales, the Bureau's testing to date includes

work on about 100 different systems. Of course, this work includes

all of the so-called large systems and many of the smaller roads.

In this connection it is interesting to note that the Bureau has two

perfect scores on its list. There are about 15 large railroad systems

Avhich own 100 scales or more each. Of these systems there is one upon which we have tested more than 30 per cent of its scales, and

in every case these scales have passed the Bureau tolerance. Moral

:

If one railroad can do this, they all can. Furthermore, this particular system does not possess an ideal testing equipment, but it
TWELFTH ANNUAL CONFEEENCE ON WEIGHTS AND MEASURES. 71

does, however, lay very great stress on organization. We have just one other raih'oad, a comparatively small one, with a perfect score of all scales tested within tolerance. This railroad has a fair testing

equipment and a good scale inspector.

On the other hand, the Bureau has in this list about 12 railroads

with a perfect score in the other direction; that is, not one of their

scales tested has passed the Bureau tolerance. In all of these in- stances the railroads are comparatively small ones, and very i&w of

them possess any testing equipment at all. Judging from the condition of the scales tested, their inspection force also must be of very

poor material. Speaking of work on the smaller sj-stems, I wish to

state that we met with an interesting experience last spring, wliich is somewhat tyjDical, I believe, of the attitude assumed by many rail- road officials wlio apparently know very little about track scales and

their importance. On this particular road we tested some six scales

at this time, and all of them failed to pass the Bureau's tolerance.

One of the scales had an error of more tlian 5 per cent plus. A

couple of weeks or so after we had reported on this work we re- ceived a letter from the chief engineer of this road which stated that

he understood we had tested an industry scale along his line with

whom they were having some disagreement about correct weights.

He wished to be advised of the condition of this scale, for, he stated,

that he was under the impression the industry scale was weighing

light. As a nuitter of fact, tliis industry scale laad an error of minus

one-half per eeut. So here we had a railroad with their oavu scales shoAving errors in their own favor disagreeing with an industry

whose scale was considerably better than the railroad scales, and as a matter of fact, one of the railroad's scales was 10 times as much in error as the industiy scale. It did not take us long to inform tl\is

engineer of the actual condition on his own road, and we also gave

him the information in regard to the industry scale. It is needless

to say that we heard nothing further aboiit the matter. On this

particular road we found one scale with an error of 13 per cent. Not long ago we had another typical case Avhich I believe is still quite prevalent; that is, the idea that carload weights can be esti- mated with accuracy. This point happened to come up in a dis- agreement between another small road, whose scales were in very

bad condition, and an industry along the right of way. In this

particular case the industry was a stone quarry, and they were objecting to the railroad scale weights because they did not check up with

their quarryman's estimate of the contents in the cars. Generally speaking, the larger railroad systems are in much better

condition than the small ones, both in regard to testing equipment

and organization of scale departments, and such a condition is nat- urally to be expected; but, taken as a whole, the railroad-track-scale

question at the present time is very far from satisfactory.

The field work which is done by the Bureau's testing equipments

is followed up in several dilferent ways: First, a detail report is made upon every test, which at the present time is sent to the Federal manager of the particular road in question; second, comnmnications are issued from time to time relating to particular phases of

the track-scale question, such as testing equpments, cai^e of- scales,

methods of inspection, niethods of test and other problems of main-
72 BUREAU OF STANDARDS.

tenance ; third, the development of proper specifications. It is true

that most of this effort applies primarily to the mechanical side of

the general problem and not very much to the personal side; that

is, organization of scale departments. This personal side, however, is a vast problem in itself and, furthermore, is a problem which

can not be solved as readilj'^ as the mechanical one. The Bureau has

done very little woi^k along this line thus far, but hopes to tackle

this problem m.ore vigorously in the early future.

As has been stated heretofore, nearly all of this work is original

testing and very little duplicating work has been done. However,

the investigation has progressed far enough now to make duplicating tests an important factor, and a separate file for this purpose has

already been started, but as yet a sufficient number of tests have not

been made to enable any general conclusion to be drawn at this time.

In another year we will probably be in a position to report on this

subject.

Work of this character will also have an important bearing on the

tolerance problem, for we feel very certain that the I'esults of this

kind of work will give a much larger percentage of scales passing

tolerance, because there has been a decided change in attitude toward

the subject of proper maintenance of railroad-track scales in the

last two years. This new interest is especially marked in regard to

specifications, and to-morrow afternoon, I believe, Mr. Briggs will

tell you about the recent developments along this line. It is un- doubtedly true that this investigation, which has been carried on

during the past five j^ears by this Bureau, has been largely responsible for this change in spirit toward this very important subject.

Mr. Schwartz. I make a motion at this time that the next paper,

by Mr. Harrison, be held over until to-morrow afternoon, and that

we now adjourn. Dr. Stratton leaves to-day, and that gives only one talk for to-morrow afternoon.

The Secretary. A motion is made and seconded that we postpone

the next paper and adjourn at this time. What is your pleasure?

(The motion was agreed to.)

(Thereupon, at 5 o'clock p. m., the conference adjourned to meet

at 10 o'clock a. m., Thursday, May 22, 1919.)
THIRD SESSION (MORNING OF THURSDAY, MAY 22, 1919).

The conference reassembled at 10 o'clock a. m. at the Bureau of

Standards, Mr, L. A. Fischer, secretary, presiding as chairman.

The Acting Chairman. The meeting will please come to order. I will not call on Mr. Harrison at this time. His paper was postponed from yesterday afternoon and will come up later, inasmuch as he is occupied just now with some other duties.

AUTOMATIC SCALES, BY H. O. HEM.

Members of the conference on weights and measures, I am glad

the subject of automatic scales has been assigned to me. I am deeply

interested and a believer in automatic scales. I shall try to avoid

a technical paper, which would interest only those designing scales. The sealers present are familiar with the standard tj'pes of auto- matic scales, especially the counter scales, as they come in contact with them more than the other types.

Automatic weighing is now a live subject. Twenty years ago no

retail store wanted an automatic scale, but now that type is in very

great demand. In all up-to-date retail stores beam counter scales are now almost a curiosity, while in the places where the larger types

are used, such as railroad-track and wagon scales, the beam scale pre- dominates. Automatic scales are preferable to beam scales, and

always have been, but dependable automatic scales have been more

difficult to construct. Now, however, manufacturers are learning more and more how to make this type of scale, and shortly we will

see automatic scales in use for all purposes, because weighing can be

done much more quickly and more accurately, since the operator does

not have to move poises or wait for the beam to balance in the center of the trig loop. I will not attempt to give you a technical description of scales in

common use, with which you are familiar, but will confine my re- marks to a few scales that may be called " specials." The war was

responsible for a large number of different types of automatic scales,

which were then special, but which have now come into general use. Take, for example, scales in powder mills. When we entered the war, labor was scarce and the output had to be increased considerably ; hence more new help was needed, more speed in production was

necessary, and the amount of danger increased proportionally.

Powder mills are usually built in a part of the country where ground

is cheap and fit for little else and where people do not live close to the plant. Buildings where explosives are made are usually small,

generally constructed of wood instead of structural steel. In case of

explosion, structural steel seems to be able to sail through the air for a considerable distance, while wood breaks up into small splinters.

In most cases the buildings are surrounded by embankments extending as high as the buildings so as to confine the explosions, should

they occur, to that particular location. The men Avorking in the

73
74 BUREAU OF STANDARDS.

plant must not even have nails in their shoes. Every precaution

is taken to reduce the clanger of explosions.

I have been in a number of powder mills, have studied their weighing problems, and designed scales to increase the output of the mill, as well as to reduce the danger of explosions ; for instance, take nitroglycerin, usually kept in a large tank the bottom of which is about 3

feet above the floor. To make up various batches of dynamite it is necessary to weigh out definite amounts of nitroglycerin. For

this purpose I found in use the ordinary dormant beam scale with

cast-iron platform, cast-iron corner plates or frames, as well as pivots,

links, and loops under the platform. The glycerin is transported

and weighed in a wooden barrel set in a frame mounted on an axle

with wheels having pneumatic tires, usually called the " glycei-in

buggy." This buggy is run on the scale platform and counterbalanced on the tare beam. A rubber hose is connected close to the bottom of the tank, and the other end of this hose is then placed over

the top of the barrel, so as to allow a certain amount of the glycerin

to run into the barrel on the buggy. An automatic scale instantly

indicates when the right amount of glycerin is in the buggy, and the

men in attendance can tell from the position of the indicating hand

when they have nearly the desired amount of glj^cerin, enabling them

to pinch oif the supply slowly. They then lift the hose out of the

barrel and wipe ofi' the end to prevent any nitroglycerin from dropping onto the scale or floor. It happens at times, that in taking the hose out of the buggy a considerable amount of nitroglycerin spills on the scale, runs imder

the scale jDlatform, and splashes in the loops and bearings. This

makes the danger of explosion very great, because the platform really

has to be taken up and the whole scale washed out, as well as the

floor. The floors and all parts are usually covered with sheet lead to prevent the nitroglj^cerin from soaking into the wood. The danger

lies in lifting the platform of the scale, for if any nitroglycerin has

splashed into the bearings the swinging of the platform would be

liable to set it otf, and there would be no evidence left to indicate the cause of the explosion.

After consideration of these weighing problems I designed special

suspension scales with overhead levers, also a wooden platform hung

directly imder the levers, so arranged that in case of bx-eakage the

parts could not drop down to the floor. The poises on the beams

have fiber stops, and the platform posts and suspension rods are covered with sheet lead. We also designed and built automatic scales for the dope houses,

Avhere the various ingredients for dynamite are mixed. These are used similar to furnace-charging scales. Six or seven ingredients

may be weighed up in a hopper suspended from an overhead scale. The operator always loads the ingredients in the same rotation. He

has a card of the mixture made up u'hich shows the total weight as each ingredient is added, and with the automatic scale he can see the indicator and is able to tell just when he has the right amount

of each ingredient at a single glance, while with the beam scale it is necessary to set the poise on the beam and then take out or put in material until the beam balances. So, automatic scales materially

speeded up the output when the Government needed it most.
TWELFTH ANNUAL, CONFERENCE ON WEIGHTS AND MEASURES. 75

We also built automatic scales for determining the density of

powder. A certain-sized cartridge is supposed to contain a certain

definite weight of powder. These scales have a zone chart which

indicates whether the various sizes weigh too much or not enough

powder to each stick. For packing dynamite and powder automatic scales are used for

taring the boxes to a predetermined weight. Other automatic scales are used in roller conveyers with a section of the conveyer mounted

upon the scale platform. The boxes, tared to a uniform weight, may

be loaded with a definite weight of powder or dynamite.

These are only a few of the special scales made for powder mills

which are now standard equipment. We also made special automatic

scales for loading stations for weighing the powder charges of shells so that the range could be predetermined with accuracy. Automatic

scales were not only used for weighing the charges, but for weighing

the shells at the various stages of manufacture. Scales were designed

for weighing the copper bands, the time fuses, as well as scales for

weighing the finished shells, scales with special charts showing the

standarcl weights for the various sized shells and the allowable tol- erance for each shell. It is practicably impossible in manufacturing

large shells to have them come to a certain predetermined weight,

but by having a certain tolerance and knowing just how much lighter or heavier the shell is than it should be the operator, when weighing

the shell, w^ould see a mark on the chart in line with the indicating

hand and would stamp the same mark on the shell. Thus, when a

shell is handled in the field, the men know just exactly the amount

of powder to use in connection with a shell having such mark.

For airplanes a great number of special automatic scales were furnished, such as scales for testing airplane motors, scales for weighing propellers, scales for determining the amount of power required

to revolve propellers at various speeds, as well as scales for determining the end thrust or the end pressure at the various speeds.

We are also making dynamometer scales with horsepower charts

graduated so as to read the horsepower directly, as well as the torque

in pounds.

In the development of the Liberty motor we were called upon to furnish several special automatic scales for determining the amount

of gasoline required per horsepower per hour; for determining the

amount of lubricating oil required; for testing the tension of the

piston rings and of the valve springs ; for weighing the pistons and

the connecting i^ods; for determining the center of gravity of such

connecting rods, and so to reduce vibration; and for a number of

other purposes.

The Government wanted to know the power of a Liberty motor

at high altitude, so they mounted a Liberty motor on a truck with

all testing paraphernalia and sent it up on top of Pikes Peak. Even

this equipment was provided with an automatic scale to determine

the horsepower.

In connection with the manufacture of motor trucks, we have

made many special automatic scales. Also we have developed special

scales for use in the manufacture of rubber tires, very accurate scales with predetermined weight charts, for weighing the amount of rubber required in truck tires. Such scales have platforms 12 feet long
76 BUEEAU or STANDARDS.

and 1 foot wide, of 150 kilograms capacity, with a chart graduated

to 50 gi-ams. The height of the iDlatform is about the same as the

die in the machine fi'om which the rubber is molded. The rubber is here cut off about the length required to go around the tire and must

be of a certain weiglit to avoid wastage, as the rubber when cured

is worth only a small amount, while in the condition when it is weighed it is worth 75 or 80 cents a pound. We built automatic

scales for weighing the iron c ores on which the tires are vulcanized

;

scales for weighhig the rubber before it is put on the tire; scales for

weighing the tire after it is completed. Similar scales for weighing

the rubber used in piieumatie tires have been developed. In this type

tlie rubber for the tread is gauged for thickness, cut to lengths, and

then weiglied and trimmed to a tolerance of about 1 ounce. These are only a few of the special scales which we made in our

efforts to help ^\'m the war, a\itomatic scales ranging in capacities

from about 1 pound to 60,000 pounds.

I would like to show you a few slides of these special scales. The

construction is unus\ial. and I think it may be interesting to you to see them.

(The speaker then exhibited a number of lantern slides and ex- plained the method of operation of the various scales shown.)

The Acting Chairman. The interesting talk by ISIr. Hem illus- trates the special devices designed to meet war conditions. Are there

any questions that any one would like to ask INfr. Hem? We will

he glad to hear them.

APPOINTMENT OF COMMITTEES AND DISCUSSION OF PROGRAM.

The Acting CHArRMAN. I would like to interrupt the program at

this time to bring up one or two matters that should be attended

to. First, I think we ought to arrange for the appointment of the

usual committee on nominations, in order that people who have

views as to whom candidates should be can consult with them from

time to time. The more time these gentlemen have to consider that,

the better it will be. The chairman will be glad to entertain a motion for the appointment of such a committee.

Mr. Barnard. I move you that the chairman appoint a committee

of three on nominations and a committee of five on resolutions.

INtr. Irvine. I second the motion.

(The motion was agreed to.) The Acting Chairman. The suggestion has been made that our program be so accelerated, or changed, as to close up matters to- morrow afternoon. To find how general the sentiment is I should

like to have a vote on it. Mr. Tucker. Mr. Chairman, I hope that due consideration will be

given to the fact that gasoline pumps are scheduled for to-morrow

afternoon. I understand that some representatives of the pump

companies are not in town at the present time, but they made provision to be here at the discussion that will take place at the time

appointed in the program. I think they ought to get consideration,

and that we should not have that discussion at some time when

those who are prepai-ed to be here at a definite time are out of the city.

The Acting Chairman. Is there any further discussion? The

proposition is to close up our program to-morrow afternoon and
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 77

permit the delegates to leave the city, or do as they desire, on Saturday. Of course, they can do as they desire now. Mr. ScHOENTHAL. I move that the convention close Friday even- ing instead of Saturday as fixed by the program.

(The motion was seconded and agreed to.) Mr. Tucker. Mr. Chairman, we might have a Friday night ses- sion. Mr. Barnard. Mr. Chairman, I think one of the principal dis- cussions at this convention will be upon gasoline pumps, and I anticipate that will take all of one day, if we all express our opinions freely. I believe if we are to go away from this convention

with a uniform thought on gasoline pumps it will take some time to work out our ideas, and I do not think we ought to hurry this

convention to satisfy some one who wishes to go away on Saturday.

I came quite a long way down here principally because of this

gasoline-pump proposition, and I think we ought to give it the

fullest discussion.

Mr. ScHOENTHAL. Mr. Chairman, I would like to add also that that

is one of my chief objects in coming here. This gasoline-pump proposition is one of the most important matters of interest. I woiild like

to hear discussion on that. Mr. Stimpson. Mr. Chairman, we in our State give inspectors two

weeks' vacation every year. We are sent here for the purpose of

getting the benefit of this convention, and if we want pleasure we

take that during our two weeks' vacation. I think we ought to get

the benefit of this convention and thnxsh out the thing while we are

here. We are here for the benefit of the States, at their expense, and

those who are here seeking pleasure can regulate that themselves.

Mr. ScHOENTHAL. I move a i-econsideration of the previous motion

so that the original program may be followed as closely as possible.

The Acting Chairman. Gentlemen, jou have heard this new motion. Is there any further discussion? The motion is that we shall go through Avith our program as rapidly as possible in order to allow

delegates who have not seen Washington to do so. If you favor this

motion say aye; contrary minded, no. (The motion was agTeed to.) The Acting Chairman. The chair appoints Mr. Hanson. Mr.

Schwartz, and Mr. Cluett as the committee on nominations. They

have all been in the business a long time, are thoroughly familiar

with the pi'ocedure, and are also acquainted with most of the members, I think.

SHORT WEIGHTING IN ICE SALES, BY LESLIE C. SMITH, SECRETARY, NATIONAL ASSOCIATION OF ICE INDUSTRIES.

Before we can arrive at a complete understanding of the importance of any industry, and therefore at the scope or meaning of the

evils which may creep into it, we must first know the measure of its relation to the public at large. Particularly is this true when official or governmental authority interests itself in investigation or inquiry

in the performance of its duty to that public.

The value of ice and refrigeration to human welfare has not been

generally understood. The evolution in modern methods of living,

the congestion of peoples in cities, the very trend of American life.
78 BUREAU OF STANDARDS.

have made ice an absolute necessity to health, comfort, and happiness

of our people. Cool cellars, spring houses, Avells of cold water, and

dry attics are things of the past. Instead of these there has come up

the ice box and the refrigerator. Probably 90 per cent of our meats

and vegetables have come into contact with refrigeration of some

sort before they are offered to the consumer. That means that they

must be kept cold to prevent deterioration before actual consumption.

The expense of such refrigeration is an item, of cost in the prices we

pay for perishable foodstults. Thus in large measure we are all af- fected by agents of refrigeration and their costs. A potent guide to the actual necessity of a commodity of general

consumption is in the value which social workers and child-welfare

societies place upon it. Their contact is with the great iijass problem

of society and of government, and their initial requirements are invariably milk and ice. Accepting, then, its importance and necessity, we should the more

carefully seek to protect its supply from evils and distortions. Public-health protection has long since demanded sanitation and purity

in ice tralficking, just as it has in water supply and in milk, meat,

and similar prodiicts. But as yet slight attention has been given the

elimination of waste and suppression or prevention of unfair practices in its handling, which directly affect its cost, particularly to the

classes least able to bear the burden or to protect themselves.

The most flagrant evil in the selling of ice to the ultimate con- sumer is the practice of giving shox't weight. It is the one which ice companies themselves find most difficult to control. It is undoubtedly

true that origin of the evil Avas coincident with early methods of procuring and supplying ice. Uniformity and standardization were

matters of slow development in this industry. Men were emploj^ed

for low wages and were, if not actually expected to cheat in order to round out the return to themselves, at least not punished for doing so. But the ice industry has grown and developed until now we have

been told it stands ninth on our list of great commercial activities. The best estimates of the Census Bureau place the annual sales at

itbout 50,000,000 tons, and we believe $8 investment per ton sold is thoroughly conservative. Careless methods of production and distri- bution have been largely discarded. Labor has been standardized in

this business as in practically all others. All reputable dealers in ice want to deal fairly with the public. They desire to give full weight

to all customers. Most of them have worked out systems of selling

and collecting in the effort to eliminate any possibility of unfairness

or dishonesty on the part of their delivery men. And the weakness

of these systems has lain and still lies in the failure of the public to cooperate with the companies from whom they buy.

It is a bold statement that the public does not want full weight, yet

it is true. They want overweight. In petty ways they seek to accomplish this by some form of bribery to the delivery man. The man is charged with all the ice he takes out and must account for it. Therefore, the only way overweight can be secured for one is by cheating

or short weighting another. That means that when, through any

medium, one consumer receives more than he pays for he is actually

taking the money the driver receives, not from the company, but

from the other consumers. The reasoning seems to be that the loss

falls upon the company where it is insignificant, whereas in reality
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 79

it must be borne by one's neighbors. A few cents per day to each of some 25,000 drivers merely adds that much to the cost of ice. Every

transaction that permits of a dollar being withheld from its proper

application increases the cost to the public.

The most common practices of consumers is the giving of liquor or other dainties of the ice box and insistence upon paying cash for

the delivery when the company's plan calls for payment by coupon.

This makes it possible for the deliver}' man to keep all or part of the

money, and thus secures the desired overallowance. If the driver

fulfills their expectations, all the overweight they receive is taken

dirtv tly Iroju tomeone else. He has no chance to deceive the company. It must be understood that we are not making the ice man

the worst of all laborers; yet the opportunity is frequent, and the

refusal of the public to assist the companies in minimizing it is the

direct feeder to it. If the public would follow the plan and abide

by the regulations of the companies, there would be no market for

the ill-gotten oversupjoly of the driver, and therefore no inducement

for him to be unfair to anyone.

Regulations calling for weighing each deliver}' and for penalizing

false weights exist in many communities, yet they are merely in line

with the companies' wishes. They do not reach the tacit agreement

between driver and customer. Another phase of the question is that of the itinerant dealer, known

to the trade as the ice peddler. He has merely the investment of a horse and wagon. He accepts no responsibility of supply for even

his own limited trade. If there is a shortage in the market, the

peddler escapes all criticism, while the responsible company bears all the odium of public censure. He has heavy investments in storage

houses, manufacturing plants, and delivery equipment, which must

be maintained all year around in order to secure a supply for the summer months. His season of profit is limited to the heated period,

whereas he actually suffers loss during the major portions of the year. Nor are all peddlers dishonest. But the margin between wholesale and retail prices is usually not sufficient to permit a profit from

distribution only. The result is dishonesty. The class, as such, is irresponsible. In fact, most of them are drawn to the occupation

by reason of this very opportunity for graft. Their sales must reach

into business of goodly proportions, even under the most fertile opportunities. The ice industry does not differ materially from any

other. If you allow a dealer in any class to stand on a market with

a measiire containing a false bottom, you will soon make rogues of

the other dealers or drive them from the market.

The well-organized companies have sought faithfully to protect

the public. They ask them to buy coupons and to exchange these

only for ice. Cash sales by drivers are frequently forbidden entirely.

If the best results have failed of accomiDlisnment, it has been because

the public and the officials of whatsoever unit capacity have failed

to comprehend the seriousness of the situation. It is even next to impossible to convict a man who has been actually detected in the

wrong, because the customers defi'auded will not appear against him.

They think he has not done much harm and that they, each one, have

been the gainer by his lapses. If they thought the company was

reaping the profit from these peculations, the protest would very
80 BUREAU OP STANDAEDS.

soon suggest the remedy. They ignore it in the individual because

they do not grasp its vast extent. Absolute dealing in ice is difficult. It is almost impossible to give exact weight in each transaction, because there is no practical method

of cutting a block of ice into equal units. Try as one may, it will act contrary at times and any piece may weigh slightly more or less than was intended. If the excess is cut off, it is absolute waste. The

difference can not be adjusted in cash, because of the low value of

ice per poimcl. But if there be no chance for personal gain to the

delivery man the give and take in weight will balance itself. This

course has been argued and approved through the courts of Missouri.

Nor will the policy of tolerance entirely solve the difficulty. It may protect the honest, but it would leave open the opportunity for

studied and systematic operation to the dishonest.

There seems to be ample protection for the public in practically

all other branches of trade, and ice dealers will welcome any as- sistance toward the goal of absolutely fair treatment of the public

upon a basis of sane and justifiable conduct of a business at once

vital and legitimate. We welcome such inquiry as this Bureau is making because we want to do the right thing, and that only. Our

various associations. State and national, stand ready to lend their- utmost to your successful solution of this and all problems which

touch our industry in its intimate relation to the American public.

DISCUSSION OF ABOVE PAPER. The Acting Chairman. Mr. Smith's paper is now before you for

discussion.

Mr. ScHOENTHAL. I See the speaker divides the vendors into two

classes, one the producer and the other the itinerant vendor. He

tells us that the producer, the manufacturer, issues coupons and desires these coupons to be used. I would like to ask Mr. Smith if he

does not think the method by which these coupons are issued stimulates

dishonesty from the fact that these coupons are in nearly every case made to represent 5 or 10 cents' worth of ice, instead of the number

of pounds the consumer is receiving.

Mr. Leslie C. Smith, For the benefit of the gentleman I would

say that that has been until very recently a large practice and one

just now being discountenanced in favor of the substitute suggestion

you make. Since Mr. Wilkinson is representing the City Ice Delivery

Co., of Cleveland, we might have his opinion; his company is perhaps

the largest developer in the matter of coupons, and if your body desires that the modern method of issuing coupons be laid before you,

Mr. Wilkinson will be very glad to do it. Mr. Hanson. I would like to ask the gentleman a question relative to ice scales: Is it the custom in the city of Cleveland for the ice

companies to have these retail scales graduated to 5 pounds, or 2

pounds, or 1 pound?

Mr. Leslie C. Smith. Mr. Wilkinson represents that individual

company. I am from Chicago, representing the national industry.

Mr. Wilkinson. They are graduated to 1 pound.

Mr. Hanson. Is that universal in the Middle West ? Mr. Leslie C. Smith. It is universally so in the industry. I should

like to explain to the gentleman that that is in no sense a protection
TWELTTH ANNUAL CONFERENCE ON WEIGHTS AlTD MEASURES. 81

to the customer. The cutting of a block of ice, whether it be a 300

or 400 pound cake, is at the best a speculative operation. If the con- sumer gets a piece of ice purporting to be 50 pounds and it is 52, the

weighing of that piece of ice has meant absolutely nothing to him.

He is getting cut off of 2 pounds if it weighs 48 pounds; he is not

getting within 2 pounds of what he pays for and it adds to the cost

to the consumer. If he knew it weighed 48 pounds he would in all probability reject the piece of ice. The weighing of ice is in no way

a positive protection or safeguard against shortage.

Mr. Hanson. Suppose an iceman has come to my house, and for some reason or other I have complained to the local sealer of weights

and measures and he has found a shortage. Assume he is the only

iceman in that section of the town. If he refuses to give me ice, is there a law that makes it mandatory for him to give me ice, provided

I tender him 5 cents, or a multiple thereof ? Mr. Leslie C. Smith. There is none. Mr. Hanson. I want to say as a matter of information that the

great old Commonwealth of Massachusetts has a law that if any ice dealer refuses ice to any person offering a 5 -cent piece, or a multiple

thereof, he is liable to a criminal prosecution and subject to a more

severe fine than if he gave short weight.

Mr. Leslie C. Smith. That is a matter of statutory regulation?

Mr. Hanson. Yes ; I wanted to call attention to it. ]Mr. MiKESELL. I understand Mr. Smith to say that the act of

weighing a piece of ice is no protection to the consumer?

Mr. Leslie C. Smith. Yes. Mr. MiKESELL. I can not agree with that statement. I understood

Mr. Smith to say that if a piece of ice weighed 2 pounds more than

the man paid for there is no advantage to the consumer. I figure

that, literally speaking, this is a natural advantage to the consumer. On the other hand, I also figure that if he pays for the 50 pounds of

ice the coupon calls for and only 48 pounds of ice are delivered he

suffers a distinct loss. Mr. Wilkinson. I do not know whether you men realize the situation the ice company is up against. There was some discussion

among a good many persons as to whether the association should

present all these facts before the weights and measures officials of

the United States, and you will be surprised what a large percentage

objected. Why did they object to Mr. Smith coming down here to present this matter and asking your cooperation? The reason they

objected is because the weights and measures officials in a good many

of the States of the Union have attempted to apply the same methods

to correcting short weight in ice which they try to apply in the

case of potatoes and apples, and meat, and flour and sugar, and

gentlemen, it will not work. It absolutely will not work. Even if you put alDsolutely accurate scales on every ice wagon, and in most

towns they are there and they have got the seals on them to show that

they will weigh accurately, they will never be used. You can not

follow an ice driver and make him use them. What is the reason?

When he puts a piece of ice on that scale, he is the only man that

ever sees it ; nobody else ever sees that indication. He knows before

he hangs it there that the lady is going to get that piece of ice

whether it weighs a pound more or a pound less. At a big apart155530—20 6
82 BUREAU OF STANDABDS.

ment house he will cut off a large piece and put it on his shoulder

and take his ice pick and chop off pieces as he goes around. If he is honest he will not miss any of these more than a pound, or a pound

and a half. Any honest driver can give honest weights, especially

with machine ice ; he may miss it to-day but to-morrow he may give

half a pound more. Your neighbor gets half a pound of your ice

here to-daj', and next day you get a half a pound of his ice. That

is insignificant, and that is where weights and measures officials have

fallen down in trying to get honest treatment for the public. They - have been bothering themselves with those pounds and half pounds

when that is no evil at all. The only way we will be able to get this

thing corrected is to work out some cooperation with the companies.

Let the companies know that you are going to take part in it. The

independent man supplies a good many people, and when you find

that that man is giving short weight here and there you know that

somebody is going to get the ice to make up for the short weight.

If you follow him to half a dozen customers, and one gets a pound

more, perhaps the next day he will get a pound short. Mr. TucKEK. I do not know what the system in use in the different

States is, but in Indiana we allow a tolerance of 2 pounds on our

ice scales. We realize the fact that the iceman in cutting his block

of ice saws down so far and then splits it. It is practically impossible to make that ice split square through, but we do require that

when they start out with a 300-pound cake of ice they shall sell only

300 pounds. We have taken it up with the ice dealers of the State

and require them to take care of shrinkage from the time of loading

the wagon to the end of his route. We find that the average 300-

pound cake of ice in our State will overrun 5 or 10 pounds, and we

are getting splendid results from the icemen and satisfaction for

the consumers. We realize that it is impossible to follow the ice- man from the beginning of his route to the end of it, but in checking up his loads quite frequently after he leaves the ice plant, we

find that he has about the same amount of ice he is supposed to have. He can not cut his pieces to the pound ; but the average ice- man is like the average butcher, or the average man in the drug

store ; he can almost guess to a grain, and the average iceman, after

he is on the wagon for a short time, will know about what the ice

is going to weigh.

Mr. Gtjakdia. As a representative of an ice-scales company I should like to say that ice scales are made in capacities of 125 pounds

by 1 pound, 200 pounds by 2 pounds and by 5 pounds, 300 pounds

by 5 pounds, and 400 pounds by 5 pounds. We find that the average

scale called for runs 200 by 2, 200 by 1, and 300 by 5. We find

very little sale for the 125 by 1 pound, and limited sale for 400

by 5 pounds.

Mr. Schwartz. Mr. Chairman, I would like to ask Mr. Smith

regarding the hygienic, or manufactured, ice. In manufacturing the

cakes—that is, in freezing—what is the weight of the cake of

hygienic ice supposed to be?

Mr. Leslie C. Smith. Either 300 or 400 pounds, generally speaking. They run about 310 and 415 pounds.

Mr. Schwartz. All over the country ? Mr. Leslie C. Smith. Universally.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AISTD MEASTJKES. 83

Mr. Schwartz. I did not think that they did. Of course, in New

Jersey we have just enacted at the session of 1919 an ice law requiring all ice to be sold by weight. In addition to that, the statute requires that the ice companies must have the ice tongs weighed

by the sealers of weights and measures and the weight stamped on

them, because there is a variation in the weight of ice tongs, and the

dealer sometimes gets the benefit of 2^ or 3^ pounds of tongs with

the ice, which is not part of the commodity. It requires that the

ice tongs must be brought to the different superintendents of the

department for weighing, and we seal these with the weight placed on the tongs. Then he must weigh the ice. We do not follow this

1 pound or half pound shortage. That is not the idea. We realize

that it is not like butter or cheese. You can not cut it accurately.

This act has been on the statute books only since April of this year. We find the dealer is not always the honest man you have been trying

to show him to be to-day. Instead of giving the 300 or 310, his cakes

are weighing only 270 pounds, and when the retailer comes up to the

platform to get that ice he gives him eight cakes to the ton. The

former puts the eight cakes on and goes out selling it. Mr. Leslie C. Smith. Does he sell that cake by weight?

Mr. Schwartz. Yes; under our law, he must sell it by weight,

but that is the custom they have up there, and they are still trying to do it. He receives the eight cakes for a ton, 270 pounds to a cake,

but when he sells them he charges for 300 pounds. He is making one

block on his eight. That is the practice we are going to stop in New

Jersey, where we find some of the icemen are not honest.

Mr. Leslie C. Smith. In a few of them—the modern companies

the trend now is for weighing, not measuring it at all. The driver

takes his load out by weight, not under cake measurement.

Mr. Schwartz. We are compelling them to do that. Mr. Leslie C. Smith. The general trend of the trade is in favor

of that, and that is very generally done. I was not thoroughly in- formed about your New Jersey situation, but that is coming to be a general practice.

Mr. MiKESELL. The cake of ice never ceases to be 300 pounds from

the time it leaves the shed until it is delivered. From the dealer's

standpoint ice does not melt. Wlaat I want to call the attention of

the conference to is the argument of Mr. Wilkinson. I submit to this

conference that his argument is a hit-and-miss policy, and not a

business proposition. In the entire argument he admitted that. The other gentleman, Mr. Smith, has a business proposition. Mr.

Jones loses in his ice and Mr. Smith gains in his ice, but neighbors

change and one ceases to live there. The law of compensation will

not fit in in Mr. Wilkinson's argument. In my experience my ice coupons call for pounds, and naturally I get the proper weight myself, because they happen to know me; but I know there are others

in my community who never get the poundage, and the method that

Mr. Tucker uses to check up on the iceman is not at all times practicable. I sometimes check when the iceman knows nothing about

it. A good way to check up is at the back door of the housewife to

find out how many times the law of compensation comes in. Mr. BovE. May I be permitted at this time to explain to this con- vention the difficulties and trouble which I had during the last sum-
84 BUKEAU OF STANDAEDS. mer in my city of Portland, Me. Shortly after I assumed my office, gentlemen, I began to receive numerous complaints from the housewives regarding short weight of ice. Of course, I did not have ex- perience in my position, and immediately I consulted with my

superior, the deputy State sealer of weights and measures, Mr. Levi

S. Pennell. This is a serious propositioon, it is true, and the idea is this, that the complaints I received were not of overweight, they were of underweight from 5 to 10 pounds. In my city of Portland,

thei ice company sells ice at 15 cents for 50 pounds. Now, the cus- tomers did not receive the 50 pounds, but anywhere from 5 to 10

pounds short. Last February, in the city of Portland, the argument was that during the war the labor situation was so serious they could

not hire sufficient men to do the work. Now, then, our argument was this, that it was not right for the icemen to give 40 pounds for

15 cents; if it weighed 40 pounds they should charge accordingly;

if 50 pounds, then charge 15 cents. I do not believe I can agree with

the gentlemen that stated just a while ago that the sealers of weights

and measures have fallen down. It is not the practice of the sealer

of weights and measures to persecute the ice company. I have

learned from Mr. Hanson, of Massachusetts, that they have a law

there that they must sell ice to customers. We have not that law

in the State of Maine, and I am glad I learned of it this morning.

One particular customer made a complaint in regard to short weight

of ice, and the next morning the dealer refused to sell ice to this

particular customer. Do you call that a square deal? Of course

not. I had more trouble with the ice companies last year than I did

with any other class of dealers. Mr. Leslie C. Smith. We began this discussion by admitting that

there is an evil. I am not here to defend the proposition that no

such evil as short weight exists. We admit it and are here to offer

all the assistance of the ice industry to eliminate that evil, all the

assistance we can bring to you, and to ask you all to cooperate with

us. There is dishonesty in the business; there is short weighting in

the business. We know that perfectly well ; but I do maintain and I

insist that the element of correction must not be confined to any

hairsplitting processes. We must get down to this thing on a broad

business basis, treat it as a wrong to the community, educate the public to assist us to bring to prosecution and punishment those men

that are dishonest and unfit, and encourage their assistance and their

support in the adoption and following out without deviation the

plans which the companies, the State authorities, and you gentlemen

in serious authority may institute for their own protection. That was the gist of the paper I read to you; that is the plea which I make.

The Acting Chairman. I think this is the time to close this dis- cussion. Unless there is opposition to this, we will go on to the next

paper. I think it is a good thing to have these gentlemen come down here and present their side. Unless there is a decided desire

to continue, I think we had better stop the discussion at this point.

Mr. MiKESEiiL. I appreciate the fact that I have intruded upon

the convention, and, except to answer Mr. Wilkinson, would not have

had anything to say, but I do not believe the discussion should be cut

off.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 85

Mr. Schwartz. I make a motion that we put it in cold storage

until luncheon.

The Acting Chairman. How does the convention feel about it? Do you want to carry on discussion or proceed with the program?

All in favor of going on with the regular program signify it by say- ing "Aye"; contrary "No."

(The members expressed their desire to proceed with the program.)

INSPECTION AND REGULATION OF TAXIMETERS, BY GEORGE F. AUSTIN, CITY SEALER OF DETROIT.

Mr. Chairman and gentlemen of the conference, before proceeding

with my somewhat brief paper I desire to take this opportunity of

expressing my sincere pleasure at again meeting with the members

of this convention to discuss the vexing problems that we are facing

from day to day. It is a pleasure to me because I am interested in

the standardization of weights and measures, and it is also a pleasure

to renew the acquaintances which I have made during the past 8 or

10 years. While I can not boast of being a representative of a great

State, Commonwealth, or Empire, I am proud to be the representative of one of the best and most entei-prising cities in the United

States. I refer to the city of Detroit in the great State of Michigan.

It has been hard for me to decide on a subject to present. It seems that such subjects as the majority of delegates attending this

conference are most interested in have been very ably discussed.

However, in looking over a list of the work with which my department in the city of Detroit is engaged I find that for the past 10

years we have been charged with the inspection and regulation of

taximeters, and I am advised that some of the other large cities have

had supervision over this branch of public service for even a longer

period. Yet, to my knowledge, no word has come to this confer- ence concerning the subject, and, as the conference is in a measure

a clearing house for the weight and measure officials of the entire

country, I will, with your indulgence, endeavor briefly to outline the

method used in the inspection of taximeters in the city of Detroit

and, so far as I am aware, throughout the entire State of Michigan.

This is not for the purpose of imposing our system upon the association, but in the hope of provoking a discussion of the subject

which may tend to simplify and better the present conditions.

Since the recording mechanism of the meter is connected by a

flexible cable and a system of gears with the cab wheel, which furnishes the motive power, it is obvious that the degree of accuracy

in recording the mileage and the fare to be collected depends very

largely upon the care and accuracy displayed in determining the

circumference of the cab wheel in service and from this the number

of revolutions which said wheel will make in traveling a given

distance. This is rendered difficult owing to the different degrees

of inflation maintained in tires in usual service. Hence it is neces- sary that the number of revolutons per mile of the various sizes of tires be predetermined and arbitrarily fixed as a basis for further

computation.

The method which I use in arriving at this base measurement is to carefully mark the wheel of each cab in service and require the

driver to move his cab forward one complete revolution of the
86 BUREAU OF STANDARDS.

wheel, measure the distance, and take the average of all wheels

equipped with a certain-sized tire as the measurement to which the

meter must be adjusted for taxicabs using that size of tire. Example : In a 35 by 4^ inch heavy-duty tire the average circumference of all wheels measured equaled 108.38 inches; 63,360 inches

divided by 108.38 equals 584.6 revolvitions per mile, and the meter

is required to be adjusted accordingly.

In like manner we determine the revolutions for the followingsized tires:36 by 4J inches, 560 revolutions per mile. 35 by 4^ inches, 584 revolutions per mile. 34 by 4i inches, heavy duty, 600 revolutions per mile. 34 by 4 inches, 609 revolutions per mile. 33 by 4i inches, 626 revolutions per mile. 32 by 4* inches, 631 revolutions per mile. 32 by 4 inches, 650 revolutions per mile. 31 by 3^ inches, 660 revolutions per mile. 30 by 3 inches, 678 revolutions per mile.

Sealer of Weights and Measures ' *^ REPORT OF TAXIMETER INSPECTION

T?j^ir.Qlt..J}3xi.s^.b...Q>:,-. METIS NO. 7.?.Z.

DKTROrr ... in3.'

Bench TMtCa.l> Raa<Ua« Toul Li«a Miraaga

Ksvolutlana HUUfti lUH

H M t Monay

RM^ng at Pinlah 793 748'-/ D073S AmVal

Kwdln* at Start 174- 744-1 S77 37DZf> 2 34 fo 00

DIffannn /d / 4- 4- Z 30 70 40

Computailoa Z 42 Z ZO

FaoaRwdJnc Z do do

FaM ite. ^boo

Stew Koad

TaM. Cab Numbav 3maU C«v

RaTVluUoria Dlitanoa FaaC SXem

TraTaUd. Faat Faat FaM Z4o4- 3S

Fig. 1. —Report of taximeter inspection, city of Detroit. Our method of inspection is as follows: A taxicab is brought to the garage with the meter affixed thereto; we then jack up the cab

wheel to Avhich the driving pinion is affixed and the same is con- nected to a machine operated by a motor and equipped with a revolution counter. A reading is then taken of the revolution counter,

also the various readings on the meter to be tested, all of whicli

are properly recorded on blanks prepared for that purpose, a sample

of which is illustrated herewith. The flag is then set in position

to indicate that the meter is engaged, and at the same time the cab

wheel is put in motion and the current applied to the motor. The

test may be concluded when the money value for any desired dis- tance has been recorded. A reading of the revolution counter and

other values indicated by the meter are again taken and recorded

as before, and without changing the position of the flag the meter

is subjected to a test of several periods of waiting time. If our

test for mileage, waiting time, and money values prove to be correct
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 87 we seal the meter on the cab with a wire seal and seal the transmission at the cab wheel.

A metal tag is riveted to the flag of the taximeter and numbered

to correspond with the number on the inspection certificate, which

is made in duplicate, one of which is filed in the office and the other

is furnished to the owner of the cab. A certificate of approval is also posted in a conspicuous place on the inside of the cab for the in- formation of the public.

We allow a maximum tolerance of 2 per cent for meters running

slow, but make no allowance for those running fast, for the reason

that taximeters register the fare for each one-quarter mile in advance, and in case a meter is fast it would record the fare for the

second one-quarter mile before the first quarter had been traveled.

We also have two 1-mile courses surveyed which we sometimes

use in connection with our inspection work.

REMARKS BY F. REICHMANN, FORMER STATE SUPERINTENDENT

OF WEIGHTS AND MEASURES OF NEW YORK.

Mr. Chairman and members of the conference, by agreement with

Mr. Schmitz, I am entitled to only two and a half minutes. The

paper that I was going to read you can all read in the proceedings.

I will tell you briefly what it is. In order to be successful in any kind of business, it does not make

any difference whether it is the business of weights and rneasures or a business concern in private life, there are two things you have

to know : First, you must know who is your official boss, and, second,

what is your job. I suggest that everybody hold a little period of

introspection and answer those two questions for himself for his

own satisfaction. If you organize your department—and in this

paper I am giving you some organization pointers from the standpoint of activity and personnel and its relation to the department

activities—if you will organize your department and have the chart

before you all the time so that you know who your official boss is, because I know a lot of you are in political life and there are other

bosses than official bosses, and what is your job, you will never be- come stagnant and will appreciate the economic value of weights and

measures and never degenerate simply into tinkerers of scales. Thank you, gentlemen.

Mr. Barnard. I am afraid I will have to make a little complaint

at this time. I think our old and much respected friend. Dr. Keichmann, has short weighted this convention.

SALARY SYSTEM VERSUS FEE SYSTEM OF INSPECTION, BY GEORGE

H. STAPLES, INSPECTOR OF WEIGHTS AND MEASURES OF MINNESOTA.

The fee system of weights and measures inspection—that is, the

charging of a fee for inspection of weighing and measuring apparatus—presents four different phases, to wit:

First. Where the inspector depends entirely on the fees collected

as compensation for his work.

Second. Where the inspector's salary is a stated sum and the fees that he collects go into a fund which is drawn upon to pay the fixed

salary.
88 BUREAU OF STANDAEDS.

Third. Where a fee is charged only under certain conditions, such

as a special test, the regular annual inspection being free of charge.

Fourth. Where the officer doing the inspection work draws a fixed

salary from State or municipality in some other official capacity and

is permitted to charge and retain a fee as sort of compensation for

the extra work involved because of the weights and measures in- spections.

As far as I have been able to look into the matter, I have learned

that practically all of the above-named systems are now or have been

in vogue in different parts of the country, but since the title of the

paper suggested for me seems to cover only the first-named phase of

the subject, I will try to stick to that text under the given heading,

" Fee system versus salary system of inspection," this, of course, dealing with the subject of weights and measures inspection.

The fact that the most progressive States in the matter of weights

and measures supervision and regulation have abandoned the fee sys- tem would of itself indicate the unpopularity and lack of equity in

making an individual charge for testing weighing or measuring

devices, because undoubtedly most of the States and municipalities

within a State were at one time or another on some sort of fee sys- tem, and must have been influenced by good and sufficient reasons

in making a change.

I have heard it argued that under such a system as indicated by

the subject title of this paper—^that is, the fee system as the total

compensation for the inspection work—^there would be a tendency to greater effort and activity on the part of the inspector because of his

natural desire to collect money enough to make an attractive compensation, and that this would result in extra benefits to the public in

general because of such extra activity ; but there are, in my opinion,

based on some study of the matter, ample reasons to advance in

answering such an argument.

In modern weights and measures work the inspector should be as independent as possible of any direct relation in money matters to the people who own or operate the weighing or measuring apparatus

that come tinder his official supervision, and thus avoid entanglements of individual and private interests which would unavoidably

to a greater or less extent affect the general efficiency of the inspectorin his duties, resulting in a proportionate loss to the whole public

who are to be served.

As to there being an extra amount of work done by an inspector

under such conditions, through possible feverish desire to collect many fees, it is very clear to me that the extra amount of work

apparently accomplished might only in fact mean larger figures on

paper, for, since an inspector working on a salary system must be

given the presumption that he is doing a full and proper day's work,

it would follow as a mattter of logic that the extra amount of work

done in a number of places visited or number of pieces of weighing or measuring apparatus inspected under the fee system, as against the

salary system, would plainly indicate more or less slighting of the

work in order to cover more ground.

Where a fee is charged, especially where it goes directly as an amount to compensate the inspector in his official duties, it is impossible to avoid some suggestion of " graft," no matter how unfair and
TWELFTH ANNUAL CONFEEENCE ON WEIGHTS AND MEASURES. 89

groundless the intimation may be, and, since equity and aboveboard

dealing make up the fundamental principle of weights and measures

supervision, every effort should be made to avoid any possible sug- gestion of that modern word of unsavory meaning in any public work

or utility.

Weights and measures inspection results in a positive benefit to every individual in a State or smaller community, and it seems to me

but fair to have the expense of the inspection borne by all who re- ceive the benefits, thus making exceedingly small the individual

financial burden, rather than having it borne by a comparatively

small class who happen to be engaged in the business of buying and

selling, an eminently respectable and necessary occupation in modern

life.To sum up in conclusion, I will state that the " fee system " is antiquated, always savors of " graft," is dangerous from a politicaleconomy point of view, places a burden on a small class alone in the

community, greatly adds to the troubles of an inspector in the field,

and hinders the work in general.

APPOINTMENT OF COMMITTEE ON RESOLUTIONS.

The Acting Chairman. The committee on resolutions will be Mr.

Webster, of New Hampshire; Mr. Gregg, of Texas; Mr. Smith, of

Wisconsin; Mr. Holwell, of New York; and Mr. Holbrook, of the

Bureau of Standards.

THE PRESENT MOVEMENT TOWARD OBTAINING STANDARD SHIPPING CONTAINERS FOR MARKETING FRESH FRUITS AND VEGETABLES, BY F. P. DOWNING, BUREAU OF MARKETS.

Mr. Chairman and gentlemen : For the last two years I have been

associated with the Bureau of Markets of the Department of Agriculture, and for the benefit of those who are not familiar with the

work of that Bureau I might say that the Bureau of Markets studies

and investigates all of the various problems connected with marketing. My work for the past two years has been a study of the differ- ent types of fruit and vegetable containers—shipping containers,

if 3'ou please, gentlemen. I have arrived at a few fairly definite

conclusions which I want to bring before this conference.

In taking up this question, I want to treat it, perhaps, from a little different point of view than it has ever been treated before in a weights and measures gathering. I want to treat it from the point

of view of the commodities that go into these containers. Did you

ever stop to think of the different living conditions to-day and 25 or 50 years ago? Twenty-five years ago all of our perishables came

from within a few miles of the market. To-day, even in the winter

time, you can get strawberries from Florida, radishes and onions

from Louisiana ; you can get lettuce and cauliflower from away across the continent, from California. Now, then, this means, first of all, that we must have some particular type of shipping container for

getting these commodities to market. At first there was no regulation of this important question. The different growers and the differ- ent merchants in the different sections of the country used their own

ingenuity in working out types of packages with the result you all
90 BUREAU OF STANDAKDS.

know. All you need to do is to fjo into any one of our large markets

to-day and you will see hundreds of diiferent types of shipping containers. A few of the unscrupulous dealers took advantage of this

chaotic condition and began to cut down the size of their containers

to the detriment of legitimate shipping interests and to the detriment

of the public. Some of our larger cities and some of the States were

the first to notice this, and they began to pass regulatory laws.

One of the most important packages from the standpoint of the

consumer, because it goes directly to the consumer, is the berry box.

Massachusetts and New York were among the first to pass berry-box

laws; but there was a conflict from the beginning. Massachusetts

provided for a standard box; New York provided for a 7 per cent

tolerance, with the result that as far south as Tennessee the New

York shippers had boxes that were 7 per cent short of the quart.

Out in Kansas they regulated this proposition in the interest of

the berry grower by legalizing the wine quart, and I believe that law

is still on the Kansas statutes, although I am pleased to say that even

the manufacturers of Kansas are making standard boxes. It does

not pay them to make a short box just for the Kansas trade. In a recent investigation I made in that State I find this to be the case. California is peculiar on the berry-box situation. They have a law

out there that provides for the quart, pint, and half-pint boxes, and

at the same time three other containers, a shallow half-pound, a deep

half-pound, and a three-fourths pound box. They go on the assumption that the fairest method of selling is by weight, and I believe they

are right in most instances; but berries can not be handled in the

way that you handle potatoes; you must establish a standard container there. As I take it, no regulatory law on packages considers the fact

that these packages should not resemble one another too closely, but

in California they are beginning to realize this, for the last legisla- ture has a bill up proposing the elimination of the boxes standardized

by weight, and providing for only three standard sizes. The national

law which I am called upon to enforce provides for those three sizes,

but in the enforcement of the national statute I have a distinct advantage over those enforcing State laws from the fact that I can go

directly to the manufacturer of the package and say, " You are held

responsible for marking the standard package." It must be standard

whether it is filled or unfilled. It is easy to enforce a law of that sort. I want to say that the manufacturers of containers are strongly in

favor of standards because it is to their interest to cut out and eliminate many of the forms they now have and to standardize their

machinery.

The picture I have up here [indicating] shows the condition that

existed prior to the passage of the standard-container act. There

are eight sizes between the 2 quart and 3 quart. The sizes are so

close to one another that the consumer is not protected, since there is a very great chance for fraud to creep in. Would it not be feasible

for you gentlemen to get similar laws enacted in your different

States?

I find in some instances that some of these packages of intervening

size are still used locally where we have no jurisdiction. Under this

law the Federal Government has jurisdiction over only interstate

shipments; it has no jurisdiction between points in the same State,
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES, 91

SO that the manufacturer in Ohio can make a 2^-quart basket and sell

it in Cleveland, and it would not be affected by this legislation.

This condition to which I have called your attention also exists in

the case of the grape basket, which we designate as the Climax basket.

There used to be 12 or 15 sizes of these. Now, there are only 3. The

States are trying to regulate this condition. New York passed a grape-basket law on the basis of weight. Pennsylvania passed a

law, and both of these were in conflict with the present Federal law.

The State of New York, I understand, has repealed its law, and

the 'State of Pennsylvania is unable to enfore its law. From personal

observations I am now pretty well convinced that there are no grape

baskets made in the United States except the 2, 4, and 12 quart sizes. There may, perhaps, be a few of the old stock left over. New Jersey was one of the first States to attempt to regulate the

size of containers, and those of you who are familar with the statute of New Jersey know that it provided for the bushel and certain subdivisions, but the 3-quart basket was not included. Their law, you

see, is in conflict with the Federal statute. If they enforce it rigidly or do not provide for the sale of this type of basket by weight, they

will not be able to get any tomatoes, berries, or peaches from Mississippi and Alabama in this size. They will not be able to get any

grapes, apricots, or plums from California since these are shipped

almost entirely in this basket.

The point 1 want to make is we must have uniformity between

national and State laws. I have about reached the conclusion that if we attempt to standardize shipping packages on the basis of the

bushel, and subdivisions of the bushel by two, we are going to get into

serious trouble.

There are a number of troublesome problems, such as the net-weight

law. This net-weight law, an amendment to the pure-food and drugs

act, is an attempt to let the public know just how much they are getting in the different types of packages. It seems to me ridiculous to allow the sale of a basket weighing 7 or 7i ounces. It would be better to graduate on the basis of the pound and its divisions, like 1 pound, one-half pound, 4 ounces, and so on. That applies, we will

say, to breakfast foods, canned goods, and things of that sort; but

when you come to perishables you have a different proposition to contend with. You can not Avork this thing out on the basis of the

bushel and its divisions by two. Let me show you what you would

arrive at. Take the type of container known as the asparagus crate. It is not any usual division of the bushel, but is standardized by

dimensions U) hold a certain number of bunches or a certain number

of pounds of asparagus. Now, asparagus will pack best in a container narrower at the top than at the bottom. The point I want to make is that if you make them ship asparagus in another kind of

container you would be passing a piece of legislation that it would be

almost impossible to enforce ; and. what applies to asparagus applies

to many other commodities. It applies to cabbage. You can not

ship all varieties of cabbage in a bushel container. Yoh might take some cabbages and put them in a bushel, but it would be impossible

in the case of large western cabbages, such as grow in Colorado. You

would only get two or three of them in a basket of some shapes.
92 BUREAU OF STANDARDS.

So, we have about reached the conchision that you must standardize the type. Let that be standardized, first, as to capacity ; sec- ond, as to dimensions; and, third, as to strength. Let the capacity

be such that the packages in use can readily be distinguished from

one another. We should not have another asparagus crate that is only a half an inch less than this in length or width. Also, since we

have an onion crate that is absolute'ly a bushel, we should not have

another one containing a bushel and 2 quarts, or 30 quarts. I believe it is best to take this thing up from the standpoint of in- dividual containers. We have already standardized the grape

basket; we have already standardized the berry baskeft and the till basket; and now, gradually, we can standardize the other baskets.

We have worked out with our legal advisers a bill standardizing the

round-stave basket and the hamper. There are more than 30 sizes of

these baskets, almost as many baskets as there are quarts in a bushel.

Now, we can get away from that by selecting only those sizes that are necessary for carrying out legitimate trade. We believe, from a thorough study of this question, that five sizes are a sufficient number,

the 8, 16, and 20 quart, the bushel, and the' bushel and a half. There are two types of the l|-bushel basket propose'd, one of them a

till basket such as is now used in the marketing of both cabbage and

lettuce ; the other one is a basket that has a narrow bottom. This till basket would not at all answer the requirements of another section,

where they would demand something that has a wider base ; so bearing in mind that in all of this regulatory legislation we must not unnecessarily disturb conditions, we deem it advisable to permit of

these two sizes. In this piece of legislation we provide that the bushel hamper shall be 15 inches across the top, 9 inches across the bottom, with a 20-inch

stave. We bring dimensions into this for a number of very important

reasons. It will, first of all, be of assistance to the manufacturer to enable him to standardize his forms, enabling him to turn out the

packages cheaper and to keep them in stock and, in this way, to aid

the farmer. It will be of value to the trade in detecting false packages, because all they will need to do will be to put a rule on the package. The sealer oi weights and measures can resort to the same method of test. He will not have to go to the tedious process of

measuring with seed, except, perhaps, in a case in court. It will be

of infinite A^alue in working out standard loading specifications in the

shipment of these packages to the market.

I do not know whether you gentlemen realize how important this

is, but the railroads report that their claims for loss and damage in

transit in the last year amounted to something like $100,000,000 on

all commodities shipped; that first in point of loss in transit was

grain, and a close second to grain was perishables. The latter loss was largely from breakage due to failure to load packages in the cars

solidly, on account of the many different dimensions; and due also to lack of strength. All the grower seemed to be interested in was

something to put on the platform. Later on he held the railroad

responsible by putting in a claim for damage. As a result the United

States Railroad Administration to-day has appointed a committee,

known as the " Blood committee," for the standardization of packages. The railroads are very much interested in this movement

toward standard packages and have subcommittees all over this
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 93

country. Their idea is to put these standard specifications into the

railroad tariffs and to put a higher tariff on nonstandard packages

;

or to refuse to allow claims on such packages. Now, there* may be some question as to whether it is advisable for the railroads to do

this. Some of our shippers are saying that in doing so they are trying to exercise a function of Congress ; that they are trying to establish standards. But whether it is constitutional or not, the rail- roads have already begun to get results. Only a few weeks ago I saw

the first standard bushel hamper of cucumbers come from the State

of Florida ; the railroads are going to refuse to carry cucvimbers in

anything but that standard package.

In this proposed bill, in addition to the standards of the hamper,

we are also proposing standards for the round-stave basket. Here,

again, we have a similar condition. The hamper is used very

largely in the South and East. The round-stave basket is more dis- tinctly a package of the Northwest and Central States, even out as far as Texas. There are 16 or 20 different sizes of round-stave

baskets; in place of these 20 sizes we believe that 4 sizes, from one- half bushel up to 2 bushels, will be sufficient to answer the requirements of the trade, and of these 4 the first 2 will be really the main

shipping containers. The 1| and the 2 bushel sizes are seldom used,

but are put in to forestall some manufacturer turning out something

in between them.

Now, my theme so far has been the standardization of the package;

but I also believe that we should go further than this. In addition

to the standardization of the shipping container—and, gentlemen,

if you please, allowing that shipping container to be sold as and for

such container—we should also enact legislation providing for the

sale of dry commodities by either standard weight or by count when

removed from such containers and sold at retail and when sold

in bulk. I believe this association a number of years ago went on

record as favoring sales by weight or by count, but at that time you

did not take into consideration the need of having a standard container. Now, I think it is a foregone conclusion that we must have

containers. A bushel onion crate holding 2,150 cubic inches will

not hold 57 pounds of onions, which is the legal weight in a number

of States ; it may only hold 50 pounds. I believe if that package is well filled it ought to be allowed to be sold as such a package. If

you do not allow this because you have numerous conflicting laws

regulating the legal weight of dry commodities, you are going to bring about conditions like this. A package of this sort, marked

" One bushel " under the net-weight amendment, goes into New York,

where the legal weight is 57 pounds, with but 50 pounds in it. The

New York inspector says, " You can not sell that for a bushel ; it contains only 50 pounds." What is the result? The result is you

must stamp out the " One bushel " label on it and make it read " 50

pounds." It simply adds to the cost because of the extra labor in- volved.

Standard shipping containers are here, gentlemen, and we have

to recognize the fact. I believe that the legal weights on all of our dry commodities ought to be revised—I am almost tempted to say, abolished—so as to get uniformity ; revised on the basis of the number of pounds in our standard shipping containers. When you ship
94 BUREAU OF STANDARDS.

a commodity, you can not ship it heap measure, because you must

have the cover on; otherwise there would be an enormous loss. Take the hamper used extensively in New Jersey for marketing

sweet potatoes. When that package is well filled with sweet potatoes and the cover put on so that it is tight, I believe that that ought

to be the weight of a bushel of sweet potatoes and that our legal

weights ought to be so revised. Now, it may be a ridiculous belief,

but if we do not get some revision of this sort we are going to have

this present unnecessary conflict. This, of course, is an open question, and if any of you gentlemen have any better solution to suggest we would welcome it ; but the thing we want to get away from is this lack of uniformity. We want to get these laws enacted so they

will not interfere with legitimate business and at the same time will

prohibit or have a tendency to do away with fraudulent practices;

and we find that in accomplishing this it will be working toward the

standard container. We want revision of the legal weights per

bushel on the basis of the quantity that will go into this specified

standard shipping container.

The hour is getting late, and I do not want to go into this matter

at further length, but I would like to hear from the gentlemen re- garding the theory that I have just proposed. If any of you are

interested in this proposed legislation on the hamper, I might say

that I have copies of the bill that I will have introduced into Congress at the coming session, standardizing these packages. I might

say, furthermore, that the State of Ohio has just enacted a bill standardizing the hamper and round-stave package. Mr. Mote re- ferred to this yesterday morning.

DISCUSSION OF ABOVE PAPER. The Acting Chaibman, Is there any discussion?

Mr. TowNSEND. Mr. Chairman, I think the gentleman has put the

cart before the horse. I think the container should be made according to the weight per bushel, and not the bushel to suit the container.

Mr. Downing. I might answer by saying that we had that matter

in mind, and if you attempt to standardize on the basis of the weight

per bushel you will have an infinite variety of packages. You will

have any number of them. I can illustrate by California. California sells by weight. Here we have four 3-pound tins, all of

different shapes and all of different dimensions. If you carry that

proposition out on the basis of the bushel for all the different vegetables, you are going to have a condition almost identical with what

we have here, because you will have 32, 34, and 29 quart capacity containers for holding the different legal weights per bushel of these

different dry commodities.

Mr. Tucker. My first question is, suppose a man in Ohiu takes

32 quarts of berries, places them in a crate, ships them into West

Virginia or Pennsylvania, and when they get there, none of these

baskets are filled; they have settled down. They may have the

weight but the basket is not full. That is one thing.

Mr. Downing. In this proposed legislation we have provided that

the basket shall be well filled, whether sold on the basis of weight

or count.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 95

Mr. Tucker. Next question: Suppose a merchant buys a bushel

of onions, breaks the crate, and sells them by the pound? Instead

of a bushel he had 40 pounds, yet he sells them out figuring on 56

pounds.

Mr. Downing. You must take this thing in consideration with

the revision of the legal weights. If you do not have some weight on these packages, it leaves an opening for fraud in such commodities as spinach ; they could be put in 12 pounds, or 18 pounds.

Mr. Stewart. We find that in peaches. The point I make is this

:

They were selling peaches short in weight—we go by pounds in West

Virginia—and I went to one firm and weighed their baskets. They

all had 48 pounds. I went to another firm and found from 39 to 45

pounds, and the baskets apparently were full. I raised the question,

and one man who seemed to know how to pack peaches said they

would hold 48 pounds, and he fixed the top and made honest measure,

and when he got through he had 49 pounds in the same container,

Mr. Downing. That is a further reason why you should have at

least the minimum weight on the package.

Mr. Gregg. The question I want to ask is this : Eeference has been

made to the crate exhibited there for a bushel of onions. That crate

is extensively used in my State, in which there are some 5,700 acres of early onions shipped in April and May. If a bushel of 57 pounds

is put in that crate at the point of shipment, by the time it reaches

St. Louis or Chicago, which are the principal markets, although some of them come east, we find that shrinkage has reduced the

weight of that package down to anywhere from 50 to 54 pounds,

making it less than the standard bushel of onions. We do not

believe the placing of the weight on a basket of that kind would be

safe for the shipper unless a tolerance is allowed.

Mr. Irvine. There is one commodity that has not been mentioned

relative to the standardized package. That is apples. In shipping

apples the different kinds of apples will vary 20 pounds to the standard apple box which is used out AVest. You can take Bell Flower

apples and they weigh 35 pounds; then, there is Black Twig; that

will weigh 55 pounds. The quality of the apple has a good deal

to do with the price per box. The Bell Flower apple is better than

the Black Twig. The latter is a hard apple and will keep, but the

quality is not as good. It seems to me that if a standard container

be adopted and that container be well filled, the trade will soon

learn the weight of the commodity in that container. That is, the

retailer will soon learn, if the standard containers are put in use. I believe in selling by weight. I do not see any necessity of defining

how many pounds there should be in a bushel. It seems to me that

if we attempt to weigh evenly a certain number of pounds we need

not define the number of pounds in a bushel.

It seems to me that there should be sufficient punch in this con- vention to cause the delegates to take up the matter with their

Congressmen and Senators and get the proper legislation through

to standardize these containers and make them uniform throughout

the land. I believe the weights and measures officials should use

their influence with their legislators in order to get these measures

passed. I know I could be of some value in taking this matter up

with our Senators and Representatives in getting national legislation through, and I believe every member of this convention would

L
96 BUREAU OF STANDARDS.

have influence with his delegation in Washington in helping to get

standardized containers. It seems to me that we ought to do away

with this old system. We have tried to do away with it in the West.

If we see a man with dry-measure containers on his wagon, we confiscate and destroy them. We do not permit them to sell by dry measure at all, but we do recognize standard containers. Our law

provides that the standard adopted by the United States Government shall be the standard in the State of Utah. We took that measure up at the suggestion of Mr. Holbrook and embodied it in our law. When the United States Government enacts a law regarding standard containers it automatically becomes the law of Utah.

I believe if every law should contain that clause we would soon get

uniformity of standards and do away with this proposition of defining how many pounds there should be to a bushel. This latter method seems to me a ridiculous thing.

Mr. Barnard. For the benefit of our friend from Utah, I have to

state that at the last conference, held in 1916, a committee was

appointed to draft and present at this conference a bill largely cover- ing the proposition he ]ust suggested. I wish also to state that this

bill, which has been tentatively prepared, also takes into consideration standardization of certain packages, the matter which our

friend Mr. Downing has presented to us to-day. This bill will be

presented to the conference a little later, and you gentlemen will

have an opportunity to discuss the matter. Mr. Buck. This question is one of the thorns in the flesh of the

sealer of weights and measures. Last Monday, before I started for

the convention, I stepped into a little corner grocery conducted by

a widow. She said, " I have a hamper here, a standard hamper, so many quarts in it." She told me it was supposed to hold 30 pounds,

and I found there were only 26. It was filled, so far as she could

tell. Just recently two merchants adjoining had some standard-size

hampers and there was as much as 8 pounds difference in the weights.

One of them to come out even had to mark his pounds 15 cents; the other sold his at 12| cents and made a profit. I do not know what that bill covers ; if we had it here I think we

could discuss it, but I think our Federal Government had better

pass one or more bills, and then forget some they have passed. It

is one of the things I have more trouble with than anything else. We have the weights exclusively. We do not have any dry measures

in Indiana. We have got far enough along to forget it. I wish the

Government would make the hundredweight the standard; then

forget everything else and sell by the pound. Now the commission

man goes on the market, sells his hamper at the market, and nobody

knows how many pounds are in it. As soon as the retail merchant

gets it he has to sell by the pound. Gardeners have to work hard

and are compelled to market their products by weight. I say to the retail merchant, " Deal with the men who ai-e giving you a

square deal; those men who have their goods marked on the outside with the net weight."

Mr. TiGHE. For the past nine years the mayor's bureau of weights

and measures of New York City have practiced the policy Mr.

Downing has just spoken of, of standardizing packages, and the

exhibits which he has presented here are similar to the packages

which the weights and measures bureau has standardized. I think
TWELFTH ANNUAX, CONFERENCE ON WEIGHTS AND MEASURES. 97

the Federal standards will not go far enough, in that they will not

have the authority to prevent the retail merchants in the various

cities and States from repacking and using arbitrary measures which

will defeat the object of the Federal package in so far as giving to the ultimate consumer a protection which the weights and measures

ofl&cer desires to give at all times. I think Mr. Downing's proposition for legislation is following the

policy of the New York bureau of weights and measures in standardizing the packages. I am of the opinion, personally, that if we have

a standardized package, and it is filled with a commodity that we

go a longer distance in giving to the people protection than by fixing

arbitrary weights. I fully agree with him that the equivalent of the

bushel should be eliminated, and when the public become accus- tomed to the actual weight of standard capacities they will adapt

themselves to that capacity and that weight by selling in divisions

of that capacity ; if they so desire they can sell by weight. I think

Mr. Downing's proposed legislation will solve the problem. There

is only one point on which I take any issue with him, and that is that it will not be necessary for the local sealer to give to those packages the supervision that he has heretofore. I have a point in mind

which has been brought to my attention at this conference, and that

is that a standardized package of the mayor's bureau of weights and

measures, bearing a serial letter, was found to contain less than the

capacity of the standardized one. Now, if the local sealer in this case had recognized the serial letter on this package and allowed it to be sold without making an examination of it, why there would

have been a loss to the consumer of 2 quarts.

Mr. Buck. What are we to understand by the marking on some ol

these containers, these New York standards?

Mr. TiGHE, The point of the marking is that the New York City

approved type is the type of the United States standard capacity.

We standardize as to United States capacity.

Mr. Sttthr. It seems to me we have a condition here that is not

uniform throughout the country. The southern shipper sends out a hamper, and you are supposed to have a certain number of pounds.

These goods reach the central part of the coimtry, and the jobber

buys them in these hampers. The retailer invariably breaks them

and sells the articles by weight. It seems the most natural thing in

the world that as long as the consumer is going to buy these things

by weight that idea could be followed throughout the entire country.

In the transaction, if a man is shipping goods green, there is a certain

shrinkage. That shrinkage must be taken up before this article goes

to the consumer._ Consequently, it is natural that the allowance must

be made. Possibly the shipper must stand a certain amount of

shrinkage. You will find it in other shipments; in cattle a man

shipping must bear shrinkage at the market. The shipper of vegetables bears shrinkage when they go to market. If the jobber buys

by the hamper it would be standard as far as cubic contents is concerned, but not as to pounds ; he would know the volumetric contents

in cubic inches, but he would not know the quantity in terms ol

weight, yet this article is invariably broken and sold by weight.

There is a discrimination in selling it by the hamper at one stage of

the game and by the pound at another.

155530—20 7
98 BUREAU OF STANDARDS.

In our State we have enacted a new law on that subject, which

recognizes standard berry boxes, and nothing else. Consequently, it

is questionable whether it would be up to us to recognize standard

hampers and various other containers. We insist upon everything

with the exception of berries being sold by weight. I refer particularly to apricots, prunes, and possibly grapes. It looks to me that

if you are going to have something uniform, the best proposition

would be to have weight throughout.

Mr. Irvine. Mr. Chairman, I believe this is a very worthy dis- cussion and should be continued. I think that if we adjourn this

conference now and have luncheon and take this matter up after- wards it could be discussed with a great deal of benefit and with a

larger attendance.

The Acting Chairman. I might state that at 1 o'clock we are expecting an officer from the Ordnance Department, and his time is limited, and I think he is going to give us a very interesting illus- trated talk. I might say that I hope that eveiybody will be here

because I think you will enjoy it verj' much.

Mr. Downing. In connection with the weight that goes into these

standard packages, I want to call your attention to another bill which was befoi'e Congress at the last session, known as the Lever

bill, providing for the use of standard crates for the different

perishables. Now, if the Secretary of Agriculture is given the

authority to work out these standards, we are going to come pretty

close to uniform weight in the package.

(Thereupon, at 12.50 o'clock p. m., the conference took a recess until 2 o'clock p. m.)
FOURTH SESSION (AFTERNOON OF THURSDAY, MAY 22,

1919).

The conference reassembled at 2 o'clock p. m., Mr. L. A. Fischer,

secretary, presiding as chairman.

WORK OF THE ORDNANCE DEPARTMENT, BY LIEUT. COL. C. B. GATEWOOD, ORDNANCE, U. S. ARMY.

Gentlemen, I appreciate your welcome and hope this paper will

be of interest to you. I have a number of topics here which I will

discuss more or less at random. This subject of ordnance is really

a large one. It is something that I feel could not be adequately

covered in anything less than a lengthy series of articles. To give

anything like a full recital of the proposition as a whole I would have

to go into a history of our different types and trace the facilities of

the department in producing them. To understand it thoroughly, we have to go back through its history and follow it through the full development. Some developments have come very rapidly in the

last few years; others have taken several hundreds of years for

their evolution.

A proper understanding of the apparatus now would depend to some extent upon the conception of the problems that have to be

solved in order to bring things up to their present state of perfection. At other places the subject would be a discussion of the

many engineering problems, which could be multiplied ad infinitum,

because hardly anything that comes up, from a special-sized screw

or special-fitting screw to the largest caliber gun, but has some en- gineering difficulty for which we can not readily find a solution. In

the field of manufacturing and production there are many special

difficulties not encountered in times of peace. Then, to discuss the purpose of ordnance you would have to get some idea of the preparation made in time of peace in the way of

accumulation of information and data, and often of material. Some

of the material can not be produced quickly. When Germany started

out on this program of hers recently brought to a termination,

she had gone into everything thoroughly and had accumulated

great masses of material. We have never considered that necessary, because of our intrinsic ability to produce them. But that should

not be entirely our mainstay nowadays on account of the great variety

of complicated material which is absolutely necessary. Then, in

addition to that there must be plans as to the distribution of material

needed in time of war, which is a big business in itself. For instance

the consumption of small arms—cartridges for infantrymen alone—

is a thing that kept a corps more or less busy solving the problem of

getting the necessary ammunition to the front. The artillery is an

even more vital problem.

To come down to recent construction of ordnance and to get an idea

of what it all means, we must get a little appreciation of what

99
100 BUEEAtr OF STAITDAEDS.

the work of our immediate predecessors amounted to. They laid a foundation which has been lost sight of now by the superstructure

of the war, but their work is there, and it counted for a great deal. In sizing up their work we must know something about the in- herent difficulties in a country like this, one not prepared for war. We had the foundation both in brains, ideas, and material.

Wliat this country accomplished in producing ordnance and munitions has been written up more or less from various viewpoints, both

friendly aiid unfriendly, partial and impartial. In its entirety it is something none of us can grasp, because it includes so many things.

Take this illustration : We have actually spent in ordnance alone, in

addition to other operations of the Government, during this war an amount equivalent to $1 for every five seconds of time elapsing during the 1,919 years of the Christian era. That strikes me as a

forcible illustration of the amount of money that has been needed.

Another illustration is that our Government up to the day it entered

this war had spent a total of $26,000,000,000. That carried us through all of our 140 years of existence, including the Mexican War,

the Civil War, and the Spanish-American War. Yet at the beginning of this war and during the first part of it, when we were forming our plans, we proposed to spend about thirteen or fourteen bil- lion dollars, which was half the whole sum that the whole Government had spent in the preceding 140 years. The race was called off before we spent all of that money, and a good deal of it was saved

;

but, nevertheless, the amount actually spent mounted up to a great

fraction of it. About 58 per cent of all the funds obtained by the

Goverimient during the war were spent for producing ordnance.

In the study of this proposition we find that preparation during

the time of peace is as important as accomplishments during time of

war. The nucleus we had before the war was the real factor in the

problem and necessary to the war work. So our work can not be con- sidered as accomplished now if we are to have any insurance against

another war. Taking up again our materiel, which is a most interesting thing,

perhaps, with you gentlemen, there are about 100,000 separate and

distinct articles that are carried in the ordnance catalogue for is- suance to the troops. Among the most important are small arms and machine guns, cannon, ammunition, and explosives, tanks and

trucks and other motorized vehicles and trailers, trench-warfare

materiel, airplane armament, equipment both for man and beast,

specialized fire-control instruments, and other special miscellaneous

equipment. Explaining a little more specifically, small arms and

machine guns include pistols, shoulder rifles, automatic rifles and

machine guns, light and heavy, adapted to a number of different purposes, some used in the aircraft, others against the aircraft, some for

development of heavy-fire volume, and others for lighter fire effects where we sacrifice fire to some extent to enable us to get greater

portability. All of these different types are necessary, and each one

has a distinct field. Under cannon we have guns, howitzers, and

mortars of all calibers from 20 millimeters (about 0.8 inch) up to 16 inches, mounted in various ways and for all purposes from air- craft and tank use up to the type for the heaviest fortification. We

have developed more or less complicated and special fire-control ap- paratus for obtaining accuracy of fire in the case of long-range guns,
TWELFTH ANNUAL CONFERENCE ON "WEIGHTS AND MEASUEES. 101

involving principles of optics, meteorology, and aeronautics. The

expedient of using airplanes to direct fire is a part of that system.

Without the use of accurate and specialized instruments our larger

guns would be more or less useless. In the group of munitions and explosives we have projectiles of

every conceivable kind from the familiar small-arms bullet up to the

large high-power explosive shell and the gas shell. Among the

different small-caliber bullets we have many different types, such, for

instance, as incendiary bullets for setting fire to airplane fabrics.

We have armor-piercing projectiles of every caliber, small arms as well as large. The infantry rifle has become a formidable weapon

against tanks and artillery, most of which are armored, on account

of the development of armor-piercing bullets, which make it possible

to penetrate armor, and thereby get at the crews of tanks and bring

down even those airplanes that are armored to protect their vital

parts. In the class of larger projectiles we have specialized shells carrying thermite and other incendiary compounds and using high

explosives for a maximum shattering effect. There are also ex- plosives intended simply to rupture the shells so the gas contained

therein can escape to best advantage; also explosives that are in- tended to set off' the propelling charges to send the projectiles on their

flight.

In motorized vehicles we have, of course, the armored tanks, with

which most of you are familiar. The smaller of these are the twomen tanks, carrying one machine gun, such as the Ford and the

whippet^ capable of fairly high speed. The way they get over rough

ground is an eye opener for anyone who has not seen them in action.

All the successful ones now are caterpillar-tread. We have given up

the idea of having armored cars on wheels unless they are railway

mounts. In our present warfare you must be able to get over rough

ground, since you can not always find smooth roads to go over. Then, we have tractors of several different capacities to move the

artillery. There is still horse-drawn artillery, and a great deal of

it, but the tractor has proven its efficiency for the larger guns. It has

increased the mobility and greatly increased the efficiency of the

heavier guns. It is certainly a vital invention as applied to war. Then, we have rolling equipment of other kinds—automobiles, fourwheel-drive chassis for ammunition, and other supply trucks of

various kinds. It is necessary to supply certain definite quantities of

repair parts for artillery on the front line, and these trucks and their

repair facilities have enabled us to keep in action guns that otherwise

would have been withdrawn to some factory a number of miles in the

rear. The French perfected their requirements to such an extent that

they sometimes got back into action within an hour or two a gun

that had been put out of commission. A great number of them were

put in satisfactory condition within a few minutes or a fraction of an

hour. Our people have done the same thing, and our repair service

in Europe has brought forth from the users of this materiel words of

very deep appreciation, which we are very glad to get. These various

tractors and trucks are often equipped to carry a full load of ammunition and also to drag several trailers. We have been mounting guns

on these trailers to secure greater mobility. With the tractor or truck

you can get over more ground than in any other way under the conditiong we faced on the front.
102 BUKEAU OF STANDARDS.

Trench warfare, which has grown up during this war, has been

conducted with lots of strange apparatus, much of which did not even

exist more than two or three years ago. We have hand and rifle grenades, bombs, signal rockets, pistols, and flares of different kinds.

Some of the flares light up the battle ground for a much longer

distance than any other source of illumination that we have been

able to get. Also trench warfare has produced the gas mask and

methods of using gas and the high-explosive and gas shell that are

fired from trench mortars. Then there are flame projectors, some

capable of throwing a stream of burning oil 100 and 125 feet; and

trench periscopes and various inventions which have been used to some extent which practically enable a man to fire around a corner. This is a decided improvement over the first invention of the man

who thought he could do it by bending the musket barrel, and who

blew off his hand trying to accomplish it. The armament for aircraft includes bombs of all kinds. They

vary in weight from 25 pounds wp to 1,600 pounds. The highexplosive bombs will make a crater in the ground and are so powerful that they even threaten the airplane itself if it is lower down

than 6,000 feet. The method of carrying these bombs and of properly releasing them and knowing when to release them calls for quite

a lot of specialized apparatus. We have bomb-carrying traps which

hold the bombs in a certain position and drop them at a predetermined instant. These devices must be simple, since the aviator has

not the time to operate any complicated mechanism ; the best he can do is to shove a button with his knee. His faculties are occupied.

Consequently, mechanisms have been perfected for carrying a number of small bombs which are released one at a time, so that the

aviator or his observer can work the whole thing ver}^ easily. The

apparatus for determining when to release a bomb is especially complicated in appearance, although in use it has been simplified' or the

aviator could not use it. Very good scientists and mathematicians

and practical men have worked on the problem, but it is still inaccurate. It involves gauging the speed of the airplane and its height

and also meteorological conditions. Developments are still being

carried out along that line, and that is one important thing the

Ordnance Department ought to see to now, since we all agree that

aircraft in the future will be even a more terrible engine of war than

it has been in this war. The development of armor plate of light type for aircraft has

given us during the war steel very much ahead of anything we had

before. Some of the armor plate we sent abroad was just as good as that made by the French. It was good enough for the job, and we

had a good steel to protect our men. Equipment of airplanes includes specialized types of machine

guns. They have actually speeded up in a practical way some machine guns to fire 12 shots a second, very much more than we thought

possible before this war started. They control the g-un by a mechanism making it possible to shoot through the propeller without hit- ting the blades, although this is revolving at a Yery high speed. Even

a small portion shot out of a propeller blade is enough to unbalance

the propeller and set up vibration that will tear the whole engine

and the plane apart very quickly.
TWELFTH ANNUAL OONFERBNOE ON WEIGHTS AND MEASURES. 103

I brought along a few slides, and I think if we could see them now

it would help me in my talk. It would be of far more interest to you.

[Note.—At this point the speal-fer exhibited a number of interesting

lantern slides showing a large variety of ordnance equipment, in- cluding various models of heavy guns, machine guns, projectiles,

grenades, etc. He pointed out the salient features of each type and

explained briefly their advantages and disadvantages and the part

played by them in the winning of the war. The speaker then continued.] I will conclude with a few remarks which may be of interest, just a few suggestions on production. In the matter of small-arms ammunition during the war and up to November 11 of last year we produced only about 10 per cent less small-arms ammunition than did

England and considerably more than the French. In round numbers, our production was 2,864,960,000; but that is only part of the

tale. The rate of increase in production exceeded England greatly,

and was even more greatly in excess of that of France. In other

words, we built up a machine which was greater than either of theirs. We had a number of very large powder plants. One of these, which was not the largest just before the armistice, produced a million

rounds a day of smokeless powder, employed over 30,000 people,

covered 4,700 acres of land, and used about 100,000,000 gallons of

water a day, more than the city of Buffalo, as a matter of fact. At the time of the armistice we had machine guns enough for

7,000,000 men, and after July of last year, we had over there more

than they could use, including the prospect of replacement. Of

shoulder rifles we even further overto.pped the average of the British

and French. We got into production early with the help of the Enfield rifle, and made, during those 19 months about 2,500,000. England produced a little short of 2,000,000; France about one and onethird million, and they were all of them getting out full capacity.

Our artillery ammunition was slower coming into production, and we have been criticized for this, but this criticism did not take into

account all of the factors of the proposition. I can say briefly that we established a production machine which came into operation before it was needed, taking into consideration that we had the use of

French and English reserves. Our machine got into production suffi- ciently in every way in time to avoid the depletion of these reserves, notwithstanding that the artillery was perhaps the slowest of all. I have no doubt that Germany sized up the program as a whole, and

that this was the main reason they asked for an armistice. I may say, in conclusion, that the Ordnance Department started out with 92 officers and 750 men. We woimd up at the time of the

armistice with 5,900 officers and 64,000 enlisted men. That is an in- crease of 830 per cent right there, and that was only a small proportion of the Ordnance Department. The Ordnance Department, in

fact, was that portion of the organized manufacturing ability of this

country which was producing munitions, and the largest proportion

of it was diverted to such purposes. The development of that im- mense machine is more to the credit of the construction business and

professional men of this country than any other one thing. On ac- count of their individual effort and the high class of their intelli- gence they put through these things without the need of a highly
104 BUREAU OF STANDARDS.

compact organization. It is certainly a credit to the thinking and

business portion of our country. If any class of men saved our country it Tras these same men, who saw the tiling in its substantial way

and carried through an apparently impossible project. I ought also to say that the work of the department has not fin- ished by any means with the cessation of hostilities. We have a big

job ahead of us, and that is to create some kind of foundation upon

which we can build in time of war. That was attempted by this

handful of 92 before the war. They did the best the}^ could with

very limited facilities. If they had had greater facilities, we would

have gotten into production earlier. It certainly would have shortened the war. The necessity of preparation and experimental re- search work in determining what is the best material and the best

way to produce it in quantities needed; these are the factors of the

problem I have been trying to lay before you. It is by this that we

will avert future wars, and I make a plea for the active assistance

of all of 3'ou. I have tried to impress upon you that we want your

active cooperation and sympathy, and it is as much your job to determine the ordnance policy in the future as it is ours. I thank you.

ADDRESS IN MEMORY OF MR. JOHN C. CONNORS.

Mr. TiGHE. Mr. Chairman, I rise to a point of special privilege.

Mr. President and gentlemen, it is with profound sorrow that I

rise to pay a tribute to the memory of a man whom it was my great

pleasure to call my friend, a man whom you all knew in life and one whom you all cherished as your friend. Intelligence, integrity,

courage, and unflinching faith were the pillars that held aloft the

character of this man. His untiring efforts contributed in a great measure to the success of the National Conference of Weights and

Measures officials in former years. He thoroughly understood the subject of weights and measures, and by the power and energy of his efforts he quickly attracted the

attention of the technical minds of the Bureau of Standards. As a member of the committee on tolerances of the national conference,

he gave to it the fruits of a practical knowledge second to none in

these United States. The laws that thundered down from Sinai were graven upon his soul, and proudly and gladly he took up his

cross and by night and by day preached weights and measures. His ship of life was sweeping gracefully along the rippling sea, the eager winds were kissing every sail, the Port of the Shadow seemed

far away, when suddenly and without warning the submerged rock

drew near and like a flash the billows roared above the sunken ship.

His hour had come, and. alas! the night came down and as he lived

he died.

He left us in his golden prime, as manhood's morning brightened

into noon. He lives beyond the twilight-purpled hills in the vast region of silence, but he has left behind him a wealth of good deeds

done, and in the hearts and memory of men who knew him best his

grave is ever green, his memory secure, and his name indelibly en- shrined upon the foundation of honest weights and measures. Were every one for whom he did some loving kindness to bring one

blossom to his grave, he would sleep to-day beneath a wilderness of

flowers,
TWELFTH ANITTJAL COISnFEBENCE ON" WEIGHTS AOT) MEASURES. 105

Few men cherished a closer friendship for this man than the

speaker, who a few short years ago suffered a serious illness and was

confined in a hospital on the outskirts of Brooklyn. Out of that

illness grew a friendship that ripened into love and affection. No

more devoted visitor came to my bedside, and always with a token of

affection and words of encouragement to relieve my anxiety at a time when it was problematical whether I would live or die. When one is hovering upon the brink of the great divide, over which all go and none return, it is at least some compensation for the

pain and suffering endured to realize that one is surrounded by

" The friends that love us always,

In the good tim'es and the bad

;

. . The friends that love us always Are the friends that keep us glad.

The friends that cling in tempest

As they do in calm are those That have made the paths of hardship

Seem the paths of song and rose. The friends that love us always,

When we go their way or not, Are the friends our hearts remember

When the others are forgot.

The friends that stick the closest When trouble grows the worst; The friends that love us always. Just the way they did at first. They are the crowning jewels

Of the coronets we weave

In the dreams of tender moments

When the troubles start to leave. We revere their names forever,

And we see their faces clear, The friends that love us always,

Whether sun or shadow 's near." Such was the sterling quality of the friendship of our absent

brother, and I move you, sir, Mr. President, that all business before

this session be suspended and that we adjourn as a mark of respect

to the memory of Mr. John C. Connors, and may the Almighty God

have mercy upon his soul

!

I move to adjourn.

The Acting Chairman. Before I put that motion, I would like to thank Col. Gatewood, and in doing so I am sure I voice the sentiments of the other members of this conference, for the very interesting talk he has given us this afternoon. I am sure we all ought to be

interested in what the Army has done, and is doing, to protect us in the future.

Mr. Fine. In amendment of that motion, I would move you, sir, that we stand silent for one minute in the memory of John C. Connors.

The Acting Chairman. Do you accept that as an amendment?

(The motion as amended was seconded.)

(The motion as amended was agreed to and the members of the

conference stood in silence for one minute in respect for the memory

of Mr. John C. Connors.)

The Acting Chairman. I wish to announce a change in our program. Instead of having the demonstration test of a track scale at
106 BUREAU OF STANDAEDS.

this time it will be postponed until Saturday. If it is your wish, I

will now go on with the regular program.

Mr. TiGHE. Mr. Chairman, I asked that all business before us this

session be suspended.

The Acting Chairman. I understood this was a substitute.

Mr. TiGHE. I did not undei'stand it as such. I thought that was an added part of the motion.

Mr. Webstee. Mr. Chairman, I believe that if Mr. Connors was

present here he would say that we should go on with our program.

He felt the importance of this work very keenly, and I am sure that

he would want us to devote our time here to the work.

Mr. Gregg. As a substitute for the motion, may I move you, sir, that when we adjourn we adjourn out of respect to the dec.eased

brother.

The Acting Chairman. Is that accepted by you ? Mr. TiGHE. No, sir; unless we adjourn as a mark of respect as I

suggested, it is a mere proposition of necessity. We are about to partake of our dinner, and this is only an expression of mine, per- sonal to myself. If it does not fit the views or the feeling of the

others, why they are here to object to it. This is a personal expression of mine, having known Mr. Connors for several years and

known what he has done in the weights and measures work and what

he has done for weights and measures officials. Of course, what dis- position is made with that suggestion of mine lies with the members.

I have served my purpose in reading my paper.

Mr. Goodwin. If I may add a word, I feel that we ought to adjourn this meeting to carry out this resolution. When I first took

hold of the subject Mr. Connors was practically my educator, I might say. He came to me unsolicited, at his own expense, and gave

me all the necessary knowledge I needed in the discharge of my

duties. I feel that the memory of a man who has done so much in the interest of the weights and measures laws in this countrj'^, I might

say in every State in this country, ought to be respected.

The Acting Chairman. Are there any further remarks? If not,

those in favor of the motion to adjourn as a mark of respect to the

memory of Mr. Connors will say "Aye "

; contrary minded " No."

(The motion was agreed to.)

(Thereupon at 4.30 p. m., the conference adjourned to meet at 10

o'clock a. m., Friday, May 23, 1919.)
FIFTH SESSION (MORNING OF FRIDAY, MAY 23, 1919).

The conference reassembled at 10 o'clock a. m., the secretary, Mr.

L. A. Fischer, presiding as chairman.

RECENT DEVELOPMENTS IN SPECIFICATIONS FOR RAILROADTRACK SCALES, BY C. A. BRIGGS, BUREAU OF STANDARDS.

Mr. Chairman and gentlemen, at the time the United States entered the war railroad-track scales had passed through about

five or six years of. very active development. This has been ren- dered necessary by the fact that there had been very great progress

in railroad equipment in the United States, particularly as to the

size and weight of rolling stock, which had increased to an extent that was not thought possible a few years previous. During this

time the science and art of constructing railroad-track scales re- mained stationary until the discrepancy between what was required

for properly weighing cars and what was being generally furnished was very great.

At this time the subject received the attention of the Bureau of

Standards, railroads, States, industries, and scale manufacturers,

with the result that there was a rapid development in the design

and construction of scales, and specifications covering track scales made their appearance from different sources. Progress is never abrupt, so that radical changes necessary in

the construction of scales and the elimination of many imperfect

principles were required to be done in stages. Unfortunately it was

not very difficult for any trained engineer to study the construction

of railroad-track scales and discover what appeared to be a structural

defect or an incorrect principle. This, of course, brought into

question the other provision of the specifications, and there resulted a general tendency for the engineer to plow up the whole subject

and draw up specifications complete on his own account. At the time of the war, therefore, there were adopted or proposed a rather large number of specifications for railroad-track

scales. Among these may be mentioned of special interest those of

the American Railway Association, State of Minnesota, American

Railway Engineering Association, and the Bureau of Standards.

In meeting the various specifications of their ciistomers the scale companies had been producing a variety of scales, a large number

of which differed in no essential particulars, but which at the same

time required differences in patterns, drawings, etc., which added

very much to the expense of construction.

After the declaration of war the Bureau of Standards, which was on the point of issuing a revised set of specifications, had to drop this matter to a large extent and give its energies to matters

which had immediate bearing on the war. The war, however, soon

increased the importance of scales, and it was not possible to let the subject rest, and those concerned with the administrative fea- tures of the subject continued on the matter of specifications ac- 107
108 BUKEAU OF STANDAEDS.

cording to circumstances. The Stats of Minnesota issued a rather

complete set of specifications to govern the installation of scales in

that State, effectiA^e December 1, 1918, in accordance with their

previous program.

As the war continued the need for men and material became one

of the most important considerations affecting everything. The

scale manufacturers found not only that they were having difficulty

in meeting their own needs, but were required by the Government

to limit their output to a certain percentage of what it had been

in previous j^ears, and restrictions on their fuel and cast iron were

still further narrowed over what they had been during the previous

winter when the fuel shortage first caused restrictions to be imposed

The scale manufacturers undertook to study the matter so as to do as well as possible under the circumstances, and one of the first matters evident to all was that a great saving would be effected in

the men and material used and in the spare parts required" to be

carried in stock if there could be a reduction in the number of

types of scales manufactured. However, the restrictions were so great that not only was it necessary to cut out types which were

to a large extent in the nature of a duplication, but also many

which would ordinarily be regarded as necessary. In this connection the new specifications proposed by the State of Minnesota

gave them some concern, as they represented just the opposite of

what was called for in the restrictions being placed on scale manufacturing.

In connection with the consideration of this problem the writer was asked to address the Scale Manufacturers' Association on the

subject of "War-time Standardization of Railroad Track Scales."

This request was granted by the Bureau, and on September 10, 1918,

the subject of track scales was discussed and the paper given. At

this meeting it appeared that the manufacturers were in general

accord with what the Bureau had to suggest. In the paper it was

suggested that the elimination of the nonessential should consist not

merely in cutting out types, but that possibly the needs might be met

by something in the nature of more constructive action. It was suggested that it was desired to avoid as much as possible slipping back

into the conditions found so unsatisfactory throughout the country in

the past.

In previous work the Bureau of Standards has prepared its specifications in careful reference to making the provisions general, so

as not to restrict the introduction of improvements, and so as to make

the designs as flexible as possible. It was felt in the emergency, however, that what was required was a contrary policy, and the Bureau

of Standards was willing to do what it could to help to settle on a few types consistent with the needs. The Government's interest in

the scales over which revenues were collected was considered, as, on account of taking over the railroads, the Government had an

enhanced interest in the correctness of the scales. The situation was

analyzed into the following parts:

The Government has a peculiar interest in the accuracy of railroad track

scales. Numerous designs for scales are on the market arising from the natural activities of competition and several sets of specifications from different source? are in existence.
a^WELPTH AKlSrUAL CONFERENCE ON WEIGHTS AND MEASURES. 109

There is a need for limiting the number of designs to those which are es- sential. The designs available have suffered on account of the conditions which have

been outlined. The followiiig suggestions were made for dealing with the situation:

1. That a number of standard railroad track scales not to esceed six should be established representing all possible combinations of lengths and capacities, and that except for very unusual cases aU demands for new scales be met by selecting one of these types.

2. That in so far as is practical the scales should be selected in accordance

with proper specifications. These specifications should be based on sound en- gineering principles in order to make them as permanent as possible.

3. That in the accepted types produced by any given manufacturer the details for that manufacturer should be fixed and not changed unless the change

is incorporated in aU subsequent scales produced by him. It was stated by a member of the Scale Manufacturers' Association that the paper anticipated practically all the points which were

in mind for discussion and that harmony of the ideas was indicated.

Therefore, the most important question remaining to be considered was that of the specifications for the State of Minnesota, which were

scheduled to go into effect December 1, 1918. After a discussion it was decided that the manufacturers would formulate in detail the

suggestions they would like to make in regard to the Minnesota

specifications.

Following the meeting this was made a subject for discussion by

correspondence between those concerned in the matter. However the

matter did not proceed very far before another factor had to be considered.

The Minnesota specifications were of interest to the railroads operating in the State of Minnesota, and on account of the policy of

the railroads of eliminating, in so far as possible, the unessential

they were concerned with any changes they might have to make in

their scales during the emergency. As a result Mr. E. M. Aishton,

regional director of the Northwest called a meeting at his office in

Chicago in October, 1918, for the purpose of considering the specifications of the State of Minnesota. There were present at the meeting representatives from the State of Minnesota, Bureau of Standards, and various railroads and railroad organizations. At this

meeting Mr. Aishton stated that he desired to ask as a war measure

that the State of Minnesota postpone the date at which their specifications went into effect. He stated that he did not wish to criticize the Minnesota specifications and did not want his present action so construed, but that he was asking that they be postponed in compliance with the need of aiding the railroads to devote all their

facilities to expediting the movement of troops and materials.

Judge Ira B. Mills, chairman of the Minnesota Eailroad and Warehouse Commission, who was present at the meeting, then stated that

the State of Minnesota was willing to comply with his request and

that the date at which these specifications would go into effect would

be postponed.

Mr. Aishton then stated that he realized that scales were in many

instances not what they should be and that he had no defense of

railroad track scales as they were in the past. He stated further

that the Government had an interest in the scales to a greater extent
110 BUREAU or STA^TDAEDS.

than had been the case and that in the future the Government would

have to be considered more of a factor in the scale situation than had

formerly been the case. He said that they would naturally look to the Bureau of Standards for a proper scale. Mr. Aishton emphasized the value of standardization and then

mentioned the difficulties which had formerly been experienced on

account of the nmnerous interests involved and the personal ideas

of the engineers of the railroads in an attempt to stanclardize freight

cars. This resulted in a failure to get together. Since the Government took charge of the matter, however, it had been possible to obtain a standardization, with the consequent benefits. He was of

the opinion that, having in mind that it was a United States proposition and that what was wanted was progress and economy, advantage should be taken of the presence of the various parties interested by proceeding with the subject of what should be incorporated

in specifications for scales which could be applied after the war.

It would, then, be his purpose to submit the findings to the Director

General for general adoption to secure proper weighing scales of

uniform type.

As a result a committee was formed on which there were representatives of the following organizations : The Minnesota Eailroad

and Warehouse Commission, the Scale Manufacturers' Association,

the Xational Scale Men's Association, and the Bureau of Standards.

Members of the American Railway Association and of the American

Railway Engineering Association were also on the committee and

unofficially represented these associations.

This committee has since become known as the Aishton Committee.

At the first meeting it was apparent that the members of the committee representing very different interests were much in the mood

for getting together. There ensued several meetings from which

resulted the most complete set of specifications thus far prepared,

upon which all the members of the committee were in very substantial accord and which were indorsed by all of them. It was intended

originally to have represented on this committee delegates from the

American Railway Enguieering Association and the American Railway Association, but this arrangement wais not completed in time.

However, the specifications have now been indorsed by the American

Railway Association and practically so by the American Railway

Engineering Association. The latter body, however, have certain

changes which they have suggested and which they may propose to the Aishton Committee for adoption, with the probability that they

will be accepted by that committee. There is, therefore, a possibility

of having, at an early date, rather complete specifications for railroad

track scales in which all interested are in accord.

This same subject was of interest, however, in connection with the

Interstate Commerce Commission docket Xo. 9009 on loss and damage claims for grain in bulk shipments. The matter of the weighing

of grain had been found to Ije one of the main issues. After an unsuccessful attempt to get the carriers and shippers together. Commissioner Clark, of the Interstate Commerce Commission, prepared

a letter which he sent to Mr. F. C. Maegly as representing the rail- roads, and ]Mr. H. L. Goeman, as representing the shippers. Since
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. Ill

this outlines the situation it will be read though it lengthens this

paper considerably

:

I am advised that tlie joint conference of the committees representing the

grain interests and the carriers held at Chicago on April 16 and 17, 1918, pur- suant to our report in " Claims for loss and damage of grain, No. 9009," ad- journed without reaching an agreement or arranging for future action upon the matter of grain claims.

It was slaown in this investigation that there is urgent need of improvement

in the facilities used and the practices followed in connection with the trans- portation of grain in order that losses in transit may be reduced; that more

accurate and complete records may be obtained ; that improper claims may be

eliminated ; and that prompt and fair settlement of just claims may be brought about. The carriers and shippers being directly interested and also fully advised as

to all phases of the situation, we suggested in our report that they should con- fer and agree upon what rules and practices would be just and reasonable. It was thought that the subject could thus be dealt with in a more satisfactory and

comprehensive way than if the commission should undertake to prescribe rules respecting only such matters as are within its jurisdiction.

The failure of the conferees to formulate rules or to provide for any further

joint action appears to have been largely due to insistence that as a primary

matter a rule should be agreed upon limiting legal rights and liabilities per- taining to the adjustment of claims on so-called clear-record cars. Without

criticising the attitude talien in that respect or underestimating the importance

of this matter under present conditions, I venture to suggest that rules in- tended to limit the legal rights of either party should not have been presented, because they would not be binding upon the carriers and shippers as a whole and are beyond the jurisdiction of the commission to prescribe.

It seems quite probable, however, that if fair rules should be adopted dealing

with the practical aspects of the situation, such as the installation, operation,

and maintenance of scales, the inspection and supervision of elevator equipment

and records, the condition, inspection, and cooperating of cars of origin, speci- fications for grain doors and the installation thereof, the weights and weighing

of grain at origin and destination, the inspection of cars and the recording of

losses or other defects noted in transit and at destination, allowances on ac- count of scale variations, natural shrinkage and waste and the filing and in- vestigation of claims, including the adoption of a standard form for the pres- entation of grain claims, and providing for an impartial audit or supervision of claim investigations and adjustments, the existng sources of controversy would

be largely diminished, and, therefore, relatively few claims would arise which

could not be satisfactorily adjusted without resort to litigation.

Before proceeding further in the matter I wish to suggest for the consideration of the respective committees the propriety and desirability of appointing a

small joint working committee to fox'i.nulate and submit a complete code of

rules to be considered and acted upon by a joint conference of the carriers and

grain interests and, if necessary, by the commission. It is believed that if the various matters in issue are considered in a spirit of fairness and any attempt

to abridge the substantial and well-established legal rights of either party is abandoned there should be little difficulty in harmonizing the difference or opinion that may develop.

As a result the shippers and carriers again undertook to find a

settlement of the question. Under the Ponierene law the railroads were required to accept bills of lading of the carriers on the shippers' weights when the grain had been weighed by adequate weighing facilities. It was soon apparent that what was termed adequate

weighing facilities would have to be defined by specifications. As a

result, there was formed a committee on specifications on scales for

weighing grain, consisting of the following members:

Mr. J. A. Schmitz, weighmaster's department, Chicago Board of

Trade, chairman; Mr. George Betzelberger, Illinois Grain Dealers'

Association; Mr. C. A. Briggs, Bureau of . Standards, Washington,

D. C. ; Mr. W. P. Buchan, Richardson Scale Co. ; Mr. C. A. Eedfield,
112 BUREAU OF STAIfDAEDS.

scale department of the Minnesota Railroad and Warehouse Commission. This committee was concerned with hopper scales, auto- matic scales, and railroad track scales over which grain was weighed.

In the deliberations of the Aishton Committee it had been decided

that railroad track scales used for weighing grain were not within the

province of its work, as such scales usually belonged to private or mdustrial concerns over which the railroads had no direct control.

Moreover, railroad track scales for weighing grain were not necessarily subject to the same requirements as the scales considered by

the Aishton Committee. The grain scale committee, however, desired to cooperate to the fullest extent possible with the Aishton

Committee, as it was appreciated that uniformity m the specifications

would be a gi'eat assistance in getting proper scales installed. As

a result the specifications were pi'epared in so far as possible in compliance with those of the Aishton Committee.

At the If.st meeting of this committee held in Washington during

March, the Aishton Com.mittee had completed its specifications,

and at the request of Mr. Goeman, who had been elected chairman

of the joint committee of shippers and carriers, the precise wording of the Aishton Committee was employed when the provisions were in substantial agreement. This was carried out to the fullest extent possible. It was necessary, however, to have certain provisions different on account of the special requirements for weighing

grain. These differences, however, are not inconsistent. There is, therefore, substantial agreement between the specifications of the

Aishton Committee and those of the grain-weighing committee.

We may say, therefore, that there is now in existence a set of

specifications for railroad track scales which have received the most

thorough consideration and which will probably represent the

standard for railroad track scales in this country for some time to come. The AcTixG CHAiRiiAN^. The next on the program is a paper entitled " The Metric System." by Mr. F. A. Halsey.

Mr. McGeadt. I would like to make a motion that some of the

papers be presented to the stenographer and printed with the report.

The Acting Chair3iax. I will say in response to this that these

gentlemen have been asked to appear on this program, and it would be a scant courtesy not to proceed. However, in so far as the

papers referred to are by members of the Bureau, this course will

be followed, if desired.

Mr. McGradt. With the reading of these papers we are consuming

so much time that really we who are doing the practical weights

and measures work are getting no results. We have nothing to bring back except the papers a year from now. I have not found

out a thing of any benefit to me in Pittsburgh.

THE METRIC SYSTEM. BY E. A. HALSEY, AMERICAN I5ISTITUTE

OE WEIGHTS AND MEASURES.

When, 15 or 18 years ago, Mr. Dale and I published the results of our investigations showing that the claim for the universal use of

the metric system, except in the United States and Great Britain,
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 113

was unfounded, that in most so-called metric countries it was nothing more than an official sj^stem used but little by the people, our state- ment of facts were received with shouts of derision.

We said then what we now reassert, that the metric claim had nothing behind it but initial assumption, followed by endless repetition,

where in it stands upon the same footing as the story of George

Washington and the cherry tree. Both are widely believed because

of endless repetition, but neither is founded upon fact and neither is true. These shouts of derision over our discoveries ha\e now ceased, and

I am here to point out to you not onlj' this fact, but also the remarkable extent to which our findings have been confirmed.

Most of you have, I think, received my report on the metric

system in Latin America, while for those who have not received it I have copies here for distribution, together with copies of a more

recent pamphlet, "The Metric System Condemned by Those Who

Know."

Prior to the publication of this report, Latin America like many

other countries, had been claimed to be " purely metric ;" "they had

forgotten their old units ;" " our units are meaningless to them ;" " we

nnist deal with them in language they understand," etc. This investigation shows that with a single exception (UruguajO

the metric system in Latin America is a joke. Because of laws

which are fairly grotesque in their severity, the metric system is in

common use in domestic trade and commerce in Uruguay, although

even there the laws are not entirely effective. In no country of

Latin America is the system universal; in most of them, except in

Government transactions, it is used but little; in 10 of them it can

scarcely be found in the practice of the people; and in five of them

the English units are used far more than the metric.

These are my findings, and in connection with them you should

remember that those countries adopted the metric system more than

half a century ago, most of them having gone into it like a flock of sheep between 1850 and 1860. Next, I wish to place before you some confirmations of these find- ings. Some years ago—that is, before the war— our Department

of Commerce sent Mr. W. Graham Clark as a special agent to Latin

America to investigate the conditions and trade opportunities for

the sale there of the products of our textile mills. Mr. Clark spent

several years in personal investigations upon the ground. He went

to Latin America in order to detennine what we should do to gain

the trade of those countries, and in not one of his reports is there so much as a word regarding the adoption of the metric system. Moreover, he names the system of measurements used in nine of the

countries which he visited, and in every case he confirms our find- ings.

Since my report was published, a book, " Getting Together with

Latin America," has appeared from the pen of Mr. A. Hyatt Verinll

and from the press of E. P. Dutton & Co. Mr. Verrill has lived for

many years in Latin American countries, and, upon his return to this

country, he prepared this book in order to place before our exporters

the things they should do in order to sell goods to Latin America,

and, like Mr. Clark, he does not even mention the adoption of the

155530—20 8
114 BUREAU OF STANDARDS.

metric system. Nearly half of his book is given up to an appendix

in which is given statistical and other detailed information regarding the various countries, which are arranged in alphabetical order.

For 18 countries he names the system of weights and measures used,

i\ nd he confirms my findings in every case except one. Unknown to me, until the results were placed in my hands, Mr.

Henry R. Towne, president of the Yale & Towne Manufacturing Co., sent a questionnaire to the branches and representatives of that com- pany in various parts of the world, and the answers to that questionnaire confirm our findings in everj'' instance.

In 1913, Mr. F. S. Holbrook, of the Bureau of iStandards, went to Porto Eico to assist in preparing for the enforcement of weights and

measures legislation passed shortly before that time. His report

which was published as part of the proceedings of a former session

of this conference absolutely confirms my findings for Porto Eico.

In the New York Herald for April 6 is given an interview with

Mr. William C. TVells, chief statistician of the Pan American Union,

from which the following are extracts: Everyone recognizes that there is a connection in the matter of measure be- tween our domestic manufacture and the export trade, more or less direct, but

it is much less direct than is ordinarily believed. Sometimes the measure

counts ; sometimes it does not. The problem, however, is different vhen you come to consider the extent to which English measures have penetrated Latin American countries. This ex- tent is much greater than the advocates of the metric measures in the United

States are willing to admit. Where American or English monopoly exists, English measures are received,

and it probably would not be wise to change.

This penetration * * * is particularly in evidence in Cuba and Mexico.

In Cuba it has extended to a remarkable degree. Even the Cuban statistical publications show sugar exports in pounds, not kilos. Quite the most remarkable of these confirmations of our findings

is found in Commerce Eeports for April 21 under the subhead " PreSared by the Latin American Division of the Bureau of Foreign and

omestic Commerce, With Assistance from the Bureau of Standards."

From this article I quote as follows

:

Uruguay.—This system was adopted in 1862, * * * b,it it did not come

into general use until made compulsory by law in 1894, providing that tines should be imposed for the use of other systems. It was found, however, that customers continued to call for articles under the old names. Aroentim.—While the metric system is legal, it is only compulsory in Govornroent depai-tments, and a number of old Spanish measures still survive.

Bolivia.—The old Spanish units, which vary greatly, are in general use out- side of Govei-nment and railway circles. BraHl.—The Almanach Commercial Brnsileiro states that the metric sys- tem was adopted in 1862 and made obligatory in 1874, ailding, howcwer, that, as many of the old measures are still used in the interior of the country,

tables of equivalents are given in the Almanach.

Chili.—]\Iaiiy of the country districts still cling to tlie old units. Pern.—The American connnorcial attache at I>inia reported that 101 Coniercio "speaks of the lame nieti-ic system of Peru." because many articles are pur- chased at wholesale by the metric system and retailed liy another system of weights and measures.

Venezuela.—In spite of the stringent laws, old podpic and country people

cling to the old units in domestic life, and this will (.nly be chang(>d by the growing up of a new generation.

When reading these extracts from Commerce Eeports, it should

not be forgotten that the seven countries referred to tlierein are all
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 115

from the list in which my " Eeport on the Weights and Measures of

Latin America" shows the system to haA^e made the greatest

progress. I am very glad to believe that the selections are acci- dental, but it is nevertheless proper for me to point out that to the

10 countries wherein I have shown the metric system to have made

substantially no progress among the people and to the 5 countries in

which I have shown the English units to be used far more than the

metric, no reference whatever is made.

During the past year I have attended two great foreign-trade con- ventions—those of the National Foreign Trade Council and of the

American Manufacturers' Export Association. At both of these

conventions so many papers were offered that it was necessary for

them to be held in parallel sessions. At one of them an afternoon

session was devoted to education for foreign trade, and in no one of

the papers read at that session or at any other session of either

convention was the adoption of the metric system for the benefit of

export trade so much as mentioned, and it is to be remembered that

the papers read at these conventions were prepared by those who

are in immediate contact with export trade.

Our findings are thus established and acknowledged. You can no more doubt them than you can doubt the multiplication table, while

against them you have nothing but assumptions endlessly repeated.

A graphic siunmary of our 20 years of investigation has been pre- pared by Mr. Dale in the accompanying map, which is the only authentic, comprehensive exhibit of the weights and measures situation

of the world as it exists to-day that has been prepared by anyone.

Whatever you have seen or heard that differs from that map is untrue. And now comes the World Trade Club of San Francisco with a pamphlet and a map, by which latter we are told that Greenland,

Patagonia, and the Sahara Desert are all " metric." The text of the

pamphlet also repeats the assertion that " all the civilized world has

adopted it except the United States of America and Britannia."

Among the specific statements of this pamphlet I find this:

The large French population of Canada has greatly increased the use of the metric system there. In reply to this I give you the following from Mr. E. O. Way,

chief inspector of the Canadian Weights and Measures Inspection

Service

:

The facts are that the use of the metric system of weights and measures in Canada is practically nil, and less in our Quebec Province than in any other. Ninety per cent of the San Francisco pamphlet is of a piece with

this. That organization has collected all the statements favorable

to the metric system they could find and reprinted them. They know

nothing about their truthfulness, but, whether true or false, they

all make good campaign material.

The question before us is. Why and how has the world gone so far

wrong in this matter? The man in the street has merely accepted

these endless repetitions and his opinion has no value. There is, however, one class of metric advocates from whom we expect something better—one class to whose opinions we attach some value
116 BUKEAU OF STANDARDS.

because we expect them to speak from knowledge. I mean, of course, the scientific men who have gone wrong equally with the man in the

street, and it is important to ask and to answer why they have done

this. The explanation is a simple one and, while it does them no

particular credit, it at least supplies them with a ladder on which

they can climb down, and I am glad to supply such a ladder, because

climb down they must.

The scientific man, like many others, has made the initial assumption that a change in weights and measures by a country m?t,j be

easily brought about. It seems to me quite clear that this is a

matter, not of belief, but of fact; and, while the facts show such

a change to be a matter of supreme difficulty, the scientific man has

made no investigation of such facts. He had his initial belief that the change is easy, and in his case

this belief was fortified by the fact that in his own work the change

is easy. I have said this many times and repeat it now. In the

affairs of modern life there are three leading applications of weights

and measures to industry, commerce, and science, which applications are named in the order of decreasing difficulty. In industry we have both the universal psychological difficulty of learning to think in metric units and the still greater physical difficulty of a change in manufacturing sizes. In commerce the physical difficulty,

while still present, is nevertheless much reduced, although the psychological difficult}^ remains in full force. In science the physical

difficulty nearly disappears, while the psychological difficulty is at its minimum.

Let us compare the task of learning to think in metric units as it appears to the laboratory scientist and the corner grocer. Should

this change come to pass, both parties must use the Irilogram and

learn to visualize values in it, or to think in kilograms as the expression is. For this the scientist naust acquire a clear conception of the value

of the kilogram, and the psychological task so far as the kilogram is concerned is then complete.

The grocer must also acquire this conception, but liis task is then , no more than begun. With the grocer, units of weight are com- pounded with price units. He buys and sells many things of which

the prices are given as so many cents per pound and, stored in the

back of his head, is a whole series of such price imits, both wholesale

and retail, for all the commodities that he sells by weight, this being an important part of his business equipment.

After the metric system is adopted, he must acquire a new sense of price values in cents per kilogi-am for all of these connnodities.

If he sells 100 articles by weight, he has 100 times as ]nuch of a task

before him as the scientist before he has learned to think in kilo- grams; indeed, I should say 200 times, for the grocer must have in

mind both Avholesale and retail prices. It is useless to say that he may divide the price per kilogram by 2.2 in order to reduce those prices to cents per pound, because so long as he has to do that he has not learned the metric system, for he still thinks in pounds.

After the grocer has acquired this new sense of price values,, he

nmst then teach his salesmen, buyer, bookkeeper, and others who are
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 117

concerned with prices, and after they have acquired this new sense of

price values, the grocer must deal with his customers. Some of these

customers are not very intelligent, while some are stupid, so stupid

that they are unable to understand why butter at $1.10 per kilogram is a better purchase than the same butter at 50 cents per pound. I confess that I am that stupid myself, and I know many others who pass

as men of average intelligence in the affairs of life who are just as stupid as I am. Other customers, again, are indifferent and can see no reason for all this pother for no particular purpose, while still others are hostile and object to recasting all their ideas of values not

only for groceries but for everything they buy.

Some of these hostile customers tell the grocer that when he names

prices in these strange units they can not tell whether he offers them

a bargain or a swindle, and they tell him very plainly that unless he can offer them goods in terms that they understand they will go to other grocers who will. Were I to compare the task of the scientist with the manufacturer, we would find an even greater difference than that between the scientist and the grocer, but it seems to me that the illustration I have

given is sufficient to show that the scientist has no right to speak for

the corner grocer.

It seems to me that I have also showed the reason why the scientist

believes this change to be easy, because in his field of work he has

found it so, and this is the first great lesson I have come here to teach.

The continued use of old units in so-called metric countries being

now established and admitted, it is necessary to refer to an old explanation which recently has been revived—namely, that this practice

is a survival of names, but not of things ; that in metric countries the

people apply the old names to metric units; for example, that in

Latin America when they say vara they mean meter and when they

say libra they mean half a kilogram.

It should be noted at the start that this explanation is always limited to units of the two systems which do not differ greatly in value.

We are never told to what metric units the Spanish names " pulgada " (inch) and "pie" (foot) apply.

The replies to the questionnaire which was distributed throughout

Latin America are sprinkled with such expressions as these : " Metric

system infrequently ; " " The two standards are used indiscriminately ; " " The meter is used very little ; " " The artisans of the country use in their calculation the Spanish vara as their standard ; "

" Our standard of weight is the quintal of 100 Spanish pounds ; "

" The people continue to use the old Spanish measures ; " "At retail vara, at wholesale yard, meter ; " " While the metric system is legal,

it is not enforced ; " " In domestic business only the Spanish system

it is not enforced ; " " In domestic business only the Spanish system

is still commonly used, but is prohibited in the documents ; " " The

old Brazilian system is still commonly used ; " " Cloths are sold in- discriminately by meters, varas, and yards; " " Occasionally the metric

ton ; " " The metric measurements are sometimes used."

Such expressions as the above, of which there are many more, can

not be thus explained.

Many of the replies give values of the Spanish in terms of metric

and English units, which show that the old names are not used for
118 BUREAU OF STANDARDS.

the new units. Of these a few of many examples follow (note that

the libra is not a half kilogram)

:

From Costa Rica : Vara, 0.836 meter ; libra, 460 grams ; cuartillo, 4.165 liters

;

botella, 0.67 liter; manzana, 6,988 square meters. From Argentina : Vara, 0.866 meter ; pie, 0.289 meter ; libra, 0.4594 kilogram

;

tonelada, 918.8 kilograms.

From Nicaragua : Vara, 33 inches ; libra, 16 ouzas ; fanega, 288 libras ; manzana, 10,000 square varas. From Ecuador: Vara, 84 centimeters; libra, 16 onzas; cuadra, 100 square

varas. From Guatemala : Vara, 2.78 feet ; manzana, 10,000 square varas ; cabaleria, 64 manzanas; cuadra, 625 square varas. From Mexico : Vara, 2.7 feet ; onza, 1.0148 ounces avoirdupois ; cuartillo, 1.7 quarts ; sitio, 1,755 hectares ; caballeria, 42 hectares. From Venezuela: Vara, 0.836 meter; pie, 0.279 meter; pulgada, 0.023 meter;

libra, 400 grams; arroba, 11.5 kilograms.

From Honduras : Vara, " about 33 inches ;" manzana, " 100 square English

yards."

From Brazil : Libra, 0.45905 kilogram ; arroba, 14.6896 kilograms ; oitava, 3.586 grams ; quartillo, 0.665 liter ; canada, 2.662 liters. From Peru: Vara, 83 centimeters; topo, 5,000 square veras, or 3,485 square meters ; quintal, 46 kilograms ; marco, 228 grams. From Chile: Quintal, 46 kilograms; arroba, 11J kilograms; corcada (cord

for firewood), 6 pies by 3 pies by 3 pies.

More might be given to the point of weariness, but the above are

sufficient. Not one of all of these hundreds of sheets contains a

single item to substantiate this explanation. No proof of it has ever been offered. It is clearly untenable and must be dismissed.

As it is now demonstrated and accepted that the " adoption " of

the metric system in Latin America has led to nothing but a mixed

system of units, I desire, next, to point out the consequences of this

mixture.

In Latin America, the butchers buy beef cattle on the hoof by

the kilogram and they sell the beef from those cattle at retail by the

libra. Similarly, the dry goods merchants buy their fabrics at wholesale by the meter or yard, in accordance with the country

of their origin, and sell them by the vara, while the customhouse

duties are assessed by the meter. This condition is very common in

Latin America, although the units used are more often inverted

from those named. The metric system has made much greater progress in retail than in wholesale markets, the result being that merchants everywhere buy their goods at wholesale by one system and

sell them at retail by another. You will observe from this how simple their calculations must be. If you lived in that part of the world and had occasion to erect a

building, your building lot would be measured by the vara; while

the mansonry work would be done by the meter, the carpenter work

by the pulgada, the painting by the square meter, the glazing by

the inch, and the piping by the meter for length and the inch for

diameter, and when your builder went to the lumberyard to buy his

lumber he would buy so many cubic meters of 1-inch boards. You

will recognize at once how simple his calculations must be—how

simple when he calculates the cubic meters of 1-inch boards re- quired by the floors, how simple when he calculates the cubic meters

of 10 by 12 inch timbers required for the frame, and when he determines the velocity of water in meters per second and the dis-
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 119

charge in liters through a 2-inch pipe his calculations will be so simple that he will make them with his eyes shut. I am telling you what that builder does because his country has

adopted the metric system, and I am telling you what we will do

should our country adopt the metric system.

As the scientist has found nothing so easy as to introduce a new

unit of measure, so the world has found nothing is so difficult as

to get rid of an old one. Does it not occur to you that the time has come to stop chasing

rainbows? Is it not clear that we must compare what we have

with what we will get ,not with what the metric party piously hope we will get?

Shall we learn from the experience of others, or shall we plunge

headlong into this bottomless morass? Shall we join the chase of

this will-'o-the-wisp which the nations are always chasing, but never

catching, and which leads nowhere but into a quagmire of confusion

and disorder?

In conclusion, I desire to express my appreciation of th,e courtesy

of Dr. Stratton in permitting me to address you. His action contrasts most favorably with that of Mr. Fred R. Drake, chairman of

the metric-system committee of the National Wholesale Grocers' Association, who has positively refused to permit these facts to be

placed before that association. You will recognize at once the means

by which the wholesale grocers have been led to indorse the adoption

of the metric system.

DISCUSSION OF ABOVE PAPER.

Mr. Weixs. Do I understand that in Uruguay the lumbermen cut

their lumber by the inch or foot ? Mr. Halset. The inch is my understanding. They sell it by the

meter. You buy so many cubic meters, or so many square meters. Mr. Wells. What does the lumberman use ? Mr. Halset. Lumber is cut by the inch. It is in my report. You

will find it in my report.

Mr. Wells. My only interest is that in Uruguay there is no lumber cut. Uruguay is not a lumber-producing country.

Mr. Halset. I am talking about lumber used. I do not know

whether they have sawmills there or not. The Acting Chairman. Members and guests of the convention, we have with us Secretary Eedfield, who has been kind enough to address us continuously ever siace he has been in office. I do not

think that Secretary Eedfield needs any introduction.

ADDRESS BY HON. WILLIAM C. KEDFIELD, SECRETARY OF

COMMERCE.

Mr. Fischer and gentlemen, I am sorry that a word of welcome

from me was delayed so long. I can only plead that I was absent

from the city on necessary public business, and I am fortunate in

being able to crowd into this hour with you between the necessities

of daily work, as I have to leave this afternoon for another brief

absence on public business.
120 BUREAU OF STANDARDS.

It is a pleasure to have you back again under peaceful circumstances. I remember that when you were last here the clouds of war were all about. We could not then foresee what was to happen

in the two years that followed, and now we have seen such a sight as

I suppose the nations of the world have never seen before. Yester- day a representative of a foreign government asked me if I supposed

there had ever been such a complete collapse of a great power as we

have witnessed in the last six months. I presume there has never been anything like it. We look back to the times of the old military

empires and thought instinctively reverts to the great imperial

power of Rome covering the world. Her decline and fall, however,

took several centuries to bring about, and even after she went her name was preserved.

It has been only a few short months since the German terror passed away, and I believe that we in this country now do not realize

yet what it means to many of our fellow men to have that German

terror gone. I suppose the Hollander, the Swede, the Norwegian,

and the Czechoslovak feel as if they had come out of darkness into

light, out of danger into safety, out of a condition in which threats were hanging over their heads all the time into a world where for the

first time they know security. Our papers are full of talk and countertalk, the superficial current gossip ; but I have no fear whatever,

gentlemen, that any of these shallow opinions asserting that there

will be no signature to the treaty of peace have any possible signifi- cance. I think that if we were permitted to see the condition into

which hideous selfishness has brought Germany, the condition of

starvation, not merely of food, but of all the ordinary supplies of

civilization, we would realize that the pressure of the blockade upon

them has been such that for the mere means of industrial existence,

for clothing, and shoes, and all the necessary things of life they must

needs come very speedily into peace with the world at large. My

own feeling is that they will have to bear the greatest suffering that can be imposed upon a high-spirited people when after peace is established they go out, now and then, into the great world with the

thought of resuming a place in it only to find what the conscience

of the world has personally and privately to say. I think that then,

and hardly until then, will this people which has striven to over- whelm the world, and has itself been overwhelmed, realize what the

common judgment of mankind is as to what they are and what

they do.

The vision of the national selfishness which has come to a national

tragedy brings us back naturally ta what the American outlook is to be in the world. We stand now at the parting of the ways for our country, as Germany not long ago stood at the parting of the

ways for hers. Our very wealth and prosperity create for us a very

serious problem. I said that in dictation not long ago, and my

stenographer interrupted me to ask how wealth and prosperity could

bring with it very anxious and difficult problems. Let me outline

my explanation. The world owes us about twelve billion dollars,

and in some way or other will pay it. The world is hungry to a degree which we have never realized. We are sending more food

abroad than we supposed we should ever be called upon to send, so much that our exports of all goods last month ran up to something more than seven hundred million dollars, and the balance in our favor
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 121

for last month of over four hundred million dollars represented an an- nual rate of five billion dollars, accumulating, observe, on top of the

twelve billion dollars of loans. If, in addition to that, we are to do our normal foreign business, how is the world to pay ? We are in the position, you see, of a gi'eat creditor who must needs continue selling to keep

his industries and his farms at work. We are growing more wheat

than we are using, and we must sell it ; producing more goods than

we can use—we must sell them ; and we must buy some things abroad

and must export to pay for them. But how is this great debt to us

to be paid ? The nations of the world are solvent in the sense that they have

back of them the resources from which to pay. A man would be

foolish that would suggest that the British Empire was not abundantly able in time to meet every obligation, or that France, with

her wonderful thrift, the most saving people in the world, with her

great African empire behind her, was not abundantly able after a while to pay, and that Italy in the same way would not be able to pay. All of these things we know, and yet debts can be paid in only

three ways. They can be paid only in cash or in credit, which is a deferred form of cash, in goods or in services. The foreign nations

have not the cash, they have not the goods, and if they had we do

not need them and they can not render the service they once ren- dered because we purpose running our own merchant marine and

have established our own insurance companies, which are two of the

greatest services they rendered us before the war. So, as there are three ways to pay vast obligations, and none of the three ways are

satisfactory, and none can be used in sufficient quantity, nor even

all three together, the actual problem of our prosperity becomes a very big one indeed. We are in the position, if I put it to you as a

private individual, of you owing me a great sum. You have land

and lumber and grain, a sufficient amount of money for yourself, and

willingness to work. Suppose I say to you, "I do not need your

work ; your grain and your lumber I do not require ; your land I do

not want ; and you have not sufficient cash." How are you going to pay me? It is obvious that in spite of these conditions, the obligation is on me to be paid, on you to develop your own resources so that they may become liquid as soon as possible in order to get the means of paying me. That is the world problem to-day.

We must be patient with the world and not expect our debtors to pay us too fast, and we must help them pay us and not growl because

they may put an embargo here and an embargo there. This action means only that they do not want to buy any more for the time

being, so that they can get their affairs settled and pay for what

they have already bought. There has been much unnecessary protest against embargoes, which merely mean, as I have said, that in not

buying for the present they may pay more readily for past purchases.

Besides, gentlemen, we have done something similar in the embargo

line. I suppose that the French wine industry has marked views on the

subject of the prohibition amendment to the United States Constitution. I am not objecting to the amendment, but I point out that

when Americans object to tlie French embargo they ought to remember that they put an embargo on one of the most important French

products without asking France any questions about it, and put it
122 BUBEAU OF STANDAKDS.

on permanently, whereas the French embargo on some of our goods

is a matter of a few months. Along with our own protests let us remember the Scotch whisky distiller and his views of the American embargo ; the English ale brewer and his views of the embargo.

I mention this to show that criticism can not be wholly on one side

and that when Great Britain declines temporarily to purchase cer- tain goods from us we must bear in mind that we have declined

permanently to purchase certain goods from her, and not get mad

and start to grumble.

There are two sides to every question of the kind. There is only one way of solution that I see except patience and time. I know of

only one way to solve tlie big problem that I have suggested to you

very simply—^this problem of perfectly solvent creditors owing us enormous sums which we try to increase by selling them more all the

time—and that is that we help them develop in order that we may get

back what they owe us- P^ifty years ago the United States did not build its railroads on its utilities out of its own funds, but it borrowed from Amsterdam, and

Berlin, and Vienna until when the war began, we owed them over

five billions of dollars for building up the United States. Certain

great railroads were built Avith English and Dutch capital. Great

corporations in this country issued bonds in pounds sterling and

marks, and that is what built us up. Our industries, railroads, and

utilities were constructed largely on the basis of foreign capital loaned

here for our benefit. That was good for us and for them, and we must

do the same thing now in other countries. It is a strange thing to us, wholly novel. We have not done this heretofore, but we have to be- come lenders ourselves. There is a threefold business advantage in

loaning our money to foreign lands. Some think we don't want to, some of us may think it is risky ; but it has to be done, for they owe us

$12,000,000,000, and we have to get paid for it some way. We can help

them pay us by developing their wealth. That means that if a city

in France needs to develop itself, it will offer its securities for sale in the United States. If a public utility in Italy needs to develop

itself, it will offer its securities for sale here. If Madagascar wants to build a railroad, she will come to the United States to hold the bonds.

If Denmark or Holland wish to build highways, gas works, or rail- road lines, they will come here for the money to do it. That works

three ways to our profit. In the first place, we get the interest on the

investment, if we do not invest wrongly. In the second place, we get

the business that naturally comes from the companies that are thus

operated with American cash. In the third place, this increases their

wealth, and thus enables them to pay us more readily the money they owe us. In these three ways foreign investments are profitable and I am discussing the subject this morning because it is one of the coming

things in this country. We will have to get accustomed to it just as

fast as we can, because Bill Jones and the other fellow in Great

Britain, France, Serbia, Roumania, Czechoslovakia, and Jugoslavia owe us a great deal of money, and we want to get it back without

doing them harm. We will have to play the game with them arm in arm and hand in hand in a way that we never played before. There

are just two ways to get along with a debtor: One is to help him,

the other is to fight him. You can not ignore him; that you can

not do. For that reason, if there were no other reason, you and I
TWELFTH ANNUAL CONFEKENCE ON WEIGHTS AND MEASURES. 123

are tied to the world because we hold their promissory notes bearing

interest due us. We have their notes to us, and I am sure that no

one of you puts such keen interest in anyone as in the fellow who

owes you money. That binds you and him together. The men

who suggest that we Americans, now that the war is over, can draw

in our horns, stay inside our own 3-mile limit, and go back into our former isolation, forget the $12,000,000,000 that must needs be paid.

That is the whole story in a nutshell. That is the background for

the new relations of the United States. We are in the family of

the world, and we can not get out ; we are in too deep in investments

everywhere. Our wealth is invested all over the world. You all, no doubt, have Liberty bonds and Victory bonds; there is hardly a man here that does not hold them ; and against them in the United

States Treasury are some six or seven billions of dollars of securities

of lands whose names we could not even pronounce two years ago. We are bound together in this great world, and nowadays we see New York concerned with the prosperity of Buenos Aires and Lima,

the interest of Chicago affected by Caracas and Omsk ; others of our

cormnercial center may look to Pekin and Shanghai and Tokyo for

carrying on their operations. We will never go back. You and I have been, in a national sense, boys in school and the end of the old

school term has come, and we have graduated out into life. We are no longer playing a local, provincial, narrow game. The game is as broad as humanity and as large as the planet, and we can not help

it. We may be just as reluctant as we choose, but the only way in

which we could get back would be in some inconceivable way to get

the $12,000,000,000 paid. Besides, we know now that when little Belgium stood up to the mighty power of Germany she was fighting our fight. We are certain of that now. We are not admirers of

kings, but there is not a man of you who would not show honor to King Albert and to his queen. We know perfectly well that when

Serbia fought almost to absolute extinction, losing everything, she was fighting our battle. We know that the small nations of this

world are tied to us because we are not quitters. We brought the new

Poland into life. We brought the new Czechoslovakia into life, and

evei'y Bohemian and every Moravian knows that America was his

foster mother in his new freedom. We brought back Serbia into

life, and every Croat and every Slovene and Jugoslav knows that

America was his rescurer, restoring him to freedom. Every Dane

knows that it is the power of America and her associates that is re- storing to the Danish people Schleswig, stolen from them in 1865.

They all know these things, and because they are true and because

out of our freedom and wealth and by the sacrifice of our boys and of our means and our food we did bring these nations into life we are not ging to quit the game and say, " There you are ; now look out for

3' ourselves."

Gentlemen, in thinking of j'ou and the work you do, I have often

reflected that you are the followers of perhaps the oldest code in the

world. There were many ancient codes, and we find them in Babylonia marked on slabs and plates of brick, but those codes are dead.

The codes of ancient Egypt and the laws of Rome have all passed

out of the memory of man, and we hardly know what they are. But

the code under which you work, written actually 2,000 years ago in a
124 BUREAU OF STANDAEDS.

book which Jew and Gentile honor and which Christian and Mohammedan alike respect, that old code still survives, and in it are these

words, that the false weight is an abomination to the Lord.

That is your aiithority, the charter that was written long before

Christ walked in the land of Judea. It was then, and is yet, an

abomination to the Lord. I do not know any organization or group

of men that has a more authoritative charter than that. That makes

it pretty well worth while to have your job to do. The moral judgments of the world are formed pretty slowly, but you represent

probably the very oldest of them all, and that, surely, is a fine thing

to be connected with.

This war has brought us one thing very valuable, a certain sense of social union that we never had before. My boyhood friend—^he was so much younger than I was that I thought of him as a boy

Tom Whittlesey, up in my old home town in Massachusetts, was a major of the Lost Battalion. Who made up the battalion? The

boys from the East Side of NeAv York. Some of us would have been

just foolish enough 20 years ago to laugh at some of the names of the

boys, because they seemed queer, but the 450 men that Maj. Tom

Whittlesey commanded in the Lost Battalion were almost all taken

by the draft from the East Side of New York, and as you look at the names representing 10 or 12 different nationalities, Americans,

every man of them, but with different traditions back of them, you

get a sense of the unity of America that you get hardly anywhere

else. These men were unanimously perfectly willing to die, and

they did not back an inch, but stayed where they were. I could

give a thousand other instances—that is only one—as proofs of the

unity we have not had before. It is taking some very surprising

forms.

I met on the train two or three weeks ago one of the most conservative men in the country', as I supposed. He was the head of one of

the big manufacturing companies in New England. He was the

chairman of the executive committee of another, and a member of

the board of directors of a third, steeped up to the ears in the industrial traditions of the capitalist type, and about 65 years of age. All this, I should think, would justify us if we were hasty in classifying him as a mossback. Now, this man said to me in the train that

he thought at 65 years of age he had got to the point where, having

attended to his pei-sonal convenience the most of his life, he ought

to do something for his country ; so he accepted nomination and elec- tion to the Massachusetts State Senate. That man with that background introduced a bill into the State senate which is now the law

of that conservative State of Massachusetts, whereby any manufacturing corporation of that State is authorized to have the workmen in

its employ elect one or more of their own nmnber to be a member of

the board of directors of that corporation, with all the powers of a stockholding director. I want you to see that in its proper setting.

That man, from such environment voluntarily, unasked, thought it his duty to do that thing. Such is the new sense of social union, and

when Bill Smith down in the forge or shop can throw off his jumper,

wash his hands, and put on a collar, and sit on the board of directors,

why you have hit Bolshevism in this country a terrible blow.

There is one of the signs of a new social union, a new relation

with men. At this time wages are high in America, higher than they
TWELFTH ANNUAL OONFERENCE ON WEIGHTS AND MEASURES. 125

have been for many long years, but very few of you recall any at- tempt on the part of any responsible industry to cut down wagas in

the last six months; do you? I have been looking for some such

thing, to see if I could find it. I knew one man who said he was

going to, but changed his mind and decided that he would not; that

it was not square. I do not recall a single case of a large industry

that has made any definite attempts to cut wages in the last six

months. There may be such ; I am not aware of it, and I know of 20

cases that have come to my personal notice where the leaders of

great industries employing thousands of meji said to me that they

thought it their main duty to keep those wages up to the last limit

of their power.

There is a new consciousness in this country. You are to some

degree interpreters of that feeling, because you touch intimately,

whether you realize it or not, the lives of the very poor, who are not able to protect themselves. There are thousands of humble

housewives spending on very high-priced necessities the hardearned wages of their husbands and sons. Their battle to make ends

meet depends upon the fair weight and the just balance, and in that

sense you have behind 5'ou both human and divine authority. You

stand in a i-eal relationship as the protectors of the poor. I saw a

fellow the other day selling a beefsteak for 50 cents a pound, which was all right if anybodj' wanted to pay that price, but I didn't like

the amount of paper that was sold at that price. So I alwaj^s think

of you coming into this very scientific atmosphere to do a thoroughly

human job; none the less human that lots of people may not Imow

about it or some of them may kick about it. You do, practically,

stand between the crook—perhaps we should be less severe on the

fellow whose standards are low^—and those who can ill afford to have

those standards imposed upon. I think it is a fine job. I like to come here and tell you so, because people like to be appreciated, and

I heartily and thoroughly ai)preciate the work you gentlemen do,

which is a manifestation of the moral force of the country and a contribution to social well-being.

WEIGHTS AND MEASURES OF LATIN AMERICAN COUNTRIES, BY

W. C. WELLS, PAN AMERICAN UNION.

(Jentleuien of the convention, I do not want the idea to be enter- tained that I am here to answer Mr. Halsey. I never could answer Mr. Halsey, and I never intend to attempt it. I do not think anyone

can. A representative here of the American Metric Association, Mr.

Richards, probably could come nearer than I could. My interest is not the same as that of Mr. Halsey. I am not a propagandist of the

metric system or of the old English system. I have looked at this

thing entirely from the conmiercial standpoint. I have observed

connnercial methods in most parts of the world, and particularly

Latin American countries, in which I have spent a number of years, and I know the language fairly well, and the customs. I have seen

the effect of measures in conunerce, and that effect is in some cases very great ; in others it is not very important.

My conclusions from my observations do not agree at all with what

Mr. Halsey says his conclusions have been, but )ny opportunities have

been better than Mr. Halsey's. Mr. Halsey has"^ never, I think, vis-
126 BUREAU OF STANDARDS.

ited any South American country. He does not speak the Spanish or Portuguese language. He has not derived his information from

people who can speak for those countries.

I want simply to say we are looking at the entire thing from entirely different standpoints. The interest of measure in commerce

is not the same as the interest of measure in the industrial world.

The two arc the same in one sense, but not the same in another.

Measure is of the same vital interest to commerce that it is to in- dustry, but not in the same direction. Take, for instance, the manufacturer of a lock. There is bound to be used in the manufacture of

a lock a measure of length. You can not possibly escape that, but in

the commerce of locks there is but little measure involved. A man

who uses a lock does not care what the interior dimensions of that

lock are nor how nmch the manufacturer of that lock made use of

measurement in manufacturing it. It is from that commercial standpoint, from what it means to the man who buys the lock, that I want

to speak.

In the Latin American countries the old measures—I will say many

things that directly contradict what Mr. Halsey has affirmed—the

old measures no longer exist. They do not exist at all in anything

that is imported. There is more or less of an existence in certain land measures and in certain measures of agricultural commodities in that

the names of the old measures are used but the standards are of the

metric system. In other words, that state of affairs is very simple to arrive at. because if 30U take away from a man the measuring instrument he loses that measure. The measuring instruments of the old

Spanish and Portuguese systems are no longer sold in the Latin

American countries ; they are no longer procurable. The very few in

existence mostly have been worn out, and they are not used at all. It is a very easy thing to make a substitute as anyone may find out

for himself if he has been accustomed to using a certain measure for

a certain purpose. Take, for instance, a cook who has been accus- tomed to use a pint measure. Substitute for that pint measure a

half-liter measure some night when the cook does not know about it

;

she merely goes on using it as before. If there is no exterior marking it looks exactly the same ; the cook will call it a pint, but it will

be a half liter. In the Spanish American countries you find the word libra used,

which is an equivalent for our word pound. To one traveling

through Latin America and hearing the word libra used he would

naturally conclude that that meant the Spanish pound, or the English

pound, or some other pound. It does not mean that. It is the

standardized metric weight of 500 grams. Sometimes it is used officially in that sense; for instance, in the official reports of Honduras the word libra appears everywhere, but you wnll find it noted

at the beginning of the table that the lihra is 500 grams. Now, in one industr}^, and perhaps also in one or two supporting industries

in Cuba, that word libra has an English sense. In the manufacture

of sugar in the sugar centrales of Cuba, they use our American

pound. The reason for this is that practically all of the sugar of

Cuba, except that which during the war was diverted to England,

comes to the United States. Much more than half of the capital in- vested in sugar manufactures in Cuba is American capital. Three-
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 127

fourths of the managers and superior employees of Cuban centrales are Americans. You can account readily, therefore, for the American pound having penetrated into Cuba.

You will find here and there spots of Mexico where the English

weights have penetrated. Very seldom will yon find any English measures of length. You will find Mormon colonies in Mexico

where they have carried the old English weights and measures with

them and use them to measure with, but outside of Cuba and Mexico,

and Panama, of course, you will not find any measuring devices in

the English system anywhere throughout the Latin countries. You

will find none of the old Spanish or Portuguese measuring devices

;

in other words, there is no possibility of using them, because they

have not the devices except as I will explain hereinafter. There are no such things as bushels at all. There is, however, a standardized measure nsed in the retail shop, sometimes called a " bushel." There

is no measure such as a vara unless it be an old one. There is none from the other countries unless one gets it from England or America.

But that is immaterial from the commercial standpoint, because if the old measures were used they would be foreign to us and we could

not conform to them in our industry. So, after all, the question of

old measures is not of vital importance. The question of English measure does touch us, and it is particularly to that I want to direct

attention.

There are certain lines of commerce in the Latin American countries, quite a number of them, where the monopoly in supply has

been English or, more often, American, or sometimes Australian.

You can not get these goods from any other country. In those cases the English and American manufacturers have disregarded the wants

and customs of Latin America; they sent them what they wanted to send them ; one had to use a left-handed saw although he is a righthandod man. That is true of lumber. All of the lumber that is imported into Latin American countries is from America or Australia.

Furthermore, these imports represent perhaps 90 per cent of all what we would properly call lumber, although wood is cut in the country

occasionally to make a peasant's hut. Wherever in a city lumber,

properly so called, is used that is a foreign production in at least 80

per cent of the cases in all of the Latin American countries. In some

it is entirely so. For instance, in Uruguay Mr. Halsey will probably find the fact that Uruguay does not cut lumber; has not got it. Argentina has trees, but does not cut them. Brazil has enormous

forests which could be manufactured into timber, but it is cheaper

to lay down American lumber at Rio de Janeiro, Pernambuco, or anywhere else than to get the lumber 20 miles awa.y. This is particularly true in Para, surrounded by forests. American timber is sold there. On the west coast of South America Chile is the only

country that manufactures ^ lumber. Notwithstanding, Chile does

not maiuifacture, at the outside, more than 33 per cent of the lumber

used in Santiago or Valparaiso, and even in the south the center of

the lumber industry of Chile, you will find Oregon pine and Australian gum sold. The lumber which goes into the Latin American countries is cut by the board-foot measure. It is bought by the boardfoot measure, but is not used by the board-foot measure. The man

who builds a house uses a meter instrument to measure it. He has no foot rule, and would not know how to use it. He uses the meter
128 BUREAU OF STANDAEDS.

rule entirely. That is the custom everywhere throughout the Latin

American countries. That illustrates as well as anything else the

method by which the English measure has penetrated into the Latin

American countries. It has penetrated in those countries where a monopoly existed in the United States or Great Britain, or in some

of the English possessions where they use the old English measures. Take the case of coal oil. American oil controls in Latin America

absolutely, except recently there has been a little Mexican oil, and

for a number of j^ears Mexican crude oil, and that is, as we all know, an American or English industry in Mexico. The American oil has

gone into Latin America in 5-gallon cans. The retail buj^er buys

the 5-gallon can and pours it into a liter measure and sells it to his customers. There are no quart or gallon measures used. He draws

as many liters as there are in the 5-gallon can. The measure has no eifect upon the oil. The man who buys oil knows nothing about

the gallon, and yet all the oil that goes to South America goes in

gallon measures. One would think here that English measure was

the basis of the Latin American oil trade.

So it runs through all the industries of that kind. Take jflour, which they get onl}' from the L^nited States, an absolute monopoly

except so far as Argentina and Brazil produce it; in the northern

States there is an importation from Argentina. In Brazil in the

north, and in Central America and Mexico they get their flour from

the United States. There is very little manufactured in Mexico.

That flour is all in the customary half-barrel sack or one-fourth

barrel sack. The man that sells that flour by retail sells it by the kilo. That is the rule everywhere. So it runs. Now there is no measure

impressed in flour any more than there is a measure impressed in

the thing itself, in the case of oil. But there are measures impressed

to a slight degree, but not entirelj', in certain other products in which we have a partial monopoly in Latin American countries. Take the

question of agricultural machinery, for instance. That is a case in

which the measure is vitally important to the American manufacturer.

It is a matter of vital importance to the manufacture of a mowing

machine or any other agricultural implement that it shall be on a single standard, but measure is of but little importance to the user; whether the cutting bar of a mowing machine be exactly 5 feet or 150

centimeters is not a matter of much consequence. The man who buys

it does not ordinarily care provided you stamp that thing with a customary measure, the measure that he knows. The man in Latin

America does not want to be told that a collar is a 16-inch collar. He wants it stamped 38 cm. ; but it does not mean anything in the

manufacture. It is a mere conversion of terms. That brings us to a very important element that has led to a good

deal of misapprehension to people who have not examined anything more than the surface of the matter. Xou hear a great deal of English measure being used in Gei'many, for instance, in manufacture,

and in Holland, and in Belgium. That is true. It is also true that

the metric measure is used in the parallel case in England. Wherever

England has shipped goods to Germany those goods have been manufactured by a metric standard. A large proportion of English textiles are manufactured on centimeter widths and in meter lengths

for export to metric countries. Germany manufactures goods in yard
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 129

lengths to be sent to the United States and Canada and England.

That is a mere matter of detail. It does not mean that Germany has

adopted the English standard because they manufacture for the

English market, or that England has adopted the metric system

because they manufacture for the French or German market. In

South America, in all the lines of competing goods, the experienced

manufacturer in England has manufactured according to the metric

system because the English system was a handicap. For instance, in

nearly all of the English textiles—in all, or so near all, the remainder

amounts to nothing—where there is competition with French or German textiles, English goods come to South or Latin America in

meter lengths and centimeter widths. In some few cases where the

Englishman has more or less of a monolopy in the textiles, and that

is true of some kinds of wool cloth, as in waterproof cloths, that

kind of a cloth is generally in the inch widths, but they are sold over

the counter by the meter. That is the custom everywhere in the

Latin American countries.

Whether the user will demand that an article be in the system in customary use comes to this : It is a question of how much he is handicapped by the unfamiliar thing. Now, what is the handicap to a man when he buys a yard of cloth when he wanted a meter or some

metric length. The handicap to a dressmaker or to a tailor is that

his patterns are on the metric dimensions, and, consequently, they fit in to advantage on the cloth of the metric dimensions. Since they

do not fit on yard measure, there is more wastage in using material

measured in yards, just as there would be more wastage here if we

had metric patterns to cut to for yard lengths and widths. That

is part of the handicap. Another part of the handicap is that the

dressmaker or tailor tries to fit them in and that takes time. He is not accustomed to know, as he would know in metric lengths, which

patterns lie next each other in order to get the best advantage out

of the cloth. He has to learn over again. It takes 10 times as long

to lay his patterns out on the cloth to get the advantage out of it if he is using the unfamiliar units. Now, we come back to whether

there are not some other lines of commerce where the handicap is not

so great.

First, let me say this : The handicap to my mind is just the margin

between an unsuccessful and a sucessful business. It may be only

2 or 3 per cent, but it may be enough to absorb the advantage that one has over the other fellow. There are certain lines of industry

in the Latin American countries in which the measure counts vitally

to the man who uses it. If you take the statistics of Latin American countries—and I am more familiar with them than any man

in the world, becaiise I am the only man who compiles them in their

entirety—you will find it remarkable that the Latin American countries do not import from England or the United States any goods, or

scarcely any goods, in which the measure is vital to the user. This

is a demonstration bej'ond all question of the fact that therein we

have fallen down.

In 1913, prior to the outbreak of the war. the United States ex- ported to Latin America more goods than any other country in

the world. That year for the first time we passed England, 60 per

cent greater than England. Notwithstanding that enormous hold

155530—20 9
130 BUEBAU OF STANDAKDS.

we had on the Latin American trade in those countries, nevertheless,

where the measure was vital to the user—^in other words, where the

things that were bought were to function in relation to something else and would not function if the measure were not exact—they bought none of those goods from the United States. Take the case of one of the firms that Mr. Halsey reports upon.

They answered his questionnaire, and he said they did not see any

necessity for adopting the metric system in shipments to Latin

American countries, as they had sold goods there successfully for a good many years. The thing sold was machetes. It does not matter whether the machete is 35 centimeters or 14 inches long. It is like an axe. It is not material whether the cutting edge varies one- eighth or one-half inch. But it is material if the man wants a chisel

to cut an exact mortise, and this firm sells none of that kind of chisels. It is a matter of considerable significance if a plumber wants plumbing-repair parts, unions and joints and pipings, that measure must be

exact, and it is remarkable that all of these goods were French or German, and yet France and Germany did not lead in that industry.

You might think that could be accounted for by what I first said,

that this was more or less a monopoly, but it is not. In the case of all of the tools of precision that are used in the Latin

American countries on woodwork, where the cutter head must be of

exact width, the United States and England furnish none of them.

As I said once to Mr. Halsey, ask your correspondents why it is that

they can sell so much of one kind of their tools and so little of an- other and they will probably answer that Latin America does not use

the latter ; but they do. I can show you the statistics, but they get

them from Germany. They comprise those things where measure

actually counts to the user. The degree in which the measure counts

to the user may go anywhere from zero up to 100 per cent. It is 100

per cent in the case of the man who wants to make a pipe connection.

It is practically nothing in the case of the man who buys a watch.

It is only to the watch repairman that the measure counts. There is no handicap on locks sold in South America, except on the exterior

dimension, and it is not great there. The interior dimension of the

lock or watch is of no consequence to the user. The result is we

send American watches to Latin America, and they are sold along

with the Swiss watch. I believe some of our watches are manufactured on the metric scale now, but that is of significance only to the

repair man.

In all of the countries you will find these facts. That brings

me back to the point which should be, I think, considered by every- one as more or less basic. It is this : The Latin American countries

have no absolute standards of their own. Mr. Halsey showed on

his map of the world here the countries in the world that have

standards. They are Great Britain, Germany, France, and the

United States. Outside of these the other countries have standards more or less imposed upon them. The standards, and that applies

almost entirely to the standards having reference to the measure

of length, are created in manufacturing. The manufacturing in- dustry of the world is centered in the United States, England,

France, and Germany. The rest scarcely count. Those countries

have their own standards. You can not ship to France goods on
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 131

the inch and foot and yard measurement because France will not

accept them. You can not create a monopoly. The individual standard

is there. It resists absolutely the intrusion of foreign goods. You

can not send to Germany goods on the English standard, for they

will not take them. But you can send them to Turkey, to Russia,

and to Latin Aanerican countries because they have no standards of

their own. The way that works is this: What a man sends into a covmtry is forced upon the people there. He sends goods because

he makes a profit. If he finds there is too great an impediment, he

retires from the field or overcomes the impediment. If he sends his

goods to Brazil measured in the yard measurement and finds German goods in the metric are outselling them, he will adopt the

meter if he can. If Brazil itself was a manufacturer of machinery,

for example, it would supply its own market to a large extent, and

the foreign countries would have to conform to their measurement,

but, since it is not a manufacturing country, it has no standard to which the foreigner is forced to conform. That runs through all the world—China and everywhere else. Wherever you find the bulk

of the trade in the hands of England in a nonmanufacturing country you will find the English measure has more or less penetrated.

I will speak in a few minutes of just how far it has penetrated.

Where you will find France or Germany has control of the goods

imported 3'ou will find the metric measure has penetrated there. Wherever the American goods have penetrated you will find that

the American measure has penetrated to a certain extent. You will find, if you look in one direction, a very considerable

iimount of apparent penetration of American measure in Latin

American countries. If you look in another direction, you will see none of it. It depends upon v.hich way you are looking.

You will see that we are shipping flour, lumber, textile goods,

and machinery to Latin America where formerly we did not. In

1913 such exports amounted to about $326,000,000 worth. Ninetynine per cent of this, I suppose, is manufactured according to the

English and American measures, and not more than 5 or 10 per cent of it was denoted in metric measures by conversion from the English.

That looks as though the English measure had penetrated a great deal into Latin American countries. It is the case of coal

oil and the case of lumber ; immediately the man gets hold of them,

as soon as they pass into the wholesaler's hands, or at the very

customhouse, he converts them into the metric scale if he can. That

runs through the industry everywhere, and if you will start at the

other side, as I have started, with the people themselves, with what

they do in the shop, you will find there is nothing but the metric

scale. Take this argument, and let us see how it works out. Suppose you

read in a Brazilian journal, or some Brazilian makes the assertion,

that the coffee industry of the United States is on the metric system of

v/eights. You would laugh at that as ridiculous, and yet every pound

of coffee that comes into the United States from Latin American

countries, and that is 98 per cent of it all—^three-fourths from

Brazil alone—every pound of it, every bag of it, comes here in metric

measurement, in 6d-kilo bags. Thousands of wholesale dealers do not

know it is in kilo bags ; they think of 132-pound bags, and think that
132 BUREAU OF STANDARDS.

English measui'e is being used. But they are measuring from 60

kilos. The coffee industry of the United States is not on the metric

basis at all. The customhouse weighs it by pounds, the wholesaler

buys it by pounds, the retailer sells it by pounds, and you

drink it in a pint cup, and you know how many pints a pound will

make. That is exactly what happens from this end. That is ex- actly the kind of evidence that people opposing the metric system

are producing. They say that lumber, machines, and everything

else are on the English scale, yet it is just exactly the converse. All the cocoa and chocolate we buy, everything we buy in Latin

America, is measured in the metric system and we bu}^ and pay for

it in the metric system. We sell it here on our own scale. Just one or two little references to things that may appear, per- haps, misleading. Take the cattle industry of Latin American covintries. Cattle are not bought by the kilo or pound there by the

packers. You buy cattle there by the head, like horses. It is probable

that in some few localities, in which American influence has had its effect, they occasionally weigh cattle. In Mexico cattle are sold by

the head. The cattle are cut up and manufactured in all the refrigericos, the slaughtering establishments of Argentina, and about fourfifths are in English and American hands, all on the kilo basis. There is no other way to measure it. It comes in at the door by the

head, 60 to 200 pesos per head. It is cut up and sold by the kilo, even to England. All of the frozen meats from the Platte region

go to England marked by the kilo ; manufactured by England in

Argentina and sold to the English dealer, London market, by the

kilo. The dealer in London sells it by the pound.

Now, just one last word in closing in reference to the inexactness

of the kind of information which is produced by people here who

are opposed to the metric system. I am not an advocate of it, but I want to see the truth told. Take, for instance, the statement you

heard that in tlie silk mills of France the dernier was used as a unit

of measurement. The dernier never was the unit of measure of length

in any silk factory in the world from the beginning of time to the

present day. It never was and never will be. The dernier is nothing

hwt the pemij'weiglit ; that is the equivalent, so far as a French unit can be changed to English. The dernier is the pennyweight. They

all go back to Venice, and perhaps to Byzantine, if you go far enough.

The ancient measures were very valuable things, diamonds at one

time, gold and silver at all times. It was the measure of silk when

silk was equal by weight to the value of gold. It was sold as against

gold on the Venetian market, by putting gold on one side of the

scales and on the other side, silk. The buying and selling of silk by

pennyweights passed out of use hundreds of years ago. No silk was

ever manufactured on any machine ever built that took account of

the dernier in the weights. It could not be. It became a specialized

standard, as you gentlemen will recognize. It became a conventional

sign, the dernier, or pennyweight, for a certain thickness of silk, a certain quality of silk. In the silk mills of New Jersey to-day, they

speak of silk as of a certain pennyweight; it is a quality of thickness.

So far as the (mne is concerned, in the old days that was the measure by which the retailer bought cloths in England, France, Belgium, Flanders, and practically all of Europe. It was about a yard
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 133

and a fourth in length. Perhaps some of yon older men saw in the

old textbooks the ell. That was another old measure for cloth, generally something around 45 inches in length.

The French in 1792 adopted in a measure the metric system. It did not come very qiuckly. In 1812 they standardized the metric

system in the same way that Chile and other countries did; that is, they varied the old measures to make them conform to the new. They

standardized the aune at 120 centimeters. The aunc to-day is used in the silk factories of France to this extent and no further.

There is no measuring instrument, no machine, in France that measui'es by the aune. The ratio is 6 meters to 5 aimes. It is used in

paying pieceworkers. It is nothing more than that. All the French

silk factories of Lyons purchase and sell everything else by the meter

but since the workmen like to use the old term and get paid in that

way, they use this 6 meters and call it 5 mines.

The Acting Chairman. Before going further, I would like to know if it is desired to have any discussion on this paper at all. Those in favor of continuing discussion will signify it by saying

"Aye ;" those contrary minded " No."

(The members expressed a desire to dispense with discussion.)

DISCUSSION IN REGARD TO PROGRAM.

Mr. Fine. I move you, sir, that the address delivered by the Hon.

William C. Redfield be printed, so that it will be possible for each

delegate to take it home with him. I think it was one of the best

addresses made to show the sealer where he stands in his community.

If it is not possible, Mr. Chairman, to have it ready for the sealers to take with them, I would like to have a copy sent as soon as possible. Mr. Goodwin. It is with great pleasure that I second that motion.

I believe that each sealer representing the different States of the

Union should have a copy to present to the governor, because I believe it is in the interests of humanity and honest weights and measures. Dr. Reichmann. May I amend that to send to guests also?

Mr. Faerell. May I ask if that address of Secretary Redfield will

be printed in the report in the minutes of the conference?

The Acting Chairman. It certainly will. I may state that we will get it out for you without any resolution.

Mr. Stewart. I have a motion to make previous to which I wunt

to make this statement. It is not niy intention nor the intention of

those who have talked with me on this particular question to treat anyone with discourtesy, but we have some things in our system that we wish to get out. Therefore, I make the motion that the reading of all papers be dis- pensed with until certain questions that are in the minds of the dele- gates be considered by this convention.

Mr. Tucker. I second the motion.

Mr. Fine. I want to oppose that motion, Mr. Chairman. I think an interesting paper on the program is by Dr. Alsberg. I would like

to hear it. The Acting Chairman. Dr. Alsberg will not read his paper.

This motion is to have all papers submitted without reading.
134 BUREAU OF STANDARDS.

Mr. Stewart. No, sir; the object of this motion is that all papers

be dispensed with until the delegates get through with certain raattei's that they want to hear discussed, such as the questions of marking the weight on packaged meats, oil pumps, and a number of

others that come up every day in the field. We want time to consider them.

The Acting Chairman. I might state that that is equiA alent to dispensing Avith the program, whicli is airanged. Dr. Alsberg is ex- pected to be here at 1 o'clock. Shall I tell him that you do not want

to hear him ? Mr. MiKESELL. With reference to No. 29 on the program, the first thing in the afternoon, inasmuch as Dr. Alsberg has been invited, I know every member of this conference is interested in hearing him.

Nothing should be done to detract from or set aside that subject, the

net-weight amendment to the food and drug act. Mr. SrawART. I will amend my motion by stating that aa g proceed

in accordance with it after we have heard that paper.

Dr. Rr:rcHMANN. I will offer an amendment that it be left to the

discretion of the chair.

The Acting Chairman. I do not see any objection to interrupting

the program, but I would like to get the next three papers on. I can ask Dr. Alsberg to make his remarks brief. Mr. Stewart. While some of these papers were being read, Ave have been holding conferences on the outside.

The Acting Chairman. So I have observed.

Mr. Stewart. We have decided that we want to get into discussion on those questions that lay most closely to our hearts.

The Acting Chairman. Have you a list of questions you want dis- cussed? Do you want to proceed to new business? The suggestion

has been made that the program be carried on until 3 o'clock. Is that

agreeable?

Mr. Stewart. Well, do that. The Acting Chairman, If that is agreeable, T will not put the

motion, unless there be objection.

PEDERAL BEGTILATION OF WEIGHING AND MEASURING DEVICES,

BY JOSEPH J. H0LV7ELL, COMMISSIONER, MAYOR'S BUREAU OF

WEIGHTS AND MEASURES, NEW YORK CITY.

Mr. Chairman, ladies, and gentlemen, I regret very much that there

has been introduced into this conference opposition to the reading

of papers, because the first time that I have ever been asked to pre- pare a paper and read it, is the invitation extended to me by your

chairman.

I have taken rather a dry subject, but I presume it is going to be

interesting, as it is the intention of your committee on resolutions to introduce a resolution which will bring the subject up for discussion

to-morrow. I have made it as brief as possible.

To those who have watched this country's wonderful growth in

commerce, population, and wealth, and who have realized the necessity for the use of proper devices in the measuring and weighing of

those commodities which are sold by either weight or measure,

there has been a keen desire that proper regulation and control shall be exercised over such devices by governmental authorities. Al-
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 135

though millions of dolhirs are spent annually in this country for commodities sold by either weight or measure, comparatively few of the

municipal or State governments have done anything to properly

safeguard the pui'chasing public in compelling the manufacturers

of such devices to submit tlieir scales and measures for approval be- fore same could be sold. Kealizing the need of protecting the great purchasing public of the

city of New York, former commissioner of weights and measures, Hon. John L. Walsh, succeeded in having an ordinance enacted in

1910 by the local board of aldermen giving the necessary authority

to the commissioner of weights and measures over the sale of all measuring and weighing devices. This ordinance is as follows

:

Sec. 384a. No person, firni, or corporation shall sell, offer for sale, or give

away any weights, scales, beams, niedsures of any kind, or the tools, appliances, or accessories connected with any and all instruments or mechanical devices

for weighing or measuring intended to be used for the purcliase or sale of any commodity or article of merchandise, or for pul^lic weighing, within the city of New York, until a type or types of the said weights, scales, beams, measures

of every kind, or the tools, appliances, or accessories connected with any and

all instruments or mechanical devices for measurement or public weighing,

with specifications as to construction, shall have been submitted to and ap- proved by the commissioner of the mayor's bureau of weights and measures. The commissioner shall, when said types are approved, designate a serial number, which serial number shall be used in identifying the type approved. A

record of the serial niimbers and to whom furnished shall be kept in the office of the commissioner of the mayor's bureau of weights and measures. Any person, firm, or corporation who sells, offers for sale, or gives away

within the city of New York any weights, scales, beams, measures of any kind, or the tools, apphances, or accessories connected with any and all instruments

or mechanical devices for weighing or measuring intended to be used for the purchase or sale of any commodity or article of merchandise, or for public

weighing within the city of New York, that do not comply with the specifica- tions and type submitted and approved by the commissioner of the mayor's

bureau of weights and measures, as provided in this section, shall be liable to a penalty of one hundred dollars for each and every such offense. The results obtained from the nine years' operation of this ordi- nance has justified its enactment. Prior to its enactment many defective and fradulent scales were sold to the merchants in the city of

New York, necessitating the condemnation and confiscation of

thousands of them. To-day, nothwithstanding that the number of

scales and measures used run into the hundreds of thousands, it is a rarity to find defective scales in use. In fact, the scales that are

confiscated are those found in use on pushcarts, which, owing to their

hard usage and their exposure to the elements, easily get out of order.

The initiation of such regulatory control by the New York City

weights and measures officials resulted in the introduction into use of

a more substantial and improved type of scales by the manufacturers

of this country and the change has not only benefited the city of New

York, but has had a corresponding beneficial effect upon the entire

country.

This nine years' test in the largest city of the country, with a population estimated to-day at close to 6,000,000, shows the possibilities

which could be accomplished for the entire 48 States by vesting in a

central mandatory authority the power of enforcing the manufacture

of scales and other measuring devices based upon right principles.

The central mandatory authority, in my judgment, shoitld be the

National Bureau of Standards of the Department of Commerce, be-
136 BUREAU OF STANDARDS.

cause this Bureau, with its efficient, trained staff and its laboratorial

equipment, is especially qualified to deal with and pass upon all devices submitted to it for its approval.

In order to ascertain the views of the scale manufacturers of this

i-ounti'v regarding national serialization by the National Bureau of

Standards. I sent the following letter to 45 of the most prominent

firms engaged in that industry:

Apbii, 2, 1919.

I have in pi-eparation a psiper dealing w ith the urgent need for the serializa- tion of all .scales, manufactured or sold in the United States, by the National

Bureau of Standards. I have come to the conclusion, after 1.5 months' experi- ence as commissioner of weight.? and measni-es for the city of New York, that

vesting such authority in the National Bureau of Standards will not only im- prove conditions in so far as the purchasing public and the purchaser of scales are concerned, but that it will at the same time centralize authority for the

scale manufacturers and facilitate the introduction of their particular type of

scales on the market and materially assist the weights and measures officials of the country in their work.

I would appreciate if you will let me have your views on this question. I would also like to have from you, first, an approximate estimate of the number

of scales now in use in the United States in the sale of commodities ; second,

approximate estimate as to the number of such scales manufactured in the United States in the year 1918. The majority of the responses were favorable to reposing such

power in the National Bureau of Standards, but my attention was

called to the need, if such authority was granted

1. That centralization of such authority should work to the advantage of all ; the small as well as the large manufacturers.

2. That regulations should not be too drastic in calling for technical requirements which woxild make a commercial proposition impossible.

3. That the .small dealer should not be compelled to invest so large

a proportion of his capital as to work a hardship becau.se of the ex- treme te'/hnical accuracy demanded.

4. That a national bitreau is apt to run more to theory than to practice and needless expense plai ed upon the S( ale manufacturer in

complying with its requirements.

0. That some arlhority other than the courts be instituted to re- view the decisions of the national bureau in the event that one desired to appeal from its decisions, with the privilege of final review

by the courts. From my own personal experience and that of my prede;'essors, I

feel that if the policy followed by the mayor's bureau of weights

and measures of the city of New York were adopted as the policy

of the National Bureau of Standards, that few complaints will be

forthcoming from the manufacturers of weighing and measuring devices. In New York City we have endeavored to conduct our bureati on

practical lines, with an eye not only for the protection of the merchant who purchases a weighing or measuring device, or the purchaser of a commodity .sold by weight or measure, but also for the

manufacturer of the device. T^'e have realized the time, energy',

thought, and capital that the manufacturer has put into his device,

and our requirements have not been so exacting, for example,

for the scale used in the sale of potatoes as for the one used in the

sale of butter.
TWELFTH ANNUAL CONFEEENCE ON WEIGHTS AND MEASURES. 137

I realize, however, the potency of the argument of the manufacturers that such a bureau is apt to become theoretical instead of

practical, because in the final analysis the bureau's requirements

would be the viewpoint of a single individual. If that individual were a broad, practical man, a man possessing not only mechanical

and executive ability, but one able to realize what hardship a drastic decision of his would work upon a great industry, there would

be no need of placing any checkmates upon him. But, unfortunately, that manner of man is not always placed in authority, and

only too frequently Ave have men placed in public office who fail to

realize the need of exercising proper discretion and giving the necessarj'^ thought to matters coming before them.

In view of the fact that the several States are vitally concerned in

the proper regulation of all weighing and measuring devices and

inasmuch as millions of dollars have been invested by private capital in the manufacture of such devices, I believe it would be advisable that a board of review consisting of four State or municipal

weights and measures officials and three manufacturers of weights

and measures be named by the Secretarj^ of Commerce. This board

of review would in a sense be a court to hear any appeals from a

u)anufacturer who might feel that he had been discriminated against

either by the promulgation of a too drastic regulation of the Bureau

of Standards or its refusal to approve the device submitted. It would not be necessary for this board of review to sit permanently

in Washington. It might meet biaamuallj' to elect a chairman

and secretar3^ Its members could receive copies of the papers of

the particular transaction, pass upon same with their recommendation that the Bui'eau of Standards be sustained or not sustained,

and the combined findings submitted to the Secretar}^ of Commerce

for decision. The members of such a board would serve without paj', Avith the possible exception of the secretary, traveling and clerical

expenses being allowed.

In making the recon)raendation of placing such power to serialize

and to approve all types of weighing and measuring devices in the

hands of the National Bureau of Standards, I am not unmindful

of the opposition of those who are opposed to such action. The opponents of such necessai-y legislation predicate their opposition on two points:

First. Congress has no poAvcr under the Constitution to make

such a law.

Second. Such a law if passed woxdd be harmful and detrimental

to the business interests of this country.

It is not my intention to enter into any discussion as to the constitutionality of such legislation, because I am a manufacturer and

not a lawyer, but the purpose of every good law is to render justice,

and common sense should be followed in its interpretation. It would

appear, therefore, that a law which was in every sense progressive

and which aimed to protect the interests of both the manufacturer

and the purchasing public of the several States, if passed upon by

the Supreme Court of the United States, would be declared constitutional in view of the fact that it protected all of the people and

not some of them.
138 BUREAU OF STANDARDS.

I fail to agree with the opponents of such legislation that " it would be harmful and detrimental to the business interests of this

country." I suppose by "business interests" is meant those who

have invested their capital in the mamifacture of .weighing and

measuring devices. Let us suppose that the 48 States followed the

example of the city of New York and passed similar laws to theirs,

controlling and seralizing all weighing and measuring devices before such could be offered for sale in the several States. This would mean that the manufacturers of the country would be compelled to submit their devices to 48 weights and measures officials instead of

to one central authority. It would mean, possibly, 48 different sets of rules and regulations. It would mean 48 additional mechanical

laboratories to be maintained instead of one. Whether siich legislation giving authority- to the National Bureau of Standards is enacted or not, the several States, if they are to keep step with the

times, must eventually adopt proper control of weighing and meas- uring devices offered for sale in their respective States. The question is: Which will prove more helpful to all, a centralized control or an individual State control?

A central mandatory authoritj' along the lines I suggest would

prove a wonderful help to the weights and measures officials of the

country, because it would enable them to concentrate their efforts to detecting the cheat and the short-weighter and to educating the

purchasing public how to protect themselves when purchasing particularlj^ the necessaries of life. In New York I have said we have

few defective scales, but our concern is with " the man behind the

scale," and that is the man in whom every weights and measures official

is interested. When we can impress upon the purchasing public the

great need of pi'otecting their purses b.y seeing that " the man behind

the scales" does not manipulate the scale when weighing a commodity; that he does not deliberately overcharge; and that he does

not insert items in the weekly or monthly account which were never

delivered, then I feel that we weights and measures officials will have

accomplished some of the important features of our work.

But, notwithstanding the wonderful improvement made in weighing and measuring devices, there is still great need for improvements in them in some parts of this country. As men interested in

this subject, I feel that we should rise above personal interests and

that we should lend every aid possible to enacting the necessary legislation to permit the National Bureau of Standards to take over the

work of approving and serializing all weighing and measuring devices offered for sale in this country,

DISCUSSION OF ABOVE PAPER.'^ The Acting Chairman. We have a few minutes before luncheon,

and this paper is open to discussion.

Mr. SwEENET. I am opposed to the National Government enacting

any such legislation as has been recommended in Mr. Holwell's

paper. In the first place, it will make the State inspector of weights

and measures a nonentity, because just as soon as the National Gov-

' See also discussion on this subject on pp. 50-51, and resolution on p. 205.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 139

crnment enacts this legislation and powei' is placed in the hands of

this bureau, or whatever authority it is placed in, they will come to your State or send to your State to give you orders what to do. The

National Bureau of Standards furnishes every State in this Union

with the standards of the country, and there is no reason why each

State can not attend to its own business. Over 50 years ago this

Government furnished to every State in the Union a set of standards,

but the States could arrange "their local matters. If this legislation

recommended by Mr. Holwell goes into force, a lot of you people here

to-day will find yourselves out of positions. There is no reason why

the fellow who has not a large technical knowledge should not be

permitted to aspire to these positions. If you are compelled to take

examinations fixed by certain individuals known as the Civil Service

Commission, a boy going through school to-day can pass an examination that you and I and others can not pass. You can not get in this

Bureau to-day unless you can pass that examination. Hoav many of

you can pass it? Not 10 per cent in the conference. The founders

of this Government in mapping out a system of government fixed a system for the State, county, and city, and we have lived prosperously' imder it for 145 yeai"s. I do not see any reason why we should

allow that piece of legislation to go through.

Mr. Fabkell. We all hold political jobs and have certain fundamental ideas regarding government. Mr. Holwell's predecessor in

office held a political position and was of the opposite faith of Mr.

Ilolwell. The previous commissioner's term of office having ex- pired, another man comes in and has views exactly opposite. How

juuch better it is to have one single administration such as they

would have in Washington than to be put to the expense, as some of

the manufacturers are, of changing practically the whole scheme of

manufacture for each State of the Union when the head of a particular department of weights and measures changes. I believe that

cventuallj we are coming to the centralization of government in

Washington.

The Acting Chairman. Before we take a recess I Avould like to )nake an announcement. It is that I hope everybody will be here

pj-omptly at 2 o'clo< k. There will not be any delay in that case. (Thereupon, at 1 o'clock p. m., the conference took a recess imtil 2

o'clock p. m.)
SIXTH SESSION (AFTERNOON OF FRIDAY, MAY 23, 1919).

The conference reassembled at 2 o'clock p. m., Mr. L. A. Fischer,

secretary, presiding as chairman.

THE PROBLEM OF WEIGHTS IN THE HANDLING OF GRAIN, BY

J. A. SCHMITZ, ASSISTANT WEIGHMASTER, CHICAGO BOARD OF

TRADE.

The weighing question in the handling of grain plays an important part in that important branch of our industrial life. I believe I am justified in saying that there is no other commodity, of

equal A^alue per pound, that is weighed in such wholesale quantities

as is grain. No doubt there are some commodities weighed where

tlie total tonnnage will exceed that of gxain and other commodities

of large tonnage that will exceed the per pound value of grain;

but the requirements in the grain trade are such that accuracy in

the weighing of large quantities of grain at a minimum of ex- pense in time and labor is imperative. This accuracy calls for

scales of large capacity and with a degree of fineness in proportion

to the value of this costh^ product; and it also calls for scales possessed of a high degree of permanent accuracy. After such a scale has been properlj^ designed, carefully manufactured, and correctly

installed its continued accuracy is dependent largely on the skill and equipment of the scale inspector in whose charge it is placed.

For, obviously, the maintenance of a scale includes the careful at- tention of a competent inspector, with suitable equipment to prove

its accuracj', or to bring to light inaccuracies and the need for re- pairs and adjustment, should they exist. By suitable equipment I mean test weights of known quantities and in sufficient number.

It is plain that the weighing results obtainable by a careful, conscientious weighmaster depend largely on how well the manufacturer, the builder, and the scale inspector have performed their work.

On the other hand, no amount of care in the construction and erec- tion of a scale will bring the desired weighing results if the weighmaster is careless, inefficient, or dishonest. Each branch of the service, then, whether manufacturer, builder, inspector, or weighmaster,

nuist lend its best efforts to the end that the sum total of all these

efforts is accurate weights.

Now, it is my desire to lay special emphasis on the duties of the

scale inspector as represented at this gathering. It must be plain to you that to obtain that accuracy which is an indispensable element

in commercial transactions having weight for their basis of settle- ment, the testing of scales becomes paramount. Hence you men

have invaluable duties to perform.

Eight here a word about the department I represent may be of

interest. The department of weights of the Board of Trade of

Chicago was organized to furnish weights independent of the interests of either the buyers or sellers of grain and seed ; that is to say, weights that can be used as bases of settlement. To carry out this

140
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 141

plan comprehensively it was necessary to appoint a chief weighniaster and a force of assistants called deputy weighniasters. Now,

in the early days the duties of these deputy weighmen were simple

and were generally confined to a reading and recording of the

weights on the scale beam. However, as the department grew in

importance and as progress was made in weighing matters, improvements in the service were foinid necessary, until finally the actual

checking and recording of the weights themselves, while of the

utmost importance, became but one of many duties, until now the

service of the department begins in the outlying " railroad arrival

yards " and does not end until the grain is finally paid for. The

service now includes car inspection, police service, custodianship

of the grain in elevators, and the care and inspection of scales and

equipment used to handle the grain to and from cars and boats.

In the days long ago, when there were few comparative weighings, and when scales generally were few in number and often unreliable in quality, and when the weighing was performed in a more

or less perfunctory manner, and when the efforts of weighing departments were directed more toward the preventing of the larger

errors than toward the securing of fineness in weighing, the matter

of a close adjustment and of a high degi'ee of accuracy were not re- garded as of much importance. But all this has been changed, until

now the highest possible degree of correctness is required and demanded. To secure such a high degree of accuracy, an improvement

in the grain-handling equipment and in the methods of weighing be- came imperative. But. most of all, it became necessary to provide

scales that would meet the more exacting requirements demanded,

and also to provide for the care and maintenance of these scales. This brings us directly to the subject of scale inspection and scale testing and to the oft-repeated query, " What constitutes a sufficient amount of test weights for testing scales used in the weighing of

gram ? " Xow, to determine the required number of test weights properly

to test, for example, a hopper grain scale, we must consider, first, the tolerance allowed, and, second, the sensibility reciprocal in its relation to the greatest error that will remain undetected because not

visible. And right here let me quote the accepted definition of sensibility reciprocal

:

The sensibility reciprocal is the added weight required to l)e placed upon

the platform to break or turn the beam from a horizontal position in the middle

of the trig loop to a position of equilibrium in the top of the loop. This may

be determined by subtracting the weight instead of adding it, or by using the

.sliding poise on the beam, if this be done without jarring the beam.

As scale inspectors you all appreciate the importance of applying

literally the definition I have just quoted. Obviously, the less the

amount required to turn the beam, the smaller will be the amount

of variation not vi^^ible to the inspector. For example, if it takes 1 pound to turn the beam froin the center of the trig loop to the, top

or bottom, an error of one-half pomid, or even less, would be easily

perceptible. But, on the other hand, if it takes 10 pounds to turn

the beam a like distance, one-half pound would not be visible; and

if such a scale is tested with but 1,000 pounds of test weights, errors

in excess of the tolerances provided for grain scales would go undetected.
142 BUREAU OF STANDARDS.

In view of the foregoing, it is plain that any specifications for

scales to be complete and of practical assistance must prescribe a maximum range for the sensibility reciprocal, as well as limits for

the error permissible in the ratio of the scale. It follows, then, that,

by considering both of these factors, we can in all cases accurately determine the exact amount of test weights needed.

The specifications compiled by the scale committee for the grain

interests in Interstate Commerce Commission case No. 9009 provide for a maximum sensibility reciprocal for a tolerance on the

ratio of the scale and a tolerance on the hanger weights. The maximum sensibility reciprocal ranges from 1 pound on scales of 3,000

pounds' capacity to 15 pounds on scales of 120,000 pounds' capacity or more. The tolerance on ratio is one-half pound per 1,000 pounds.

The amount of test weights prescribed by this committee for testing

hopper scales, based on the tolerance and the prescribed sensibility

reciprocal, approximate 8 per cent of the rated capacity; and,

further, the specifications also provide that scales shall be tested

" empty " as well as " loaded." Hence, 10,000 pounds of test weights

are required to test a 2,000-bushel (120,000-pound) scale, since this

is 8 per cent of its capacity.

Be it remembered that the principle involved in the determination

of the quantity of known weight required to test hopper grain scales, as set forth in the specification referred to, is equally applicable to

scales of any type and used for any purpose, since in any case the

tolerance and the maximum sensibility reciprocal allowable determine the amount of test weights that must be used to make an efficient

test.There is another important matter that enters into the testing of

scales, and that is the skill, care, and efficiency of the inspector per- forming the work; for, be it remembered, the scale inspector who

approves the scale, thereby placing it in service, assumes in large measure the responsibility not only for the scale's accuracy at the

time the test is made, but also for its permanent accuracy and its dependabilit}^ as a weighing machine. The scale inspector, as you

can plainl}'^ see, is in a position either to commend or to criticize the

work of the designer, the manufacturer, and installer of a scale, for

his periodical tests of the scale give him unusual opportunity to make observations and collect data concerning the scale's performance. And, moreover, if his criticism be constructive, it will be of

assistance to those whose labor he reviews. His cooperation should

be of extreme benefit to the other divisions of the craft and to commercial interests in general.

In closing, let me say that the greater the consideration given by

scale inspectors everywhere to the size of the sensibility reciprocal

of the scales they test, and to the amount of known weight requisite,

will increase the sum total of satisfactory results materially. And

my hope is that you will carr};' this message home and use it in your

proj)aganda for greater accuracy in scales and weights.

DISCUSSION OF ABOVE PAPER. The Acting Chairman. Are there any questions?

Mr. Stewart. I believe I understood the gentleman to say that by

taking 8 per cent of the capacity of the scale in test weights he could

make a sufficient test of the scale. Is that correct ?
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 143

Mr. ScHMiTz. That is correct. That was the decision of this committee on grain scales, who decided that a minimum of 8 per cent of the rated capacity of the scale would be required, providing the

scale was within the maximum range of sensibility reciprocal prescribed by the committee. The allowable tolerance is one-half pound

in each 1,000 pounds. In other words, the committee decided that

error greater than one-half pound per 1,000 would be visible to the

scale inspector with the amount of test weights specified and that the

scale could be maintained within the tolerance.

Mr. Stewart. I would like to follow that question with another.

Do you not believe that, even though you do not have that amount of

test weights, it would be a fairly complete test if you would use some

sort of load and build the scale up to its capacity?

Mr. Briggs. Ten thousand pounds, which he mentioned in connection with testing 120,000-pound capacity scale, was the minimum

amount of weights allowable. These weights were to be used in

building up as you suggest, but you can not build up from an ounce

weight to test big scales. That is the minimum amount to stai-t the

building-up process. Mr. Barnard. As a matter of information, I would like to ask

Mr. Schniitz the amount of tolerance he allows on a grain scale. In

the city of Battle Creek our food factories are buying a gi:'eat deal

of grain and oftentimes disputes come up as to the weight of the same, and our department is called in to settle a dispute. To get

down to the question, just what tolerance would you allow per 10,000

pounds ? Mr. ScHMiTz. I quoted a tolerance of one-half pound per thousand, as agreed on by this committee. As a matter of fact, a good

many of the grain-weighing departments are staying within that

tolerance or do not permit so large a tolerance. But these specifications were for the whole United States, and we wanted to allow

that for departments poorly equipped and not well organized. We

all felt that one-half pound tolerance was the limit to be allowed. I

believe tolerances ought to be held down. Our practice is to work

as close as the inspector can possibly work. I realize that inspectors are merely asked to approve or condemn scales. Our function is somewhat different. We not only approve and condemn scales, bat we also make reports, and when we find a visible error in the scale we make the correction absolute, if we can. Mr. Barnard. That was the point I wanted to bring out, because

if a scale showed an error of 5 pounds on capacity it would be within

the tolerance, but that means considerable to a concern buying wheat

at the present price. It runs up rapidly. It mounted up quickly

in the amoimt of grain this particular concern was buying each

month.

Mr. ScHMiTz. One dollar and twenty-three cents on a thousand

bushels.

Mr. MiKESEix. I believe I understood Mr. Schmitz to say that an

effort was made to come within that tolerance which he named there. Would it not be better to say that the weighmaster, or whoever is dealing in the wheat, should make it a point to get accuracy

first and then, if he falls below accuracy, the tolerance is allowed.

A tolerance is not for the purpose of allowing people to give a short-
144 BUREAU OF STANDARDS.

age. Each weighmaster and each dealei- are supposed to reach that

point of perfection which we call accuracy. If he should fall below

it through some means not controllable., then the tolerance comes in. Mr. ScHMiTz. In response to that, theoretically there should be no tolerance. Every scale should be 100 per cent correct, but in

practice we find they are not. In fact, we have considerable trouble

holding them within the small tolerance. When we decided on one- half pound per 1,000 we thought we had gone the limit, and no scale must have an error larger than that. That is the limit. If an in- spector should test 10 scales and find each of the 10 one-half pound

per thousand in error in the same direction then he would have

found, possibly, a scale inspector of unusual ability and also some

very fine scales. This would be true if one could take advantage of

that tolerance in one direction. But we do not find that. We find

scales in error on either side of accurac}'. However, I feel that the

one-half pound per thousand is ample, probably too much, but I

believe the allowance on the small scales used throughout the country

is in excess of that tolerancfe. Mr. Stewart. You were asked a question a moment ago if you

allowed the tolerance on the grain. If I understand that question

it was if a man was weighing 1,000 pounds, and the delivery

amounted to 999^ pounds, he would call it a thousand and it would

be all right; you don't allow any greater tolerance on grain?

Mr. ScHMiTz. That would be a commodity tolerance, and I confine

myself to scales; simple the accuracy of the scales. Mr. Beiggs. If the majority of you men here come within that

half pound per thousand in your work, you are going some. To

actually make a scale meet that requires much skill, and when the

grain department is meeting that tolerance it must be a pretty wellorganized one. Ten thousand pounds in test weights is needed to

test these big scales, and that load has to be applied with great skill. Mr. MiKESELL. Do not use tolerances to make short weight.

Mr. Briggs. I was just going to suggest that this tolerance is so small for ordinary purposes that you can not manipulate unless you

are a good one. If you can find 10 scales in error within tolerance

all the same direc tion, you have fine scales and a smooth man. Is not that true? Mr. ScHMiTz. I have not found any.

Mr. MiKESELL. There is difficulty in differentiating between scale tolerances and commodity tolerances.

Mr. Briggs. In answer to that the general sentiment has been that

when the scale is tested they must use that scale, even if the scale is in error, provided it is within the tolerance. Otherwise you would be

involved in tremendous difficulties and could be prosecuted for short

weight because of that. It is the only practical way out of the

proposition.

Mr. MiKESELL. My whole argument is to make the weighing processes reach accuracy, the primary object. The rest is secondary.

Mr. ScHOENTHAL. Mr. Schmitz spoke of building up weights. Mr.

Stewart asked a question after that, and I have no doubt but that

there will be some confusion on this proposition. As I understand

it, the method employed by Mr. Schmitz is to test the scales with a minimum of 8 per cent test weights and to read the error, then to
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 145

put an equal amount of load on the scales and read the error on this

equal amount; and then again put the test weights on. It is a common practice, I believe, throughout the country to use an unknown load. For instance, in testing a wagon scale, 1 ton of

test weights may be put on the scale, the beam read, and the error

noted. Then some object Aveighing, perhaps, 3 or 4 tons is put on

the scale, and to this load are added the test weights and the error then read. Of course the error should be the original error that was

found in the original test load. At least I have had that experience.

That practice has existed, and in certain parts of the country exists

to-day, and I did not want to get that confused.

The Acting Chairman. I think this amount of discussion excited

by that paper is more or less justified, and I think we are all very

much indebted to Mr. Schmitz for giving us a clear-cut statement of

what the practice of the very best men of the United States is. I am

not making that statement in any official capacity. I want that

understood.

DISCUSSION ON RE-MARKING OF WRAPPED HAMS, BACON, AND

OTHER MEATS.

The Acting Chairman. I notice that Dr. Alsberg is not here, and we have a few minutes, so I will bring up a matter on this tentative

program mentioned to me by Mr. Stewart, and we can have it in

mind when Dr. Alsberg is here. It is a telegram of the National

Wholesale Grocers' Association of the United States, reading as follows

:

New Yoek, N. Y., May 22, 1919.

S. W. Stratton, Director, Bureau of Siandards, Department of Commerce,

Washington, D. C:

National Wholesale Grocers' Association of Uuited States earnestly requests

tliat you urge convention of weights and measures officials to adopt resolution requesting Department of Agriculture to provide in new regulations under

consideration that wrapped hams and bacon are in package form and must be

labeled to show net weight. Such requirement is in interest of honest weights

and measures, is essential fur protection of consumer, and necessary to inform

purchasing public of what it is buying.

Abjay Davies,

President. Alfeed H. Beckmann,

Secretary.

Feed R. Deake,

Chairman Pure Food and Legislative Committee.

Mr. Hanson. Mr. Chairman, in view of this telegram, I would

like to enlighten the delegation relative to a hearing which was held

here in Washington some four years ago last March. Previous to that time the Bureau of Chemistry sent out letters, as I understand,

to the various States and cities asking them to attend at the bureau's

office here for the purpose of giving the bureau some light on whether

hams and bacons should be considered as being " in package form."

I am sorry to say that the only gentlemen representing weights and

measures officials here were Mr. Tighe, of the city of New York, and

myself. There were some representatives, however, from Chicago

packers. Outside of these there was not one other person in the

United States, weights and measures officials or otherwise, interested

enough in the subject to come here and fight for the principle that

155530—20 10
146 BUREAU OF STAITDARDS.

hams and bacons should be within the meaning of the words "in

package form."

Mr. Farreix. The city of Xew York was suing the packers in the

State on that particular matter, and we beat them right at the particular time that that was going on. We were trying the case out in

New York City.

Mr. Hanson. We had the hearing here, as Mr. Farrell remembers.

The Bureau was going to defer action. I have written to them a hundred times, and up to the present time they have not come to a

conclusion as to whether hams and bacons should be held to be within

the terms of the law. In our State we have been successful in prosecution in intrastate business ; that is, hams and bacons manufactured

in the State must be marked in accordance with the net-weight law.

Mr. Schwartz. I make a motion that this conference go on record,

by adopting the telegram itself, that it is the sense of this confer- ence that we are back of this movement to require wrapped hams

and bacon to be marked with the net contents. Mr. GooD-\viN. I second the motion.

Mr. Kellt. In regard to this matter, I had a case in court two or

three years ago, and it went along for some time. It is my recollec- tion at this time that there were 10 or 12 ounces of wrapping on

the ham in this case. It dragged along in the courts until they

finally decided that, for sanitary reasons, wrapped hams and bacons

did not constitute a package. I have always thought that the decision was not entirely right, and I am glad at this time to be able to second the motion as made by Brother Schwartz, and I trust the

conference will make the resolution as strong as possible, and all get

together and get behind it. Mr. Sharp. I have prepared a resolution which is in the hands of

the resolutions committee embodying all the facts in the telegram.

The Acting Chairjian. Could not the resolution committee act on that right now? I don't think we ought to have so much dis- cussion.

Mr. Farrell. I offer an amendment. New York City is, perhaps,

the greatest user of honey in the country.

" The Acting CHAiR:\rAN. Have you considered Massachusetts?

Mr. Farrell. No, sir; Massachusetts for asperity, and New York

for sweetness. However, the Bureau of Chemistry has held that the

ham was not in package form, but that the comb of honey was.

I would like to offer an amendment to that resolution that combs

of honey are not in package form and need not be marked.

Mr. Schwartz. I do not think Mr. Farrell understands that we are indorsing the request of the National Wholesale Grocers' Association,

who ask that the net contents be marked on hams and bacons.

We want to know that these are marked properly. Permit me to straighten this thing out. I think this telegram should be referred

to the resolutions committee and for their report later, presenting the

IDroper resolution to enable this conference to go on record.

Mr. Kellt. I believe this matter is sufficiently important to act on

at once, and I move you that the resolution which the gentleman has

spoken of be produced, read, and acted on. I think it is perfectly in

order to have that resolution.

The Acting Chairman. Does the gentleman making the original

suggestion, that the matter be acted upon, accept the amendment
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 147

offered by Mr. Schwartz, that the whole niatter be referred to the

committee on resolutions to be reported on later ? Mr. Stewart. I want to say that the Bureau of Chemistry by its ruling in regard to bacons and hams defeated the case I had against

a packer on the question of the marking of meats. We want to go

on record right now. The Acting Chairman. Has the resolutions committee a resolution prepared?

Mr. Webster. That matter is under consideration at the present

time. We have no resolution prepared.

The Acting Chairman. Will somebody state a resolution ? Mr. Sharp. I presented to one member of the resolutions committee

such a resolution to-day.

Mr. HoLBROOK. I have that resolution here. It has not yet been

considered by the resolutions committee. I will read.

(Mr. Holbrook commenced reading the preamble to the resolution.)

The Acting Chairman. I do not think we want all this material.

We simply want the resolution of the committee. Mr. Holbrook will

read simply the resolution proposed to take care of it. Mr. Holbrook. The whole thing is the proposed resolution. It is in resolution form. If I may say one word here, it contains material

which I think perhaps may be resented, and rightly resented, by the

Bureau of Chemistry, and I think that very possibly the drafter of

that resolution did not have any intention to offend.

Mr. ScmvARTz. Just take the telegram and use it as the resolution.

Have the telegram read again.

The Acting Chairman, [reading] : National Wholesale Grocers' Association of United States earnestly requests that you urge convention of weights and measures officials to adopt resolution requesting Department of Agriculture to provide in new regulations under con- sideration that wrapped hams and bacons are in package form and must be

labeled to show net weight. Such requirement is in interest of honest weights

and measures, is essential for protection of consumer, and necessary to inform

purchasing public of what it is buying.

Aejay Davies,

President. Alfeed H. Beckmann,

Secretary.

Feed R. Drake,

Chairman Pure Food and Legislative Committee.

Mr. HoLWELL. I tliink this matter should be referred to the resolutions committee this morning, and they will report to-morrow morning a resolution embodying the sense of this meeting that we are opposed to the exemption of these commodities.

The Acting Chairsian. I might state in answer to that that this

conference has just voted to take it up now. Mr. Holbrook. I may say that at the direction of the resolutions

committee a resolution has been prepared, and it is now before me.

I have not presented it previously because the resolutions committee

had not passed upon it ; but if I might read it at this time the committee could decide right now whether they think it a proper resolution to be presented to this conference. The resolution is as follows

:

Whereas we, the delegates of the Twelfth Annual Conference on Weights

and Measures in conference assembled, firmly believe that wrapped hams,

bacon, and other meats as put up by manufacturers are food " in package

form " within the meaning of Federal and State laws, and, further, that there
148 BUREAU OF STANDARDS.

is a real and pressing need for the marking of the net weight in order to put

competition on a fair and honest basis in trade and to provide for the protection of the wholesaler, retailer, and consumer from unfair practices and

fraud, and to eliminate the confusion arising from conflicting laws; therefore, be it Resolved, That we emphatically record our approval of laws and rules and

regulations to the effect that wrapped hams, bacon, and other meats be required

to be marked with the true net weight contained therein, and of the rigid

enforcement of the same. And be it further

Resolved, That we respectfully urge the Bureau of Chemistry of the Depart- ment of Agriculture to take such steps as may be found necessary to put a marking requirement into effect. Mr. Sharp. I withdraw the resolution I introduced to make it clear. The Acting Chairman. You have heard the resolution read.

There is a motion before the house to adopt it. Those in favor say

"Aye " ; those opposed " No."

(The motion was agi*eed to.)

, • , .; j"

ENrOBCEMENT OF NET-WEIGHT AMENDMENT TO THE FOOD AND

DRUG ACT, BY DR. C. L. ALSBERG, CHIEF, BUREAU OF CHEMISTRY.

Mr. Chairman and gentlemen, some three or four years ago I had

the honor of addressing this conference at a time when the net- weight amendment, so-called, or the Gould amendment to the food

and drug act had only recently been passed and when the action

under that amendment was begun. That amendment, as you Icnow,

deals only with food in package form.

I would like to-day to give you some idea of what has transpired

so far as that amendment is concerned since the last time I addressed

you. Under that amendment we have had a great many difficult situations to deal with. The difficulties have arisen chiefly on the

definition of the package as that term is used in the law. The first impulse of the committee drawing up the regulations, which was

conaposed of Mr. Fischer, Mr. Halstead, and myself, acting for our

respective superiors, was to endeavor to define a package^ and we

struggled more with that one particular thing, as Mr. Fischer no

doubt recalls very well, than with any other matter with which we

had to deal in drawing up these regulations. We finally gave it up

and came to the point of view that no definition of a package we

could make would include all those articles which should be included

and exclude all those articles which should be excluded. As a result we made no regulation defining a package, but left the thing to be

decided in the individual case, by an administrative ruling, by the

decision of a court, or by the opinion of the attorney, and it is on

that general basis that we have been proceeding. It is a very unsatisfactory basis, because as yet there have been very few judicial

decisions on this particular point. As a matter of fact, although

there have been a great many cases brought—and practically all have

been successful—under that provision of the law, there has been to my knowledge no defense raised in any case the main point of

which was that the article in question was not food in package form,

and therefore not within the provisions of the act. We have been

proceeding along hoping that we would get a judicial decision.

However, in spite of the fact that we are maKing prosecutions at the
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 149

present time at the rate of 1,000 a year, there has been as yet so few

cases in which interpretations of the law have been raised that we

have not received any enlightment from the Federal courts on this

particular question.

When I state that we are making prosecutions at the rate of 1,000 a year for violations of this particular part of the food and drug act, I do not mean to imply that all the cases are cases in which the violation of the net-weight amendment is the only charge. In a considerable proportion of these cases there are also other charges,

charges of misbi'anding and charges of adulteration under other

IDrovisions of the law because, of course the people who are short

weighting usually do not content themselves with cheating in that

way; they are also often misbranding and adulterating the food.

The tj'pe of man who will do the one is the type of man who will do

the other; so, in a good inany of the cases there have been a number

of charges. In a measure, that is one of the reasons why relatively

few of the cases that we have had so far have been been contested.

A man may feel possibly that he is being done an injustice by the

charge under the net-weight amendment, but that the charge of

adulteration against the goods is a good charge. In such a case he

will not defend one charge and have the other proved, but will usually

plead nolle contendere to the whole case. A certain number of cases have been of that type. Others, of course, have been straight cases, but I can not saj^ what the proportion is, except that it is a considerable one. Now, there are just at present certain features of our work which

may be interesting to you. We have had a very difficult time as a

i-esult of the war with reference to the slack filling of packages; a

particularly difficult situation arose, for example, in the spice trade.

Ordinarily', spices are sold for household consumption in 5 and

10 cent packages. In these packages there are usually put 1 or 2 ounces. We have had an exemption of 2 ounces in our regulations,

because when these regulations were drawn up some three or four

years ago it was not believed that any serious fraud could be per- petrated in a package that weighed only 2 ounces or less. Now.

during the war, owing to the disturbed trade conditions, the price of

spice has quadrupled ui some instances, and the spice grinder has not

been in a position to make even a legitimate profit and give the same

1 or 2 ounces for 5 or 10 cents that he had been giving. What he

did was the thing that the average business man usually does. His

reaction was characteristic. Instead of cutting down the size of his

package and giving a small package, reasonably full, he kept the

size of his package constant and filled it only one-half or one-third, or in some cases one-fourth, full. He was not, in a sense, making any more money by that procedure. He was gi^^ing as much spice as he

could alford to give for 5 or 10 cents; but the housewife who was buying a package of cinnamon or a package of pepper, particularly if it Avas a package with a shaker top attached, undoubtedly was very

commonly deceived. Now, according to a strict interpretation of

this particular clause of the law, together with the exemptions in

the regulations, we could not do very much about the situation.

There was no misleading statement on the labels, since they were not

branded at all because they were exempt. To rectify this, we have
150 BUREAU OF STANDABDS,

Avritten a new regulation reducing the exemption from 2 ounces to one-half an ounce; so, such packages nuist now be marked if they

contain over one-half an ounce.

This, however, does not help the situation very much. The at- torneys feel that there is no language in our law that will prevent

.spice grinders from putting onfe-half ounce of spice into a 2 or 4 ounce package, even though the package is only a third full, or less, provided they brand it correctly. The average buyer of an article does not know what the relation of the volume to the weight is. The woman does not know, when she buys a small package of spice,

whether it would weigh 2 ounces if full or only one-half an ounce. She sees only the outside of the package, and she buys a slack-filled package under the impression that she is getting an old-style full package. It seems very difficult to deal with that particular fraud,

which has been, and is at the present time, not entirely eliminated.

The attorneys hold that we have no real basis of prosecution under

the language of the act. The weight is correctly stated. The deception is in. putting a stated quantity into an abnormally large package ; yet the average woman buys it by the size of the package and if

it is a shaker top, she can not open it, and therefore, as a rule, she never finds out that she has bought a slack-filled package.

Apparently there is nothing that we can do with that particular

situation under the existing language of our law. We did believe

that we could get the shippers of such packages under the provisions

of the food and drugs act, which requires that food shall be deemed to be misbranded if it bear any false or misleading design or device.

Unfortunately, the word " bear " being used, it seems necessary to interpret it as something on the package, and not the package itself. At least we have run into this particular snag when the matter has

been put up to various United States attorneys. A very similar

situation exists in the case of canned goods. You can not tell until

you open the can whether you are getting a full can or a partly

empty one; and the statement of weight on the label of the can means very little to the consumer. The average woman gauges the

quantity of the tomatoes by the size of the can. She will not dis- tinguish between two cans of equal size containing different quantities' of food unless she carefully examines the label. These are conditions that do not exist in actual practice. We have here just

exactly the same difficulty to meet as in tlae case of slack-filled spice

packages.

We have been able to get at some of these frauds under a clause of

the law which has nothing to do with net weight. We have a provision in the food and drugs act that articles are adulterated if any

article has been substituted in whole or in part for the article in question in a manner whereby the qiiality of the package is lowered.

Now, in the case of most canned goods, they complete the filling of

the can with a solution of sugar and brine. The can is filled with

peas, for instance, and then the interstices between the peas are filled with this solution. They fill the can completely with liquid, because

when it is not completely filled the food in the can can not be easily

sterilized and it may spoil through scorching. You must have the

liquid there so that the heat may have something to conduct it through into the middle of the can, and sterilize it completely.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 151

Therefoi-e, if we find a can of peas that does not contain the proper

amount of peas, but on which the weight is correctly stated, we do

not charge that the net-weight amendment has been violated, but that

the article is adulterated, narnelj^, sweetened brine has been substituted in part for the peas. We have prosecuted a very large number

of cases which are essentially short-weight cases under that clause of

the act which in itself has nothing to do with the short weight. This

type of prosecution I did not include in my compilation of cases when I stated that we were prosecuting at the rate of about 1,000

cases a year at the present time.

Now, that is all very well when you are dealing with canned peas

or tomatoes where they are obliged to put in the water to preserve

the goods ; but there are some goods that are not put up in that way.

For example, shrimp may be packed in brine, and when there are not

enough shrimp in the can to comfortably fill it, we can proceed, and

have proceeded, in a considerably number of cases, in the same way

we proceed against watered tomatoes or peas with large quantities of

brine. But it also hapens that shrimp are put up without brine hy

a special process. It is obvious that in that case we could not get

very far along in court, if the weight of shrimp in the can was cor- rectly stated, by alleging that the article was adulterated in that it purported to contain shrimp, but that air had been substituted. So,

this roundabout method of getting at slack filling through charging

adulteration, while it helped us considerably, has not enabled us to deal with all the packages in which short weighing is practiced.

Of course, this canned-goods matter presents a great many diffi- culties of a technical nature. In the first place, we have to determine

how many peas, or how many beans, or how many pitted cherries,

for example, ought to go into each type of the sizes of cans for that

particular article. Fruits and vegetables vary widely in their composition. They

\a,ry widely, therefore, in their weight per unit volume, and they also shrmk in weight in the can during the process of packing, to a greater or less degree. You can not say that the can has to be filled as full of peas as is possible before being sealed and sterilized, be- cause if the peas are rather mature they will absorb water, swell,

and open the can. Moreover, you will have a soft mush in the can which looks like a thick pulp, and you have got an article which is not merchantable, an article the public will not accept. There has to be in each such can that is put up a certain amount of head space to allow for the readjustment in volume of the material which takes

place in packing, and this head space must be sufficient so that the

article will be one which is satisfactory. That does not always mean

that the can is to be completely filled. On the contrary, this practice

is apt to lead to the rejection of the pack. I well remember a case

in which we were called in to arbitrate, in a sense. One of the State

food commissioners had caused to be libelled a lai-ge shipment of

sweet potatoes on the charge that it consisted in the main of decomposed products. The charge \ was made because the cans _ were

swelled. " Swells " are ordinarily produced by fermentation in the can because of imperfect sterilization or leaking cans, leading to the

development of gas. When we came to look into the case, we found

that what had happened was that the canner had overfilled his cans.
152 BUREAU or STANDARDS.

had put more sweet potatoes in the cans than Avas proper, and in the

process of cooking the swelling of the sweet potatoes caused the ends

of the cans to bulge. They were perfectly good and satisfactory

sweet potatoes, but were not merchantable because the average consuraer, knowing that the swelled can is usually an unsatisfactory one, can not distinguish between the bulging due to overfilling and bulging due to spoilage and fermentation.

You would think offhand that a given size can would hold more of

little fine French peas, than of large uiature peas. You would think that

the intei'stices between the small peas would be less than they are between the large peas. Actual experiments show that it is not the

case at all. While the small peas can be crowded into a smaller

volume, their specific-gravity weight is so nearly identical with that

of the brine in which they are canned that they do not actually crowd

themselves together in commercial practice to the same extent that

the larger and heavier peas do, so that actually you are getting a heavier weight of mature peas into a given-size can. Also, as I have just indicated, the specific gravity or density of the small pea is different from that of the more mature one. That meant that the

Bureau of Chemistry had to undertake, and is just completing after

several years' work, a yevj extensive, and, I may say, expensive, in- vestigation of the proper fill of the different articles that go into cans

for food purposes. We have to go into commercial plants and actually pack under commerical conditions known weights of a large

variety of these different articles. Then they have to be stored, be- cause it is a fact that the weight of the solid fruit in the can, the " cut- out weight," as the trade calls it, will continue to change for months

as the water in the fruit diffuses. x\lso they have to be shipped

around the coimtry under commercial conditions, because a pack of

peas originally satisfactory may arrive after shipment in an absolutely unmerchantable condition because of having been overfilled.

So, we put up thousands of cans of a large variety of products in all sections of the country and ship them from place to place. Then

we call in the best experts in the trade, and our own experts also, and

at stated intervals after the pack we open them, the final opening

being one year after the packing. Of course, we know just exactly

how much was in each can. Then the experts, who were the cannedgoods buyers of the great wholesale grocery houses, grade the cans with reference to fill. They grade certain cans as slack, certain cans

as satisfactory, certain cans as ideal, and certain others as overfilled. They did not know how much went into them, but it was strange how

uniformly they check each other. Some of the peo]3le avIio have been

making a practice of handling slack cans practically convict themselves when they are judging samples of that kind.

On the basis of these findings, which are really based on the judgment of the trade, as well as our own, we are publishing what we believe

to be the proper fill for the various sizes and types of cans for the

various kinds of goods. We have already published these data on

cove oysters, shrimp, pitted cherries, beans, string beans, peas, and

several other articles, and we expect to get the full line out and published for the information of the trade a month ahead of the packing season for each class of fruits and vegetables this year, so that

I he trade will have a month's notice of the figures.

*
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 153

The trade in genei'al has cooperated with us in this particular matter exceedingly well, and they are adopting, and have been adopting

the standard fills Avhich we are proposing as their standard for their

commercial transactions. We have already standardized a number

of food packages, even though under the net-weight clause of the

food and drugs act we might not be able to prosecute a man for slack

filling, and wc have been getting cooperation from the industry along

these lines. The situation, as you see, with reference to these slack-filled packages is really an anomalous one. We are doing a thing that was in- tended to be done under one clause of the law, so far as we can do it at all, under an entirely different clause. We are at the present mo- ment preparing an amendment to the food and drugs act which will

be presented to Congress within a very few days. We are gomg to ask Congress to amend the food and drugs act so as to give us direct

power to suppress these practices of slack filling. We have suc- ceeded in cutting it down very considerably, but not in suppressing

all lines as we ought. I do not know whether Congress will at this

time find an opportunity to consider and pass such an amendment, hut

the fact that the packer is given an opportunity^ to slack fill a package, or put in a false bottom, or leave an unfair amount of head

space, providing he declares correctly on the label how much food is in the package, is a very important and a very serious situation, because, the average consumer does not know how much the food should

weigh. They buy their food in package form by the size of the

package, and our experience is that the declaration of the label on

the outside does not prevent imposition on the consumer. It shows

only if he has got two packages side by side for comparison, one of

which is honestly filled and the other not and both with the correct weight stated. That very rarely happens.

Of course, you gentlemen recall that our act has jurisdiction over

only interstate shipments. The violation of this law is not, technically speaking, in the adulteration or misbranding of food. The

violation is the shipment of such misbranded or adulterated packages in interstate commerce. The crime is committed, if crime be

committed, at the time when the goods are shipped or offered for

shipment in interstate commerce. It therefoi*e becomes incumbent

upon us when we make a case for violations of the net-weight amendment to prove that the goods were in violation of the law at the time

they were offered for shipment or shipped in interstate commerce. That means we can not consider, so far as our law is concerned,

shrinkage occurring after shipment. Shrinkage before offering in

interstate commex'ce is no excuse imder our law, but shrinkage after

shipment constitutes a defense. Therefore, it is exceedingly important that you and the Bureau of Chemistry cooperate completely

in this matter. It is bej ond our power to protect the ultimate con- sumer from being taken advantage of because of this shrinkage.

That is your job, not ours. We wish it were, but it is not. However,

if our powers did extend to that point thei-e would not be any particular work for yon gentlemen to do in this pai-ticnlar line. Now, the fact that we have to deal with the condition of the goods

when they were offered for interstate shipment or actually shipped

makes our problem a great deal more difficult than your problem.

Yon have to make sure that when a man buj^s a pound of cheese he
154 BUREAU OF STANDARDS.

gets a pound of cheese. We can not be present at the shipment of

all the goods that go into interstate commerce. We find that a shipment of cheese which has been on the road a month is short weight.

We can not charge that that shipment constituted a violation of our law unless we can prove that the cheese must have been short

weight when it entered into interstate conxmerce. This means that

the Bureau of Chemistry, in addition to making such investigations

as these slack-filled investigations for canned goods, has found it necessai-y to make a great many investigations of shriakage of such

articles as cheese, macaroni, fruit, and vegetables. A characteristic

example is an investigation that we made last summer of the shipment of grapes from a certain section of western New York to other

parts of the country. Our inspectors weighed the grapes and

measured the baskets as they arrived, and we found very shortly

that there was a violation of the standard basket law. Of course, we reported this to the Bureau of Markets, which has charge of the

enforcement of that law, and a prosecution resulted, but we also

thought there should be a prosecution under the food and dnig law,

that the shipper's in question should be punished under that act. We

were immediately confronted with the question of what is the shrinkage of grapes in certain shipments, as from western New York to Baltimore or to New York City. That necessitated that we send a group of men into western New York who would actually put up

grapes in baskets at different times of the season, at different stages

of maturity, because the ripe grapes will shrink more than the green

ones, and determine the minimum and maximum shrinkage for

grapes recently packed and recently shipped. We have that data now. Last season we could only make a few prosecutions for violations because we had only sufficient evidence for extreme cases. Last

year we obtained the data which will enable us to prosecute people

for shoi-t weight on shipments of grapes. The same is true of cheese

and of macaroni, and of a whole series of other products. All that

information is, so far as we have it completed, at the service and

disposal of you gentlemen if you are interested or if it will be of

any service to you. We have hesitated to publish a great deal of it, because we have not wanted to give to the food shippers information

which might enable them to sail closer to the line than probably they can sail at the present time. Our experience in the enforcement of

the food and drug act is that establishing tolerances and standards,

and making them publicly known, often has very bad effects. I can

cite as an instance the case of black pepper. It has nothing to do

with this net-weight matter, but it illustrates what I mean. Many

years ago we had in the Department of Agriculture a national foodstandai^ds commission, created by act of Congress.

Among other things that commission established standards for

ground black pepper. Their standards consisted in declaring what was pepper and what were its limits of composition. Now, of course, they had to take the position that any kind of pepper which was pure was entitled to be called pepper. Some years ago, the pepper crop

in Malaysia, Java, and Sumatra had a bad year, and during that

bad year there were perhaps 20 per cent of berries that did not plump

out. We have the same thing in wheat; in some localities wheat

does not plump out; it shrivels and is inferior. In these cases the

pepper berries are hollow and have no inside, and consist in the main
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 155

of shells. If you grind that kind of pepper berries there is a large

amount of shell, and the crude fiber content is high. It is honest

pepper, but poor quality. It is not adulterated pepper; it is the

ordinary run of pepper for that year, and obviously a standard made

for pepper must permit that particular pepper to be marketed. Yet

such pepper may contain 15 per cent crude fiber, the material that

characterizes the shell. What has been the result? Pepper shells are on the market in Europe, being obtained when white pepper,

which is hulled black pepper, is manufactured. Of course, the shells are worth nothing, and can be bought for from a fraction of a cent a pound to 2 cents a pound delivered in this country. For years

certain manufacturers who employed good chemists have been getting batches of fine-bloom, high-ground pepper containing only 9 per cent crude pepper. They grind in with this perhaps 6 per cent of the pepper shells which they have bought, and produce an article containing not more than the limit of 16 per cent of crude pepper,

which the food standards committee has held is the maximum content that any pepper ever has. So, you will see why we are very

loath to publish numerical figures, because they are apt to give the

crooked man a formula for conducting his crooked practices within

the limit and range within which they may be conducted. If some

of you are impatient that we have not piiblished anything in the line

of tolerances, that information is at your service as officers; but we

do not like to put it at the service of Tom, Dick, and Harrj, who may

put it to dishonest uses. I think that covers, Mr. Fischer, some of the things I wanted to present. If I seem to present mainly matters of difficulty, that is, I think, what almost everybody experiences when they have a new

law to enforce which is, very complex in its bearings. The diffi- culties in the beginning loom up prominently, but Ave are going on at what seems to us a pretty good gait, and have made great progress

during the last two years.

DISCUSSION OF ABOVE SUBJECT.

Mr. Schwartz. Mr. Chairman, will Dr. Alsberg submit to some

questions at this time. We want to get a little discussion on this

container law. I was much interested in the Doctor's talk and in

his asking for the cooperation of the several departments of weights

and measures, but he does not give us any solution as to how we are going to cooperate. In our State we have practically adopted the

pure-food net-container act and made it a part of the State legislation of New Jersey, and we have met with some difficulties in it, as Dr. Alsberg has in his investigations. One of the things in which

at this time we are very much interested, and I think Pennsylvania is also, is that relating to the measuring of cans. Section (g) provides that " the quantity of the contents shall be stated in terms of

weight or measure unless the package be marked by numerical

count, and such numerical count gives accurate information as to the

quantity of the food in the package."

Coming down to (I), "when a package is not required by paragraph (g) to be marked in terms of either weight or measure, and

the units of food therein are six or less, it shall, for the purpose of
156 BUREAU OF STANDARDS.

this regulation, be deemed ' small ' and shall be exempt from marking in terms of numerical count." Of course, these regulations, I find, were issued by 3' our department.

Dr. AxiSBERG. By the three departments.

Mr. Schwartz. By the three secretaries. In Philadelphia, Pa.,

and in New Jersey we have two baking concerns that put up

calces in small packfiges and place these in a large carton, which

is sealed. Sometimes on the botton of the carton the aA-erage

Aveight is stated as 2 poimds. Now, under your regulations as I understand them, since the weight must be conspicuously placed it should not be on the bottom of the carton. Now, when the original

container is opened and the flap turned up, there is seen an advertisement of the brand. In the one case there are five small packages

wrapped and not marked, each weighing 4 ounces or more. Sometimes the average Aveight of that package is placed on the bottom.

In the other case, they have six cakes to the package weighing about

30 ounces. The question I want to ask the Doctor is. What regulation api:>lies, if anj^? Ought not each small package be marked

Avith its net weight?

Dr. Alsberg. You have asked me two ditferent questions, and I

Avill take them up separately. In the first place, yon want to knoAV

how you can cooperate with us. Well, Avhen I came into the bureau

I found that there was no machinery for cooperation between State

and municipal officials. After casting around for a while to determine how we could get some cooperation I decided that the only

Avay to get anything done right was to get a new man and make

that his job. So. we established in the bureau an office of cooperation, and I called to take charge of that office of cooperation Mr. J. G. Abbott, then the State food commissioner of the State of Texas,

and an efficient one. He came to us four or five years ago, and it is his job to see that every food or drug officer or sealer of weights

and measures who wants help or information gets it. That is his

sole job, going around and visiting them and helping them in their

difficulties and keeping them in touch with us. Ever}^ such inqiiiry that comes to the bureau, no matter Avhat its subject matter may be, goes to Mr. Abbott. It does not go to the

man who has charge of the subject. He or one of his assistants

gets the infonnation and handles it himself. The best way of getting

in touch with the bureau is to get in touch with Mr. Abbott. Another Avay is keeping in touch with our local offices. I do not know

whether in the State of New Jersey the net weight Avoi'k is tied up

with the work of the food and drug commissioner.

Mr. ScHAVARTz. No; in the next year after the act was originally

passed (in 1915-16) the act was attached to our weights and

measures law.

Dr. Alsberg. Then, in your case the matter is relatively simple.

I do not know whether the gentlemen who haA-e to do Avit'h the en- forcement of the local laws know that the Bureau of Chemistry

maintains 18 branch offices which have to do with the enforcement

of the food and drugs act. We have, in addition to that, a number

of research laboratories scattered over the country. We have 18

branch offices whose sole job it is to enforce this law in their respec-
TWELFTH ANNUAL, CONFERENCE ON WEIGHTS AND MEASURES, 157

tive districts. Some of these branches are located at Boston, New

York, Philadelphia, Baltimore, Buffalo, Cincinnati, Chicago, Minneapolis, St. Louis, New Orleans, Savannah, Denver, Seattle, and San

Francisco and in Porto Eico. The men in charge at these stations

have authority and instrvictions to cooperate with all local officials. In your particular case the simplest thing to do is to get in touch

with the man in charge in New York or in Philadelphia, and work

with him. They can notify you of interstate shipments in violation of the law that are going into your territory and will be glad

of information concerning shipments out of your territory into some other State that are in violation of the law. You will find

the New York laboratory situated in the United States Appraisers'

Stores, Washington and Christopher Streets, and the Philadelphia

headquarters is in the old customhouse on Front Street. Within

easy distance of pretty nearly every one of you there is a branch

office of the Bureau of Chemistry, with a man who has instructions

to cooperate with the local people and to assist them in every way

he can, and that is the way in which cooperation can be handled.

So far as the marking of the package of food is concerned, that is really a shipping case which contains inside of it a number of smaller

packages. We have held that under the provisions of the law a state- ment on the outside of the case or package of the number of units in- side the package is no indication of the quantity of the contents of

food inside that package, except in that particular instance in which

the name of the article implies a certain size. We have not required

or allowed, for example, a declaration that the contents of a box of

apples were 160 apples without any further description. We have

insisted that such a shipping case be labeled 1^ bushels, or whatever it may be, or so many pounds ; but if they want to say 150 apples of an

average diameter of 2^ inches, if that happened to be the size, it would

be all right. But to say 150 apples obviously does not tell you what

measure of food there is in the package and therefore does not comply with the requirements that the quantity of contents be stated. In the same way we have not permitted—and nobody has tested our refusal in court—a man to put into a shipping case a lot of small

packages and label that shipping case as containing 100 packages of

cake. If he wants to label them by numerical count he can say 25

pounds of cake, or 25 one-pound packages of cake, and we require in a case of that kind that the individual 1-pound packages also be

marked. That is the way we have handled that particular situation.

Mr. Schwartz. Another question: Suppose the packages of food

are six or less. Could these people put in five packages weighing 4

ouncafe or over and leave the individual packages unmarked if the

carton is marked with the total weight ? Dr. Alsberg. Have you an exemption size of 4 ounces ? Mr. Schwartz. No ; we have your exemption.

Dr. Alsberg. We have lowered that to one-half ounce. The in- dividual package is not exempted.

(At this point, Mr. Webster, of New Hampshire, assumed the

chair.)

Mr. MiKESELL. I would like to submit this label to Dr. Alsberg and

ask him if this marking is in violation of law. Does that comply

with the regulations of the board?
158 BUREAU OF STANDAEDS.

(The label referred to bore the following wording in 8-point type,

under the word " Directions "

:) Guaranteed genuine and unadulaterated. No preservatives or artificial color- ing used. Net weight, IJ pounds, equals about 19 pounds fresh rhubarb. Soak rhubarb in cold water, etc. The Acting Chairman. The expression of net weight is a part of

the advertisement.

Dr. Alsberg, We should not consider that as plain and conspicuous.

Mr. MiKESEii,. Then it is a violation.

Dr. Alsbekg. I should say it is a matter of opinion what is plain

and conspicuous. We think the statement of the quantity of contents should be made by itself. We have fixed no definite size of

type or definite color, but the language is that the label shall be

plain and conspicuous. When the net-weight requirement went into

effect, there were some bottles on the market which had been packed

without being marked. They put a sticker or label around the neck

printed in large letters, giving the contents. That certainly was more conspicuous than if they had it printed on the principal label. Mr. MiKESELL. In your judgment, that is not a proper net-weight

marking?

Dr. Alsbekg. We would hold it a violation of the law because of

its not being plain and conspicuous.

Mr. MiKESELL. Should it be prosecuted, and how?

Dr. Alsberg. Any United States attorney or any local attorney

could prosecute. We could prosecute this particular case if it was

shipped in interstate commerce. Mr. MiKESELL. In the course of your address you spoke of standard containers for the canning of fruits and vegetables. Are there

certain containers which are standard?

Dr. Alsberg. I meant standard in trade. There are no standards

fixed by law for packages or cans. That is a trade question.

Mr. MiKESELL. Your department issues a regulatory bulletin.

Would there be any objection to your department sending that bulletin to all these gentlemen ? Dr. Alsberg. No objection, and we will be glad to do that or anything else we can to assist you or to have you assist us. Mr. MiKESELL. I have been on the job in my district five or six years, and during the whole of that time I have received your bulletin and fiind it of inestimable value, and I think all these gentlemen

would find it so. Dr. Alsberg. If anybody will send in his name and address^ why,

of course, he would be put on the mailing list for all our material

which might be of interest to him. You gentlemen may change your

particular jobs, come into office and go out of office, but we have not

been able to keep track of you.

Mr. MiKESELL. If you please, I suggest that the bulletins be addressed to the department and not to the individvial; then it would

not be necessary to make any change whatever. As long as the department existed the bulletin would be delivered to the commissioner

or sealer. Dr. Alsberg. We carry such a list of all the food officials. I wonder whether there would be any object in adding to that list the names
TWELFTH ANNUAL CONFEEENCE ON WEIGHTS AND MEASURES. 159

of all these men. We have this list of food commissioners, State

commissioners, and inspectors of foods and drugs, and keep it up to

date. Probably we really ought to add to it the sealers of weights

and measures, as they all have to do with food.

Mr. TiGHE. Dr. Alsberg said that he conferred with Mr. Fischer

and Mr. Holbrook with reference to wrapped meats and that all three

gentlemen were unable to arrive at any definite conclusion as to whether or not wrapped meats came within the meaning of the words

" in package form."

Dr. AxsBEKG. No ; my reference in my opening remarks was to the

original regulations. The act required that the Secretary of the

Treasury, the Secretary of Agriculture, and the Secretary of Commerce should draft appropriate rules and regulations for the en- forcement of the act. The Secretary of Agriculture delegated me to represent him, the Secretary of Commerce delegated Mr. Fischer,

and the Secretary of the Treasury delegated Mr. Halstead, head of

the Division of Customs in the Treasury Department, which, of

course, is interested in weights and measures from the standpoint of

collecting duties on imported articles, to represent him. The three,

with the assistance of their respective solicitors, prepared the original draft, which went to the three secretaries for their approval.

At that time the law was not yet operative and no question in refer- ence to ham or bacon was in their minds at that time.

Mr. TiGHE. May I ask further if in this power to regulate slackfilled packages you contemplate incorporating the power to regulate

the sale of wrapped meats and a statutory definition of the words

"in package form"? Does the bureau contemplate incorporating

that?

Dr. Alsberg. We were not contemplating a definition of a package

because we are at a loss to know what definition would cover all cases without including some cases that obviously ought not to be

included. We were not proposing at this time to deal with anything

except the slack-filled cases. Mr. TiGHE. Do you not think. Dr. Alsberg, that the abominable

practice of selling wrapped meat is such that there should be some

definition of the package ? Dr. Alsberg. If we could get a statutory definition of what a package is, I should be very napj)y, indeed, because it would immensely simplify the operation of the bureau.

Mr. TiGHE. Could not your bureau specify that in its regulations

just as was done in New York.

Dr. Alsberg. The attorneys have held that we have not been given

the power to do that. I have no power to say what a package is. We can not make a thing a package just by saying so. Mr. TiGHE. It would appear to me that the commodity known as wrapped meats has a practical exemption from the regulations of

the Bureau of Chemistry of the Department of Agriculture in view

of the fact that you are unable to define a package in relation to the

sale of that particular commodity. That is what this conference is very deeply interested in. Dr. Alsberg. I am also deeply interested.

Mr. Webster. Mr. Fischer has asked me to serve as temporally

chairman. It was voted some time ago to resolve ourselves into an
160 BUREAU OF STANDARDS.

open forum after Dr. Alsberg had completed his address, and if that

is the wish of the conference we shall proceed along these lines. Mr. Stewaet. I would like to have two things brought out. One

of them is, I would like to have the resolution that was adopted here

this afternoon read, so the Doctor could hear it. Then I would ask

this question : I understand the district attorney will assist us in the

preparation of these cases. We have had two carloads of tomatoes

tied up in the city of Huntington for two years, marked 2 pounds

net, shipped from the State of Virginia into the State of West Virginia. They do contain about li pounds net. The case was turned

over to the district attorney in the city of Htmtington at the time. I have visited him a number of times since and there has been no

action taken.

Dr. Al,sberg. Local attorney or United States attorney ? Mr. Stewart. The United States district attorney.

Dr. Alsberg. If you will give me the data of that case—who

libeled these tomatoes?

Mr. Stewart. I am not able to—I do not have the data here, but

the city sealer held them up and turned the case over to me as State inspector. They are still tied up, and I do not propose to allow them to be sold. I certainly would like to have^some one take some action.

Dr. Alsberg. If you will write me a letter, giving me the data, I will see what can be done about it. As far as I know, the Bureau

of Chemistry has no knowledge of that particular case. There may

be something in the files. You have never taken it up with us?

Mr. Stewart. No, sir; we turned it over to the United States

authorities and they promised to do something.

Mr. Irvine. Mr. Chairman and gentlemen of the convention, one of the questions that is paramount with me is the question of

standards for food packages. This is a question that has been dis- cussed considerably out West and one that I believe every consumer

in this land is interested in. This is one of the questions that I was

requested to bring up here or to take part in the discussion if dis- cussion was had. I would feel that I had not done my full duty

should I not mention it or take some part in this important dis- cussion. It seems to me that every part of the discussion here

confirms the idea we have out there that food packages should be

standardized. The Doctor has told us about the packing of spices

in cans that, perhaps are made to contain 4 ounces, but which contain only an ounce or 2 ounces. He says this is probably done by the

honest manufacturers, the packers, because of the increased cost of

the product. I hardly agree with him relative to the honesty of the

packers. If the packers who do that were honest, they would cut down the size of the package, so they would not mislead the housewife when she purchases the package.

Now, you find packages of food products marked 11, 12, and 13 ounces that seem large enough to contain a full poimd. You find

packages marked 1 pound 12 ounces or 1 pound 10 ounces that would

contain fully 2 pounds. It seems to me that if this conference will

go on record as favoring the standardization of packages of food

products and can furnish sufficient punch to force some legislation

along that line, we will be doing the people a great service. The in-
TWEKFTH AlifNTJAL CONFEEENCE ON WEIGHTS AED MEASUKES. 161

clination on the part of the packers to trim down the size of the package for the purpose of profiteering seems to me to be so great that it is a question which concerns every person interested in weights and

measures work. I think we should go further than that. We should

require that mill products be packed in 100-pound packages and subdivisions of 100 pounds, and even further than that, and require

that a moisture content be established and the shrinkage determined

according to the proper percentage of moisture in the mill product

when it is put up under favorable circumstances. Some time ago I discovered 97 bales of corn meal each containing 10 bags marked 9

pounds, and practically all of them were 7| per cent short. A few

bales ran 5^ per cent short. I got into communication with the

Federal representative in Denver, and we made an investigation,

weighing up a large quantity of it and obtaining a good average of

the shipment. It was his opinion that there was a great amount of

shrinkage. I turned it over to him, and a month later learned that

he had submitted the question to Washington and that the corn meal

had been turned loose because they could not prosecute.

It seems to me that the standardization of food packages is a proper subject for this conference to take up, and I nope that the

resolutions committee will draw* up a resolution memorializing Congress for the enactment of a law to standardize packages of food

products.^

Mr. Stewart. You will note on the program a paper on "Mine

Scales," and I would like to see this paper before this convention.

The Acting Chairman. If that is the sense of the conference, we

will be glad to hear from Mr. Harrison.

MINE SCALES AND MINE-SCALE INVESTIGATION, BY M. J. J. HAERISON, BUREAU OF STANDARDS.

The Bureau of Standards commenced the work of testing mine

scales about one and a half years ago, when the State's attorney of

Allegany County, Md., came down here with a personal appeal to this

Bureau to come up and settle some disputes m his county pending

at that time. He said the situation existing was a very critical one and that there was nobody there available who could settle it in any

way. So Mr. Holbrook and another man from the Bureau went up

and made an investigation. As a result of what they found, the next

Congress gave us an appropriation for the investigation of mine

scales and weights, the methods of using and determining them, and

the general conditions existing in regard to the accuracy of weights

and measures, at the mines. We at once started out to get equipment to take up this work. We found that the most practical way of

doing it was by employing motor trucks. Consequently, we procured

two motor trucks, equipped them, and started out. Up to the present

time we have made additional inspections in Maryland and carried

the investigation into five other States. We have not as yet made any detailed study of the conditions in

any given State, simply because we have not had the opportunity.

All you gentlemen will realize that to make a detailed investigation

of even one State takes a very considerable time, and we have really

' See resolution on' p. 207. 155530—20 11
162 BUREAU OF STANDAEDS.

just touched the high spots so far. The places visited and the cases investigated have been selected on the strength of information supplied to the Bui'eau inspectors or to the State or county officials who

passed it on to the Bureau, or in other cases upon request made by

miners' organizations or by coal companies. There have been about

200 individual cases investigated; but, as I said before, in only one

instance has any return trip to a district been made. That was in

Maryland. When we got back there the second time, we found a

very decided improvement in conditions. On the first inspection

trip the average error of all the scales tested was about 6 per cent

in favor of the operators. When we went back there, we found that

everybody along the creek had been hiring scale men in the meantime.

Nobody told them to do it; they just got out and did it. During the

second inspection we selected scales in exactly the same way that we

selected them the first time, yet the average error in this case was only

seventeenth-hundredths of 1 per cent, as contrasted with the former

error of 6 per cent. I have been asked by one or two of the gentlemen here, interested

in this question, to outline the methods used in testing tnese scales. The equipment that we have in each truck consists of a ton of 50- pound test weights, a smaller number of standard counterpoise

weights, a balance, and other necessary equipment.

When I say a ton of weights, I mean the ton used in the State in

which we are working. If we are working in a State where the ton

of 2,240 pounds is used, then we use this amount of weights; if in a

State where the 2,000-pound ton is employed, then we use 2,000

pounds. We also test scales with loads of one-fourth ton and one- half ton. The reason we use 1 ton of weights is because .it is not

practicable, so far as we have found, to carry a larger quantity;

if it were, we would use a larger quantity.

We test the beam indication, each counterpoise weight, the multiplication of the scale, and the sensibility reciprocal at various loads.

We take the attitude in testing scales that you should test it to ca- pacity load as nearly as possible. When you have a 5-ton scale, however, a test at capacity would require the employment of 5 tons of

test weights and hauling 5 tons of test weights around the country is not a simple proposition. A great many of the mine scales of the

type upon which we have been working are locally tested with two

50-pound weights, or with four or five or occasionally with ten 50- pound weights. We do not believe that you can get a representative

test of the performance of any mine scale by using less than 2,000

pounds. In effect we actually use more than 2,000 pounds, since after

we have gone up to 2,000 pounds we take a mine car, determine its weight, place all our test weights in it, and then use this as a test load in different positions on the platform. This method is employed

in the case of a platform scale, and about one-half of the mine scales so far encountered have been of this type. In some cases we have

gone further than that and substituted for the test weights in the car a quantity of coal, or car wheels, or some other heavy material, building up to the same weight. Knowing the weight of this load, we then

add our test weights to it. Our known load will thus run up to 2J

tons, perhaps, which is a good working load for most of these scales. The only objection to this method is that you must be very careful in
TWELFTH ANNUAL CONFEBENCE ON WEIGHTS AND MEASURES. 163

taking your observations while making these different substitutions,

if errors are to be avoided. The accuracy of this method depends also

upon the sensitiveness of the scale. If very insensitive, it is of no

use to do it at all, because the sensitivity of the scale is the measure of

how close you can weigh with it, even if it is correct in every other

way.

We have found several cases where the scales were almost right

except that they showed no evidence of ever being intelligently

balanced. The out-of-balance condition was anywhere from 10

up to 600 pounds. It may seem absurd on the face of it to say a

scale 600 pounds out of balance was in use, but that was the actual

condition in one place the first time the Bureau men went into

Maryland. In this case the scale was equipped with a spring dial

attached to the end of the beam. They balanced the scale very

carefully every morning, but when they balanced it they took off the counterpoise hanger from the end of the beam. After the scale was carefully balanced they hung that on again, thereby throwing

the scale out of balance by the weight of that counterpoise, which

represented 600 pounds. Then they used the scale in that way.

They knew something was wrong with it, because most of those

weighmasters can judge the weight of a carload of coal with fair

accuracy, but they did not know what the trouble was in this case. So they were accustomed to allow the cars to come down on the

scale with considerable speed and impact and as the needle responded

they would take the farthest point it reached and call that the

weight of the car. Of course, that varied with the speed of the

car and the particular way in which it hit the scale. We have issued several communications on the maintenance of

mine scales and we are preparing a set of specifications for the construction or manufacture and the installation of mine scales. We

hope to get this out very soon now, and we hope for considerable

cooperation from the manufacturers and from the people who are buying the scales. I have not as yet said anything about the tolerances which we

apply to these mine scales. The tolerance for platform scales as given in Bureau of Standards Circular No. 61 is two-tenths of 1,

per cent, or 2 pounds in 1,000 pounds. That is the tolerance which

is applied to railroad-track scales and to wagon scales and platform scales in general.

Now, there is no fundamental difference in the construction of

the lever system of mine scales and wagon scales. However, there

is a fundamental difference in the uses to which they are put. It seems to me that what is being bought over a mine scale is labor. What is being bought over the railroad-track scale on which coal is weighed is the coal itself. The price of labor to mine a given quantity of coal is very much less than the price of the coal itself, and

for that reason we feel that the tolerance on the mine scale need not

be as small as the tolerance allowed on a railroad-track scale. We

have felt that a tolerance of four-tenths of 1 per cent, or double

the tolerance applied to the railroad-track scale, is a proper toler- ance for the mine scale. Another problem with which we have had to contend and to which we have given considerable attention is the tare weights of
164 BXJREAtJ STANDARDS.

the cars used in the case of the platform mine scales. There are a number of States that have attempted to govern the question of the

tare weight of the mine cars by a legislative act. I would not say

that any of them have been very successful in doing that. There

is only one State, so far as I know, whose law says that the weight

of each car shall be used in determining the amount of coal in the

total load. In other words, this State requires the use of actual tare weights. It is the almost universal practice to use the average tare weight. Now, the usual manner of getting at that is for the people

concerned to weight about 10 per cent of their cars and call that an

average of all of them. This is absurd on the face of it, and we

have proved this in several instances. The view of the Bureau is strongly to the effect that the actual tare weight should be used

instead of the average tare weight. We have not found any advantage in the use of the average tare weight, except that using

the actual tare makes a little more work for the weighmaster, a

little more clerical work in between times when he is not weighing

anything. We have found some instances where theoretically the

scales were balanced to fit the weight of the average car used. I mean by that that the scale with the platform empty is out of bal- ance by the amount used as the average tare weight. The idea

is that when they run the car on and take a weight this is the

actual weight of the coal as indicated by that scale. As a matter of

fact we have not found a single instance where that practice was

employed in which they had the balance correct. They thought

they had, but it varied anywhere from 50 to 100 pounds from the

supposed balance, and. consequently, there was a constant error of

that much on every car of coal that was weighed on the scale. There are a number of points that come up along these lines, and

I have outlined a good many of those which are of more general

interest. I know that you want to proceed with other work; so I think I will close to let you do so.

DISCUSSION ON ABOVE PAPER. The Acting Chairman. I believe we go into open forum at this

point.

Mr. Fischer. I understood Mr. Harrison to say that the reason

for increasing the tolerance was the low price of the commodity,

but I think he overlooked the fact that on account of the rough conditions which exist we also find it impossible to require greater ac- curacy. It would have been impossible to maintain scales within

these small tolerances that we have for our other scales, anyway. As

a matter of information, I would like to have Mr. Harrison make a statement as to how the tolerance affects the wages. Have you made

that computation—the effect of the errors allowed on the actual

wages of the miners? My recollection is that it is a very small

matter. Mr. Harrison. I am very sorry to say that I have not these figures

with me, and I would not assume to give them offhand.

Mr. HoLBROOK. I think I can give them offhand. The average

amount paid for digging coal is about $1 a ton, 100 cents for 2,000

pounds, or 1 cent for each 20 pounds. The error per ton now allow-
TWELFTH ANlsTUAL CONFERENCE ON WEIGHTS AND MEASURES. 165

able is 8 pounds, and, therefore, it would seem to make a difference

in the wages of the miners of eight-twentieths or 0.4 of a cent per

ton ; less than half a cent per ton. Mr. MiKESELL. In reference to the Georges Creek field, am I to understand that the miners and operators work on a

" 50-50 " basis?

Anything past 50 pounds is credited as 100 pounds; anything less than 50 pounds is not credited at all. Mr. Harrison. That is almost universal, not only in the Georges

Creek field, but in almost all the other fields. Mr. MiKESEuCi. Naturally, they do not grasp that the accuracy of

the scale has anything to do with the 60-50 basis. If the scale is incorrect to the extent of 2 or 3 pounds, when the 50-pound point is reached, one side loses and the other side gains.

Mr. Harrison. They feel that a small error in the scale does not

make much difference; but this it not true. Suppose they have a 10-pound error in the scale and they are giving and taking on 50

pounds. Four-fifths of the time that error of 10 pounds in the scale would make absolutely no difference whatever in the weight that the

miner would get the credit for, but the other fifth of the time it would make a difference of five times the amount of the error. Because the 50 pounds is so much larger a quantity than the 10-pound

error, he does not pay much attention to the 10 pounds until the

matter is explained to him.

Mr. MiKESELL. I have in my hand a copy of a statistical report

that we fill out when making a test of a mine scale, also with it a card containing information given by the Bureau of Standards which

I have taken from some of their pamphlets. I have here another

slip with certain questions on it which is sent out in advance to each

coal company for the purpose of getting data on each scale. All the

companies readily fill these out and return them. Another card is filled out and left with the weighmaster advising him to let us know

when anything is wrong, or whether adjustments have been made.

When we get back in that section, the scale is retested. The reason we

leave this is for the purpose of getting the owner to readjust his

scales whenever anything goes wrong with it. Mr. Stewart. Mr. Harrison, we find in the mining districts scales having -a net weight and a gross weight beam ; that is, the upper beam

will be gross, the lower one net. They weigh the car to take the tare on the net-weight beam. They weigh the whole load on the gross

beam, thereby entangling the two. I want to know if you have found

anything of that sort? Mr. Harrison. We found some instances where, as you say, the car was weighed on the net-weight beam, the average tare set off on this

beam, and no more attention paid to it. The coal was weighed on the

gross-weight beam, and with counterpoise weights. Does that answer your question?

Mr. Stewart. No; my point is this: The beam is graduated to 1,000 pounds. The cars may weigh 2,200 pounds. The counterpoise

weights are all gross. They put on a counterpoise weight and then

complete the weighing on the net-weight beam, mixing the two sys- tems together.

Mr. Harrison. Mr. Stewart, it is my understanding that you use

the 2,240-pound ton.
166 BUEJBAU OF STANDARDS.

Mr. Stewart, It has been used until I had passed a recent act making it 2,000 pounds in the State of West Virginia.

Mr. Harrison. In that case you are all right, and in the other case

I do not know of any way to simplify the matter except by the use of net counterpoise weights, which are employed in many cases. Mr. Stewart. I understand that the same practice is being employed in Ohio and Pennsylvania.

The Acting Chairman. The chair notices that the secretary is in

the room and will be very glad to be relieved of his duties.

(At this i)oint, the secretary, Mr. L. A. Fischer, resumed the chair.)

ELECTION OF OEFICEBS.

Mr. Hanson. In view of the fact that a gi-eat many of the dele- gates will leave to-night, I have been asked by several if it would be

possible to have the election of officers this afternoon instead of to- morrow morning. Therefore, I ask you whether it is the wish of the

conference that we proceed with the election of officers at this time

instead of to-morrow. The committee on nominations is ready to

repoi-t.

The Acting Chairman. Do you make that as a motion?

Mr. Hanson. Yes, sir. (The motion was seconded and agreed to.)

Mr. Schwartz. Before the chairman of the committee reports, I would like to state the following recommendation of the committee

:

Your committee on nominations respectfully recommends that the

office of second vice president be created and that nominations for

this office be made from the floor. I introduce that as a recommendation of the committee.

Mr. Fine. I move you that the recommendation be accepted.

Mr. Goodwin. I second the motion.

The Acting Chairman. Gentlemen, you have heard the motion

that the office of second vice president be created. I think that that

is a good idea. We should not go too far in the creation of offices. (The motion was agreed to.)

REPORT OF COMMITTEE ON NOMINATIONS, PRESENTED BY A, W.

SCHWARTZ.

Your committee on nominations respectfully recommends the fol- lowing names for officers of the conference for the coming year

:

For president, S. W. Stratton; first vice president, Charles G.

Johnson; secretary, L. A. Fischer; treasurer, Frank Wanser. For

the executive committee, ex officio officers: W. F. Steinel, Charles C. Neale, W. T. White, W. F. Cluett, F. W. Tucker, F. L. Woodworth,

D. A. Gregg, H. A. Webster, T. F. Egan, J. M. Mote, Anton Eunbeck, T. L. Irvine, J. J. Holwell, T. F. Mahoney, E. W. Smith, G.

B. Stewart, F. G. Barnard, O. E. Mikesell.

Mr. MiKESELii. Is it in order to make a nomination for second

vice president?

The Acting Chairman. It seems to me we should dispose of the

regular nominations first. Mr. MiKESEUU We could dispose of them all at one time.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASUBES. 167

Dr, Eeichmann. Is there any particular number provided for on

the executive committee?

The Acting Chairman, I think there should be 17. Dr. Eeichmann. Is the executive committee increased over last year?

Mr. Hanson. The officers are understood to be members of the

executive committee; for that reason we arranged them geographically, so that there will be a representation throughout the United

States. Mr. HoLBROOK. There were 17 members of the executive committee, inclusive of the president and secretary. The treasurer and

the vice president have not been members of the executive committee

heretofore. That was provided for by a former resolution of the

conference.

The Acting Chairman. You say that that was done by resolution? I imagine we should rescind that action by a separate motion rather

than to do it automatically by electing this committee. However,

I have no choice in the matter myself. I will be very glad to enter- tain a motion as to how that matter shall be disposed of. Mr. Fine. Does it make any difference? We have no constitution or by-laws.

The Acting Chairman. We want to do things in an orderly way.

Mr. ScHOENTHAL. I think if the records of the last convention,

held at the Raleigh, were read it would show that this committee was increased from 15 to 18. Mr. Holrrook. There are now 23 names in nomination for the

executive committee. It was not increased up to this number. No

suggestion has been made that it was increased to this number.

Mr. J. T. TowNSEND. We had 17 on the committee last year, count- ing the president and secretary.

The Acting Chairman. Is it the wish of this conference that the

number be increased?

Dr. Eeichmann. I move that the previous resolution be rescinded

and the number increased to whatever the nominating committee

may report.

(The motion was seconded and agreed to.)

The Acting Chairman. Instead of saying "number reported,"

would it not be well to put in the definite number?

Dr. Eeichmann. I purposely worded it this way because I think

it bears on future conferences.

The Acting Chairman. All right, sir ; that seems to be agreeable.

You have before you the nominations of the committee on nominations. What is your pleasure in the matter?

(The nominations were written on the blackboard at the front of

the room by Mr. Holbrook.)

Mr. Brown. I move you that the recommendations of the committee on nominations be accepted as the wishes of this conference.

(The motion was seconded and agreed to.)

The Acting Chairman. Nominations are in order for second vice

president.

Mr. MiKESELL. I nominate for second vice president of the conference Mr. Thure Hanson, of Massachusetts,

Mr. Cltjett. I second the motion.
168 BUKBAU OF STANDABDS.

Mr. MiKESELL. I might make an explanation. I do this for this

purpose: Mr. Johnson, our first vice president, resides in the State

of California. He is not with us in this conference, although I' understand it was his intention to be here. Something might happen at the next conference that would prevent Mr. Johnson from

being here, and Dr. Stratton might be called away again, and,

Mr. Hanson being from the East, is almost sure to be here.

Mr. Barnard. It gives the great State of Michigan pleasure to second the nomination of Mr. Hanson, from the great Commonwealth

of Massachusetts.

Dr. Reichmann. I move the nominations be closed and that Mr.

Hanson be elected by acclamation.

The Acting Chairman. If that is agreeable to the wishes of the

conference they will signify it b}' rising.

(The motion was agreed to by a rising vote.)

Mr. Hanson. Mr. Chairman and gentlemen, I wish to thank you

for the honor conferred upon me. The Acting Chairman. I understand that the committee on reso- lutions is not 3'et ready to report. The paper on " Liquid-measuring

Pumps" is a rather long one, and there probably will be considerable discussion upon it. (A motion to adjourn was made and seconded.)

The Acting Chairman. It has been moved and seconded that we

adjourn.

(The motion was agreed to.)

(Accordingly, at 5.10 o'clock p. m., the conference adjourned to meet at 10 o'clock a. m., Saturday, May 24, 1919.)
SEVENTH SESSION (MORNING OF SATURDAY, MAY 24,

1919).

The conference reassembled at 10 o'clock a. m,, at the Bureau of

Standards, Mr. L. A. Fischer, secretary, presiding as chairman.

The Acting Chairman. Gentlemen of the conference, inasmuch

as you have a regular vice president present, I shall ask him to

step forward and take the chair.

Mr. Hanson. I prefer that you retain it. The machinery is well

oiled. The Acting Chairman. The machinery is at your disposal. Before we go on with the regular business we will have a telegram

from Ml'. Johnson, of California, read. It is as follows:

Sackamk!nio, Calif., May li), 1919. Dr. S. W. STRA'rroN

:

California pledges sincere and complete cooperation, trustful that con- ference will be fruitful of con.'^tructive and uniform legislation. Our service, now well grounded in public confidence, demands efficiency, practicality, and

Federal cooperation. Deeply regret my absence and sincerely wish you

success. (Signed) Chables G. Johnson.

(At this point Mr. Thure Hanson, second vice president, assumed

the chair.)

LIQUID-MEASURING PUMPS. A SYMPOSIUM OF EXPERIENCES

AND IDEAS EOR PROPERLY REGULATING THIS CLASS OE APPARATUS. DISCUSSION OPENED BY E, S. HOLBROOK, BUREAU

OF STANDARDS.

. I Mr. Chairman and gentlemen, day before yesterday I was very

sorry that I had not been able to prepare a paper on the subject of

liquid-measuring pumps, and yet yesterday I was congratulating

myself upon this very fact. This goes to show that you never can

tell. I have no paper on this subject. My remarks will be extemporaneous.

I take it, it is not my function to go thoroughly into all phases of

this subject, inasmuch as this number on the program is largely to be given up to the delegates. We want to assemble together at

this time a large amount of data upon the condition of measuring

pumps in the field, as found by you, to use as a basis of constructive

action upon the subject. Up to this time, for various reasons, the

subject of liquid-measuring pumps has never been given proper consideration by the conference, and our specifications are consequently

woefully weak. I believe they number three. Any one who knows

anything about the mechanism of liquid-measuring pumps will realize that three specifications can not cover that field. The subject of liquid-measuring pumps has been separated into

two parts upon the program, the first being called a " symposium of

169
170 BUREAU OF STAISDAEDS.

experiences and ideas." After the ideas and experiences and data of

the delegates have been collected and heard, then we have to present

a set of specifications and tolerance for the proper regulation of this

type of apparatus.

However, if you will pardon me just for a moment, I would like

to put into the record a few figures in regard to accuracy of pumps.

They were gathered by the Bureau of Standards after the last conference was held in 1916, and they cover the field investigation

of 183 pumps examined in several sections of the country, in the

State of Illinois outside of the city of Chicago, and in several other

districts. Of these 183 pumps 7 per cent were found to be delivering more than the amount represented and 93 per cent were found to be delivering short measure. Five were outside the tolerance in

excess, 7 were inside the tolerance in excess, 19 were inside the

tolerance in deficiency, and 152, or 83 per cent of all those examined, were tested and were outside the tolerance in deficiency. The total errors ranged from plus 3 per cent to minus 28 per cent. Now, I would like to say just a few words as to the opinion of the

Bureau regarding the best way of handling this subject this year. These specifications and tolerances were not distributed to the dele- gates and the manufacturers a month or six weeks before the conference, although the Bureau heartily agrees that in every case, where

possible, this should be done. However I think we may say that we

have no apologies whatever to make on that score. The war threw

the subject of measuring pumps distinctly into the background. We

did not have the time to give the subject proper consideration, and,

as a result, when we present this set of specifications and tolerances

to you we want you to realize that they are simply suggestive on the

part of the Bureau. They were prepared largely by Mr. Schlink with some amendments on the part of other members of the Bureau. I re- peat, then, they are merely suggestive, and we want a thorough and

complete discussion of the entire subject. Take these specifications

and read them over. (I will call upon Mr. Schlink to accept the re- sponsibility of explaining many of them and of justifying many of

them, if justification be necessary.) Amend them as you thmk proper

and wise, and, if you please, adopt them ; but it should be very defi- nitely emphasized that we believe they should not be finally adopted

at the present session. The time is too short to expect to arrive at any

perfect code. We would suggest that they be adopted, if you please,

tentatively. We then go upon record to the effect that these specifications and tolerances as adopted here are the present ideas of the con- ference as to what should be done in regulating this class of apparatus. Take these tentative specifications of the conference back to your various jurisdictions and enforce them in so far as you find it possible to enforce them. In any event, in every case find out what

the effect in your jurisdiction of rigid enforcement of these specifications would be. If you find them to be practicable and workable as a

set of specifications, enforce them rigidly, because if in your judgment they are proper, it is proper that they should be enforced by

you. If you find any of them so impracticable that in your opinion

they can not be enforced, note this fact, giving your reasons therefor,

and send the material to the committee on specifications and toler- ances. This committee on its part will pledge itself, I have no doubt,
TWELFTH ANWUAL CONFEBEirCE ON WEIGHTS AWD MEASUEES. 171

to get in touch also with the manufacturers of pumps, listen to any

criticisms or suggestions which they may desire to make, and, per- haps, from time to time you can make a bi-ief of the progi-ess and the

suggestions made and furnish them to the delegates of this confrence

for consideration. You can discuss matters with the tolerance committee by mail or otherwise from time to time and, with the mass of

data which we will get through cooperation of all delegates, the toler- ance connnittee will be enabled to draft a code—it may be the same as

this or may be different from this—and send it out broadcast one month or six weeks before the next conference is due to convene. You can, in the light of your experience of this year, studj^ this set of specifications and tolerances and come to the conference prepared

to adopt a set of tolerances and specifications for these pumps which

will be complete, proper, fair, and workable, which will do justice to both the manufacturer of pumps and the consumer of gasoline. This,

if you please, will be the final opinion of the conference as to what

form the specifications and tolerances should take.

Now, all this, of course, is merely suggestive. You may follow some very entirely different course, but the Bureau believes that that

would be the fairest way to go about the matter. It will not put the

conference in the position of saying this year, " Here is what we are going to do in the case of gasoline pumps throughout the country,"

and then coming in next year to say, " We thought that was what

we were going to do, but what we are really going to do is this, which

is different." You throw the industry into confusion every time

important changes of that kind are made.

While this is not the proper time to talk about the specifications

and tolerances, because, according to the scheme of things, they are not yet before you, nevertheless, I think it will be excusable if I mention one point here, and that is that the bureau recommends an

increase in tolerance of some 33 per cent, and we think that the rea- son for this change is a sound one. As you know, the conference

adopted some years ago tolerances upon measures of 1, 2, 3, 4, 5, and

10 gallon sizes, and at that time they placed the tolerance in deficiency

at a certain figure and the tolerance in excess at twice this figure.

That was done for the reason that it was believed that if any error was made in filling an ordinary liquid measure it would probably be

in deficiency; there would be many slight errors in deficiency, even when the attempt was made to use the measure properly, due to the

failure to fill the measure or to the spilling of small quantities. It was believed that if the tolerance in excess was slightly greater than

the tolerance in deficiency, we could very much more safely guarantee the delivery to the purchaser, and the delivery is in the final analysis the thing of interest to all weights and measures officials and to all purchasers. The tolerance on machines simply leads up

to the approximately correct delivery, a commercially correct delivery, a delivery as accurate as can be expected in ordinary trade.

Now, were it possible to take these gasoline pumps apart and test separately the measuring chambers, then perhaps we would have a condition analogous to the testing of the ordinary measure. We

would then have a delivery error on the commodity consisting of the

tolerance error upon the measure itself and the error of use of the measure.
172 BUEEAU OF STANDAEDS.

But gasoline pumps so differ from measures in this respect that one never tests the measuring chambers of the pump itself. The

thing that is tested is the delivery of the pump, the amount of gasoline actually received by the purchaser. Therefore, in the case of

a gasoline pump, the two sources of the final error of the ordinary

delivery by liquid measure are both present in the result of the test made. Therefore, there seems to be no particular reason why the tol- erance in excess upon the gasoline pump should be greater than the

tolerance in deficiency, since no additional error, usually in defici- ency, is to be guarded against. If the tolerances are the same in excess and deficiency and the pumps are not adjusted to take advantage

of that tolerance, and if there is no fraudulent manipulation, then

in the long run the purchaser should receive an amount that averages

correct; that he will receive individual amounts in which the error can be neglected because the tolerance fixed, we believe, is small

enough so that the pumps can not be adjusted so as to take advantage of the tolerance.

Mr. Schmitz yesterday said that he would be a very good scale mechanic who could take advantage of a tolerance of one-half pound

per thousand pounds upon a grain scale. From what we know about

pumps we may say that it would be a well-nigh perfect instrument

and an extremely good mechanic that would be able to take advantage of the tolerance fixed for gasoline pumps. Any attempt to take advantage of these tolerances is almost sure to be followed by

condemnation of the apparatus, since it is very difficult to control

the errors within the small range which will be in effect even when

the present tolerance in deficiency is doubled. However, we throw an

additional safeguard around the tolerance by requiring that when

a gasoline pump has been repaired and is being retested, then, if you please, on this test the error allowed shall be one-half the ordinary error allowed, or, in other words, repaired pumps shall take the same tolerance as new pumps. Take an example. A pump is allowed

to remain in use until it is more than 1.8 cubic inches short per gallon. The pump is tested, found to be 2J cubic inches short per gallon, and is condemned. It will not in that case be satisfactory to bring the pump back to 1.7 cubic inches short per gallon. Under

such circumstances the pump should not be sealed. While the re- pair and adjustment is being made the repair man must bring the

pump back very much closer to accuracy, and sealing should not take

place until a test shows it to be within 0.9 cubic inch per gallon.

The pump will then have a slight leeway over which it will be al- lowed to pass before it need be again condemned by the inspector.

One other point. You have copies of these specifications and

tolerances in your hands. In making the mimeograph for these

specifications an important specification was omitted. We have had

extra copies of this struck off, and these will now be passed out to you. We consider this specification an important one and ask your

attention to it at the proper time.

The program states that I will open the discussion. I am now

through with my explanations, and I take it, therefore, that the dis-

<"ussion may be considered as officially open to the delegates.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASUKES. 173

DISCT7SSI0N CONTINUED BY MEMBERS.

The Acting Chairman. The discussion on liquid-measuring devices or pumps is now open.

Mr. Stewart. I want to raise one question with Mr. Holbrook.

Should an inspector, either county or State, seal a gasoline pump ? If so, why? If not, why?

Mr. Holbrook. Does the inspector of weights and measures seal scales? Do you seal scales in your State, Mr. Stewart?

Mr. Stewart. Yes, sir. Mr. Holbroob:. In what essential respect does a pump for the dis- tribution of gasoline by measure differ from a scale for the distribution of food by weight?

Mr. Stewart. Quite a difference.

Mr. Holbrook. Explain the difference and I can answer your

question.

Mr. Stewart. In the first place, if we test a scale and we seal that

scale, in case of some error occurring in it there is nothing to pre- vent the owner from having it adjusted; but a gasoline pump is so constructed that when you seal that pump as it should be sealed,

then the individual can not move the adjusting parts. If he does

and you go and find the seal broken and the pump used, it is prima

facie evidence against him that he has been tampering with the

pump. If you leave the pumps unsealed and hold him responsible

for the condition in which you find them, it is up to him then to have

1 and 5 gallon measures and from time to time test them. If a scale

is out of balance the merchant can correct it. Mr. Holbrook. Yes ; but there are very many things which happen

to scales which tend to make them incorrect, but which do not affect the balance of the scale in any way.

Mr. Stewart. That is a fact. Mr. Holbrook. I would say that you seal measures. Gasoline

pumps should not need to be balanced any more than a measure

needs to be balanced ; it should not be necessary to adjust the stops

from day to day. If you seal liquid measures, why not seal gasoline

pumps? Perhaps you have not sealed gasoline pumps in the past.

The reason you have not sealed them in the past is perhaps that you

have found they do not remain accurate. If that is at the bottom of

it, and, in fact, gasoline pumps do not remain accurate, then they

are not proper measuring devices. If a set of proper specifications

be adopted, galoine pumps complying with these specifications will

remain accurate; therefore, your objection to sealing the device will no longer be a valid one and there can be no objection left. Mr. Stewart. Mr. Holbrook, excuse me for replying to the question you asked, and that is about the balancing of the gasoline

pump. If I go and test a scale, and for some cause that scale gets out of balance, I do not see why the merchant can not put it in

balance again. But if I seal a gasoline pump he can not put it in

balance without breaking my seal. Mr. Holbrook. How does a gasoline pump get out of balance?

Mr. Stewart. Various things cause it to get out of balance. What

I mean by balance is to have it give what it is supposed to give.

That is done from different causes. Some little thing may get in
174 BUREAU OF STANDARDS.

under the foot valve, which will let a little liquid drain back. Another way that it gets out of balance is that the proof of the gasoline varies. A low-proof gasoline will give one amount; a highproof gasoline will give another. You have to adjust it to the sort of gasoline that you are using; and there are other reasons why you

need to adjust it, and if you seal this you prevent these adjustments.

Mr. HoLBRooK. Would you adjust the measuring chamber of a liquid-measuring pump in order to compensate for a leak in the

foot valve?

Mr. Stewart. Mr. Holbrook, you have valves in all sorts of pumps.

You get a little grain of sand or hard substance in and leaks result. Mr. HoLBROOK. I agree that valves occasionally leak. Mr. Stewart. It may cause just a very small leak, and yet if that

is adjusted it will be practically correct. Mr. HoLBROOK. Suppose a gasoline pump is used three times in

15 minutes with a leak of five minutes between each delivery, and

then is left to stand for an hour or two, or overnight. Do you think

you can adjust the measuring chamber of the pump to take care of

the leak which occurs in five minutes, and also secure the adjustment

of a leak which occurs during three or four or half a dozen hours?

I think the proposition is not tenable. It is getting ahead of the

subject. One of our specifications. No. 5, prohibits adjustments

made to compensate for leaky valves.

Mr. RioRDAN. Mr. Holbrook, would you advise the sealer to place

the seal on the individual stop?

Mr. Holbrook. Yes ; provided that you have a measuring pump

and this is what we are attempting to get—which remains permanently in adjustment as every other piece of apparatus, satisfactory

to be commercially used, should.

Mr. Hanson. Mr. Riordan, relative to the sealing of these individual stops, assume that the pump gets out of order and the garage

man, or filling-station man, wants to regulate it. Do you think it would be allowable for him simply to say, " This stop has been

sealed by the sealer ; I can not touch it, or I am prima facie liable in court." Ought he not to be allowed to break the seal to readjust the

pump ? Mr. Holbrook. He should send for the sealer of weighta and

measures. Mr. Hanson. Is that practicable?

Mr. Holbrook. It is practicable just as soon as we get pumps

which remain within tolerance.

Mr. Hanson. I am assuming present conditions.

Mr. Holbrook. I am not talking about present conditions, but

about conditions when this set of specifications and tolerances goes

into effect. Moreover, I may say this discussion is not proceeding

in exactly the way we assumed it would proceed. If you want to say anything about measuring pumps in your jurisdiction under

present conditions say it now. Then let us take up these specifications. Every point which has been raised so far is covered by the

specifications. Let us read our specifications and discuss them one by one instead of jumping around from one to another.

Sealers all over the country have been telling us that they had

a lot of data on liquid-measuring pumps in meir various juris-
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASUEES. 175

dictions. Now, if anybody here has anything to say about the

condition of gasoline pumps in his jurisdiction, or wants to ex- plain any special difficulties which he has had in relation to this

apparatus, groundwork that will explain why we are now attempting properly to regulate measuring pumps, why not tell it now?

Has anybody hej:e any data which he wants to present to the con- vention as to the difficulties he has had? Has anybody here anything to say? If there is nothing to be said on the matter it will

be the first conference on weights and measures where officials have

had nothing to say on the subject of regulating measuring pumps.

Mr. C. C. TowNSEND. Do you want to know some of the ex- periences we have had?

Mr. HoLBKOOK. I think this conference wants to know, because

members have told me so separately.

Mr. C. C. TowNSEND. I had one little experience, and I would like

to know how you are going to overcome such a condition. There was

a pump in our neighborhood which I had trouble with, and the pump

man got it adjusted so that it was correct, and I tested it every once m a while. I tested it five times one day and every delivery was correct. While we were still standing there a man came up and

said, "I would like to liave a gallon of gas," and presented a can. The man that had worked the pump for me put the end of the hose

in the can, turned the handle, picked the can up, and handed it to the man. That delivery happened to be a quart for a gallon. I went to that same pump and got 5 gallons of gas for myself. I was

sitting in my wagon holding the hose in my hand. When the second

gallon was pumped I thoug-ht I noticed a dropping off in the amount

of gas coming into the can. The fourth gallon was over 1^ quarts

short. Suppose I had sealed that pump. It would have been sev- eral days before I would have been able to get back to knock that

seal off for him. I do not thinlf it is practicable to seal those adjustments.

The Acting Chairman, I think it would be better to take up the

tentative specifications as outlined here.

Mr. Barnard. It seems to me, in accordance with the thought of

Mr. Holbrook, that there are quite a number of things that are to be

thoroughly discussed before this conference starts on these specifications. Anything I may say will not be in a spirit of animosity, but

I desire to be extremely frank in what I may say, and I hope that the

representatives of the various pump companies will take it so. In

the first place, in my judgment, we have been going about the in- spection of gasoline pumps by putting the cart before the horse.

You go up to the pump with your measure, proceed to extract a gallon from the pump, and find an error. You have no way of knowing

at that time what is causing that error. I have found in my experience that the largest cause of errors in

gasoline pumps is faulty installation. It is natural to assume that a

gasoline pump is manufactured by the various gasoline-pump-manufacturing companies as near perfect as possible from a mechanical

and structural standpoint. These pumps are tested in factories and

found to throw an accurate amount of fluid before the pump is al- lowed to go on the market. Very well so far. That pump is shipped

to its ultimate delivery point and there delivered in its crate to the
176 BUBEAU OF STANDAEDS.

purchaser. There the responsibility of the gasoline-pump company

ceases, and any Tom, Dick, or Harry proceeds to set up that pump.

The gasoline is delivered from the underground tank through a series of pipes which must necessarily be properly installed in order to obtain the correct delivery. The ordinary man that installs a gasoline pump pays no particidar attention as to whether he has done it properly or whether he has half a dozen different angles in the piping. Now, just the minute an incorrect angle is established in your

pipe you are going to establish an air pocket, the same as an air

pocket in a steam pipe, and that minute you have established an error

in that pump and you can adjust the pump until doomsday, but you

will not get a correct measure. That is only one reason. A good many pumps have joints in a

great many of the pipes; they are put in with different packing

materials. I heard the other day of a man using soap to connect a pump. To my knowledge there is only one material that should be

used, and that is litharge, and that must be properly put on ; otherwise you have a leak in the pipes.

The next proposition to my mind is the condition of the foot

valve. In putting the gasoline into the pipes, unless great care is used, sand is going to get in, and the minute you get sand into the

pipes you will have more or less trouble with the foot valve. It seems to me the principal thing we must consider before we take up

anything else is some sort of regulations relative to the installation of

gasoline pumps.

When I first faced the installation of gasoline pumps in the city

of Battle Creek, I found all sorts of trouble. Some 78 per cent were

in error. After giving the matter consideration, I found that the

trouble was in the installation. I required every pump I found in error to be taken up and the installation examined and replaced

properly. Since that time I have required that each and every in- stallation shall be examined before the pipes are covered up. We have had considerable trouble in Michigan. Almost 60 per

cent—59 and a fraction—of the pumps tested in the State of Michigan were found in error. It seems to me imperative at this time that we should take into consideration the installation of the pumps.

Now, for some reason or other it seems to be the attitude of the

pump-manufacturing companies to disregard installation. I do not

know why that is so. A scale company sending out a large scale sends you a blue print for the foundation of your scale, and they are

insistent that that foundation be correct before they put up the scale

thereon. There should be just as much consideration taken by the

gasoline-pump maker, in my opinion, as there is by the scale maker,

especially in view of the present high price of gasoline.

We tried in Michigan a month or six weeks ago to put through the

legislature certain legislation which would regulate to a certain ex- tent the gasoline-pump proposition. Immediately we had the animosity of certain pump-manufacturing companies who came to Lansing and did everything in their power to destroy that piece of

legislation. That does not appear to me to be cooperation in any

sense of the word. They wrote a letter to every garage man in

]\fichigan arguing that legislation should be defeated and they asked

every garage man to go to his senator and representative and ex-
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 177

plain to them that they had already invested considerable money in

gasoline pumps and should not be disturbed. I have reached a point

where I have lost confidence in that sort of procedure. It seems to me that the strictest kind of regulation should be established for

these gasoline pumps.

The Acting Chairman. I may say for the information of the

speaker that in our State, Massachusetts, the installation of pumps

of whatever make they may be is always handled by the experts of

the respective companies. Further than that, I think we never have

found any case of a pump which was incorrect and which could not

be adjusted by the sealer, or where a telephone call to any of the companies would not have an immediate response. They have in the

different localities corps of workmen. We have no trouble whatsoever as to installation ; it is all done by expert workmen.

Mr. HoLBROOK. Can we find out at this time how many delegates

will be present at lunch, so that we can make proper arrangement for

their entertainment?

Mr. Stewart. Will there be a session this afternon ? Mr. Holbrook. This session will run through into the afternoon if you want it to. We still have to dispose of these gasoline-pump re- ports and the specifications and tolerances, which I do not think

should be hurried, reports by the resolutions committee and other

standing committees, and the inspection of the laboratories.

Mr. Stewart. In order to settle the question, I want to get at it this way : I move, if I can obtain a seconder, that we continue in ses- sion if it takes until 9 o'clock to-night.

(The motion was seconded and agreed to.)

The Acting Chairman. That means the majority here will have

lunch at the Bureau.

Do you want to go on discussing the experiences you have had

relative to your individual cases? If that is the case, why not fix a time limit ? If we do not, I am afraid we will go on talking here

from now until 9 o'clock to-night, and get to no definite results. Personally, I believe we could fix 11.15 a. m. as a limit for discussion, no man to speak more than five minutes, and then go on to the

tentative specifications.

Mr. Seraphim. I have a short paper which it will not take more

than two minutes to read. I desire to make a few remarks regarding my experience in the

inspection of automatic liquid-measuring devices, but my object in

attending this conference is more for the purpose of learning, for I believe that anything I might say would be only what is already

known, especially in view of the fact that there are so many here

who have such a very wide range of both practical and technical

experience.

There is no doubt but that the subject of automatic liquid-measuring devices is one of the most important that confronts all weights

and measures officials throughout the United States, due almost

entirely to the phenomenal increase in the amount of gasoline

vended to-day through these devices.

In a sense, so far as our supervision is concerned, this subject is in its infancy, owing to the fact that the use of these devices has

increased so rapidly in the last few years and at the same time that

155530—20 12
178 BUREAU OF STANDABDS.

the study of the situation was to some extent I'etarded by the late world conflict, which made other work more important.

There are a number of phases to this situation which are of great

interest to-day, and I will confine myself to one which has given me

the most trouble and which, if corrected, will be getting at the

root of most of our difficulty, and that is the absence of supervision

by weights and measures officials of the method of installation. I desire to state that every weights and measures official should

be provided with some standard set of i^ules and regulations governing the installation of any automatic liquid-measuring outfit, and

its enforcement should be effected by them while the installation is being made, for, unlike scales, weights, and measures, which are always entirely exposed to the eye of the inspector when making a

test, these devices have most of their arrangement under the ground

and are sealed over with a heavy cement paving.

There is no doubt that many pumps which are in all probability

correct are condemned for the following reasons

:

First. By faulty and careless installation, where such installation

is made by some one who is incompetent or is not thoroughly ac- quainted with the important rules set down by the manitfacturers of

these devices.

Second. Where rules set down by manufacturers are deviated from

for the purpose of overcoming conditions in a building or premise

which are not favorable for the proper installation of a pump.

This condition of faulty installation, in my opinion, exists to a much greater extent in Philadelphia than anywhere else, for, besides

the absence of any supervision of the method of installation, we are handicapped also by an antiquated ordinance which prohibits a pump being installed at the curb, which for a sidewalk pump is the

best location, since it secures the maximum efficiency, especially when

used in conjunction with a hose discharge properly arranged and

equipped with an overhead automatic air valve, so that hose may be

easily and thoroughly drained from a definite level.' An arrangement of this kind, when properly installed, gives very good results and is the most popular in use to-day.

In Philadelphia, where sidewalk pumps have to be installed at the house line, a pipe is generally run under the sidewalk to the curb,

where a connection is made at the surface of the pavement to a hose, or a pipe is extended vertically at the curb to a certain height and a hose connection made with it. In some cases a vertical pipe is also

extended vertically above the pump, then down again, and under the

sidewalk to the curb. In some cases an overhead automatic air valve

is provided, and in others there is not. Some hose nozzles are provided with a shut-off valve, and others are not, thereby proving that

there is no i-ecognized method—^at least in Philadelphia—which is considered the best. None of the above methods improve the effi- ciency of the pump, but, on the other hand, the reverse is the fact. If one of the results of this conference is the formulating of specifications which will be enforced by the inspector or sealer, when the

installation is being made, then a great stride will have been made

which will not only help to protect both the purchaser and seller of

gasoline, but will be of benefit to the manufacturers of these devices

and greatly lighten the work of tlie sealer. Such specifications could
TWELFTH ANNUAL CONFEEENCE ON WEIGHTS AND MEASUKES. 179

then be used as a basis for having any ruling or ordinance changed in

any locality which tends to prevent the proper installation of any

automatic liquid-measuring device.

Mr. Stewart. Answering Mr. Holbrook's question, I want to use

just two of our own cities. In the city of Wheeling—I have forgotten

the exact number of pumps we tested—64 per cent of the pumps were

out of tolerance, 51 per cent of the total number, or about 80 per cent of those incorrect, being against the consumer. If I remember

I'ightly, they were in error on an average of something like 14 per

cent. We found one pump that was supposed to throw a gallon at a

stroke. It took 14 strokes to give 10 gallons. Then, in Parkersburg we found that 73 per cent of the pumps were out of tolerance against

the consumer, and these were in error by about 9 per cent, on an

average. That will give you some idea of what we found in these

two towns.

Mr. ScHOENTHAL. In the District of Columbia we use a large sign,

about 9 by 11 inches in size, printed in red, a very distinctive sign,

which we attach to condemned pumps. It is needless to say that,

when one of these is put on, the owner is in great haste to have his

apparatus repaired in order to get rid of this red sign. One of the

pump agents asked me one day as I was placing a card on one of his

pumps, " Why do 3^ou condemn that pump ; there is absolutely nothing the matter with the pump. The trouble is with the installation."

Of course, he knew and I knew why we condemned the pump, but

there is a thought there, and that is that we condemn the pump very

often when the pump is accurate, but the installation faulty. In

1918 we condemned 37 per cent of the pumps tested, and I feel safe

in saying that 90 per cent of the condemnations were due to the fact

that the installation was faulty and the pump correct. From February 3 to April 2 of the present year we inspected 13 newly installed

pumps, and 13, or 100 per cent, were condemned on account of faulty

installation. It seems to be a common thought among buyers of

pumps that any plumber can install a pump. A greater fallacy never

existed, because the average plumber regards a little leak as being of no consequence, thinking that it will draw up the same as a hot-water

pipe. Instead, gasoline very often will cause an increase in the leak. One of the criticisms which I would make is that a great many of

the pumps, or at least some, are so constructed that the discharge

point is below the levef of the automobile tank or other container to be filled. This, of course, was excusable at one time, but in this

present day of enlightenment it seems ridiculous that the companies

still manufacture pumps of that character. I am informed by a representative of one of the pump companies,

who is here to-day, that his company, and I think it is true of all other companies, furnish to each purchaser of a pump a pamphlet of

instructions showing definitely how the pump is to be installed. I do

not think that the great percentage of errors is due to the pump.

There are some few cases where there are bad plunger washers and,

possibly, leaks in the packing boxes, but I think the majority of er- rors are due to faulty installation.

Mr. Maixen. Just a word. Mr. Seraphim referred to the connection of the pump with the tank. Of course, the tank may be located some distance from the pump. Some one mentioned plumbing. In
180 BUKEAU OF STANDARDS.

most cities it is necessary to get a plumbing permit. Why not make

it necessary to secure a permit to install a pump ? Mr. Barnard. In the city of Battle Creek they have to do that,

and they have to secure a licensed plumber to do that work. Even

after doing this it is required that inspection be made by the chief

of the fire department as to hazardous conditions and by the sealer

of weights and measures as to accuracy, etc. Mr. ScHOENTHAL. In the District of Columbia the permission of

the fire department must be secured, and we allow none but registered

plumbers to do any plumbing work, which necessarily shows that

these pumps are installed by plumbers. However, plumbers are not

experts in installing gasoline pumps, and that is where the trouble comes in. Mr. EuNBECK. In regard to sealing the gasoline pumps, when I

first started work in South Dakota on gasoline pumps I sealed them,

but in the last six months I have not done so, because I consider that

the State seal placed on a gasoline pirnip is a guaranty to the public

that it is correct. I now simply attach a tin tag showing it has been

inspected on such and such a date. I am opposed to sealing gasoline

pumps, because they apparently will not stay right. In starting the

work I found that out of over 2,000 gasoline pumps 78 per cent gave

short measure. That was on the first inspection, and I am not quite

through with it yet.

Mr. Irvine. Would it not be a good plan to require each person

about to install a gasoline pump to notify the inspector of this fact?

Then he would get the proper instructions. I think ^hat would obviate the trouble. I know one man who had a plumber install a pump and cement the tank, and who then sent for me to inspect it. He had a leaky installation and had to go to the expense of tearing

up the sidewalk again. I think it would be a good thing to adopt

the plan proposed.

The Acting Chairman. I presume that would involve securing

necessar^r legislation relative to installations, etc. Mr. ScHLiNK. With respect to the matter of installation of pumps,

I think much of the trouble is due to the fact that the plumbers are not literary men and will not stop to read the voluminous instructions sent out by the pump manufacturers regarding installation.

Many of the defects are clearly set forth in the instructions sent out by at least two or three of the makers, but Ihese take more careful

thought and reading than the average installer is going to give them.

He thinks they are theoretical requirements made by the manufacturer. If, however, sealers of weights and measures would prepare a summary of these requirements based upon the best information obtainable, distribute this in printed form to every garage owner who may install a pump, and make it clear that these requirements

are mandatory, not suggestive, and are based upon sound engineering knowledge of the difficulties that are going to arise, then care

in installation could be maintained. It is a matter of putting neces- sary force behind it, taking it out of the hands of the manufacturer

who may or may not be followed b}'^ the plumber, and putting it offi- cially to make it clear that he must follow it or, if he does not, that

his installation will be condemned without the carrying on of a test. Mr. Stewart. In regard to the phimber, I want to say, with all due
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 181

respect to him, that the plumber is not fit to install pumps. Why?

Because he is not an expert pump man and does not figure on the

pump being built so that it must produce a vacuum to carry up the

liquid that is beneath. In order to install a pump, you mvist know

something about a pump. I know a plumber that installed a lift pump in a house 60 feet above the water level, and you know the

amount of water he got up there. You must have a man who has

studied these things. I believe the way to overcome faulty installation is to have the regulations require that the seller of the pump

install it. Mr. Goodwin. I have had a little over 50 years' practical experi- ence on this subject and have installed a great many of all kinds of

pumps. I believe that the whole trouble lies in fault}^ installation.

The suction pipe may, for instance, be so laid that there will be an

air trap in it. This has occurred in my experience.

I have had a great deal of experience with pumps on driven wells. We had trouble when particles of sand got under the valve. While

the valve is working it may be hardly perceptible, but the moment

you stop that valve you will lose your liquid. To correct such a condition, we have what is called a sand chamber, which catches particles of sand by sloAving down the current of water, thus causing it to come through a small pipe into the cylinder. I believe if there was some device attached to the pump to catch particles of dirt and

eliminate them from the check valve, we would overcome a lot of

this trouble. I think the pump manufacturers could afford to furnish that, and I hope they will take this under consideration.

Mr. Irvine. I would like to ask a question. Is the subject of the

quality of gasoline going to be discussed here at all? I am more in- terested in the qualit}- of gasoline for distribution than I am in the

installation of pumps, because I believe every one of you is suffi- ciently familiar with the installation of pumps to enable you to handle that yourselves.

The Acting Chairman. That would be considered under new

business.

The Secretary. There are a number of manufacturers of pumps

here, and it seems to me they ought to be given an opportunity to ask questions.

The Acting Chairman. Do any of the pump manufacturers wish

10 be heard?

Mr. CoRET (representing S. F. Bowser & Co. (Inc.)). The only

thing I would suggest in this connection has reference to the directions which are sent out with pumps. I believe in practice that two

sets of complete direction sheets are sent out with every pump

shipped. It is only necessary for any intelligent man to follow these

instructions, and he will then have no trouble with installation. In

addition to that, some years ago we went to considerable trouble and

expense in issuing service bulletins, and I will also call attention to the publication, Technological Paper No. 81, of the Bureau of Standards. On page 19 of this you will find illustrations for cori-ect and

incorrect practices in installing pumps. Bowser & Co. is willing to furnish the sealers throughout the country with all of our publications they may require and can make use of. We want everything to be right. We manufacture, as do all the manufacturers, with the
182 BUREAU OF STANDARDS.

best judgment we have. If anything is not right, we stand ready to make it right and we will give all the information and assistance we can in having the equipment properl}' installed and regulated.

Perhaps I might add a word further as to what has been sug- gested in tlie way of malting manufacturers responsible for all in- stallations. That, of course, is an utterly impossible task. Hundreds of thousands of these pumps are located at remote points all over the country, where we have no way of having representatives

to make installations. We have to depend upon the men who make

purchases to make installations, but we are ready to lend all the

assistance we can to anybody who has any trouble.

The AcTiKG Chairmax. Mr. Corej-, what do you consider the

maximum length of pipe feasible from the tank to the piunp?

Mr. Corey. I do not know that it has been reached. I make that

reply for the reason that I know of installations that run up to 600

feet of horizontal line. I do not recommend that. But the point

brought up by the gentleman gets back to the question of the kind of

gasoline being handled. There are certain localities where the cas- ing head or blended gasoline is used, and the handling of this differs from that of straight run. However, distances of 50, 60, and 100

feet are not at all uncommon. There are any number of such instal- lations.

The Acting Chairman. There undoubtedly is a difference be- tween deliveries of 50 feet and of 600 feet ? Mr. Corey. Not necessarily. It depends upon the size of the

pipe line. The Acting Chairman. Assuming that the size of the pipe and

the installations are correct, would it make any difference whether

the tank was COO feet away from the pump or 20?

Mr. Corey. Not if jou have adequate piping.

Mr. Yake (representing Gilbert & Barker Mfg. Co.). Mr. Chairman, the problem of instructing the purchasers of the equipment in

regard to proper installation is one that we, together with the other

companies, have been trying to solve, and we are looking for the

best methods of getting at it. Each one of our equipments is ac- companied with very explicit instructions, and the gi'eat problem is to get these instructions into the hands of the plumber or the man

installing them and get him to read and follow them. We have had

many discouraging experiences in that connection and also encouraging experiences, and I might relate a lot of funny incidents. I will

say this, that we want to join hands with the sealers and any other

authorities that will enable us to guarantee absolutely correct instal- lation, because our experience has shown that more than 90 per cent of the troubles are due absolutely to faulty installation. That has

been our experience covering a period of years. We are always open

to suggestions as to how to obtain the results that the sealers want

or that the Bureau of Standards wants, and we are ready to co- operate for the best possible results. Mr. Tinkey. I just want to relate to you in a brief way an ex- perience I have had that seems to be different from the rest of you

and that resolves this whole thing into carelessness. I passed a pump

one day and sealed it. The next day a man complained, ' I got some

gasoline at that pump and am short." I went down and tried it and
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 183

got only 4| gallons on 5 strokes; so I condemned the pump. The

repair man came over and he took out chewing gum and wrapping

paper from under the last val\c. That is carelessness of the man

who installed the pump.

Mr. Bean (representing the Wayne Oil Tank & Pump Co.). I simply want to ^ny that the sealers have struck the keynote of the

major portion of the trouble in measuring pumps in the question

of installation. A few days ago I was in the city of Buffalo, and

while taking a drive, saw an excavation being made in which to install

a pump. I stopped and looked into the hole. I asked the man what

he was using on the joints. He said, " Soap." I said, " Did you ever

install one of these pumps before ? " He said, " Yes, I installed three

last week." I said, " What did you use on those? " He said, " Soap."

I presume that in the course of a very short time those pumps are

all going to give trouble. The sealer had absolutely no opportunity

to examine those pipes before they w'ere covered. He does not

know how they are put together. He is going to assume there is something wi-ong with the pumps and condemn them. I believe

that all installations should be examined by the sealer before they

are covered. I believe that that should be covered by proper legis- lation. I want to say that the company which I represent is more

than anxious to cooperate with the sealers and authorities in charge

of this class of work and to do anything in its power to correct the

troubles that are now existing. I thank you.

The Secketabt. I might relate a little experience the Ordnance

Department had during the war that has a very direct bearing on

this subject. In the manufacture of gas shells it was decided to use the Briggs pipe thread—that is, a thread which is more or less tapered—and notwitlistanding the fact that every one of these

threads were gaged with special gages and inspected to determine

whether they were of the correct size, there were hundreds of thousands of these shells rendered useless on account of leaks after being

put together. Of course, gas was put into these shells, and it was

a severe test ; but the fact remains that large numbers of them leaked,

notwithstanding that they took extraordinary pains to have the

joints made tight and that they were all put together in shops where

they had facilities for doing it, and under supervision. One of the

greatest difficulties encomitered was to get a gas-tight shell. Mr. Goodwin. Was there a hydrostatic test? The Secretary. They were tested with the gas itself ; they put the

gas in the shells and leaks were found.

Mr. ScHLiNK. Mr. Stewart has asked me to emphasize the fact

that plumbers in installing these pumps are inclined to follow their

own judgment rather than the instructions of the pump manufacturers. He wished me to emphasize that in some way it should

be possible to invoke the police power so that these instructions

must be followed: so that they will be mandatory and not permissi^'e. These specifications have been prepared with the idea that

forms of installation and of pump construction shoxild be discussed to determine final results. I think it will be a mistake to as- sume that installation will explain everything and that if you

have correct installation it makes no difference what type of pump

you have or w^hat specifications you have adopted as a safeguard.
184 BUREAU OF STANDARDS.

Mr. RioRDAN. The State Sealers' Association of Massachusetts

is the only association in the entire Union to appoint a special rep- resentative to attend this conference ; so I would like to call upon the

special representative from Massaclausetts.

Mr. Day. I do not see where the delegates from the cities have

much to do with this convention. The State men do the whole job. I think there should be a national association of local sealers where we could get together and talk and not bring it into this conference.

The Acting Chairman. The time is now up for discussion, and I suggest that we proceed with the specifications.

TENTATIVE SPECIFICATIONS AND TOLERANCES FOB LIQUIDMEASURING PUMPS PROPOSED BY THE BUREAU OF STANDARDS, AND THE DISCUSSION THEREON.'

Mr. HoLBROOK. I will ask Mr. Schlink to read the specifications.

Mr. Schlink (reading)

:

1. Defimtion.—A liquid-measuring pump is a pump, or a combinatiou of a pump, with other mechanism, adapted to the measurement of liquid in definite quantities by volume. Mr. Stimpson. I would like to ask if this definition is intended to include all of the installation and everything that goes with the

outfit?

Mr. Schlink. It is meant to include the whole combination. Perhaps the wording ought to be clarified. (There being no further discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was

agreed to.) Mr. Schlink [reading]

:

2. Permanence.—(a) Liquid-measuring pumps shall be of such design, construction, and materials that they may reasonably be expected to withstand

ordinary usage without impairment of the accuracy of their measurement or the correct functioning of their operating or indicating parts. (h) The longitudinal axis of the measuring cylinder or chamber shall be

accurately plumb when the pump is in level, and a two-way or a circular level or leveling lugs shall be provided by means of which the level can be established. The installation shall be of such strength and rigidity as to maintain

this plumb and level condition during the life of the apparatus.

Mr. Barnard. I would like to ask Mr. Schlink if in that there is anything to cover installation?

Mr. Schlink. There are half a dozen paragraphs that cover in- stallation. This relates only to the things regarding installation

that may be expected to change with time and that should be safe- guarded in order that the installation may remain as it was put in. Mr. Barnard. To my mind the language in those two paragraphs

covers the proposition in a general way, but it would leave it a matcer

of construction, and it seems to me in this matter that we should be more or less definite. Mr. ScHOENTHAL. Paragraph (b) as read may be of some benefit,

but I can not see it—the words at the end of the last line, " to maintain this plumb and level condition during the life of the appa-

> For the complete set of specifications and tolerances, as adopted, see Appendix, p. 223.
TWELFTH ANNUAL CONFERENCE ON ^WEIGHTS AND MEASURES. 185

ratus."' It strikes me that to maintain this " in level condition

would be sufficient. The Acting Chairman. Do you see anj"- objection? What do you

say to that, Mr, Schlink?

Mr. ScHLiNK. I think that change might well be included. I do

not see any objection to it. The Acting Chairman. Is there any other question as to subdivision {a) ? (There being no further discussion, a motion to adopt paragraph

(a) of specification Xo. 2, as read, was dul}- made and seconded,

and the motion was agreed to.)

The Acting Chairman. It is moved that this be adopted with the

words " during the life of the apparatus " stricken out, so that the

last sentence of sectio.n (&) of specification No. 2 shall read:

The installation sluill be of f^ucli strength and rigidity as to maintain this plum and level condition. (The u)otion to adopt paragraph (b) of specification No. 2 as amended was agreed to.) Mr. Corey. May I ask what is intended by the words in paragraph

(J), " a two-way or a circular level, or levelling lugs."

Mr. ScHLiNK. It provides merely that facilities shall be provided

hj which the installer may determine when he has the piunp plumb

and level. Mr. ScHLiNK (reading)

:

3. Indicating and registering parts.—(«) Counters, meters, and graduated

scales used on liquid-measuring pumps to tally sales and deliveries to indi- vidual purchasers shall be so located and disposed that their readings will be visible to the customer as well as to the operator of the pump.

(h) lu the case of measuring pumps used for dispensing gasoline, the counters shall be of such size and style that they are clearly visible to, and

readable by, the customer from any position which he may reasonably be ex- pected to assume. In that connection there will be excluded from the action of this

specification certain counting devices which are provided by the

manufacturer for the convenience of the dealer for totalizing his

sales so he can compute the sales and losses. The Acting Chairman. Is there anj'thing to be said on paragraph

(a) of specification No. 3?

Mr. Corey. May I ask all the questions I want to about this? That

means the customer as well as the one operating the pump. One

of the questions is, "Where?"

Mr. ScHLiNK. In any position he can reasonably be expected to assume in buying gasoline.

Mr. Corey. Does it mean when he is sitting in the car? Mr. ScHLiNK. Standing or sitting in the car, or outside, holding

the hose.

The Acting Chairman. With particular reference to the 5-gallonstroke pump, with the scale on the side, I do not see how a man

could very well see that unless he got out of his car and stayed

outside.

Mr. ScHLiNK. Perhaps the phrase " from any position which he

may reasonably be expected to assume " ought to be included in the

first paragraph also.
18(5 BUREAU OF STANDARDS.

Mr. Steavart. It seems to nie as if we have got a specification for

a specific pump. I do not like the tenor of that part. We want to think about that as we go through these specifications. There is Avhat we call the visible and the invisible device. Now, are Ave going

to get up a specification that is going to make them all become

visible? If so. let us say so plainly.

Mr. HoLBEOOK. This does not refer to a particular type. Every

gasoline pump of which I have knoAvledgo has son\e form of counter

to show how much is being delivered to the consumer. You would

not have an absolutely blind pimip?

Mr. Steavart. Oh, no

!

Mr. Hoi.BRooK. If a counter is incorporated, that counter is for

the purpose of informing the consumer hoAv much he is getting, and

this simply requires that counter to be in a prominent place and of

sufficient size to fulfill its function.

Mr. Steavart. Whether the purchaser is in the car or at the hose?

Mr. Holbrook. The specification as originally written proAaded

specifically that the man might be in tlie car. 1 do not think that

the purchaser is in " a reasonable position " Avhen he is in his car, and the specification now merely contemplates any position he may

reasonably be expected to assume. I never sit in my car Avhen they

deliA^er me gasoline. I think in adopting this that this conference

should have in mind that a person sitting in a car is not in a position

he may reasonably be expected to assume to check his delivery. The

delegates can interpret that specification.

If we may go back to specification No. 2, paragraph (&), it seems that the words " or a plumb bob" should be included after the

ATords " leA'eling lugs." A plumb bob is a satisfactory means of determining a leA^el in this case. I Avill make a motion to that effect. Mr. ScHLiNK. I second the motion.

The Acting Chairman. It is moA^ed and seconded that in specification No. 2, paragraph (b), after the Avords "leA'eling lugs,''

the words " or a plumb bob " shall be added.

Is there any objection to that?

(The motion was agreed to.)

Mr. Stimpson. I would like to move you that the words " from any

position which he may reasonably be expected to assume," just noAv read in paragraph (h) , be inserted at the end of paragraph (a)

in specification No. 3. The Acting Chairman. The motion is made that the words " from

any position which he may reasonably be expected to assume " be

added at the end of paragraph (a).

Mr. HoLBROOK. I understand that these words should not be put in

there for the reason that many pumps have counters which are for

the information of the consumer and haA'e also a meter which tallies total sales. The latter need not be conspicuous to the purchaser.

Mr. ScHLiNK. That is covered, Mr. Holbrook.

Mr. Holbrook. A pump often has both a counter and a meter. This provides that the counter only should be visible from any position; the meter is almost solely for the information of the operator

of the pump.

Mr. ScHUNK. They say you can not see any counter if you are sit- ting in the car with a rear-end tank.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 187

Mr. HoLBROOK. Is that not covered by paragraph ? When

there is a counter on a pump, it must be conspicuous; if the purchaser

desires to read the meter in addition, he should put himself in a

special position to read it. The fact that counters, meters, and graduated scales are mentioned in paragraph (a) makes it inadvisable to add the suggested Avords there. Graduated scales, however, might

well be included in paragraph (b) also, although meters should be

left out. I will amend the motion to the effect that the words " and graduated scales" be added immediately after the words "counters" in

subdivision (&) of specification No. 3. The AcTiKG Chairman. The motion is to add the words " and

graduated scales " in specification No. 3, section (b).

Mr. Barnard. I second the amended motion.

(The motion was agreed to.) Mr. Corey. The question of meters is omitted from the second

paragraph. Just to make the point clear, meters are the registering

device for the use of the dealer himself, and the individual buyer has no interest in them. That is the purpose, is it not, of the specification as written? As a matter of fact, the meters on a very great

number of pumps are purposely covered, because the dealer prefers

to have it so. The Acting Chairman. Such as a cash register.

Mr. Corey. Just the same; but the counter or graduated scale is for the use of the individiial Wyer. I want to have that point clear. The Acting Chairman. The counter I have reference to registers

the individual delivery only. That is what I assume to be a counter. What is ordinarily called the meter is a registering device for the

benefit of the dealer. (There being no further discussion, a motion to adopt specification No. 3, subdivisions (a) and (b), as amended was duly made and

seconded, and the motion was agreed to.) Mr. ScHLiNK (reading) :

4. Units of delivery.—Liquid-measuring pumps shall have the following dis- charge capacities per stroke or cycle, and these only : One gallon, a multiple of the gallon, or a binary submultiple of the gallon ; that is, a quantity obtained

by dividing the gallon by the number 2 or a power of the number 2 : Provided, however. That a pump may be constructed to deliver other amounts than the above corresponding to predetermined prices at a definite price per gallon, but

in such cases the pump shall be so constructed that the price per gallon at which it is set at any time and also the amount actually delivered must be

clearly indicated. Mr. Holbrook is the author of that specification and can describe

it better than I. Mr. Holbrook. The specification is necessarily supposed to be self- descriptive. If there is any doubt about its meaning, I will be glad

to discuss it. (There being no further discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was agreed

to.)

Mr. ScHLiNK (reading)

:

5. Closure of one outlet.—AVhen two discharge outlets for the liquid are pro- vided on a liquid-measuring pump, the pump shall be so designed and con- structed that one outlet must be tightly and completely closed off whenever the other is open, so that no liquid can be discharged except through that outlet which is in use at the time and for the ijurpose intended.
188 BUKEAU OF STANDARDS.

That is intended to guard against the possibility of having two

pipes leading from the pumi?. as is often the case, with the danger

tliat when one valve is in use the other may be slightly open and thus

l^ermit part of the gasoline to be diverted from the purchaser's car

into some other pipe line. Mr. Stewart. Am I to understand that that specification, No. 5

is to apply to all pumps ? If so. what are we going to do with some

already in use 'i I want you to think about that. Mr. HoLBROOK. The pump which is already in use which is incorrect or which facilitates the perpetration of fraud should be at once condemned.

Mr. Barnard. I move that specification No. 5 be adopted as read.

(Tlie motion was seconded and agreed to.) Mr. ScHLiNK (reading) :

6. Druiiiofre of fJincharfie pipinrr.—In) All lirniifl-nieasiirinj; pumps iiSPd for

tlie sale of gasoline shall be so coiistrnotecl as to y>rovi(le for the complete and

rapid di'ainage, to a definite and uniform le\pl. of the liquid contained in the hose or outlet pipe. This specification will be constmed to require that hose,

if used, shall be of .such length and stiffness and its inlet end at such height

above tlie normal level of its discharge end, when used for the purpose of delivery to an automobile fuel tank, that no movable portion of the hose will be

disposed in such a way as to tend to retain liquid after the operation of the jnimp is completed.

(&) All liquid-measuring pumps shall be so designed and constructed that they will not permit a siphoning or a continuous trickle of liquid from the dis- charge outlet after the operation of the mechanism is discontinued. All liquidmeasuring pumps which under the foregoing specification are required to be equipped with a standpipe shall be furnished with a vacuum breaker or equivalent device adapted to cause the definite, immediate, and rapid drain- age of the downcoming portions of the hose or pipe. Note.—A standpipe shall be defined as any elevated pipe designed to connect with the upper end of a hose or other movable delivery tube and intended to insure rapid and complete drainage of such delivery tube into the tank or vessel into which liquid is being discharged.

Mr. Barnard. I am wondering in reference to this particular

specification if it would not be advisable to specify a reinforced hose. I have found in my experience a great deal of trouble with hose that

might be sufficiently long and might appear to be sufficiently stiff, but

where there was no reinforcement inside the hose, and, consequently,

tlie rubber expanded from contact witli gasoline, the inside diameter

became smaller, and it was impossible to get the fluid out. Language

should be placed in the specification to indicate that the hose should

be reinforced.

I jnove that Mr. Schlink prepare language in keeping with this

specification according to that theory.

Mr. Stimpson. I second the motion.

The Acting Chairman. It is moved and seconded that Mr. Schlink

insert words in this specification relating to hose.

(The motion was agreed to.) Mr. Stewart. That specification will do awa_y with the valve on

the end of the hose ? Mr. HoLBROOK. Yes, sir. Mr. Stewart. I am glad of that. Mr. Corey. That is contrary to some regulations as to safety and

insurance.

The Acting Chairman. We will pass from this section until Mr.

Schlink prepares an amendment.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 189

Mr. ScHLiNK. I think we had better pass on it now. Mr. Stewart. If this disagrees with some of the insurance laws,

we want to think about it. I am not objecting to it. I am in favor

of it ; but how about the insurance laws of the States ? Mr. ScHLiNK. It is only proper to say that in the past the insur- ance men have led in the regulation of gasoline pumps and left the

weights and measures men to take what is left. I think we ought to take the stand that accuracy is on a parity with the fire-hazard question. We can get together with the insurance agencies and come to an agreement on these points. I do not think there will be any difficulty on that. Mr. HoLBEOOK. We all know that in every jurisdiction there are

a very large number of pumps in use which do not have any cut-off at the end of the hose. If these are in conflict, how do those get by

these insurance laws now? How do they violate the law and what

form does the law take? Would the insurance people prefer to have

the hose filled with gasoline to an empty hose? Would that reduce

the hazard ? Mr. CoEEY. I think it is a law of the city of Detroit, for example.

Mr. HoLBEOOK. Have you in use in Detroit, Mr. Austin, a number

of measuring pumps which do not have a cut-off at the end of the

hose?

Mr. Austin. Yes, sir ; we have quite a nimiber of them. Numerous

installations are now going in and have been for the past six or

eight months, and nearly all are with the character of delivery pipe

specified here. Mr. HoLBRooK. If we have a very large number of pumps in those

cities which have no cut-off at the end of the hose, and if it is the

sense of the conference that there should be no cut-off at the end of

the hose, what is the objection to providing such a specification?

Mr. Corey. I was only speaking of the city regulations which prevail at certain places. There are several times as many shipments

made from our factories with the open-end hose than with the shutoff. These shut-off valves are being sent to those localities where the

ordinance reqiiires it. I think the manufacturers would all prefer

to see the open end, as it gives the best results. Mr. HoLBRooK. Is it considered safer to have the hose filled with

gasoline rather than empty?

Mr. ScHLTNK. I find this particular point is material in a later

specification, in which only one shut-off cock is allowed in the dis- charge line. It is not germane to the present discussion, but has done

no harm.

Mr. HoLBROOK. It will not be necessary to discuss it later. Do you

know, Mr. Corey, whether such an insurance regulation is written?

Do you yourself think that the fire hazard is less with the hose filled with gasoline than when it is empty? I can not see why such a regulation should be in force, nor am I familiar with such a regulation.

The Acting Chairman. There is one exception, Mr. Holbrook.

In Massachusetts, we insist that a hose shall be drained at all times,

but there is one exception ; that is in the case of a certain metering

device. In this the meter commences to register as soon as the valve

at the end of the hose is opened, and when the proper registration

is reached the valve is closed. That is the only device in Massa-
190 BUREAU OF STANDARDS.

chusetts where we allow the hose to be filled. I can see no other

way to dispense gasoline from that type of measuring device.

Mr. HoLBKOOK. If the purchaser can spot his car so that the valve

at the other end of the pipe can be reached, would not that be satis- factory ? The Acting Chairman. Wliat other end ? Mr. HoLBROOK. There are two ends to the hose and you are requii-ed to have the valve at the end of the hose near the pump. Why can

not a valve be placed there?

The Acting Chairman. I have taken it up with the manufacturer,

and in the case of that particular type of device it is impracticable.

Mr. HoLBROOK. Why?

The Acting Chairman. I can not give you the scientific reasons. I will be glad to mail them to you.

Mr. HoLBROOK. I have never considered it was impracticable.

The Acting Chairman. I wrote to the Bureau regarding this, and

tlie reply was that my contention that the hose should be filled was

practically upheld.

Mr. HoLBROOK. No; not at all. We said that we saw no reason why a valve should not be placed at the pump end of the hose. That

is far from upholding your contention. We saw no reason why the

valve should be placed at the nozzle.

The Acting Chairman. Particularly on this hydraulic-pressure

pump ? Mr. HoLBRooK. Equally on the hydraulic-pressure pump.

The Acting Chairman. That is the point I made, and when I got

your letter that was the interpretation I put upon it. Mr. HoLBROOK. You did not need to interpret the letter. The let- ter said " No."

(There being no further discussion, a motion to adopt the specification as amended was duly made and seconded, and the motion was

agreed to.)

Mr. ScHiiiNK (reading) :

7. Sensitiveness.—All liquid-measuring pumps of whatever type used in retail trade shall be so designed, constructed, and graduated that their indica- tions can be read or their discharge readily determined within an amount which

is not greater than the value of the tolerance as hereinafter provided.

In connection with this specification, it was found not sufficient to define the accuracy and establish a tolerance, since it was impossible to read the tolerance on many pumps.

(There being no discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was agreed to.)

Mr. ScHLiNK (reading)

:

8. Completeness of delivery before indication.—(a) On all defined-sti'oke, piston-type, liquid-measuring pumps, the construction shall be such that a counter or indicator will indicate clearly and definitely such discharge, and

only such discharge, as has actually been completed by the pump proper; that

is, the indication of each unit of discharge shall take place only when such full discharge from the measuring cylinder has in fact occurred.

(b) Any such counter or tallying device as is required under the specifica- tion shall be so constructed that its dial or pointer is returnable readily to a

definite and clear zero reading before the next delivery is begun.

(There being no discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was agreed to.)
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 191

Mr. ScHLTNK (reading)

:

9. Pointers and indicators.—All pointers and indicators used on counters or computing attachments or other registering parts shall be so shaped that a

correct and accurate reading is given. Pointers are required to be symmetrical about the graduation lines at which they may stand, and blunt-ended

types of pointers shall not be used. (There being no discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was agreed to.) Mr. ScHXiNK (reading) :

10. Lettering, graduations.— (a) All markings, instructions, and gi'aduations

required under these specifications shall be of such size, design, and location that they will not tend to become obliterated by dirt or oil, or for any other reasons tend easily to become illegible. (&) The graduations shall be of such character and arrangement that the major ones are clearly distinguished from the minor ones. We find in some cases that the graduation marks become incased

with material or filled with lubricating oil, and you can not read

them after a month or so. Mr. HoLBROOK. I move that the specification be adopted with the

word "distinguishable' inserted in section (&) in lieu of the word

" distinguished." If we want them distinguishable, we must say so. (The motion was seconded and agreed to.)

The Acting Chairman. Where is No. 11?

Mr. HoLBROOK. A typographical error has been made. We must

subtract one from each of the numbers until the extra specification

is reached. That will adjust it. Mr. ScHxiNK (reading) :

11. Scales in oppos-ite directions prohibited.—The use on a liquid-measuring

pump of two graduated scales reading in opposite directions and referable to the same pointer or liquid surface shall not be permitted.

(There being no discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was agreed to.)

Mr. ScHLiNK (reading)

:

12. Computing charts.—The value graduations on all computing charts usetl on liquid-measuring pumps shall not exceed 1 cent at all prices per gallon up

to and including .30 cents. At any higher price per gallon the value gi-aduation

shall not exceed 2 cents: Provided, however. That nothing in the above shall be construed to prevent the placing of a special value graduation to represent

each 5-cent interval. These special graduations may take the form of dots, staggered graduations, or similar forms. They shall be so placed that their meaning and value may be clearly understood, but they shall not be placed in the space between the regular graduations.

Mr. HoLBROOK. That is lifted verbatim from the specification on computing scales. I think the same specification should apply here.

(There being no discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was agreed to.) Mr. ScHxiNK (reading)

:

13. Exhaustion of liquid supply.—All measuring pumps of which the accuracy

of delivery is affected by the lowering of the liquid in the supply tank to a

point at or near the intake end of the suction pipe shall be provided with a

device which will make the pump inoperable during the continuance of this condition, or shall be so constructed as to warn the purchaser and the operator

in a conspicuous and distinct manner that the level of the liquid .supply is so low as to endanger the accuracy of the measurement.
192 BUBEAU OF STANDAEDS.

Mr. Yake. Is it intended that a device shall be supplied, in addition to a guage stick, to enable the user to determine when a tank is empty or nearl}' empty?

Mr. ScHLiNK. Yes, sir. Mr. Stewart. A device in addition, not only for the user, but for

the purchaser.

(A motion to adopt the specification as read was duly made and

seconded, and the motion was agreed to.) Ml-. CoBET. May I ask for information regarding that ? I do not

know just M'hat action will be taken. Are the men going out from

this conference to put into effect these specifications; and if so, does

that mean they are going to put two or three million gasoline pumps

out of business right away? I do not know of any such device;

possibly you would get it. Mr. Bean. I do not know of any such device now on the market.

The only thing I can think of would be a float. In many cases the

storage tank is a considerable distance from the pump. Perhaps

the pump is located on the curb, and the tank is underground back

of the garage. It would certainly not show under these conditions

unless controlled electrically. That would bring electrical contact

into the tank, making an extremely dangerous condition.

Mr. Baknaed. Mr. President, I think Mr. Schlink's contention in

that respect is wise. I know we have had much trouble with gasoline

being delivered from nearly empty tanks, and I think this anticipated

regulation is certainly fine, and the quicker a provision of this kind

is put into, effect the better it will be for the ultimate consumer. Mr. HoLBROOK. Is there such a device on the mar-ket ? Mr. ScHLiNK. Not as far as I know.

Mr. HoLBROOK. I move that that specification be starred until

such time as it is practicable to put it into effect. We declare, however, that it is the opinion of this conference that this should be

complied with, and we will suggest to the manufacturers here, and

through the record to other manufacturers, that steps be immediately taken and investigations begun which will ultimately result in

the perfection of such a device.

Mr. ScHLiivK. It is proper to say in this connection there is no

device, so far as we know.

When a man purchases from an empty tank or nearly empty tank

he almost always gets short measure. There is no reason why that

should not be corrected. I have myself seen three or four deliveries

made from a tank in which the suction pipe was so nearly uncovered

that every time the stroke was made the gasoline would back down

to the pipe, and there would be too much aspiration of air. The

user of that pump may not have known it. I think he should have

been able to ascertain it by the way the pump operated, but he had

no other means of knowing it. The Acting Chairman. The motion before the house is that the

enforcement of specification No. 13 be delayed until such time as the

device has been perfected.

Mr. Stewart. This places us in West Virginia in a rather peculiar

position. I had a bill put through our last legislature providing

that all regulations issued by the Bureau of Standards at any time

should immediately become effective in our State. We depend upon
TWELFTH ANNUAL CONFEBENCE ON WEIGHTS AND MEASURES. 193

them to tell us about these regulations and specifications. It does seem to me there ought to be a date set if we can, say a year or something of the kind, so when these specifications go out to the States

we will know when they will be in effect. Mr. HoLBROOK. We can not very well date the enforcement of a

specification which is to go into effect at some time in the future.

We can not very well date the time of enforcement when we do not

know how soon practicable devices may be evolved. If the confer- ence passes this, the work will be started. At any rate, if we are to follow out the suggestions which the Bureau has made, that these

specifications are tentative and are only to be enforced in so far as they are found practicable to be enforced, you are supposed to state your difficulties in order that we may adopt a final set of specifications next year. Is it the sense of the conference that that procedure

shall be followed?

The Acting Chairman. Please state the motion made.

Mr. HoLBROOK. I make a motion to the effect that the specification

under discussion be not retroactive on any pump, and, further, that

it is not to be put into force by weights and measures officials until

it has been demonstrated that there are devices on the market which

will properly take care of the subject matter of this specification.

Further, this conference calls the attention of the gasoline-pump

manufacturers to this specification, and gives notice to the pump

manufacturers that something like this is very much desired, and

that if proper steps are taken to get devices like this on the market

they will not be disturbed by the enforcement of this regulation at some future date. (The motion was duly seconded, and was agreed to.)

Mr. ScHiiiNK (reading)

:

" 14. Use limited to certain liquids.—Liquid-measuring pumps which will not

give correct results except when used with liquids having particular properties,

as, for example, high viscosity, shall be conspicuously, clearly, and permanently

marked to indicate this limitation. Such wording may take the form, " Not

suitable for gasoline or light oils," " Use only for molasses and heavy oils," or " For viscous liquids only."

As to the point involved in that, it has been said that when the

gasoline pvimp is being used for a different kind of gasoline than it was adjusted for, or when it is being used for gasoline when it was

built for kerosene or what not, then you can not expect it to be ac- curate. This really requires that the manufacturer shall accept the

responsibility of stating the kind of liquid for which the pump may

be properly used. Then, when incorrectly used, the fault can be

brought home to the fellow it fits, whether dealer or manufacturer.

(There being no further discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was

agreed to.)

Mr, CoRET. As a matter of information, one of the principal rea- sons for thus marking the pumps, which may not have occurred to you, is that certain metals or finishes are necessary for the handling

of certain liquids. I just suggest that so you will not be confused

as to differences in pumps for different liquids. It may be due solely to the materials of which the pump is made.

155530—20 13
194 BUBEAU OF STANDARDS.

Mr. Schlink: (reading)

:

15. Provision for sealing.—All devices adapted to be altered for adjusting or

correcting the delivery of a liquid-measuring pump shall be of such construction that they can be sealed, either separately Or together, in such a manner

that the position of none of them can be changed vplthout destroying the seal or seals: Provided, hotvever. That this shall not apply to such devices as alter the price, and consequently the delivery, of such a pump as is described in the

proviso of specification No. 4. Mr. Austin. I move to strike out the provisions of that number.

The Vice Pkesident. Mr. Austin moves that we strike out the

vi'hole section—section 15. Mr. Buck. I second the motion.

Mr. ScHOENTHAL. May I ask why ? There is no reason given.

Mr. Austin. For the reason that up to this time, as far as my ex- perience goes, there has been no pump found that would maintain its permanency for any feasible time, and this method of sealing them

would prevent the user of the pump from interfering with or readjusting his pump so that it might give reasonable accuracy in its delivery.

Mr. S'CHLiNK. This matter is more fundamental than the question

involved in specification No. 15. It becomes a question of whether or

not a gasoline pump is a measuring device. If it is a measuring device, it ought to be sealed, if we are to give it any credence at all. Our idea in preparing the specification was that if it is a measuring

device, seal it and give the consumer protection. The matter of

permanence of accuracy is covered in the previous specification,

which covers maintenance of accuracy of the pump when it is correctly adjusted. If you reject specification No. 15, you are rejecting

the whole matter of leaving the measuring pump under the jurisdiction of the sealer of weights and measures in so far as it becomes

a device available for use in trade. Am I right, Mr. Holbrook ? Mr. Holbrook. Yes.

Mr. Stimpson. It seems to me this practice of leaving pumps unsealed could very well be retained in any definite locality; if any

sealer does not think it is practical to seal the pump, he need not do

so.The Acting Chairman. The motion before the house is that the

entire section be rejected. Those in favor of rejecting say "Aye";

those opposed to rejecting "No."

(The motion was rejected.)

A motion to adopt is in order.

Mr. Barnard. I move that specification No. 15 be adopted.

(The motion was duly seconded and agreed to.)

Mr. iScHLiNK (reading)

:

16. stops to be positive.—When the stops or other stroke-limiting devices on

a liquid-measuring pump are subject to direct pressure, or impact, in the operation of the pump, such stops shall be of such construction that the permanence

and security of their positions are not solely dependent upon friction ; that is, under the conditions designated, the construction must provide for a positive, uonfrictional engagement of the parts vphose relative motions are to be pre- vented. This is to prohibit the use of stops held by set screws moving on a rod or any similar arrangement which will permit the continual

hammering of the stroke to slide the stop along the rod. Anything
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 195

that could happen in this way would increase the delivery of the

pump, it should be said. (There being no further discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was

agreed to.)

Mr. ScHLiNK (reading) :

17. Graduated parts secured.—When a liquid-measuring pump is provided with

a scale of graduations to indicate or adjust the amount to be delivered, this scale shall be riveted to its support or otherwise permanently fixed in position

:

Provided, however, That in the case of measuring pumps of the gauge-glass

type, a sliding scale will be permitted when the displacement of such scale is, by suitable mechanism, automatically prevented at all times when liquid is being discharged from the delivery outlet. The reason for that is obvious. If a man moves the graduated

scale at the time deliverj^^ is being made you do not know what he has

done to the final indication.

(There being no further discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was

agreed to.) Mr. ScHT.TNK (reading) :

18. Diversion of measured quantity.—There shall be no direct or continuous

connection or device adapted to return any portion of the measured liquid

from the discharge pipe or outlet of any liquid-measuring pump to the supply

tank or pipe of the same. All valves in the suction line which are intended

to prevent the reversal of flow of the liquid must be of such design that their closure is automatically effected in the use of the pump.

Mr. Barnard. I tloink we should give this specification careful consideration. In the matter of visible pumps, the underwriters have a provision that gasoline which is in the container should be returned

to the tank when the pump is closed for the day. I believe, and it was the consensus of opinion of the Michigan delegation in their conference, that there should be an automatic device for returning that

gasoline to the tank in the case of visible pumps. This specification

would not cover that, in my judgment.

Mr. HoLBROOK. I think the words " from the discharge pipe or

outlet " are significant there. I take it that the gasoline can be re- turned to the tank provided specification No. 5, which is already

adopted, is fulfilled. This provides that when two discharge outlets are provided the pump shall be so designed and constructed that one

outlet must be completely closed off whenever the other is open.

Mr. Barnard. I think our phraseology in that respect should be

absolutely clear, because it might be construed otherwise by some

sealer who may not have the sanie thought and technical idea Mr.

Holbrook has just presented. If the phraseology of that particular

specification were to be clarified, I believe it would be better in practice.The Acting Chairman. That, probably, can be done.

Mr. ScHLiNK. It would be well if you indicate what idea you wish

to comprise in the first sentence. I take it the second sentence is all right.

Mr. Barnard. My idea is to make that particular specification

clear and provide for an automatic device which will allow the gasoIme in the visible container to be returned to the tank in compliance

with the underwriters' regulations.
196 BUREAU OF STANDARDS.

Mr. HoLBKOOK. What do you mean by automatic?

Mr. Barnard. It is done by the closing of the door, so it can not

be done by the man in operating the pump at any time. If there were a device so a man could turn a valve or cock and return gasoline to the tank while the gasoline was going to the car, it would give an opening for short measure. Mr. HoLBROOK. It is provided in specification No. 5 that while gas

is being delivered to the car. it can not be delivered any place else

:

5. Closure of one outlet.—When two discharge outlets for the liquid are pro- vided on a liquid-measuring pump, the pump shall be so designed and con- structed that one outlet must be tightly and completely closed off whenever

the other is open, so that no liquid can be discharged except through that outlet which is in use at the time and for the purpose intended. Mr. Barnard. I think it ought to be clearly specified that it should

be an automatic arrangement.

Mr. HoLBRooK. You mean that Ave should require it to be an auto- matic arrangement ? How about letting the fire underwriters' asso- ciation take care of that?

Mr. Barnard. Why pass the buck to them? Why not do it ourselves ? Mr. HoLBROOK. Because the fire underwriters are going to make

their regulations for safety arrangements requiring that it be auto- matic.

Mr. Barnard. That would be a safeguard from short measure, too. Mr. HoLBRooK. I do not see how. If we have covered that matter

when the gasoline is going into the car, have we not covered the matter completely? The fact that it be automatically returned to the

tank is pure safety, is it not? Is there any accuracy requirement

there ? Mr. Barnard. If they put a valve or cock on that pump which is operated by hand, they comply M'ith specification No. 5, do they not ? The gasoline could not go into the tank unless that was open.

Mr. HoLBRooK. Right.

Mr. Barnard. What is to prohibit them from turning the opening

a little bit more, so wliile it is running into the car some will be re- turning to the underground tank ? Mr. HoLBROOK. Because one must be closed before the other can be

opened.

The Secretary. You can not always tell what is going into the

car. It might run into the tank, while you think it is running into

the car. Mr. HoLBRooK. If any man while delivery is going on turns the

valve on the pump, it is up to the purchaser to see that. At Mr.

Barnard's suggestion he would close the door which would be very

much less obvious than the turning of the valve. Of course, he can

turn a valve and retain part of the gasoline in the pump, but if he

deliberately shuts off a valve the purchaser is on his guard.

Mr. Barnard, There is a very great objection in Michigan to that

specification. It is a matter that was not clearly understood.

Dr. Eeichmann. I think Mr. Holbrook's contention is right. He

has covered that whole proposition of section 18 fundamentally, that

when you deliver the gasoline from the device all of it must go to the place intended. The automatic return is purely a safety proposition. I think if you butt in on that, you butt in on the fire under-
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 197

writers. The project brought up earlier in the day involved measure- ment and certainly you could not get much clearer English than that

Avritten in the former.

You can not put up to 16,000 firms the procedure that you want;

it would not be perfected in 1920. Mr. Bean. I was wondering if in specification No. 5 the word

" automatic " could not be inserted after " must," so as to read " one

outlet must be tightly and completely closed," etc, Mr. ScHLiNK. I move the insertion of that word.

The Vice President. It is moved and seconded.

Mr. W. S. TowNSEND (representing Guarantee Visible Measure

Sales Co.) I think, perhaps, that the proposition yon are trying to accomplish here is to prevent the return of liquid to the storage tank

at the time it is being delivered to the car. The solution to the question of whether or not the outlet to the tank, if there be one, is closed or not is to have that outlet above the surface of the liquid, so that no liquid can run out. If, for instance, you should insert the phrase

" should be automatically closed," I think the provision would be so broad that it would prevent a mechanical device being built to take

care of your proposition and absolutely accomplish what you want

to accomplish. I would, therefore, suggest that you make the wording so clear that it Avould permit the accomplishment of your purpose in a manner agreeable to the machinery manufacturers.

Mr. Barnard. We have specified how it must be done. It must be

done automatically.

The Acting Chairman. The question before the house is on the

insertion, in specification No. 5, of the word " automatically " after

the words " one outlet must," so as to read, " one outlet must auto- matically be tightly and completely closed," etc. Mr. HoLBRooK. Why " automatically " ? Mr. ScHLiNK. Mr. Barnard said that would obviate his objection.

Mr. HoLBROOK. Suppose it is done by manual means. In other

words, suppose we have a two-way valve so that one way must be

completely closed before the other opens.

Mr. ScHLiNK. That is fully automatic.

Mr. HoLBROOK. I take it he made it automatic by the closing of the

door.

Mr. Barnard. That was the suggestion.

Mr. HoLBROOK. Is a two-way valve operated automatically or manually ? Mr. ScHLiNK. A two-way valve one opening of which can only be

open at one time. Is tliere objection to it? Mr. HoLBRooK. Entirely satisfactory.

Mr. W. S. TowNSEND. What do you mean by " tightly closed " ? Mr. ScHLiNK. If tliere are two pipes leading out from the pump,

as in some pumps with a filling outlet alongside of the hose outlet,

this woidd require that when one is open the other nuist be closed.

ISIr. W. S. TowNSEND. Do you mean outlet to the car or to the

tank? What do you mean?

Mr. ScHLiNK. No liquid may be discharged except from that outlet

which is in use at that time. This would prevent any device on the

pump that would permit more or less to be diverted back to the tank

or diverted to any other delivery point while gasoline is being delivered to the car.
198 BUREAU OF STANDARDS.

Mr. W. S. To-\vNSE>!D. Suppose the opening in the rontainer—I am

speaking of the visible type—were above the level of the gasoline in

the container, would that accomplish your purpose?

Mr. ScHLiNK. It would, provided it were automatically maintained

in that position during the time the other valve was opened.

Mr. W. S. TowNSEND. That specification was written with the

closing valve in mind, but you say outlets must be tightly closed. I say the purpose can be accomplished by lifting the outlet. Mr. ScBXiNK. If the open outlet is at the top of the liquid in the

pump you speak of. I can still discharge liquid from the pump by

operating the level adjuster. Does that answer your question?

Mr. W. S. TowNSEKD. Suppose, then, that you fix this adjusting

rod so it can not be lowered?

Mr. ScHxiNK. That would comply, I think, since you could not

get liquid back through it. The AcTixG Chairjian. Two motions have been suggested to the

house. Tlie first is on the adoption of section 18 as read.

(The motion was agreed to.)

The Acting Chairman. The next motion is to insert the word

automatically after the word " must," in specification No. 5, so as

to read

:

When two discliarge outlets foi* the liquid are provided on a liquid-measuring pump, the pump shall be so designed and ooiistructed that one outlet must

automatically be tightly and completely closed off whenever the other is open, so that no liquid can be discharged except through that outlet which is in use

at the time and for the purpose intended. (The motion was duly seconded and agreed to.) Mr. ScHxiNK (reading) :

19. Only one shut-off cock permitted in discharge line.—No more than one

shut-off valve or cock, intended to be operated by hand for the purpose of cut- ting off the flow of liqnifl, shall be permitted in the discharge line of a liquidmeasuring pump, and in the case of liquid-measuring pumps witli which hose

or other movable delivery tube is used or which require the use of a vacuumbreaking valve or equivalent device, any shut-off valve shall be located as near

as possible to the pump itself, and not in the hose line or at the extremity of the hose, (There being no discussion a motion to adopt the specification a.s read was duly made and seconded, and the motion was agreed to.) Mr. ScHUNK (reading) :

20. Protection against corrosion.—In the case of liquid-measuring pumps

which depend for the accuracy of their measurement upon the tightness or per- fection of seating a valve or valves, the material used for tanks, piping, and

all such auxiliary apparatus as may contain liquid, including the pump itself, shall be of such nature and properties as to be free from the likelihood of corrosion or rusting or the liberation of particles wliich will be likely to impair

the tightness or correctness of seating of such valves. (There being no discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was agreed to.) Mr. ScHXixK (reading) :

21. Limiting height of suction lift.—No defined-stroke, piston-type, liquidmeasuring pump shall be so installed as to work under a total suction head

sufficient to cause vaporization of tlie liquid for which it is used under the highest temperature and lowest barometric pressure likely to occur.
TWELFTH ANNUAL CONFEBENCE ON WBTGHTS AND MEASURES. 199

It is inevitable that this specification should be somewhat vague

in its terms. That is, it is impossible to name the particular height

of lift, because it depends upon the gasoline used, and it will be up

to the locality to determine for itself or by application to the Bureau

of Standards in the case of the particular gasoline in question. We

have found that in the case of the ordinary gasoline sold here in

Washington a suction lift of 7 feet may actually be feasible. There

are gasolines, which you all know, that 3'ou can not lift at all by

suction, such as those that will boil off at ordinary temperature.

This is intended to be broad enough to cover the whole range of

possibility.

(There being no further discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was

agreed to.)

Mr. ScHLiNK (reading) :

22. Use of adjustments.—(a) No adjustment of the delivery of a delinedstroke, liquid-measuring pump shall be- permitted, except that intended to pro- duce a piston displacement per cycle of 231 cubic inches per indicated gallon

of delivery.

(B) Adjustments of piston displacement to correct for leaks, slippage, ex- cessive length of pipe line, or other defects of the installation shall not be

permitted.

This seems absolutely called for by the adjustment conditions that

obtain in the field. The installation men and repair men will change

the adjusting stop on a gasoline pump for anything that is wrong

from a slight leak to a broken pipe line. They have a queer idea

that the only thing the adjustment is for is to make that piston

generate a volume equal to a gallon when it moves a stroke. Mr. CoRET. This gets back to the previous paragraph : What happens when the user has been using straight-run gasoline satisfactorily and then operates with another gas?

Mr. ScHLiNK. He is likely to change adjustment of the piston, but

he should not do it, (There being no further discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was

agreed to.) Mr. ScHLiNK (reading) :

23. Stop mechanism to be definitely positioned.—All stops which define the

delivery of a liquid-measuring pump shall be clearly and conspicuously marked

to indicate the value of discharge volume to which they correspond, and any

device intended to vary the discharge by bringing different stops into operation

shall be so designed and constructed that it is brought to a definite and accurately defined position and that inadvertent displacement from that position

will be obstructed. (There being no discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was agreed to.)

Mr. ScHLiNK (reading) :

24. Position of operating handle.—(a) In all deflned-stroke, piston-type,

liquid-measuring pumps the initial or starting position of the operating crank

or handle shall be defined by a latch or snap which will operate to hold the handle accurately in that position when the apparatus is not in use. (6) The initial position of the handle on all types of defined-stroke, pistontype, liquid-measuring pumps shall be vertically downward. Handles which

in their starting positions are inclined to the vertical or stand vertically up- ward shall not be permitted.
200 BUREAU OF STANDARDS.

Mr. Cokey. I would like to ask why the second sentence ? Mr, ScHLiNK. It is a matter of custom with a large proportion

of measuring pumps to have the handle started in that position,

and customers and garage men are accustomed to that position. I have seen measuring-pump handles that were deliberately placed

off the vertical. In operating the pump the operator could bring it back and stop at the vertical position without hitting the lower

stop and next time he would start from that position and deliver

short measure to the extent of 20 to 30 per cent without your discovering it. Mr. Corey. There are pumps in which only a poi'tion of a reA'o- lution will give this full half stroke, and it is not convenient to

start them frojii a direct vei'tical position.

Mr. ScHLiNK. That may be true, but it seems to be necessary to safeguard the purchaser to the extent that he shall get full measure from a position where the handle is commonly supposed to

start. Mr. Corey. I can not see how that accomplishes this purpose.

Mr. Yake. There are types of pumps on the market where the

lug is disengaged from the piston. How would this specification

apply to those pumps ? The handle is free. Mr. ScHLiNK. Then the handle should engage the lug when in

the position specified.

Mr. Yake. It does not engage at all. How would the specification apply to that?

Mr. ScHLiNK. That is a difficult question to answer; I admit it freely. I do not know whether that type should be permitted when

it comes to that question. Perhaps it facilitates the perpetration of

fraud.

Mr. Yake. On the other hand, the type is such that it prevents it. Mr. Bean. I believe there are one or two pumps on the market in

which the handle is in a vertical upward position. Otherwise it is impossible to lock it. Mr. ScHLiNK. I admit it might require a modified handle.

Mr. Bean. "V\TTiat would be the result with these pumps now in use ? Would they have to be condemned ? Mr. ScHLiNK. It becomes a matter of policy of enforcing the regulations. Mr. HoLBRooK. I would say in relation to all these regulations that

if in the sealer's opinion a specification is here written which will

tend to improve the type, but which is not aimed at preventing the

perpetration of fraud at the present time, then, in the case of such a

specification, it need not be applied to apparatus in use at the time

these regulations are adopted.

The Acting Chairman, In other words, these specifications will

not be retroactive?

Mr, HoLBROOK. Those will not be retroactive which in the judgment of enforcing officials are not absolutely required to prevent the

perpetration of fraud. If a specification is put in here which the

official believes tends to eliminate a pump which at the present time

facilitates the perpetration of fraud, we suppose that ought to be

retroactive and affect the pumps in use at the present time. If

the specification is such that it will tend to improve the types of
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 201

pumps in the future, but the present type is not one which makes

easy the perpetration of fraud with the pump as installed, then we

think the specification should not be retroactive and should not

affect the pumps in use at the time the specifications will be adopted.

The only reason some of these were not starred as in the specifications

for weights and measures of other types is that they are tentative,

as I have emphasized.

If it is found that some of them would be detrimental to some in- terests without accomplishing a good purpose for the consumer, then

the official should not enforce those particular ones. Mr. CoRET. The point I made is that I fail to see how this particular

position of the handle accomplishes the desired end. If the moving

of the handle, for example, brings about a condition such as described

by ]Mr. Sclilink. the moving of the handle on the shaft would accomplish the same thing under this condition, and even more so, because

the purchaser is then depending upon the position of the handle to indicate whether the pump is properly set as delivery begins, that

being the case, nothing has been accomplished, and it upsets a whole

lot of work done upon thousands of pumps now used at the present

time and being manufactured constantly.

Mr. ScHLiMK. The only answer to that question is to ask another

one. How is the consumer to know when the stroke has been completed?

Mr. Corey. That is a matter of stopping in a particular position

of the handle.

Mr. ScHLiNK. He does not feel that stop. The operator feels it. There is no noise in connection with it even. You may see the handle

stop sharply, but, on the other hand, the operator who is deliberately

perpetrating fraud can easily so operate the pump as to give the impression of having reached the end of the stroke. I have seen it done,

and this is merely attempting to add a visual index to the purchaser,

of the stroke being completed. It simply complies with the custom

obtaining in the trade at that time.

Mr. Stewart. I would suggest that instead of regulating the position of the handle there be something to give a signal when a stroke

is at the bottom or at the top, so arranged that it will not give that

signal unless the complete stroke is made. That could be done and

done easily.

Mr. ScHLiNK. It is proper to say. Mr. Stewart, that we considered

that too radical a proposition, since it would require a much wider

I'ange of reconstruction of pumps than this. Mr. Stewart. That can be done by simply having a little bell. Mr. ScHXixK. But it would require reconstruction of every pump.

This would permit existing pumps to pass in large numbers,' because

many of them are so constructed.

A Member. I can make you one that can be attached to every pump

in the field. The Acting Chairman. The motion is on the adoption of specification No. 24. (The motion was agreed to.)

Mr. ScHxiNK (reading) :

25. Tolerances.—The tolerances to be allowed in exces.s or deficiency on all liquid-measuring pumps .^ihall not be greater than 1.8 cubic inches per indicated

gallon : Provided, however, That the manufacturers' tolerances or the toler-
202 BUREAU OF STANDARDS.

ances on all new liquid-measuring pumps sliall not be greater than one-half of the values given above: And provided further. That these latter tolerances shall also be applied to all pumps which are being retested after being found incorrect and subsequently adjusted or repaired.

Mr. HoLBRooK. I think it is fair to point out that this tolerance

is changed, as stated in the remarks which I made earlier in the

morning.

(There being no discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was agreed to.)

Mr. ScHLiNK (reading) :

26. Constancy of delivery.—The amounts delivered shall not vary by more

than the tolerances provided above, irrespective of the speed at which the apparatus is operated and irrespective of the time elapsing between operations, provided that, for the purpose of test, the condition of the apparatus

shall be such that a minimum period of nonuse of 24 hours shall not result

in an error of the first delivery of the pump after such period of nonuse

greater than the tolerance allowable. Note.—In applying the above specifications, errors due solely to a change

in the volume of the contained liquid resulting from temperature variations alone are to be eliminated, since an error of this character is unavoidable in the case of volumetric measurements of this kind when the appai'atus is standing unused. This change in volume due to temperature variations is, however, small in amount for all ordinary variations of temperature, amounting to about 0.7 per cent for each 10° F. change of temperature (or about

1.3 per cent for each 10° C. change of temperature).

Mr. Barnard. Is that a physical possibility relative to having the

pump corrected after standing 24 hours?

Mr. Stewart. I suggest that that item be laid on the table. Mr. HoLBRooK. I desire to amend that specification to the effect that the part beginning with the words " provided that," be starred

with a note of explanation that sealers shall not consider that this

is to be enforced rigidly and immediately, but that upon this point

in particular data be gained for the instruction of the conference

next year. Dr. E.EICHMANN. I second the motion.

Mr. HoLBROOK. I may say in addition, the question is asked, Is

Ihis a physical possibility? There is no question whatever about its being a physical possibility.

Mr. ScHLiNK. I can say further that in questionnaires sent out in- quiring as to whether this was physically possible every manufacturer

of liquid-measuring pumps that was approached said " yes " ; that

every pump when it left the factory would hold gasoline for any

length of time, and, furthermore, if there was not damage to the

A alves, such as deposits of material upon them, they would continue

to hold gasoline for any length of time.

Mr. HoLBRooK. I doubt it that is practicable ; few in use will stand

a 24-hour test. Mr. ScHLiNK. They tell me that. Mr. HoLBROOK. As you know, there have been new pumps install- ed in the Bureau which were supposed to be in perfect condition

for our tests that did leak, and the manufacturer of one, at least,

explained to me that while they could make a foot valve that would

hold gas for an indefinite lengtli of time, such a foot valve, being

A'ery deep, created such a large amount of trouble in practice that

they were trying to make a shallow valve that would come up to the

provisions of this specification.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 203

Mr. Yake. The majority of the troubles experienced with the valves,

as we all know, is clue to the character of the liquid that they handle,

and the minutest particle of dirt getting on the valve disk or seat allows the valve to pass gasoline. I think every man here will

agree that it is impossible to have this permanence test covered in a gasoline-pump specification.

Mr. HoLBROOK. Are they so tight when they leave the factory that

(hey will hold gasoline for 24 hours?

Mr. Yake. I would say the largest pump manufacturers in the

country aim to do that. Mr. HoLBRooK. Do they do that?

Mr. Yake. From the test imposed upon them I should say " Yes."

Mr. HoLBRooK. Are they rejected jf they leak 6 cubic inches in 24

hours ? Mr. Yake. They are rejected for less than that. They are rejected

for any leak at all. The aim is to make them perfectly tight.

Mr. ScHMNK. It does not make a great deal of difference for the

purposes of this specification as to whether they fail by a few cubic

inches in maintaining their tightness. We must have a line of

demarcation between a tight pump and one rejected because the foot

valves leak. If it is impossible for a pump to be maintained absolutely tight for a long time, there must be some limit on the leak

beyond which we shall not allow a leak to go. If adoj)ted later on,

it Avill lead up to a definite numerical sj'stem of what shall constitute

a definite allowable leakage.

The Acting Chairman. The question is on the adoption of this

specification No. 26. Amendment was that, beginning with the word

"• provided " in the fourth line, it be starred.

Mr. Corey. Going back to the words " irrespective of the time

elapsing between operations"?

The Acting Chairman. The amendment is to star beginning with

Ihe words, " provided that."

Mr. Holbrook. I now suggest that it carry back to the words " and

iiTespective " at the end of the third line. The Acting Chairman. The starring will start after the words

and irrespective."

Mr. Stewart. Will the star indicate delay ? The Acting Chairman. That it is not tx) be iuunediately enforced,

and that data be collected for the next conference.

(The motion was agreed to.)

(There being no further discussion, a motion to adopt the specification as amended Avas duly made and seconded, and the motion was

adopted.)

Mr. Holbrook. At this point I suggest that the specification

passed over be numbered 27 and put in here. Mr. ScHLiNK (reading) :

27. Length of scale on certain types.—In all gauge-glass or float-gauge types

of liquid-measuring pumps which have a graduated scale as the sole means of determining the amount of liquid discharged the length on the scale equivalent

to the tolerance at any point must be readily appreciable when the character

of the indicator and normal distance from the observer's eye is taken into consideration, and in no case shall this length be less than 0.04 inch. (There being no discussion, a motion to adopt the specification as read was dulj^ made and seconded, and the motion was agreed to.)
204 BUREAU OF STANDARDS.

Mr. ScHLiNK (reading) :

28. Maximum valve of mi.nimmn gradvatioii.—The inaximuin value of the

niiniiiiuni volume graduation on all liquid-measuring pumps shall be 1 pint.

Mr. Corey. Does that mean that gasoline pnnips must measure 1 pint?

Mr. ScHLiNK. They must be graduated to 1 pint.

The Acting Chairman. Do you think a 5-gallon-capacity tank

should be graduated to deliver a pint?

Mr. ScHLiNK. There are 8 pints in a gallon, 1 part in 40. Your

customer is paying $1.25 for the 5 gallons. You are giving him a chance to read to the nearest 3 cents; that is not very close, compared

with what is expected of computing scales. These graduations are used largelj'- in case a man asks for 5 gallons, finds his tank will not

hold it, aud sa^'s " Stop."' At that time you have to read how nnich

you have actually delivered to him ; so you see this auxiliary scale on

the tank is a means of estimating the actual delivery; not what he

intended to get.

The Acting Chairman. A man goes to fill his tank, supposing he

can take 5 gallons. They put the hose in and the pump is operated

until he gets -W, and finds his tank is overflowing.

Mr. ScHLiNK. The question is how much does he pay ? He has to read the indication to ascertain how much he is to pay.

The Vice President. Those in favor of the adoption of specification No. 28 say "Aye ;" those opposed " No."

(The motion was rejected.)

Mr. Schlink (reading)

:

29. Fraudulent construction pi'oliiMted

.

—AJl liquid-measuring pumps shall be

of such construction that they are not designed to and may not be used to

facilitate the perpetration (^f fraud. (There being no discussion, a motion to adopt the specification as read was duly made and seconded, and the motion Avas agreed to.)

Mr. ScHLiNK (reading) :

30. Metric system.—No specifications contained in the preceding pages shall be understood or construed to prohibit the sale or use of liquid-measuring de- vices constructed or graduated in units of the metric system.

The tolerances to be allowed on any liqiiid-measuring device constructed or graduated in units of the metric system shall be the same as tho.se specified on similar apparatus of an equivalent size or at an equivalent capacity in tht^' customary .system. (There being no discussion, a motion to adopt the specification as read was duly made and seconded, and the motion was agreed to.)

Mr. HoLBROOK. There is a report of the resolutions committee to come before the convention.

The Acting Chairman. We voted to come back this afternoon.

The Secretary. I have a commimication here from the Wholesale

Grocers' Association transmitting 30 copies of their brief prepared in regard to this wrapped-meat proposition introduced at this conference. We will distribute them as you go out. Mr. Barnard. I make a motion at this time that as soon as we

return to the convention after lunch we take up again the matter of

the net-weight proposition.

The Acting Chairman. The motion is that the question of net- weight marking be taken up. (The motion was seconded and agreed to.)
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 205

KEPORT OF COMMITTEE ON RESOLUTIONS, PRESENTED BY RALPH

W. SMITH.

The Acting Chairman. The committee appointed by the chair is ready to report if it is the wish of the conference. In the absence

of the chairman, I have been asked to present the report on behalf

of the committee. The resolutions are as follows

:

EESOLTJTION IN RE DECIMAL-WEIGHT FLOUE BILL. Whereas we, the delegates of the Twelfth Annual Conference on Weights

and Measures, in convention assembled, appreciate the great confusion result- ing from the sale of flours, meals, commercial feeding stuffs, and corn products

put up in packages weighing 196 pounds and the inconvenient and arbitrary

submultiples of this figure, namely, 98, 49, 24^, 12i pounds, etc. ; and

Whereas even this series is not adhered to in the several States, inasmuch

as packages weighing 96, 48, 24 and 25, and 12 pounds are sometimes stand- ardized by law instead of the correct subdivisions given above, thereby in- creasing the confusion : Therefore be it Resolved, That this conference go on record as heartily indorsing the principle of the sale of the above-mentioned commodities by the hundredweight

and the following multiple and subdivisions thereof, namely 200 pounds, and

50, 25, 10, 5, 4, 2, and 1 pounds, respectively. And be it further Resolved, That this conference respectfully urge the Congress of the United

States promptly to enact legislation embodying this principle.

Mr. Tucker. I move you that the resolution as read be adopted.

(The motion was duly seconded and agreed to.)

Mr. Smith (reading)

:

EESOLUTION IN EE FEDEEAL SERIALIZATION OF TYPE.*

Resolved, That we, the delegates of the Twelfth Annual Conference on Weights and Measures in convention assembled, realizing the imperative need

that exists for uniform regulations governing the type and construction of weights and measures and weighing and measuring devices used for commercial

purposes throughout the United States, go on record as heartily indorsing legis- lation designed to secure serialization of the type and construction of such ap- paratus by the National Bureau of Standards. Mr. Barnard. I move the adoption of the resolution.

Mr. Stimpson. I second the motion.

Mr. Stewart. Are the committee referring to containers in which

this stuff is to be packed and shipped ? Mr. Smith. Weights and measures and weighing and measuring

devices have reference somewhat to containers.

(The motion was agreed to.)

Mr. Smith (reading)

:

RESOLUTION IN RE SALE OF COMMODITIES BY WEIGHT.

Resolved, That we, the delegates of the Twelfth Annual Conference on Weights and Measures in convention assembled, indorse the principle of the

sale of all dry commodities by weight in so far as this method of sale is practicable, and respectfully urge upon Congress the imperative necessity of enact- ing legislation designed to put this method of sale into force and effect throughout the United States. Mr. Tucker. I move the adoption of the resolution.

Mr. Buck. I second the motion.

(The motion was agreed to.)

'See discussions on pp. 50 and 134.
206 BUREAU OF STANDABDS.

Mr. Smith (reading)

:

EESOLXJTION IN BE METRIC SYSTEM.

Resolved, That we, the delegates of the Twelfth Annual Conference on Weights and Measures in convention assembled, realizing the inherent simplicity of the metric system of weights and measures and the difficulties and handicaps

imposed upon the people and industries of the United States by the continued

use of the antiquated and cumbersome system of weights and measures cus- tomarily employed, do hereby state our conviction that the general adoption of the metric system in trade, commerce, and industry will be of inestimable benefit to the country, both in its internal and foreign relations. Mr. Gregg. Does that contemplate the adoption of the metric

system?

Mr. Smh-h. Yes; I think so. Mr. Gregg. I do not know that I fully understand that resolution,

and I will have to file a mmority report as a member of the resolutions committee on that question. That being the purpose, I will ask

the secretary to read the minority report prepared by myself and

another member of the resolutions committee who disagree on this

particular point only. That is the only point we disagree upon. I did not have the opportunity, Mr. Chairman, of attending the meeting

yesterday morning, having been detained on business matters, but one member of this committee went over the questions in detail with

me yesterday, and we came to the conclusion that we could not agree

to the majority report on that particular question.

The Secretary (reading) : We, the undersigned members of the committee on resolutions, beg leave to submit the following conclusions on the resolutions submitted to this conference by the majority of the committee:

1. We submit that all of the resolutions submitted by the majority meet our

approval and indorsement, except the resolution which has for its object the establishment of the metric system of weights and measures to the exclusion of

all other systems.

2. We can not agree to this resolution for the reason that we do not believe that the country is ready for this radical and far-reaching change. It will necessitate a complete reorganization of our entire industrial and economic' system in making the change from the dual system now in use throughout the

country, the English system predominating in all domestic commercial inter- course and transaction. We submit that the adoption of any other than the

Eijglish system of weights and measures for domestic use will have to be

brought about by a systematic education, which will require the work of more

than one generation. We submit, furthermore, that the adoption of the metric

system at this time (to the exclusion of any other system) will bring about

.social unrest and confusion. Respectfully submitted. Webster (New Hampshire).

Gregg (Texas).

Mr. Barnard. In the mterests of harmony, and inasmuch as it is almost the hmch hour, I move that this particular resolution be laid over until after that hour to give time for its consideration.

(The motion was seconded and agreed to.)

Mr. Smith (reading) :

RESOLUTION IN RE EDUCATION OF PUBLIC. Whereas our experience as weights and measures officials reveals a very

general and deplorable lack of ability on the part of the purchasing public

properly to protect themselves against short weight and measure practices

through ignorance of the proper use of weighing and measuring apparatus and
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 207

of laws and regulations prescribing the methods of sale to be employed.

Therefore be it Resolved, That it is the sense of this Twelfth Annual Conference on Weights

and Measures that the education of our future citizens along weights and

measures lines should have its inception during the formative period of their

lives ; namely, in the public schools. Mr. Barnard. I move the adoption of the resolution.

Mr. TiGHE. You state " public schools." There are parochial

schools in every section of the country, and in some cities they have more children than the public schools. Why not include them?

Mr. HoLBROOK. I move we strike out the word " public."

Mr. TiGHE. I also move that the word ignorance in reference to the

public be stricken out, and some other word used, such as unfamiliar.

The Acting Chairman. Will you read it with those changes. Mr.

Smith?

Mr. Smith (reading) :

EESOI.UTION IN UK KDUCATION OF THE PUBLIC. Whereas our experience as weights and measures officials reveals a very

general and deplorable lack of ability on the part of the purchasing public

properly to protect themselves against short weight and measure practices

through lack of knowledge of the proper use of weighing aud measuring apparatus and of laws and regulations prescribing the methods of sale to be employed. Therefore be it Resolved, That it is the sense of this Twelfth Annual Conference on Weights

and Measures that the education of our future citizens along weights and

measures lines should have its inception during the formative period of their

lives, namely, in all schools. The Acting Chairman. That seems to cover it. (It was regularl}" moved and seconded that the resolution as amended be adopted, and the motion was agreed to.) Mr. Smith (reading) : RESOLUTION IN RE STANDARDIZATION OF PACKAOKS. Whereas we, as weights and measures officials, realize that our present laws

requiring the quantity of the contents to be marked upon food in package

form fail adequately to safeguard the public in the purchase of commodities

.so put up: Therefore be it Resolved, That this, the Twelfth Annual Conference on Weights and Measures, record its conviction that standardization of packages is vitally necessary

for the proper and complete protection of the purchasers of commodities so packed.

(It was regularly moved and seconded that the resolution as read be adopted, and the motion was agreed to.)

Mr. Smith. As a matter of information to the conference I would

like to call their attention to the phraseology in the majority re- port of the committee on the metric-system resolution. The language

to which I refer is as follows : " Do hereby state our conviction that

the general adoption of the metric system in trade, commerce, and

industry will be of inestimable benefit to the country, both in its internal and foreign relations."

You will note that the resolution does not state that the confer- ence goes on record as favoring the immediate adoption of the sys- tem to the exclusion of all others. It states that the change will be

of benefit. The Acting Chairman. That will be taken up after dinner.
208 BTJBEAU OF STANDARDS.

Mr. Barnard. If it is the pleasure of the chairman and delegates

I will at this time submit the report of the resolutions committee on

the death of our brothers who have passed away during the past year. REPORT or SPECIAL COMMITTEE ON RESOLUTIONS, PRESENTED

BY E. G. BARNARD.

Whereas an AU-Wise Providence has seen fit in His judgment to call from

our midst John C. Connors, one of our oldest, most loved, and valued members

:

Therefore be it Resolved, That in his death the weights and measures officials of the United States have lost one who was always ready and willing to give his

time, and from his vast store of practical knowledge the assistance and advice they at any time requested ; and, while we bow in humble submission

to the will of Him who doeth all things well, we extend to his wife and family our heartfelt sympatliy, assuring them that, while he has gone, his memory

will always be cherished by the weights and measures officials of the Unitetl States ; and

Be it further resolved, That a copy of these resolutions be spread upon tlie minutes of this association and a copy of same, properly engrossed, sent to his family.

F. G. Baenakd.

f. s. holbeook.

Wm. F. Cluett.

(It was regularly moved and seconded that the resolution as read be adopted, and the motion was agreed to by a rising vote of

the members.)

Whereas the Twelfth Annual Conference of the Weights and Measures Officials of the United States )iave learned witli deep regret of the death of John R.

Willett, chief inspector of weights and measures of Indiana, one of its oldest and most loved members : Therefore be it Resolved, That, while we bow in humble submission to the will of Him who

doeth all things well, we deeply deplore his death and extend to his wife and

family our heartfelt sympathy, assuring them that, while he has gone, his memory will always be cherished by the weights and measures officials of the United States ; and

Be it further resolved. That a copy of these i-esolutions be spread upon the miuutes of this conference, and a copy of same, properly engrossed, sent to his family.

F. G. Baknabd.

f. s. holbsooe.

Wm. F. Cluett.

(It was regularly moved and seconded that the resolution as read be adopted, and the motion was agreed to by a rising vote of

the members.

)

Whereas the Twelfth Annual Conference of the Weights and Measures Officials of the United States have learned with deep regret of the death of James R. Smith, city sealer of weights and measures, Nashville, Tenn., one

of its respected and loved members : Therefore be it

; Resolved, That while we bow in humble submission to the will of Him who

doeth all things well, we deeply deplore his death and extend to his wife and

family our heartfelt sympathy, assuring them that, while he has gone, his memory will always be cherished by the Weights and Measures Officials of the United States ; and

Be it further resolved. That a copy of these resolutions be spread upon the minutes of this conference, and a copy of same, properly engrossed, be sent

to his family.

F. G. Baenaed.

f. s. holbrook.

Wm. F. Cluett.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 209

(It was regularly moved and seconded that the resolution as read

be adopted, arid the motion was agreed to be a rising vote of the

members.)

Mr. Barnard. Inasmuch as this convention has stood a minute in

silence in memory of one of its members, I think that we should

at this time arise in memory of John T. Willett and James R.

Smith and devote a minute of time to silence. (The delegates arose and stood for one minute in silence. A motion to recess for hmch was regularly made and seconded,

and the motion was agreed to. Accordingly, at 1.30 o'clock p. m., the conference took a recess for

luncheon.)

155530—20 ^14
EIGHTH SESSION (AFTERNOON OF SATURDAY, MAY 24,

1919).

The conference reassembled at 2.15 o'clock p. m., Dr. S. W. Stratton, chairman, presiding.

REPOBT OF COMMITTEE ON RESOLUTIONS—Continued.

Mr. Smith. The resolutions committee has amplified somewhat the

resolution in regard to the metric system. I will read it

:

RESOLUTION IN RE METRIC SYSTEM.

Resolved, That we, the delegates of the Twelfth Annual Conference on Weights and Measures in convention assembled, realizing the inherent simplicity of the metric system of weights and measures and the difficulties and

handicaps imposed upon the people and industries of the United States by the continued use of the antiquated and cumbersome system of weights and measures customarily employed, do hei'eby state our conviction that the general

adoption of the metric system in ti'ade, commerce, and industry would be of inestimable benefit to the country, both in its internal and foreign relations; and in order to prepare the public for the adoption of this system, and to bring

about a more general understanding thereof it is recommended that it be more

generally taught in our schools. Mr. Gregg. I think the amplified resolution covers the objections

that might have been urged to the original resolution ; therefore, on

behalf of the minority, I want to withdraw the minority report.

Mr. Barnard. I move the adoption of the resolution.

Mr. Buck. I second the motion.

The Chairman. I want to say in connection with this that I am

very glad, indeed, that this minority report has been withdrawn. I have found from long experience that people are very apt to get two

things confused in this discussion of the metric system. There are questions which pertain to it as a system of weights and measures, and those questions we should study, and study carefully and go into

them ; and then there are questions as to its method of adoption.

There is a very great disagreement as to the proper method of adoption that will have to be studied very carefully. It appears to me the

resolution before you is all right and as far as we can go at this

time, and as time goes on you will be thinking more and more of

these two phases of this question and be in a better position to dis- cuss them than we are to-day, so I am really very glad you have put

it in this form. It will do a great deal of good, and yet not do any

harm.

You have heard the motion and second. Those in favor will say

" Aye " ; contrary, " No."

(The motion was agreed to).

Mr. Smith (reading)

:

RESOLUTION OF APPRECIATION TO SECRETARY OF COMMERCE.

Resolved, That we, the delegates of the Twelfth Annual Conference on Weights and Measures, do hereby extend a vote of thanks to the Secretary of 210
TWELFTH ANNUAL CONPEHENCE ON WEIGHTS AND MEASURES. 211

Commerce, Hon. William C. Redfield, and the secretary of this conference ia hereby instructed to prepare in proper form and transmit to the Hon. William

C. Redfield a copy of this resolution. (It was regularly moved and seconded that the resolution as read

be adopted, and the motion was agreed to.)

Mr. Smith (reading)

BfiSOLUTION OF APPEECIATION TO TAEIOUS MEMBEES OF THE BTJBKAU OF STANDABDS.

Resolved, That the Twelfth Annual Conference on Weights and Measures do

hereby gratefully acknowledge by a vote of thanks their sincere appreciation

of the favors made possible by the untiring efforts of Dr. S. W. Stratton, Mr.

L. A. Fischer, the members of the Weights and Measures Division, and other members of the Bureau of Standard.

(It was regularly moved and seconded that the resolution as read

be adopted, and the motion was agreed to.)

Mr. Smith (reading).

BESOLUTION OF APPEECIATION TO OTHEB PEBSONS ASSISTING.

Resolved, That the Twelfth Annual Conference on Weights and Measures ex- tend a vote of thanks to Miss Steere, the estimable lady who has so generously

prepared luncheons for the members of this conference from day to day during

its sessions and to those who have so ably assisted her. Resolved further, That we extend a vote of thanks and appreciation to Mr. Fred H. Monk, our stenographer, who has so faithfully maintained his post of duty and recorded all the proceedings of this convention during its sessions. (It was regularly moved and seconded that the resolution as read

be adopted, and the motion was agreed to.)

CREATION OF PERMANENT COMMITTEE ON LEGISLATION.

Mr. Geegg. I do not know whether I am in order, as I am a new

member of this conference and come to sit at the door of the temple

before getting admission to the sanctuary ; but I want to make a motion if it is in order, Mr. Chairman, that the chair be empowered

to appoint at this time a permanent committee. I do not know

whether it will be necessary to proceed by formal resolution or whether an extemporaneous motion may be made, but the motion

chat I want to put—and if it is out of order, so declare it, you will

not offend me—is this: That the chair be empowered to appoint a permanent committee of either three or five, who will be known as the permanent committee on legislation to secure uniformity in

legislation throughout the country on weights and measures. Mr. Barnard. I will support that resolution.

Mr. Gregg. It may be awkwardly put.

The Chairman. That is very well put and a very important thing,

too. Are there any remarks?

I want to say that three or four of the bodies that I am attached

to have a committee of that kind. In some cases it is called the committee on governmental relations, and in others legislative. Such a committee, it seems to me, would be of very great advantage. It probably ought to consist of as many as five members. Are there

any further remarks on this? If not, those in favor of the motion

say "Aye ;" contrary " No."

(The motion was agreed to.)
212 BtTREAU OF STANDAHdS.

The Chairman. The chair will appoint this committee later. Are

there any other motions?

Mr. Barnard. The committee appointed two years ago for the

purpose of drawing a bill on sales by weight is ready to report whenever you are ready for that report.

The Chairman. The report will be in order.

REPORT OF COMMITTEE ON SALES BY WEIGHT, PRESENTED Bt

F. G. BARNARD.

Mr. Chairman and gentlemen of the conference, for the benefit of

those who were not here in, 1916 at the last conference, I wish to advise that at several conferences the matter of eliminating as far

as possible the dry measure in the sale of commodities at retail has

been discussed, and finally, in 1916, a motion was made that the

chair appoint a committee of three to draft a bill covering that

proposition and present the same to the next conference. The

chair appointed Mr. C. C. Neale, of Minnesota ; Mr. John M. Mote,

of Ohio; and myself as the committee to draw this bill. I might

state that during the last two years there has been a great deal of

difficulty in getting the committee together, but nevertheless we did

not lose sight of the duties that were imposed upon us, and by means

of correspondence and otherwise we have prepared a measure, which

is signed hy two members of the committee. Mr. Neale, being unable

to be here, was unable to sign it, of course. The bill is as follows

:

A BILL To provide for the sale by weight of certain commodities and to proYide a penalty

for the violation thereof. Be it enacted by the Senate and House of Representatives of the United

States of America in Congress assembled, That all articles hereinafter mentioned, when sold, shall be sold by avoirdupois net weight or numerical count, except M'hen same are sold in containers standardized by act of Congress, to wit: Apples, grapes, peaches, pears, plums, quinces, cranberries, prunes, raisins, dates, figs, dried apples, dried peaches, apricots, rice, beans, green beans,

carrots, onions, parsnips, potatoes, sweet potatoes, tomatoes, turnips, beets, peas, green peas, buckwheat, corn in ear, shelled corn, corn meals, flour, wheat,

rye, oats, sweet corn in ear, shelled sweet corn, hominy, dried sweet corn, pop corn in ear, shelled pop corn, blue-grass seed, broom-corn seed, canary

seed, cotton seed, clover seed, timothy seed, hempseed, malt, millet, onion sets, orchard-grass seed, rapeseed, redtop seed, English walnuts, black walnuts,

hickory nuts, Brazil nuts, pecans, almonds, filberts, ice, coal, coke, lime, salt, sugar, tea, coffee, bulk spices, cheese, butter, oleomargarine, lard, fresh and

salt meats, fish, game fowls, chopped feed, candy, and other commodities usually

and customarily sold by weight: Provided, That nothing in this section shall apply to seeds in sealed packages : Provided further, That the provisions of

this section shall not apply to the sale of any article where both buyer and seller in writing agree to other methods of sale: And Provided further, That nothing

in this section shall prohibit the sale of fresh fruits or vegetables which are customarily sold by the bunch, such as young onions, radishes, celery, and water cress. Sec. 2. That whoever by himself, his servant, or agent, or as the servant or agent of another person, firm, or corporation, sells or offers for sale any articles enumerated in section 1 of this act in any other manner than provided by this act in any State, Territory, or the District of Columbia shall be deemed guilty of a misdemeanor, and upon conviction thereof in the court of the United States having jurisdiction, shall, for the first offense be punished by a fine of not less than $100 nor more than $200 and cost of prosecution, or by imprisonment not

to exceed three months ; for the second and subsequent oifenses by a fine of S500 and cost of prosecution, or by imprisonment not to exceed six months.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 213

Sec. 3. That rules and regulations for the enforcemeut of this act not inconsistent with the provisions of this act shall be made by the Pirector of the United States Bureau of Standards and approved by the Secretary of Commerce. Prosecution for offenses under this act may be begun upon complaint

of local sealers of weights and measures or other officers of the several States and Territories appointed to enforce the laws of the States and Territories, i respectively, relative to the weights and measures. We itemized these different commodities under the advice of the

attorney general of Michigan, who advised me that it was ques- tionable in his mind if the dry measure could be eliminated, inasmuch as he thought it was authorized by the Constitution. He advised us that in itemizing these commodities we would get around

that proposition, and the act would be constitutional.

DISCUSSION.

The Chairman. You have heard the report of this committee.

What is your pleasure in regard to it? Should this be acted upon

or referred to this committee on legislation?

Mr. Hanson. I make a motion that this be referred to the committee on legislation.

Mr. TiGHE. I second the motion.

The Chairman. Are there any remarks?

Mr. Gregg. There is one provision only in the pi'oposed legislation

which, as I see it, might be objectionable, and that is the penal provision—the penalties imposed. Now, I believe that more effective

cooperation in the enforcement of the law can be secured by rendering contracts entered under any other system than that prescribed

by this act null and void and nonenforceable. If you put it upon a

civil basis, I believe that you will get more hearty cooperation from

the public generally than you will if it be made a penal statute. I am one of those old-fashioned fellows that believe we have too many

penal statutes now. We have so many penal statutes. Federal and

State, that no lawyer in the country can carry an index to the

Penal Code, much less know anything about it. I believe if you

make the penalties civil rather than criminal you would: get a more

hearty indorsement of the proposition.

Mr. Barnard. It seems to me that in doing that we will be apt

to take the teeth out of the bill. Possibly our friend from Texas is able to enforce the laws of Texas by the Golden Kule, but we find

that in other sections of the country some of the persons that we have

to deal with do not seem to comprehend that rule. Mr. Hanson. Is it not a fundamental principle of law that where

any sale is made in contravention of a statute that the vendor can not

recover in such a case. The Chairman. I think so. Mr. Mote. A statute similar to this was enacted in Ohio and was

declared to be unconstitutional.

The Chairman. Similar to the proposed bill?

Mr. Mote. The view of the Supreme Court there was to the effect that if we require a contract to be made in writing we deprive the in- dividual of the right of verbal contract. However, the decision of

the court stood 4 to 3, which was something near a tie. They did not

have anything like a large majority in the decision, but it resolved
214 BUREAU OF STANDARDS.

itself down to this, that you place the individual upon his honesty

and upon his integrity to obey this statute. In Ohio the people who

were desirous of giving honest weight and measure retained the sys- tem of sales by weight, while the fellow who sought to defraud immediately grabbed up a set of fake measures and started out with

them. So our experience with the bill was that the people who

wanted to take advantage of the court's decision and deal out 11

pounds of potatoes for a peck were the first ones to use the measure, while in other sections, the merchants who wanted to buy bought 60

pounds of potatoes to the bushel and gave 15 pounds to the peck.

They continue to sell these commodities by weight. It is my opinion

that the statute such as that recommended by Mr. Gregg would not

reach individuals such as the commission men, who—I will say in the

State of Ohio—are not to be trusted or to be dealt with as though it were their own desire to be honest.

A Member. I favor the criminal prosecution as recommended by

the committee, with the exception that the penalties are altogether too

severe. The minimum penalty of $100 is excessive, so excessive that I believe it will be not applied. If that were made not more than $100

for the first offense, it would give the judge the opportunity to fix the penalties to fit the individual crime. I think it would be far more effective in actual application.

Mr. Barnaed. These figures are put in there as a tentative proposition. Therefore, I do not have any objection to putting in that

fine if you want it there. Mr. Gregg. I do not believe you gentlemen fully understand the

object of having the bill changed as suggested. If you make any

contract entered into unenforceable where any other system is used

save and except that prescribed by law, a man is going to be careful

after he once loses his property by overstepping the law, and it will

make a much greater impression upon him and really make him a

better citizen to punish him in that way than it is to haul him up in

the penal courts for some lapse of memory.

The Chairman. It seems to me the remarks have shown clearly

that this matter should be further discussed. The motion before you

is to refer it to the committee on legislation with the view that that

committee look into this matter and report at the next meeting. Are

there any further remarks?

Mr. Mote. It is my opinion that there should be some recommendation to this legislative committee to the effect that some action might

be taken in this regard before the next meeting. I am very much in

favor of, and I believe that the assemblage here in general wish to

see some kind of a law presented at the earliest possible moment providing for sales by weight.

The Chairman. Could we not indorse the principle of sales by

weight and then refer to this committee ? Mr. Mote. That is, with a recommendation that some action be

taken in the way of having a bill presented to the next meeting.

The Chairman. The motion before us is to refer this to the committee on legislation.

(The motion was agreed to.)

The Chairman. Now a motion will be in order to commit the conference, if it so desires, to th© features of this,
TWELFTH ANNUAL CONFEEENCE ON WEIGHTS AND MEASURES. 215

Mr. Mote. I make a motion that the legislative committee to which

this bill is referred be instructed to take some action in the way of

preparation of a bill along the lines suggested here to be introduced

in the present Congress.

(The motion was seconded and agreed to.)

REMARKS BY DK. S. W. STRATTON, PRESIDENT.

I wish to thank Mr. Fischer and the various people who have

helped out for their courtesy. The first day of my absence I at- tended a new organization known as the Industrial Conference

Board. It is a group of representative business men of the country

who meet together once a month and discuss matters of great importance to industry. The second day I had the pleasure of reading

a paper before the Iron and Steel Institute and to listen to a good

many of their discussions, and especially to the speech of Judge

Gary.

The Iron and Steel Institute represents probably the greatest in- dustry in this country, and it will give you some idea of the size of that industi*y when I tell you there were 1,200 or 1,300 at the

banquet last night. The substance of Judge Gary's remarks were in

part that the industry had learned a good many things recently;

that their relations with the Government were not in the past what

they should have been; and that they had learned especially a good

deal in regard to that. At the other meeting of the day before they discussed similar

things. I might sum it all up in one sentence, that it is the desire of

the leaders of business and industry to decide all matters on the

basis of what is fair and just to one another, and what is fair and

just to the public, and what is fair and just to labor. I thought as they were speaking at both places of this conference going on in

Washington, how it represented one of the very large and important items which are going to enter into this new order of things.

Your actions here are very much more far-reaching than you imagine. Never before have we had a meeting which has devoted itself so carefully and continuously to technical matters. This has been an education in weights and measures to anyone who has not at- tended the meetings before, and the character of the meeting will go

on improving as more members come and as you gain more and more

experience in weights and measures.

I could not help comparing this meeting with the earlier meetings,

tvhere only a few had experience in these things and the larger part were inexperienced, but interested. To-day nearly all of our members come with things that they have put into practice, and they want

light and discussion on these things. There are a few here for the

first time, but even they have come with some suggestions along

many lines. I was pleased this morning that when you were discussing these

specifications regarding gasoline pumps the makers were here. Now, we have found in many, many conferences of this kind on various

subjects that there are nearly always two and sometimes three parties

to the specifications—the user, the manufacturer, and the various

officials involved, If the manufacturer is present at a discussion of
216 BUREAU OF STANDABDS.

this kind, and has an opportunity to ask why these things are done,

and sees there is a good reason for it—and they ought not to be dc^e

unless there is a good reason—he does not feel that something has

been arbitrarily forced upon him. The same is true of the users. You, as sealers, represent the public, and there are many cases where

the public should be represented on a thing of this kind, as well as the officials and manufacturers. As long as we proceed along these

lines, we are not only going to get rules and regulations which are wise and just, but we are going to have the support of all of the

parties concerned.

This action you took this morning and similar actions are of the

greatest help to the new members of the conference and to officials

all over the country. This movement is just beginning. It is going

to grow even beyond what you anticipate, and all of these codes or

regulations, whatever you may call them, will be taken as the standard by the new States and new cities that come into the organization.

It is going to be even more far-reaching than that. During the

past winter we have had delegates here at the Bureau from South

Africa, Canada, Australia, and Japan, all looking toward the es- tablishment of an institution similar to the Bureau of Standards,

and one of the things they have in mind, of course, is weights and

measures. Standards of measurement and standards in quality are the two things this institution is looking after. Now, as those insti- tutions are established throughout the world, your resolutions and

regulations and all material which you have adopted and put into

practice and found workable are going to be taken as the basis of

their actions. I received a telegram this morning requesting me to appear before the committee of the Canadian Parliament during

the first week of June, in regard to matters such as you have been

discussing. I am more than pleased to note the seriousness with

which you have taken this work and the way in which you have

gotten down to the real technical facts that are so essential to it. I want to thank you for your courtesy in coming and the suggestions

that you have given to us. I have always said that, while the original object of the conference was to bring the Bureau to the sealers, I am quite sure we have received more from them, and more from

these manufacturers of weights and measures, than we give to them.

It is, at any rate, a 60-50 proposition. Again, let me say to you

that we hope you will come back next year with many good suggestions in regard to the carrying out of these things. The great thing

about all of this is that if we have adopted regulations this year

which are found to be wrong or if conditions change in the next

year, we can change them. That is the great advantage of an organization of this kind. If we do not progress, we stand still. I thank

you.

Mr. Hanson. According to the program, we are scheduled to visit the Division of Weights and Measures Building and be entertained

there by exhibitions of the various appliances. Does that still hold

good, although it is Saturday aftemon?

The Chairman. There will be some one there. We will be very

glad to have you visit it. Mr. Mote. I believe there was something said yesterday in regard

to the delegates being supplied with the address made by the Secre-
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 217

tary of Commerce. I wonder if any steps have been taken to supply

the delegates with that instead of "waiting until we get it in the full report.

The Secretary. I may state that this address has been prepared

and sent down to the Secretary. Instructions were given that as soon as it came back copies should be gotten out. Whether it has

been done or not I can not say. We certainly will get them in a day

or two. I will be glad to see that everybody is supplied who stays

and goes through the Bureau. We have also given instructions to have a list of the officers struck off, and that will be readj^ in a few

minutes. I think the best way to distribute these would be as you go

out.Mr. BovE. I wish to suggest that it would be a good idea for the

conference to extend a special invitation to the governor of each

State and the mayor of each city to be present here at our next conference. I would like to know if that is a good idea.

The Chairman. Would not you modify that to the extent of asking

them to be present and if they can not come to send a delegate ? Mr. BovE. That would be a good idea.

Dr. Eeichmann. I move that the suggestion be referred to the

executive committee.

(The motion was seconded and agreed to.)

Mr. Fine. In reference to the address of Secretary Eedfield, I was

told this morning it had to be submitted to him first, and, as he was

busy and had to go away, it was delayed.

The Chairman. I think that unless the report is to be gotten out sooner than we have before, it would be a very good idea to send out

a resume of the proceedings here, what has taken place, in order that

you might use it until you get the report. Perhaps we may persuade

the Secretary and numerous others who have assisted here to get it out.Mr. Stewart. I notice in giving the name of each delegate attending the convention they also give us the State, but they do not give

us the address in case we want to write.

Mr. Hanson. It is implied that every man has his headquarters

in the capital of the State. Mr. Stewart. Many of the men on this list are county men and we

do not know whether they live in Jackson^'ille or Thomasville. or

Davisville, but they live somewhere in that county.

The Chairman. It might be a good idea to have a directory of the

weights and measures officials duplicated and sent out. The Secretary. We have a complete list of weights and measures

officials, but there are so many changes that it is impracticable to print it. We have it in card form and whenever anyone asks for a

list we find it advantageous to make them a list up to date. If we

give them a list six months old. there woiild be a good many changes

in it. Until these positions become more permanent, it is going to be

a difficult matter to do what you ask. We would like to do it. Mr. Hanson. Some years ago. I believe, the Bureau compiled all the laws in the various States relative to weights and measures. Do

you expect soon to compile another edition of such laws?

The Secretary. There has been a great deal of work done on

that and we expect to get it out as early as practicable.
218 BUREAU OF STANDARDS.

DISCUSSIOM" OP QUESTIONS INVOLVING LEGAL PROCEDURE.

Mr. Hanson. Another thing I would like to bring to the attention

of the Bureau is this. In my State I have collected all the supreme

court cases and have made an abstract of them. I think it would be

a good idea if we could get all the supreme court cases in other States, or in some of the leading States, and have them abstracted for future

reference. In our State some of our supreme court cases go back to

1780, and fundamental rules of law have been established and still hold good.

Mr. Barnard. There is one other matter I had in mind. A number

of us had a little conference of our own last night in discussing Dr.

Alsberg's remarks of yesterday. He stated in the course of his re- marks that his bureau did not feel disposed to define a package and

to establish a rule that wrapped hams and bacons should bear on the

principal label thereof the net weight of the article. In view of this we decided that as soon as the occasion presented itself we would

start a number of cases against dealers who are selling hams and

bacons in wrapped packages and rush these cases through to the

Supreme Court as rapidly as possible in order to get a decision from

that court. Dr. Alsberg holds that in his opinion that is the proper

way to settle the matter. I wondered if you approve action of that

kind.

The Chairman. Sometimes that is the only way to get things

started. These prosecutions would be made under your State law,

would they not ? Are there any opinions in regard to that ? Mr. Hanson. A supreme court decision gained in one of your

States would not necessarily have anything to do with interstate commerce at all. It may be a separate point of law. If Massachusetts

should decide that certain hams should be considered in package

form, that absolutely would have nothing to do with the interstate

proposition at all ; as long as this particular kind of bacon is in the

original package the laws in the State do not apply. The interpretation as to whether hams and bacon are in package form or not

naturally should be taken up through the Federal District Courts.

Mr. Barnard. The Chicago packers are shipping considerable hams

and bacons in wrapped form into the territory which I represent, and

I have previously taken the matter up with the Federal authorities,

and they inform me that if I see fit to start a case of that kind they

will, if the evidence is sufficient to warrant the action, be willing to go ahead with it. I think it would be an easy matter to start an

interstate case in that respect, if deemed advisable.

Mr. Gregg. Mr. Hanson raised a point that I was going to suggest.

These cases can only come to the Supreme Court of the United

States, or to the appellate jurisdiction thereof, through the regular

channel of the Federal courts. If there is a doubt about its being a

violation of a Federal law, of course the only way to decide that

question is to get it into the district court. The decision of the State

court, of course, will not be binding except in that particular jurisdiction.

Mr. Mote. Mr. Chairman, it seems to me as though it might be well

in view of the resolution adopted here yesterday, pertaining to a

decision of the Department of Agricidture to the effect that hams

and bacons were not in package form when wrapped—it might be
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 219

well if we would await the action of the Department of Agriculture

in regard to that decision before any action of this kind, because if a

case was started it would undoubtedly result in the packers refer- ring to that decision of the Department of Agriculture as their first defense, and we would have extreme difficulty. We got a law enartecl in the State of Ohio that absolutely forbids the commodities

to be sold with the weight of the paper included as a part of the

commodity sold. The packers were putting up 47 pounds of lard

and billing it as 50 pounds, at 32 cents a pound, and getting 96 cents for a can ordinarily worth one-fourth of that. I have seen as inuch

as $2.08 worth of paper wrapped around a box of pork loins, where

paper was not necessaiy. There should be some action taken, and I

believe it would be the best way if the Department of Agriculture

would make a different ruling.

The Cpiairman. What is tne weight of the package, and of the

paper ? Mr. Mote. I have taken as uuich as 14 ounces of paper from a

I)iece of ham.

Mr. Hamson. The short weight has nothing to do with whether

or not ham or bacon as wrapped is in tlie meaning of the law in package form. We have no difficulty in convicting if they sell hams

and charge for the paper, but the point of the resolution is that we

want the amount of meat marked on the outside of the package in a conspicuous and plain manner. It is a question of the package being

marked, not of short weight. I believe that the Attorney General

of the United States has sent a < ommunication to the department

saying that where the department has made a ruling such as they

have, hams and bacons were not in the meaning of the law in package form, he would simply say " The ruling is O. K." But if the

Bureau of Chemistry will not reverse their decision as to hams and

bacon, the only way you can do is to take an interstate shipment and commence to prosecute in the district court. The question would be, Is ham and bacon, as wrapped, food in package form ? Mr. Barnard. That was my contention.

'Mr. Staples. I had a case of that kind in the Supreme Court of

Minnesota, and the court rided that the ham or the piece of bacon was an original package and it could be sold as such, including the

wrapping, and I lost the case. Mr. HoLBROOK. Was it an interstate shipment?

Mr. Staples. No ; it was not an interstate shipment.

Mr. Hanson. Is the Supreme Court of that State the court of last resort ? Mr. Staples. It is the court of last resort. Mr. HoLBRooK. Were you prosecuting under the State law?

Mr. Staples. Yes ; I prosecuted under the State law.

Mr. Hanson. Could you give me the citation of that, please? I would like to look up the decision.

Mr. Staples. I have not got it here. I can give it to you.

Mr. Hanson. The issue involved there may be a different issue. Mr. Staples. These goods were packed in Minnesota.

Mr. Holbrook. A great many of these decisions vary when brought

under various State laws, because the State laws attempt to define a package, and therefore what is a package in one State is not neces-
220 BUREAU OF STANDAKDS.

sarily a package in another State. If the law of the State defines a package, the definition is good in that State in regard to the matter,

but the case will not be a precedent in any State having a definition

which varies in any essential respect.

The Chairman. This is not in the form of a motion. I do not

understand that there is any motion before the house.

Mr. Barnard. I simply asked your opinion whether you thought

it advisable to take action to have the courts define a package and

state whether in their judgment it should be marked with the net weight.

Mr. Hanson. It is understood, of course, that the average local

sealer has no jurisdiction over interstate shipments. If ham or bacon is shipped in interstate commerce, he would have to make in- formation to the United States District Attorney relative to this, and

it is up to the latter to take action if he cares to. Mr. Barnard. I understood that. Mr. Tucker. When are goods shipped from one State to another

out of interstate control ? Mr. HoLBROOK. It would take a good many pages to describe that

in detail, but I think I am correct when I say briefly that in general

it has been held by the courts that the}^ go out of interstate control

when they have been mixed with the general property of the State,

and that they have been mixed with the general property of the State

after the first sale within the State. I would not say that definitely,

but I think that is the case. Mr. Hanson. That is right.

Mr. HoLBRooK. For instance, if the package is shipped from outside the State to John Jones in Minnesota, he is protected in the sale of that package, but if he sells it to William Smith and it passes by

sale from William Smith to any other person in the State, the State

regulations take effect. The theory of the courts in that case is that in order fully to protect a man who is buying goods in interstate commerce, they must

so protect him that he can dispose of the goods, as otherwise the purchase of them for sale would be of no benefit to him. Therefore,

when John Jones in the State of Minnesota, for instance, gets that

package, the courts hold that in order to protect him, he must be

able to dispose of that package; but they do not protect a man who

has bought within the State and attempts to sell again within the

State. Mr. AtrsTiN. Just a question in connection with this. A packer of

Illinois has a branch in the city of Detroit. They consign a quantity

of hams or other commodities to their branch office for distribution.

The sale is made by the branch office in Detroit to some other busi- ness institution within the State. Is that commodity then out of

interstate commerce when it is sold by the branch office in Detroit,

within the State ? Mr. HoLBROOK. I think not. Mr. Staples. Not until the second sale ? The Chairman. The branch office would be just receiver.

Mr. Stewart. Have we not a decision of the Supreme Court some- thing like this: If goods be shipped into a branch house, and the

person there representing that branch house goes out and takes
TWELPTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 221

orders, and the goods are delivered from, that branch house, that

that is a sale within a State and has nothing to do with interstate

commerce? I think we have a decision, or two or three different

decisions. We got one of that kind on liquor.

Mr. HoLBEOOK. Mr. Chairman, when a decision is in relation to

liquor, it usually will not hold in relation to any other commodity,

because ever since the time of the Wilson bill Congress has been

making special laws upon the liquor question largely to protect the

States in the enforcement of their liquor-prohibition laws, and special

laws of that sort, when constitutional, take precedence over the general theory.

Mr. Barnard. My intention in trying out this particular matter was to take a sale made from the packers direct to the United States Army into the cantonment at Camp Custer, and I have made every

effort to bring forward a very good case. I know that hams and

bacons in regular packages are being sold to the Quartermaster's

Department. I am under the impi'ession that that would be inter- state commerce, would it not, coming from Chicago to the quarter- master's department at Camp Custer?

Mr. HoLBROOK. That would be interstate commerce, undoubtedly.

Mr. Barnard. That is where we intended to make a test case. Mr. Hanson. As a matter of information, now that the railroads

are under the United States Administration and the American Railway Express also, what jurisdiction, if any, have the local sealers of weights and measures over the scales that are used by the rail- road companies and express companies within their respective jurisdictions. We know, of course, that in the case of post-office scales we absolutely have no jurisdiction whatsoever. The question was

put up to me for an opinion a week or so ago, like this : " Has the

local sealer any jurisdiction over any scale which is used for the

purpose of determining freight or baggage charges, or otherwise, by

any railroad company which is under the jurisdiction of the administration here in Washington ? " Dr. Eeichmann. You say the local sealer has no jurisdiction in a post office. The sealer of weights and measures in New York had

a letter from the Postmaster General requesting that the sealers test the scales and condemn them if found faulty.

Mr. Hanson. I might say to Dr. Eeichmann that I wrote to the

Third or Fourth Assistant Postmaster General asking for jurisdiction or permission, and he wrote back to me that that was all handled by the United States inspectors and that the State has no

jurisdiction whatsoever, but if we wished to go in and cooperate he

would be glad to have us do so. We have no jurisdiction.

The Chairman. The railroad law is a very special law and provides for this probably in some blanket way, and the disposition is to take things exactly as they were before, unless there is some

particular reason. Mr. Hanson. One of our local sealers came to test the scales and

the scale inspector said the sealer had nothing to do with it. Mr. Stewart. Is not this the fact, that the railroads are only under

Government control; that the properties still belong to the comanies; and that therefore any sealer has the same jurisdiction as

e had before they were under Government control ?
222 BUKEAU OF STANDAEDS.

The Chaikman. That is the way it ought to be. Mr. Stewart. That is the way it is in West Virginia.

The Chairman. We are called upon, are we not, Mr. Holbrook,

to test scales. Are we called upon by the Eailroad Administration

to test the track scales or by the company owning the scales ? Mr. Holbrook. We have calls from both.

The Chairman. I think you will find that the Railroad Administration would rule that these matters are precisely the same as they were before.

Mr. Hanson. What are you going to do, Doctor, if one of the large

companies, through its scale inspector, says he will not recognize the

sealer? They have no jurisdiction.

The Chairman. That would have to be taken up with the Railroad Administration and they probably would support your sealer. Mr. Hanson. I maintain this, that the United States Administration here has simply been acting as trustee for the railroads, and the

general principle is, of course, that the trustee has legal title, simply

the use of it. Mr. Barnard. I might state I experienced a similar proposition

with the manager of the American Railroad Express Co. in Battle

Creek, and he was going to refuse to allow me to touch the scales that I had a complaint against. I immediately took things in my

own hands and went in and tied up the scale with a wire and told

him the scale would stay tied up, and if he attempted to untie it I would have a warrant out for him for interferring with me in the

discharge of my official duties. He soon came to his senses. Mr. Hanson. That was no criterion.

The Chairman. We could take that up with the administration.

The whole thing is temporary and it will not be very long, I should

say, before we get back to the old conditions.

Mr. Hanson. I hope we get back soon. The Chairjian. Is there any further business? If not, a motion

to adjourn is in order.

REPORT OF COMMITTEE ON PUBLICITY, PRESENTED BY L. S. SCHOENTHAL.

The committee on publicity has performed its duties. We have

given a great deal of time to them and have tried to get a great deal

of publicity, but we were not very successful, due to the fact that

the papers are crowded at the present time with congressional news. However, we did get some items in the paper, and we hope to have

quite an article in the Sunday morning papers. I want to say that

it has been a pleasure to work with my associates on this committee,

and that it is the first committee of any organization I ever worked

with wherein the members did their share of the work and the chairman did not have to do it all. Mr, Tetrault. I move you, Mr. Chairman, that we adjourn.

The Chairman. You have heard this statement. No action, I take

it, is necessary? You have heard the motion to adjourn. Is there a second?

(The motion was seconded and agreed to. Thereupon, at 3.30 o'clock p. m., Saturday, May 24, the Twelfth

Annual Conference on Weights and Measures of the United States

adjourned.)
APPENDIX.

SPECIFICATIONS AND TOLERANCES FOB LIQUID - MEASURING

PUMPS TENTATIVELY ADOPTED BY THE TWELFTH ANNUAL

CONFERENCE ON WEIGHTS AND MEASURES.

[For discuBBlon of these specifications and tolernaces, see page 169 et seq. of this report.]

1. Definition.—A liquid-measuring pump is a pump, or a combination of a pump with other meclianism, adapted to the measurement of liquid in definite quantities by volume.

2. Permanence.—(a) Liquid-measuring pumps shall be of such design, construction, and materials that thej' may reasonably be expected to withstand

ordinary usage without impairment of the accuracy of their measurement or the correct functioning of their operating or indicating parts. (b) The longitudinal axis of the measuring cylinder or chamber shall be

accurately plumb when the pump is in level, and a two-way or a circular level, or leveling lugs, or a plumb bob, shall be provided by means of which the

level can be established. The installation shall be of such strength and rigidity as to maintain this plumb and level condition.

3. Indicating and registering parts.—(a) Counters, meters, and graduated

scales used on liquid-measuring pumps to tally sales and deliveries to individ- ual purchasers shall be so located and disposed that their readings will be

visible to the customer, as well as to the operator of the pump.

(b) In the case of measuring pumps used for dispensing gasoline the counters

or graduated scales shall be of such size and stj'le that they are clearly visible

to, and readable by, the customer from any position which he may reasonably

be expected to assume.

4. Units of delivery.—Liquid-measuring pumps shall have the following dis- charge capacity per stroke or cycle, and these only : One gallon, a multiple of the gallon, or a binary submultiple of the gallon ; that is, a quantity obtained by

dividing the gallon by the number 2 or a power of the number 2 : Provided,

however, That a pump may be constructed to Qeliver other amounts than the

above, corresponding to predetermined prices at a definite price per gallon, but

in such cases the pump shall be so constructed that the price per gallon at which it is set at any time and also the amount actually delivered must be

clearly indicated.

5. Closure of one outlet.—When two discharge outlets for the liquid are pro- vided on a liquid-measuring pump, the pump shall be so designed and con- structed that one outlet must automatically be tightly and completely closed

off whenever the other is open, so that no liquid can be discharged except

through that outlet which is in use at the time and for the purpose intended.

6. Drainage of discharge piping.—(a) All liquid-measuring pumps used for the sale of gasoline shall be so constructed as to provide for the complete and

rapid drainage, to a definite and uniform level, of the liquid contained in the hose or outlet pipe. This specification will be construed to require that hose.

If used, shall be properly reinforced and shall be of such length and stiffness and its inlet end at such height above the normal level of its discharge end,

when used for the purpose of delivery to an automobile fuel tank, that no movable portion of the hose will be disposed in such a way as to tend to retain

liquid after the operation of the pump is completed.

(6) All liquid-measuring pumps shall be so designed and constructed that they will not permit a siphoning or a continuous trickle of liquid from the

discharge outlet after the operation of the mechanism is discontinued. All liquid-measuring pumps, which under the foregoing specification are required

to be equipped with a standpipe, shall be furnished with a vacuum breaker or 223
224 BUEEAU OF STANDAEDS.

equivalent device adapted to cause tlie definite, immediate, and rapid drainage

of the downcoming portions of tlie hose or pipe. Note.—A standpipe shall be defined as any elevated pipe designed to connect with the upper end of a hose or other movable delivery tube and intended to insure rapid and complete drainage of such delivery tube into the tank or

vessel into which liquid is being discharged.

7. Sensitiveness.—^All liquid-measuring pumps, of whatever type, used in retail trade shall be so designed, constructed, and graduated that their indications can be read or their discharge readily determined within an amount which is not greater than the value of tlie tolerance, as hereinafter provided.

8. Completeness of delivery before indication.—(a) On all defined-stroke,

piston-type, liquid-measuring pumps, the construction shall be such that a

counter or indicator will indicate clearly and definitely such discharge, and

only such discharge, as has actually been completed by the pump proper; that

is, the indication of each unit of discharge shall take place only when such

full discharge from the measuring cylinder has, in fact, occurred.

(b) Any such counter or tallying device as is required under the foregoing specification shall be so constructed that its dial or pointer is returnable

readily to a definite and dear zero i-eading before the next delivery is begun.

9. Pointers and indicators.—All pointers and indicators used on counters or computing attachments or other registering parts shall be so shaped that a cor- rect and accurate reading is given. Pointers are required to be symmetrical

about the graduation lines at which they may stand, and blunt-ended types

of pointers shall not be used.

10. Lettering, graduations.—(a) All markings, instructions, and graduations

requii'ed under these specifications shall be of such size, design, and location that they will not tend to become obliterated by dirt or oil, or for any other reasons tend easily to become illegible. (b) The graduations shall be of such character and arrangement that the major ones are clearly distinguishable from the minor ones.

11. Scales in opposite directiwis prohibited.—The use on a liquid-measuring

pump of two graduated scales reading in opposite directions and referable to the same pointer or liquid surface shall not be permitted.

12. Computing charts.—The value graduations on all computing charts used on liquid-measuring pumps shall not exceed 1 cent at all prices per gallon up to and including 30 cents. At any higher price per gallon the value graduation

shall not exceed 2 cents: Provided, however; That nothing in the above shall be construed to prevent the placing of a special value graduation to represent

each 5-cent interval. These special graduations may take the form of dots, staggered graduations, or similar forms. They shall be so placed that their meaning and value may be clearly understood, but they shall not be placed In the space between the regular graduations.

13.^ Exhaustion of liquid supply.—All measuring pumps of ichich the accuracy

of delivery is affected by the loivering of the liquid in the supply tank to a

point at or near the intake end of the suction pipe shall be provided loith a

device which will make the pump inoperable during the continuance of this condition, or shall be so constructed as to warn the purchaser and the operator

in a conspicuous and distinct manner that the level of the liquid supply is so low

as to endanger the accuracy of the measurement.

14. Use limited to certain liquids.—Liquid-measuring pumps which will not

give correct results except when used with liquids having particular properties

as, for example, high viscosity—shall be conspicuously, clearly, and permanently marked to indicate this limitation. Such wording may take the form,

" Not suitable for gasoline or light oils," " Use only for molasses and heavy

oils," or " For viscous liquids only."

15. Provision for sealing.—All devices adapted to be altered for adjusting or

correcting the delivery of a liquid-measuring pump shall be of such construction that they can be sealed either separately or together in such a manner that the position of none of them can be changed without destroying the seal or

seals : Provided, however. That this shall not apply to such devices as alter the price and consequently the delivery of such a pump as is described in the

t)rocess of specification No. 4.

^ The conference was of the opinion that this specification should not be at once put

into force and effect, but that further data should be obtained in reference to it. See

p. 192 of this report.
TWELFTH ANNUAL CONFERENCE ON WEIGHTS AND MEASURES. 225

16. Stops to be positive.—When the stops or other stroke-limiting devices on

a liquid-measuring pump are subject to direct pressure or impact in the operation of the pump, such stops shall be of such construction that the permanence

and security of their positions is not solely dependent upon friction ; that is, under the conditions designated the construction must provide for a positive, nonfrictional engagement of the parts whose relative motions are to be

prevented.

17. Graduated parts secured.—When a liquid-measuring pump is provided

vrith a scale of graduations to Indicate or adjust the amount to be delivered,

this scale shall be riveted to its support or otherwise permanently fixed in position : Provided, however. That in the case of measuring pumps of the

gauge-glass type a sliding scale will be permitted when the displacement of such scale is, by suitable mechanism, automatically prevented at all times

when liquid is being discharged from the delivery outlet.

18. Diversion of measured quantity.—There shall be no direct or continuous

connection of device adapted to return any portion of the measured liquid

from the discharge pipe or outlet of any liquid-measuring pump to the supply

tank or pipe of the same. All valves in the suction line which are intended

to prevent the reversal of flow of the liquid must be of such design that their closure is automatically effected in the use of the pump.

19. Only one shut-off cock permitted in discharge line.—No more than one

shut-off valve or cock intended to be operated by hand for the purpose of cut- ting off the flow of liquid shall be permitted in the discharge line of a liquidmeasuring pump, and in the case of liquid-measuring pumps with which hose

or other movable delivery tube is used, or which require the use of a vacuumbreaking valve or equivalent device, any shut-off valve shall be located as near as possible to the pump itself, and not in the hose line or at the ex- tremity of the hose.

20. Protection against corrosion.—In the case of liquid-measuring pumps

which depend for the accuracy of their measurement upon the tightness or

perfection of seating of a valve or valves, the material used for tanks, piping,

and all such auxiliary apparatus as may contain liquid, including the pump

itself, shall be of such nature and properties as to be free from the likelihood

of corrosion or rusting or the liberation of particles which will be likely to impair the tightness or correctness of seating of such valves.

21. Limiting height of suction lift.—No defined-stroke, piston-type, liquidmeasuring pump shall be so installed as to work under a total suction head

sufBcient to cause vaporization of the liquid for which it is used under the highest temperature and lowest barometric pressure likely to occur.

22. Use of adjustments.—(a) No adjustment of the delivery of a defined- stroke, liquid-measuring pump shall be permitted except that intended to produce a piston displacement per cycle of 231 cubic inches per indicated

gallon of delivery.

(6) Adjustments of piston displacement to correct for leaks, slippage, excessive length of pipe line, or other defects of the installation shall not be per- mitted.

23. Stop mechanism to be definitely positioned.—All stops which define the

delivery of a liquid-measuring pump shall be clearly and conspicuously marked

to indicate the value of discharge volume to which they correspond, and any

device intended to vary the discharge by bringing different stops into operation shall be so designed and constructed that it is brought to a definite and accurately defined position and that inadvertent displacement from that

position will be obstructed.

24. Position of operating handle.—(a) In all defined-stroke, piston-type,

liquid-measuring pumps the initial or starting position of the operating crank » or handle shall be defined by a latch or snap which will operate to hold the handle accurately in that position when the apparatus is not in use. (b) The initial position of the handle on all types of defined-stroke, pistontype, liquid-measuring pumps shall be vertically downward. Handles, which

in their starting position are inclined to the vertical or stand vertically up- ward shall not be permitted.

25. Tolerance.—The tolerance to be allowed in excess or deficiency on all liquid-measuring pumps shall not be greater than 1.8 cubic inches per indicated

gallon : Provided, however, That the jnanufacturers' tolerances or the tol- erances on aU new liquid-measuring pumps shall not be greater than one-half

of the values given above: And provided further. That these latter tolerances 155580—20 15
226 BUREAU or STANDAKDS.

shall also be applied to all pumps which are being retested after being found

incorrect and subsequently adjusted or repaired.

26.* Constancy of delivery.—The amounts delivered shall not vary by more

than the tolerances provided above, irrespective of the speed at which the apparatus is operated and irrespective of the time elapsing between operations: Provided, That for the purpose of test, the londition of the apparatus

shall he such that a minimuni period of nonuse of 2^ hours shall not result in an error of the first delivery of the pump after such period of nonuse

greater than the tolerance alloioahle. Note.—In applying the above specifications errors due solely to a change in the volume of the contained liquid, resulting from temperature variations

alone, are to be eliminated, since an error of this character is unavoidable

in the case of volumetric measurements of this kind when the apparatus is standing unused. This change in volume due to temperature variations is, however, small in amount for all ordinary variations of temperature, amounting

to about 0.7 per cent for each 10° F. change of temperature (or about 1.3 per

cent for each 10° C. change of temperature).

27. In all gauge-glass or float-gauge types of liquid-measuring pumps which

have a graduated scale as the sole means of determining the amount of liquid

discharged the length on the scale equivalent to the tolerance at any point must

be readily appreciable when the character of the indicator and normal dis- tance from the observer's eye is taken into consideration, and in no case

shall this length be less than 0.04 inch.

28. Fraudulent construction prohibited.—All liquid-measuring pumps shall be of such construction that they are not designed to and may not be used

to facilitate the perpetration of fraud.

29. Metric system.—No specifications contained in the preceding pages shall be understood or construed to prohibit the sale or use of liquid-measuring

devices constructed or graduated in units of the metric system.

The tolerances to be allowed on any liquid-measuring device constructed or graduated in units of the metric system .shall be the same as those specified on

similar apparatus of an equivalent size or at an equivalent capacity in the customary system.

' The conference was of the opinion that the Italicised portion of this specification should not be at once put into force and effect, but that further data should be obtained

in reference to it. See p. 192 of this report.o